ITC Investigation 701-TA-3844 is a U.S. International Trade Commission antidumping (AD) proceeding on High Purity Dissolving Pulp from Brazil and Norway; Inv. Nos. 701-TA-777 and 731-TA-1762-1763 (Preliminary) from Norway and Brazil. It's in the preliminary phase and currently in completed status. Commerce initiated the underlying investigation on September 2, 2025. 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
High Purity Dissolving Pulp from Brazil and Norway; Inv. Nos. 701-TA-777 and 731-TA-1762-1763 (Preliminary)
Pending ITC investigation (preliminary/completed) on "High Purity Dissolving Pulp".
Parties
Documents
Full text (746,992 chars)
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��R�X)���J�!�d��#�H*��>�`j��L|�bt+0�'v���i$��3�:$�?萬��kδ�e/�p��afzKKe:+��5k䙹H��bW1����b�`T�wmM���Ap���t�~��Ds J��$�c��?��y�&^[��R7rj@���j��ن���q�p]����p����s�\�L$6���2��i�R0ī���h��HCե�:�j�N}��%���k ;c����$���5��U: n �ʹ�+��|�9�?�BhE���/�>�k�9��N�D.�2J�"'O��A�s8�K��K��# pb�Q/LdX�Ñ�5�g ^��'8̩��)���NAK-���r�(�K�HJLm*�;��{��Z��m���p����U6�;pk��(QM��xY��,�����$��f /"�"�� ��@�A��-��Q}���_?�����(}`4�^FI���][Da�L��ۈ��D��sϔZ(犨���%�B��0��6�ڻ�y�d����I��`���«��'��PK!L��K],docProps/core.xml �(����N�0��+��\�D6q�nP����J��@��l0$vd;Y�+�}9���!� .*E�������t��,PJs)f�A%�"�yWى��!m�`��f^��O?��*�R�R� �᠑% ��j��S%A�� �D��B��Z����j�Ͱ���Eܲ�Ӳ�i��_�Tp�'ʸ� :��!�1"�\P��md�U�2�G�j X�V[�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-!~�4b 1e/")word/document.xmlPK-!�HaT�a8word/_rels/document.xml.relsPK-!s�?���;word/footnotes.xmlPK-!�������>word/endnotes.xmlPK-!�� �\�Aword/header1.xmlPK-!1���5K�Eword/header2.xmlPK-!��VOf�Iword/header3.xmlPK-!;��nNword/header4.xmlPK- !g_7B���Rword/media/image1.pngPK- !�P��+�+��word/media/image2.pngPK-!��R��� P�word/theme/theme1.xmlPK-!��r�^�}W�word/settings.xmlPK-!��$���customXml/item1.xmlPK-!uܽ �U��customXml/itemProps1.xmlPK-!�#@�_W�,�word/numbering.xmlPK-!������ word/styles.xmlPK-!��:2*�word/webSettings.xmlPK-!/계�3U word/fontTable.xmlPK-!L��K],�#docProps/core.xmlPK-!h�r'docProps/app.xmlPK-!I���la+docProps/custom.xmlPK-!t?9z�(�-customXml/_rels/item1.xml.relsPK�/ ──────────────────────────────────────────────────────────── === USITC Institution === 39419Federal Register / Vol. 90, No. 156 / Friday, August 15, 2025 / Notices Harmonized System establishes the general arrangement or structure of product categories, set forth in chapters, 4-digit headings, and 6-digit subheadings. It also includes the general rules of interpretation, and section and chapter legal notes that define the scope of sections, chapters, 4-digit headings, and 6-digit subheadings. The HTS is based on the Harmonized System nomenclature. The HTS includes additional national subdivisions (8-digit subheadings and 10-digit statistical annotations), as well as additional U.S. chapter notes, and other national provisions that facilitate the administration of U.S. customs, tariff, and statistical programs. In January 2026, the WCO is expected to publish recommended amendments to the Harmonized System nomenclature that the WCO proposes will enter into force on January 1, 2028. The amendments are the seventh in a series of such amendments and are part of the WCO’s ongoing program of periodically reviewing and updating the Harmonized System nomenclature. The Commission will post a copy of the WCO recommended amendments on its website at www.usitc.gov, once they become available, likely in January 2026. A copy of the current HTS, which incorporates the Harmonized System nomenclature in its overall structure, is available on the Commission’s website at https://hts.usitc.gov. Proposed recommendations; opportunity for submission of views by Federal agencies and the public: In preparing its recommended modifications to the HTS to the President, the Commission will post the proposed recommendations on its website, likely in February 2026. The Commission will publish a notice in the Federal Register at that time providing notice of their availability and notice of procedures for filing written views, including the date by which such written views must be filed. To assist the public in understanding the proposed changes and in developing comments, the Commission will include, with the proposed recommendations, a non-authoritative cross-reference table linking the proposed headings, subheadings, and statistical annotations to the corresponding current headings, subheadings, and statistical annotations. Persons using the cross-reference table should be aware that the cross- references shown are subject to change during the course of the investigation. Recommendations to the President: The Commission will submit its recommended modifications to the HTS to the President in the form of a report that will include a summary of the information on which the recommendations were based, together with a statement of the probable economic effect of each recommended change on any industry in the United States. The report also will include a copy of all written views submitted by interested Federal agencies and a copy or summary, prepared by the Commission, of the views of all other interested parties. The Commission expects to submit that report in September 2026. By order of the Commission. Issued: August 12, 2025. Lisa Barton, Secretary to the Commission. [FR Doc. 2025–15511 Filed 8–14–25; 8:45 am] BILLING CODE 7020–02–P UNITED STATES INTERNATIONAL TRADE COMMISSION [Investigation Nos. 701–TA–777 and 731– TA–1762–1763 (Preliminary)] High Purity Dissolving Pulp From Brazil and Norway; 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–777 and 731–TA–1762–1763 (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 high purity dissolving pulp from Brazil and Norway, provided for in subheading 4702.00.00 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 Government of Brazil. Unless the Department of Commerce (‘‘Commerce’’) extends the time for initiation, the Commission must reach a preliminary determination in antidumping and countervailing duty investigations in 45 days, or in this case by September 26, 2025. The Commission’s views must be transmitted to Commerce within five business days thereafter, or by October 3, 2025. DATES : August 12, 2025. FOR FURTHER INFORMATION CONTACT : Julie Duffy (202–708–2579), 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 August 12, 2025, by Rayonier Advanced Materials, Inc., Jacksonville, Florida, and the United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL–CIO, Washington, DC. 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) VerDate Sep<11>2014 18:02 Aug 14, 2025 Jkt 265001 PO 00000 Frm 00058 Fmt 4703 Sfmt 4703 E:\FR\FM\15AUN1.SGM 15AUN1 lotter on DSK11XQN23PROD with NOTICES1 39420 Federal Register / Vol. 90, No. 156 / Friday, August 15, 2025 / Notices and BPI service list.—Pursuant to § 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 September 2, 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 28, 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 September 5, 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 29, 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: August 12, 2025. Lisa Barton, Secretary to the Commission. [FR Doc. 2025–15518 Filed 8–14–25; 8:45 am] BILLING CODE 7020–02–P INTERNATIONAL TRADE COMMISSION [Investigation Nos. 701–TA–746–747 and 731–TA–1724–1725 (Final)] Overhead Door Counterbalance Torsion Springs From China and India; Cancellation of Hearing for Antidumping and Countervailing Duty Investigations AGENCY : United States International Trade Commission. ACTION : Notice. DATES : August 12, 2025. FOR FURTHER INFORMATION CONTACT : Peter Stebbins (202–205–2035), Office of Investigations, U.S. International Trade Commission, 500 E Street SW, Washington, DC 20436. Hearing- impaired individuals are advised that information on this matter can be obtained 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 : On June 2, 2025, the Commission established a schedule for the final phase of the subject antidumping and countervailing duty investigations (90 FR 24665, June 11, 2025), and on June 17, 2025, the Commission issued a revision to this schedule (90 FR 26608, June 23, 2025). On July 30, 2025, counsel for Alcomex Beheer B.V., Alcomex Springs Pvt Ltd., and Alcomex Springs Inc. (collectively, ‘‘Alcomex’’) informed the Commission that Alcomex was withdrawing its appearance in these investigations, and no longer planned to appear at any hearing or file any briefs. On August 5, 2025, counsel for IDC Group, Inc., Iowa Spring Manufacturing, Inc., and Service Spring Corp. (collectively, ‘‘Petitioners’’) filed a request that the Commission cancel the scheduled hearing for this proceeding and indicated a willingness to respond to any Commission questions in lieu of an actual hearing. On August 11, 2025, counsel for Petitioners filed a request to appear at the hearing, in the event that the Commission did not cancel the hearing, and stated that they continue to request a cancellation of the hearing, due to the reasons set forth in their August 5, 2025 submission. No other parties submitted a request to appear at the hearing. Consequently, the public hearing in connection with this proceeding, scheduled to begin at 9:30 a.m. on August 15, 2025, is cancelled. Parties to this proceeding should respond to any written questions posed by the Commission in their posthearing briefs, which are due to be filed on August 22, 2025. For further information concerning this proceeding, see the Commission’s notice cited above and the Commission’s Rules of Practice and Procedure, part 201, subparts A and B VerDate Sep<11>2014 18:02 Aug 14, 2025 Jkt 265001 PO 00000 Frm 00059 Fmt 4703 Sfmt 4703 E:\FR\FM\15AUN1.SGM 15AUN1 lotter on DSK11XQN23PROD with NOTICES1 ──────────────────────────────────────────────────────────── === D-Grids Spec Sheet === D-GRIDs references (i.e., for use with the D-GRIDs tool) for: High purity dissolving pulp (HPDP) from Brazil (BR) and Norway (NO) Inv. Nos. 701-TA-777 and 731-TA-1762-1763 Preliminary D-GRIDs spec sheet, p. 1 Question D-GRID number Columns Rows PRO Question II-3a (Overall machinery capacity) 115 5 3 PRO Question II-8 (Production, shipment, and inventory data) 172 5 12 PRO Question II-9 (US shipments by channel) 235 5 2 PRO Question II-10 (US shipments by production method) 245 5 4 PRO Question II-12 (Employment) 268 5 3 PRO Question II-14 (Purchases) 288 5 4 PRO Question II-15 (Subject purchases by importer) see note 316 7 15 PRO Question III-9a (Profitability data) 500 5 13 PRO Question III-9f (Depreciation expense) 592 5 1 PRO Question III-10a (Nonrecurring items) 598 5 7 PRO Question III-12a (Assets) 648 3 1 PRO Question III-13a (CapEx and R&D) 652 5 2 PRO Question IV-2b (Pricing products US) 706 2 14 Note: In relation to the tables on purchases of imports from subject sources by importer in the U.S. producers’ questionnaire (PRO II-15), the data begins on the 3rd column of data entry fields and any text information from the first two columns (importer of record, subject 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 I-8b (FTZ) 81 1 4 IMP Question I-8c (TIB) 89 1 2 IMP Question II-3a (Arranged imports) 103 4 3 IMP Question II-3b (Negligibility imports) 117 1 3 IMP Question II-5a (Imports BR) 121 5 12 IMP Question II-5b (US shipments by channel BR) 185 5 2 IMP Question II-6a (Imports NO) 198 5 12 IMP Question II-6b (US shipments by channel NO) 262 5 2 IMP Question II-7a (Imports AOS) 276 5 12 IMP Question II-7b (US shipments by channel AOS) 340 5 2 IMP Question III-2b (Pricing products BR) 361 2 14 IMP Question III-2c (Pricing products NO) 469 2 14 IMP Question III-3a (Purchase cost data BR) 428 2 14 IMP Question III-3b (Purchase cost data NO) 457 2 14 PUR Question 1 (purchases and imports) 18 4 8 D-GRIDs references (i.e., for use with the D-GRIDs tool) for: High purity dissolving pulp (HPDP) from Brazil (BR) and Norway (NO) Inv. Nos. 701-TA-777 and 731-TA-1762-1763 Preliminary D-GRIDs spec sheet, p. 2 Question D-GRID number Columns Rows FOR Question II-3a (Overall capacity) 102 5 3 FOR Question II-9 (Trade data) 153 7 8 FOR Question II-10 (Resales exported to the United States) 211 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-351-866 - Brazil === 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. 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Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === USITC Determination - Preliminary === 46920 Federal Register / Vol. 90, No. 187 / Tuesday, September 30, 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)). 2 90 FR 43168 and 43174 (September 8, 2025). 3 Commissioner David S. Johanson determines that there is a reasonable indication that an industry 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 at https://www.usitc.gov. FOR FURTHER INFORMATION CONTACT : Pathenia Proctor, The Office of Unfair Import Investigations, U.S. International Trade Commission, telephone (202) 205–2560. SUPPLEMENTARY INFORMATION : Authority: The authority for institution of this investigation is contained in section 337 of the Tariff Act of 1930, as amended, 19 U.S.C. 1337, and in section 210.10 of the Commission’s Rules of Practice and Procedure, 19 CFR 210.10 (2025). Scope of Investigation: Having considered the complaint, the U.S. International Trade Commission, on September 25, 2025, Ordered That— (1) Pursuant to subsection (b) of section 337 of the Tariff Act of 1930, as amended, an investigation be instituted to determine whether there is a violation of subsection (a)(1)(B) of section 337 in the importation into the United States, the sale for importation, or the sale within the United States after importation of certain products identified in paragraph (2) by reason of infringement of one or more of claims 1–59 of the ’579 patent; claims 1–29 of the ’598 patent; claims 1–23 of the ’810 patent; and claims 1–31 of the ’541 patent, and whether an industry in the United States exists as required by subsection (a)(2) of section 337; (2) Pursuant to section 210.10(b)(1) of the Commission’s Rules of Practice and Procedure, 19 CFR 210.10(b)(1), the plain language description of the accused products or category of accused products, which defines the scope of the investigation, is ‘‘televisions with smart features and functionality’’; (3) For the purpose of the investigation so instituted, the following are hereby named as parties upon which this notice of investigation shall be served: (a) The complainant is: Cerence Operating Company, 25 Burlington Mall Road, Suite 416, Burlington, Massachusetts 01803. (b) The respondents are the following entities alleged to be in violation of section 337, and are the parties upon which the complaint is to be served: Sony Group Corporation, 1–7–1 Konan Minato-ku, Tokyo 108–0075 Japan Sony Corporation of America, 25 Madison Avenue, New York, New York 10010 Sony Electronics Inc., 16535 Via Esprillo, San Diego, California 92127 TCL Industries Holdings Co., Ltd., 22nd Floor, TCL Technical Tower, Huifeng 3 Road, Zhongkai Development, Zone Huizhou, Guangdong, China 516006 TCL Technology Group Corporation, TCL Technology Building, No. 17 Huifeng Third Road, Zhongkai High- Tech Development Zone, Huizhou, Guangdong, China 516001 TCL Electronics Holdings Limited, 5th Floor, Building 22E, 22 Science Park East Avenue, Hong Kong Science Park, Shatin, New Territories, Hong Kong Manufacturas Avanzadas, S.A. de C.V., Blvd. Independecia No. 2151, Ciudad Juarez, Chihuahua, 32580, Mexico Shenzhen TCL New Technology Co., Ltd., 9th Floor, TCL Electronics Holdings Limited Building, TCL International E City, No. 1001 Zhongshan Park Road, Nanshan, China 518067 T.C.L. Industries Holdings (H.K.) Limited, 8th Floor, Building 22E, 22 Science Park East Avenue, Hong Kong Science Park, Shatin, New Territories, Hong Kong TCL King Electrical Appliances (Huizhou) Company Limited, No. 78, Huifeng 4 Road, Zhongkai Development Zone, Huizhou, China 516006 TCL Optoelectronics Technology (Huizhou) Co., Ltd., No. 78, Huifeng 4 Road, Zhongkai Development Zone, Huizhou, China 516006 TCL Overseas Marketing Limited, 5th Floor, Building 22E, 22 Science Park East Avenue, Hong Kong Science Park, Shatin, New Territories, Hong Kong TCL Smart Device (Vietnam) Company Limited, No. 26 VSIP II–A, Street 32, Vietnam Singapore Industrial Park II– A Tan Binh Commune, Bac Tan Uyen District, Binh Duong Province, 75000, Vietnam TTE Corporation, 7th Floor, Building 22E, 22 Science Park East Avenue, Hong Kong Science Park, Shatin, New Territories, Hong Kong TTE Technology, Inc. (d/b/a TCL North, America), 1860 Compton Avenue, Corona, California 92881 (c) The Office of Unfair Import Investigations, U.S. International Trade Commission, 500 E Street SW, Suite 401, Washington, DC 20436; and (4) For the investigation so instituted, the Chief Administrative Law Judge, U.S. International Trade Commission, shall designate the presiding Administrative Law Judge. Responses to the complaint and the notice of investigation must be submitted by the named respondents in accordance with section 210.13 of the Commission’s Rules of Practice and Procedure, 19 CFR 210.13. Pursuant to 19 CFR 201.16(e) and 210.13(a), such responses will be considered by the Commission if received not later than 20 days after the date of service by the Commission of the complaint and the notice of investigation. Extensions of time for submitting responses to the complaint and the notice of investigation will not be granted unless good cause therefor is shown. Failure of a respondent to file a timely response to each allegation in the complaint and in this notice may be deemed to constitute a waiver of the right to appear and contest the allegations of the complaint and this notice, and to authorize the administrative law judge and the Commission, without further notice to the respondent, to find the facts to be as alleged in the complaint and this notice and to enter an initial determination and a final determination containing such findings, and may result in the issuance of an exclusion order or a cease and desist order or both directed against the respondent. By order of the Commission. Issued: September 25, 2025. Lisa Barton, Secretary to the Commission. [FR Doc. 2025–18951 Filed 9–29–25; 8:45 am] BILLING CODE 7020–02–P INTERNTIONAL TRADE COMMISSION [Investigation Nos. 701–TA–777 and 731– TA–1762–1763 (Preliminary)] High Purity Dissolving Pulp From Brazil and Norway; 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 high purity dissolving pulp (‘‘HPDP’’) from Brazil and Norway, provided for in subheading 4702.00.00 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 imports of the subject merchandise from Brazil that are alleged to be subsidized by the government of Brazil.2 3 VerDate Sep<11>2014 21:50 Sep 29, 2025 Jkt 265001 PO 00000 Frm 00135 Fmt 4703 Sfmt 4703 E:\FR\FM\30SEN1.SGM 30SEN1 lotter on DSK11XQN23PROD with NOTICES1 46921Federal Register / Vol. 90, No. 187 / Tuesday, September 30, 2025 / Notices in the United States is threatened with material injury by reason of imports of HPDP from Brazil and Norway. 1 The Agency need not adjudicate the criminal violations alleged in the instant OSC. Ruan v. United States, 597 U.S. 450 (2022) (decided in the context of criminal proceedings). 2 The RFAA states that ‘‘the Administrator is authorized to render the Agency’s final order without . . . making a finding of fact.’’ RFAA, at 4 (citing 21 CFR 1301.43(c), (f), and 1301.46). However, 21 CFR 1316.67 requires that the Administrator’s final order ‘‘set forth the final rule and the findings of fact and conclusions of law upon which the rule is based.’’ See JYA LLC d/b/ a Webb’s Square Pharmacy, 90 FR 31244, 31246 n.7 (2025). 3 As Respondent filed a request for a hearing, the Agency finds that the Government’s service of the OSC was adequate. 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 August 12, 2025, Rayonier Advanced Materials, Inc., Jacksonville, Florida and the United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL–CIO Washington, DC 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 subsidized imports of HPDP from Brazil and LTFV imports of HPDP from Brazil and Norway. Accordingly, effective August 12, 2025, the Commission instituted countervailing duty investigation No.701–TA–777 and antidumping duty investigation Nos. 731–TA–1762–1763 (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 August 15, 2025 (90 FR 39419). The Commission conducted its conference on September 2, 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 26, 2025. The views of the Commission are contained in USITC Publication 5680 (October 2025), entitled High Purity Dissolving Pulp from Brazil and Norway: Investigation Nos. 701–TA–777 and 731–TA–1762–1763 (Preliminary). By order of the Commission. Issued: September 26, 2025. Lisa Barton, Secretary to the Commission. [FR Doc. 2025–19027 Filed 9–29–25; 8:45 am] BILLING CODE 7020–02–P DEPARTMENT OF JUSTICE Drug Enforcement Administration Jody Adams, N.P.; Decision and Order On June 21, 2024, the Drug Enforcement Administration (DEA or Government) issued an Order to Show Cause (OSC) to Jody Adams, N.P., of Ridgeland, Mississippi (Respondent). Request for Final Agency Action (RFAA), Exhibit (RFAAX) 2, at 1, 5. The OSC proposed the denial of Respondent’s application for DEA registration, Control No. W24008696M, alleging that Respondent’s registration would be inconsistent with the public interest. Id. at 1 (citing 21 U.S.C. 823(g)(1)). More specifically, the OSC alleged that Respondent illegally issued three prescriptions for controlled substances without a DEA Registration. Id. at 3. The OSC alleged that the issuance of these prescriptions violated both state and federal law.1 Id. (citing 21 U.S.C. 822; 21 CFR 1301.11; 30 Miss. Code R. 2840–1.5). On January 15, 2025, the Government submitted an RFAA requesting that the Agency issue a default final order denying Respondent’s application for registration. RFAA, at 4.2 After carefully reviewing the entire record and conducting the analysis as set forth in more detail below, the Agency grants the Government’s request for final agency action and denies Respondent’s application for registration. I. Default Determination Under 21 CFR 1301.43, a registrant entitled to a hearing who fails to file a timely hearing request ‘‘within 30 days after the date of receipt of the [OSC] . . . shall be deemed to have waived their right to a hearing and to be in default’’ unless ‘‘good cause’’ is established for the failure. 21 CFR 1301.43(a) & (c)(1). In the absence of a demonstration of good cause, a registrant who fails to timely file an answer also is ‘‘deemed to have waived their right to a hearing and to be in default.’’ 21 CFR 1301.43(c)(2). Unless excused, a default is deemed to constitute ‘‘an admission of the factual allegations of the [OSC].’’ 21 CFR 1301.43(e). Here, the OSC notified Respondent that should she request a hearing and file an answer and then fail to appear at the designated hearing, she would be deemed to have waived her right to a hearing and be in default. RFAAX 2, at 3 (citing 21 CFR 1301.43). Respondent timely filed a request for a hearing and an answer; however, on September 10, 2024, Respondent withdrew her hearing request. RFAA, at 2. 3 Subsequently, the Administrative Law Judge issued an order terminating the proceeding. Id. Consistent with the intent and purpose of the default provisions, the Agency has determined that a voluntary withdrawal of a hearing request demonstrates a respondent’s desire to no longer defend his/her case and contest the allegations of the OSC. See 21 CFR 1301.43(c); see also Default Provisions for Hearing Proceedings Relating to the Revocation, Suspension, or Denial of a Registration, 87 FR 68036, VerDate Sep<11>2014 21:50 Sep 29, 2025 Jkt 265001 PO 00000 Frm 00136 Fmt 4703 Sfmt 4703 E:\FR\FM\30SEN1.SGM 30SEN1 lotter on DSK11XQN23PROD with NOTICES1 ──────────────────────────────────────────────────────────── === Publication 5680 === High Purity Dissolving Pulp from Brazil and Norway Investigation Nos. 701-TA-777 and 731-TA-1762–1763 (Preliminary) Publication 5680 November 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 Julie Duffy, Investigator Lindsey Ljungberg, Industry Analyst Craig Thomsen, Economist James Horne, Economist Christopher Robinson, Accountant Teja Vayuvegula, Statistician Ravi Soopramanien, Attorney Douglas Corkran, Supervisory Investigator Special assistance from Keysha Martinez, Investigator Alec Resch, International Trade Specialist 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 High Purity Dissolving Pulp from Brazil and Norway Investigation Nos. 701-TA-777 and 731-TA-1762–1763 (Preliminary) U.S. International Trade Commission Publication 5680 November 2025 CONTENTS Page i Determinations…….………………………………………………………………………….…………………………..……… 1 Views of the Commission……………………………..……………………………………………………………..…....….3 Separate and dissenting views of Commissioner David S. Johanson……………………………...…..…43 Introduction .......................................................................................................... 1.1 Background ............................................................................................................................ 1.1 Statutory criteria .................................................................................................................... 1.2 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 ...................................................... 1.6 Alleged subsidies ................................................................................................................ 1.6 Alleged sales at LTFV........................................................................................................... 1.6 The subject merchandise........................................................................................................ 1.7 Commerce’s scope .............................................................................................................. 1.7 Tariff treatment .................................................................................................................. 1.9 The product .......................................................................................................................... 1.11 Description and applications ............................................................................................ 1.11 Manufacturing processes.................................................................................................. 1.13 Domestic like product issues ................................................................................................ 1.16 Part 2: Conditions of competition in the U.S. market ........................................................ 2.1 U.S. market characteristics ..................................................................................................... 2.1 Channels of distribution ......................................................................................................... 2.1 Geographic distribution .......................................................................................................... 2.2 Supply and demand considerations........................................................................................ 2.3 U.S. supply .......................................................................................................................... 2.3 U.S. demand ....................................................................................................................... 2.5 Substitutability issues ............................................................................................................. 2.7 CONTENTS Page ii Part 2: Conditions of competition in the U.S. market ..............................................continued Factors affecting purchasing decisions ............................................................................... 2.8 Comparison of U.S.-produced and imported HPDP ............................................................ 2.9 Part 3: U.S. producers’ production, shipments, and employment ..................................... 3.1 U.S. producers ........................................................................................................................ 3.1 U.S. production, capacity, and capacity utilization ................................................................. 3.6 Alternative products ......................................................................................................... 3.11 U.S. producers’ U.S. shipments and exports ......................................................................... 3.12 U.S. producers’ inventories .................................................................................................. 3.15 U.S. producers’ imports from subject sources ...................................................................... 3.16 U.S. producers' purchases of imports from subject sources ................................................. 3.16 U.S. employment, wages, and productivity .......................................................................... 3.17 Part 4: U.S. imports, apparent U.S. consumption, and market shares ............................... 4.1 U.S. importers......................................................................................................................... 4.1 U.S. imports ............................................................................................................................ 4.2 Negligibility ............................................................................................................................. 4.6 Cumulation considerations ..................................................................................................... 4.7 Fungibility ........................................................................................................................... 4.7 Geographical markets ......................................................................................................... 4.8 Presence in the market ..................................................................................................... 4.10 Apparent U.S. consumption and market shares ................................................................... 4.14 Quantity ............................................................................................................................ 4.14 Value ................................................................................................................................. 4.17 Part 5: Pricing data ........................................................................................................... 5.1 Factors affecting prices........................................................................................................... 5.1 Raw material costs .............................................................................................................. 5.1 Transportation costs to the U.S. market ............................................................................. 5.3 U.S. inland transportation costs.......................................................................................... 5.3 CONTENTS Page iii Part 5: Pricing data .................................................................................................continued Pricing practices ..................................................................................................................... 5.3 Pricing methods .................................................................................................................. 5.3 Sales terms and discounts .................................................................................................. 5.4 Price and purchase cost data .................................................................................................. 5.4 Price data ............................................................................................................................ 5.5 Price comparisons............................................................................................................... 5.8 Import purchase cost data .................................................................................................. 5.8 Price and purchase cost trends ......................................................................................... 5.12 Price-purchase cost comparisons ..................................................................................... 5.13 Lost sales and lost revenue................................................................................................... 5.14 Part 6: Financial experience of U.S. producers .................................................................. 6.1 Background ............................................................................................................................ 6.1 Operations on HPDP ............................................................................................................... 6.2 Net sales ............................................................................................................................. 6.6 Cost of goods sold and gross profit or loss ......................................................................... 6.7 SG&A expenses and operating income or loss .................................................................... 6.9 All other expenses and net income or loss ......................................................................... 6.9 Variance analysis .................................................................................................................. 6.10 Capital expenditures and research and development expenses .......................................... 6.11 Capital and investment......................................................................................................... 6.12 Threat considerations and information on nonsubject countries ........................... 7.1 Subject countries .................................................................................................................... 7.3 Changes in operations ........................................................................................................ 7.4 Installed and practical overall capacity ............................................................................... 7.5 Constraints on capacity....................................................................................................... 7.6 Operations on HPDP ........................................................................................................... 7.7 Alternative products ......................................................................................................... 7.14 CONTENTS Page iv Threat considerations and information on nonsubject countries .................continued Exports .............................................................................................................................. 7.15 U.S. inventories of imported merchandise ........................................................................... 7.16 U.S. importers’ outstanding orders ...................................................................................... 7.18 Third-country trade actions .................................................................................................. 7.18 Information on nonsubject countries ................................................................................... 7.19 Appendixes A. Federal Register notices ................................................................................................ A.1 B. List of staff conference witnesses ................................................................................. B.1 C. Summary data ............................................................................................................... C.1 D. Responses comparing sulfate and sulfite production .................................................... D.1 E. Information on shipments by production method ........................................................ E.1 F. Price data based on production method and cellulose source ...................................... F.1 G. Financial experience of U.S. producer Georgia-Pacific ................................................. G.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. UNITED STATES INTERNATIONAL TRADE COMMISSION Investigation Nos. 701-TA-777 and 731-TA-1762-1763 (Preliminary) High Purity Dissolving Pulp from Brazil and Norway 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 high purity dissolving pulp (“HPDP”) from Brazil and Norway, provided for in subheading 4702.00.00 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 imports of the subject merchandise from Brazil that are alleged to be subsidized by the government of Brazil.2 3 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 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 43168 and 43174 (September 8, 2025). 3 Commissioner David S. Johanson determines that there is a reasonable indication that an industry in the United States is threatened with material injury by reason of imports of HPDP from Brazil and Norway. 1 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 August 12, 2025, Rayonier Advanced Materials, Inc., Jacksonville, Florida and the United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL-CIO Washington, DC 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 subsidized imports of HPDP from Brazil and LTFV imports of HPDP from Brazil and Norway. Accordingly, effective August 12, 2025, the Commission instituted countervailing duty investigation No.701-TA-777 and antidumping duty investigation Nos. 731-TA-1762-1763 (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 August 15, 2025 (90 FR 39419). The Commission conducted its conference on September 2, 2025. All persons who requested the opportunity were permitted to participate. 2 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 high purity dissolving pulp (“HPDP”) from Brazil and Norway that are allegedly sold in the United States at less than fair value (“LTFV”) and subsidized by the government of Brazil. 1 I. 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.2 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.”3 II. Background Parties to the Investigation. The petitions in these investigations were filed on August 12, 2025, by Rayonier Advanced Materials, Inc. (“Rayonier”), a domestic producer of HPDP, and the United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL-CIO (“USW”), a domestic union representing workers 1 Commissioner Johanson determines that there is a reasonable indication that an industry in the United States is threatened with material injury by reason of subject imports of HPDP from Brazil and Norway. See Separate and Dissenting Views of Commissioner David S. Johanson. Commissioner Johanson joins sections I–VII.B of the Commission’s Views. 2 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. 3 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). 4 engaged in manufacturing HPDP (collectively, “Petitioners”).4 Petitioners and their counsel appeared at the staff conference and submitted a postconference brief.5 Three respondent entities participated in these investigations. Eastman Chemical Company (“Eastman”), a U.S. importer of subject merchandise, appeared at the staff conference and submitted a postconference brief.6 Borregaard ASA (“Borregaard”), a Norwegian producer and exporter of subject merchandise, and Bracell Bahia Specialty Cellulose S.A. (“Bracell”), a Brazilian producer and exporter of subject merchandise, and their counsel, appeared at the staff conference, and submitted postconference briefs.7 Data Coverage. The period of investigation (“POI”) in the preliminary phase of these investigations is January 2022 through June 2025. U.S. industry data are based on questionnaire responses of two firms that accounted for all known U.S. production of HPDP during the POI.8 U.S. imports are based on the questionnaire responses of 11 U.S. importers, which account for essentially all U.S. imports of subject merchandise from Brazil and Norway in 2024.9 The Commission received responses to its foreign producer/exporter questionnaires from one firm in Brazil and one firm in Norway, accounting for all known production of subject merchandise in Brazil and Norway in 2024.10 III. 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.”11 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 4 Petition, EDIS Doc. No. 859318 (Aug. 12, 2025). 5 Petitioners Postconf. Br., EDIS Doc. No. 861315 (Sept. 5, 2025). 6 Eastman Postconf. Br., EDIS Doc. No. 861321 (Sept. 5, 2025). 7 Borregaard Postconf. Br., EDIS Doc. No. 861325 (Sept. 5, 2025); Bracell Postconf. Br., EDIS Doc. No. 861318 (Sept. 5, 2025). 8 Confidential Report, INV-XX-124 (Sept. 19, 2025), as modified by Revision Memorandum INV- XX-132 (Sept. 24, 2025) (“CR”); Public Report, High Purity Dissolving Pulp from Brazil and Norway, Inv. Nos. 701-TA-777 and 731-TA-1762-1763 (Preliminary), USITC Pub. 5680 (Nov. 2025) (“PR”) at 3.1, Tables 3.1 and 3.7. 9 CR/PR at 4.1, Table 4.1. 10 CR/PR at 7.3, Table 7.1 Note. 11 19 U.S.C. § 1677(4)(A). 5 proportion of the total domestic production of the product.”12 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.”13 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.14 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.”15 The Commission then defines the domestic like product in light of the imported articles Commerce has identified.16 The decision regarding the 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.17 No single factor is dispositive, and the Commission may consider other factors it deems relevant based on the facts of a particular investigation.18 The 12 19 U.S.C. § 1677(4)(A). 13 19 U.S.C. § 1677(10). 14 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). 15 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). 16 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), 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). 17 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). 18 See, e.g., S. Rep. No. 96-249 at 90-91 (1979). 6 Commission looks for clear dividing lines among possible like products and disregards minor variations.19 The Commission may, where appropriate, include domestic articles in the domestic like product in addition to those described in the scope.20 A. Scope In its notices of initiation, Commerce defined the imported merchandise within the scope of these investigations as follows: The merchandise subject to these investigations is high purity dissolving pulp, which is a dissolving pulp with an alpha cellulose percentage of 90 percent by weight or higher on an oven dry basis, as calculated by: alpha cellulose percentage = (100¥S10) + 0.5 * (S10¥S18) where S10 and S18 values are determined by International Organization for Standardization (ISO) 692:1982, and having a brightness level of 90 percent or higher, as measured by ISO 2470–1:2016. High purity dissolving pulp may be derived from any virgin or recycled cellulose fiber source (including, but not limited to, those sourced from hardwoods, softwoods, woody crops, agricultural crops/byproducts/residue, an agricultural/industrial/other waste). High purity dissolving pulp may be produced from a chemical pulping process including without limitation a kraft (sulfate) pulping and/or sulfite pulping process. High purity dissolving pulp can be shipped in any form, including, but not limited to, a liquid slurry or in any dried form such as flakes, powder, granules, pellets, shreds, rolls and sheets. 19 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.”). 20 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 The scope includes merchandise matching the above description that has been finished, packaged, or otherwise processed in a third country, including but not limited to processes such as commingling, blending, diluting, repackaging, or any other process that would not otherwise remove the merchandise from the scope of the investigations if performed in the subject country. The scope also includes high purity dissolving pulp that is commingled or blended with high purity dissolving pulp from sources not subject to these investigations. Only the subject component of such commingled or blended products is covered by the scope of these investigations. Excluded from the scope is high purity dissolving pulp with an intrinsic viscosity under 455 milliliters per gram (mL/g), as measured by ISO 5351:2010. Also excluded from the scope is cotton linters pulp that consists of at least 90 percent by weight, on an oven-dried basis, of cotton linters fibers. High purity dissolving pulp products are classified under subheadings 4702.00.0020 and 4702.00.0040, of the Harmonized Tariff Schedule of the United States (HTSUS). High purity dissolving pulp products may also enter under subheadings 4706.30.0000 or 4706.92.0100. Reference to the HTSUS classifications is provided for convenience and customs purposes, and the written description of the merchandise under investigation is dispositive.21 HPDP is a raw material suitable for use in various applications including eyeglass frames, an inactive ingredient in pharmaceutical products, a bulking agent in food, and filtration products. HPDP is a chemical pulp generally derived from hardwood or softwood tree species, 21 CR/PR at 1.6-1.7; see also High Purity Dissolving Pulp From Brazil and Norway: Initiation of Less-Than-Fair-Value Investigations, 90 Fed. Reg. 43,168, 43,173 (Sept. 8, 2025); High Purity Dissolving Pulp From Brazil: Initiation of Countervailing Duty Investigation, 90 Fed. Reg. 43,174, 43,178 (Sept. 8, 2025). The scope as published in Commerce’s initiation notice differs from the scope set out in the petition in excluding cotton linters pulp that consists of at least 90 percent by weight, on an oven-dried basis, cotton linters fibers. Consequently, pulp such as that produced by GP Cellulose GmbH (“Georgia- Pacific”) at *** is now considered out of scope. HPDP such as that formally produced at Georgia- Pacific’s facility in Perry, Florida, remains in scope. CR/PR at 1.6 n.9. 8 though it can also be derived from non-wood sources, including agricultural crops, byproducts, residue, and industrial waste. The requisite fiber input undergoes a pulping process that isolates nearly pure cellulose in the form of a white, odorless product composed of more than 90 percent alpha-cellulose and low levels of hemicellulose and lignin.22 HPDP is manufactured through two chemical pulping methods: the kraft (or sulfate) process and the sulfite process.23 Both methods involve “digesting” wood pulp, and then washing, bleaching, and drying it, with the primary difference lying in the chemicals used in digesting.24 22 CR/PR at 1.10. Cellulose, hemicellulose, and lignin are the structural components of plant cell walls that are separated and broken down during the pulping process. Id. In-scope HPDP has an alpha cellulose percentage of 90 percent by weight or higher on an oven dry basis, a brightness of 90 percent or higher as measured by ISO 2470-1:2016, and an intrinsic viscosity of at least 455 milliliters per gram (mL/g), as measured by ISO 5351:201. Id. at 11. Higher alpha cellulose contents can be attained by removing hemicelluloses from pulp. Brightness can be increased by removing impurities and using oxidative chemicals in the bleaching stage. Viscosity can be increased by adjusting cooking conditions and reducing cellulose degradation in the bleaching stage. See Petitioners Postconf. Br., Exh. 1, Responses to Questions from the Commission, at 10. In addition to specifying desired purity ranges for these three factors, customers may specify other characteristics, including the desired ash content, fiber density, finished form, and delivery method. CR/PR at 1.10-1.11. 23 The soda cook production process, a third method, is used to produce out-of-scope ***. CR/PR at 1.10 n.19. See also Petitioners Postconf. Br., Exh. 1 at 11. 24 The kraft process requires the application of alkaline solutions composed primarily of sodium hydroxide (NaOH) and sodium sulfide (Na₂S) to break down the pulp. The sulfite process uses an acidic cooking liquor. Both processes break down lignin and turn the hemicellulose into soluble sugars, isolating the cellulose. CR/PR at 1.12-1.13. The sulfite process produces different byproducts than the kraft process because of the different chemicals used. The main byproduct of the sulfite process is brown liquor (also referred to as red liquor, thick liquor, or sulfite liquor), which is the spent cooking liquor. The main byproduct from the sulfate processes is brown stock, which contains black liquor, a residual mixture of degraded lignin, extractives, and cooking chemicals. Id. Both are recycled for re-use in the production of HPDP. Id. In both processes, the output of the digestion step undergoes multiple washing stages using rotary vacuum drum washers, which separates the pulp from the spent liquor while recovering chemicals for reuse. Following washing, the pulp passes through a series of fine mesh screens that ensure that only well separated fibers proceed to bleaching; acceptable fibers pass through the screens, while rejected fibers are reprocessed or discarded. CR/PR at 1.14. To achieve the desired brightness, the pulp undergoes a multistage bleaching sequence using various bleaching chemicals. Each stage is followed by intermediate washing to prevent chemical carryovers. The result is a high purity cellulose pulp with low hemicellulose content (of typically under 2 percent) and high alpha cellulose content (of at least 90 percent). CR/PR at 1.14. After bleaching, the pulp slurry is placed in a machine and is deposited onto a forming table, where water is removed. It then passes through press sections and a steam-heated drying section with serpentine drum dryers to reduce moisture content (typically to below 10 percent). The dried pulp is finished into continuous sheets, wound into jumbo rolls or cut down into flakes, powder, granules, pellets, shreds, labeled, barcoded for shipment, then shipped. CR/PR at 1.14-1.15. (Continued…) 9 B. Arguments of the Parties Petitioners contend that the Commission should define a single domestic like product, coextensive with the scope.25 They argue that all forms of HPDP have similar physical characteristics and end uses; share similar production processes and, while manufacturers may organize production facilities around the respective production processes, can be manufactured in the same facilities using the same or overlapping employees; are sold through the same channels of distribution; can be used interchangeably; are perceived as a single product category by producers and consumers; and are priced along a continuum, with particular HPDP grades sold in the same range of prices.26 Borregaard and Bracell argue that the definition of HPDP in the scope of these investigations is uncertain. Borregaard contends that the scope departs from “well-known definitions used in the industry” for commodity-grade dissolving pulp, which in its view is identified by alpha cellulose levels of 90 to 94 percent, brightness of 89 to 92 percent, and viscosity of 400 to 600 milliliters per gram.27 It argues for exclusion of commodity-grade dissolving pulp from the definition of the domestic like product.28 Bracell states that if the scope covers only specialty grade dissolving pulp, it has no domestic like product arguments to raise. However, if the scope is interpreted to include commodity grade dissolving pulp products, it argues that commodity and specialty grade dissolving pulp products should be treated as separate like products, contending that they: • have different physical characteristics and uses, with commodity grade products used to manufacture fabrics, versus the disparate range of products produced from specialty grade products; • are not interchangeable, due to their distinct physical characteristics and traits; (…Continued) 25 Petitioners Postconf. Br. at 3. 26 Petitioners Postconf. Br. at 4-7. 27 As noted in the staff report, “In 2024 *** of Rayonier’s and Georgia-Pacific’s U.S shipments of HPDP had an alpha cellulose content of 95 percent or greater. In 2024, *** percent of Bracell’s exports of HPDP to the United States had an alpha cellulose content of 95 percent or greater. In 2024, *** percent of Borregaard’s exports of HPDP to the United States had an alpha cellulose content of 95 percent or greater.” CR/PR at 4.7 28 Borregaard Postconf. Br. at 3-5. Borregaard does not provide citations for the “well-known” definitions that allegedly distinguish “commodity” from “specialty” grade dissolving pulp. Id. Moreover, as noted below, Borregaard’s representatives described inconsistent alpha cellulose thresholds as defining specialty grade HPDP products. 10 • are sold to different customers; • are perceived differently by customers and producers of specialty grade HPDP products; • are manufactured on production lines incapable of producing specialty-grade products; and • are priced differently, with commodity-grade dissolving pulp products “far less expensive” than specialty grade dissolving pulp products.29 C. Analysis These investigations raise two potential domestic like product issues: (1) whether to include HPDP produced from the sulfite process and kraft process in a single domestic like product; and (2) whether commodity grade dissolving pulp should be a separate domestic like product. Based on the record of these preliminary phase investigations, we define a single domestic like product consisting of HPDP, coextensive with the scope in these investigations.30 As discussed below, the limited record in the preliminary phase of these investigations does not indicate that there are clear dividing lines among HPDP products corresponding to the 29 Bracell Postconf. Br. at 4-6, Exh. 1, Responses to Staff Questions, at 1. Bracell submitted two documents addressing distinctions between commodity and specialty grade dissolving pulp products. The first, a report on the specialty cellulose market issued by consultancy group Hawkins Wright in July 2025, specifies ***. Id., Exh. 7 at 15. The second, an investor presentation prepared by Rayonier in February 2022, distinguishes between “Cellulose Specialties,” “Commodity Viscose,” “Fluff,” and “Commodity Market Pulp,” and identifies Borregaard and Bracell as competitors in the specialty segment. Id., Exh. 8 at 14-18. That document does not, however, provide any definitions for commodity versus specialty grade dissolving pulps. Id. Bracell also refers to the testimony of its representative, Peer Dohrn, who proffered a definition of commodity grade dissolving pulp at the staff conference as containing “alpha cellulose levels of 90 to 92 percent, brightness of 89 to 92 percent, and viscosity between 400 and 600 milliliters per gram.” See Transcript of the Preliminary Conference at 88 (Dohrn). See also Bracell Postconf. Br., Exhs. 3 (Muche Aff.) at ¶¶ 13-15, 4 (Seufert Aff.) at ¶¶ 14-17 (addressing the purportedly limited substitutability between the domestic like product and subject imports from Brazil). 30 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). 11 scope that would warrant defining separate domestic like products. On the other hand, the parties agree that there are differences between specialty-grade dissolving pulp products such as HPDP and commodity-grade products, although they do not agree on how to define these products. 1. Whether to Include HPDP Produced from the Sulfite and Kraft Production Methods in a Single Domestic Like Product Physical Characteristics and Uses. The record indicates that HPDP products whether produced using the kraft or sulfite production method share the same basic physical characteristics. Regardless of the fiber input and pulping process, HPDP is a white, odorless, fibrous sheet composed of alpha-cellulose and low levels of hemicellulose and lignin, and may be rendered in other forms, such as powder or flakes.31 HPDP is produced to customer specifications, which can vary in terms of alpha cellulose content, brightness, and intrinsic viscosity, among other characteristics.32 The record indicates some physical distinctions between sulfite-process HPDP and kraft-process HPDP. For example, ash content, which refers to the share of inorganic components, is generally higher if the sulfite process is used.33 Responses to the Commission questionnaires indicate some differences but overall general comparability of the physical characteristics of sulfite-process and kraft-process HPDP. U.S. producer *** submits that ***, whereas U.S. producer *** submits that ***.34 Moreover, five of seven responding U.S. importers reported that the production methods yielded similar, if not identical, HPDP, although two importers reported that the sulfite process generally imparts higher viscosity.35 It is unclear however whether any of the noted distinctions are meaningful for the end use product. HPDP produced from each process is used as a raw material for the production of downstream articles covering a range of applications.36 According to a Rayonier representative, HPDP generated by both the sulfite and kraft processes can be used to produce cellulose acetate, which represents the largest downstream application for HPDP in a range of products, including cigarette filters, the line material of suit jackets, bio-based plastics for tool handles, 31 CR/PR at 1.10. 32 CR/PR at 1.12. 33 CR/PR at 1.12 n.23. 34 CR/PR at Table D.2. 35 CR/PR at Table D.3. 36 CR/PR at 1.10. According to U.S. importer ***, it ***. Id. at Table D.3. 12 eyeglass frames, and cellophane.37 It can also be refined into microcrystalline cellulose, used in food products as a stabilizer or thickener.38 In contrast, Borregaard contends that the choice of fiber input and production method can “have a critical impact on the physical form of the final product, what type of market segment it can serve, and pricing.”39 Responses to the Commission questionnaires generally indicated no differences in end use application between sulfite-process and kraft-process HPDP.40 Manufacturing Facilities, Production Processes and Employees. Domestic HPDP is produced in production plants at different locations, with each plant employing a specific production process.41 As described above, all production of HPDP uses the same four steps – digesting, washing, bleaching, and drying.42 The record indicates that kraft and sulfite processes differ primarily in using different chemical processes in the digestion stage.43 Responses to the Commission questionnaires generally indicated no significant differences between the two production methods. According to U.S. producer ***, which produces HPDP using both methods, ***. It nevertheless submits that ***.44 Additionally, most responding U.S. importers reported no significant differences in pulp production methods.45 Importer *** reports that ***, whereas importer ***, which reported *** differences between these two production methods, submits that ***.46 Channels of Distribution. The record indicates that U.S. producers sold their products to distributors and directly to end users during the POI.47 U.S. producer *** and most responding 37 Conf. Tr. at 17 (Haseltine). 38 Conf. Tr. at 17 (Haseltine). 39 Borregaard Postconf. Br. at 9-10. See also Conf. Tr. at 97-98 (Müller); Eastman Postconf. Br., Exh. 2 at ¶¶ 5-10 (Giampetro Aff.) (arguing that Bracell’s HPDP, produced from eucalyptus hardwood, and Borregaard’s HPDP are used for fiber applications, but cannot be used in plastics and coatings and inks applications in which Rayonier’s HPDP, produced from softwood to yield high visibility product, are used). 40 CR/PR at Tables D.2-D.3. U.S. importer *** reported that ***. Id. at Table D.3. 41 Conf. Tr. at 15-17 (Haseltine); Georgia Pacific U.S. producer questionnaire response, EDIS Doc. No. 861024 (Sept. 3, 2025) at I-2a. 42 CR/PR at 1.12. 43 CR/PR at 1.12-1.13. The two processes also use different processes to recover sulfite or sulfate from, respectively, the black liquor and brown liquor byproducts of the digestion stage. 44 CR/PR at Table D.2. 45 CR/PR at Table D.3. 46 CR/PR at Table D.3. 47 CR/PR at Table 2.1. 13 U.S. importers report no differences in distribution channels between sulfite-process and kraft- process HPDP.48 Interchangeability. Petitioners assert that all HPDP products of equivalent alpha cellulose content, brightness, and intrinsic viscosity are interchangeable.49 U.S. producer *** reports that ***.50 Several responding U.S. importers report that the higher viscosity of sulfite- processed HPDP limits its interchangeability with kraft-processed HPDP.51 Producer and Customer Perceptions. Petitioners assert that Rayonier’s customers purchase HPDP from both of its production facilities, and are willing to switch between these plants and products as necessary.52 Responses to the Commission questionnaires were mixed with respect to this issue. Several responding U.S. importers reported that HPDP produced from both production methods is generally considered to be part of the same product category.53 Importer *** reports that ***.54 Importer *** reports that ***.55 Price. Petitioners contend that all HPDP is priced along a continuum that generally reflects specifications relating to alpha cellulose content, brightness, and intrinsic viscosity, and not to the production process.56 The pricing data compiled on the basis of production method indicate that prices for HPDP produced using the sulfite method were higher than for HPDP produced using the kraft method.57 Additionally, responses to Commission questionnaires regarding pricing were mixed. U.S. producer *** reports ***.58 Most responding U.S. importers report that the production process employed does not significantly contribute to price differences.59 Importer *** reports that ***.60 48 CR/PR at Tables D.2-D.3. In 2024, *** percent of domestically produced HPDP was sold to end users. Id. at Table 2.1. U.S. importer *** indicated that it ***. Id. at Table D.3. 49 Conf. Tr. at 77-78 (Haseltine; Baisburd); Petitioners Postconf. Br. at 5-6. 50 CR/PR at Table D.2. 51 CR/PR at Table D.3. 52 Petitioners Postconf. Br. at 6-7; CR/PR at Table D.2. See also Conf. Tr. at 43, 75 (Hicks). 53 CR/PR at Table D.3. 54 CR/PR at Table D.3. 55 CR/PR at Table D.3. 56 Petitioners Postconf. Br. at 7. 57 CR/PR at Tables F.1-F.2. 58 CR/PR at Table D.2. 59 CR/PR at Table D.3. 60 CR/PR at Table D.3. 14 Conclusion. The evidence on the record shows that HPDP contains the same general physical characteristics and largely shares the same range of uses whether produced using the kraft or sulfite production method. Although the digesting chemical differs depending on the type of production method used and both production methods are not used in the same facilities, production of all HPDP follows the same general steps. Kraft-process and sulfite- process HPDP are sold through the same channels of distribution and HPDP produced from both production methods are generally considered to be part of the same product category. There is some disagreement on the extent to which production method affects interchangeability, though most importers and Rayonier appear to agree that the production methods yield similar or identical HPDP. Although prices differ among HPDP products, with HPDP produced using the sulfite method more expensive on average than HPDP produced using the kraft method, prices appear to correlate more closely with stringent specifications for alpha cellulose content, brightness, and intrinsic viscosity. We therefore determine to include HPDP produced from the sulfite and kraft production methods in a single domestic like product. 2. Whether Commodity Grade Dissolving Pulp Should Be a Separate Domestic Like Product61 Physical Characteristics and Uses. The parties disagree on the technical criteria to distinguish between commodity and specialty grade products.62 As a result, they differ on whether the scope includes commodity grade products. Petitioners argued at the staff conference that the specifications in the scope as to alpha cellulose content, brightness, and viscosity denote specialty grade dissolving pulp, and exclude commodity-grade HPDP.63 61 The Commission’s preliminary phase questionnaires did not collect data delineated by whether the product was considered “commodity” or “specialty” grade dissolving pulp products; the Commission’s questionnaires requested that responses be provided for product consistent with the scope. As discussed below, any parties seeking to request the Commission to collect information differentiating commodity grade and specialty grade HPDP should do so in their comments on the Commission’s final phase questionnaires in advance of any final phase investigations, and include information supporting any definitions they request the Commission use to delineate these products. As noted, even among respondent parties there has been inconsistent information offered as to the definition of commodity grade product; to the extent parties request that the Commission delineate by specialty and commodity grade product in any final phase of these investigations, they are encouraged to reconcile the competing definitions they have offered. 62 Petitioners’ counsel stated that “specialty versus commodity mean different things for different companies, and that’s why the scope… and the domestic like product is based on the physical characteristics that we’ve defined and provided in the petition.” Conf. Tr. at 33-34 (Baisburd). 63 Conf. Tr. at 33-34, 169 (Baisburd). 15 Borregaard and Bracell, however, contend that “within the industry,” commodity-grade dissolving pulp is identified by alpha cellulose levels of 90 to 94 percent, brightness of 89 to 92 percent, and viscosity of 400 to 600 millimeters per gram.64 At the staff conference, one of Borregaard’s representatives testified that specialty grade dissolving pulp has alpha cellulose levels of 93 percent and above, brightness between 87 and 95 percent, and viscosities that can range up to about 1,800 milliliters per gram, whereas another opined that specialty grade dissolving pulp contains alpha cellulose levels of more than 95 percent.65 Additionally, Bracell argues that high-viscosity pulp products produced by Borregaard that fall below the 90 percent brightness threshold are a specialty product, and that the scope is underinclusive in excluding that product. However, the Hawkins Wright report ***.66 Although the record in these preliminary phase investigations is unclear on what physical characteristics separate commodity and specialty grade products, the parties generally agree that commodity grade and specialty grade dissolving pulp products have distinct uses. A Rayonier investor presentation from February 2022 distinguishes between “Cellulose Specialties,” used in filter, plastic, LCD/film, food, pharmaceutical, industrial, tire cord, casing, filtration, and nitro applications, and “Commodity Viscose,” “Fluff,” and “Commodity Market Pulp” products, used in clothing and diaper/personal hygiene products.67 Similar distinctions are drawn in a graphic presented in Borregaard’s brief and in the first chapter of the Hawkins Wright report.68 Manufacturing Facilities, Production Processes, and Employees. The limited available information in these investigations indicates that specialty grade dissolving pulp cannot be manufactured on commodity grade production equipment.69 Channels of Distribution. According to Bracell, commodity grade products’ distinct end uses result in their sale to different customers than specialty grade products.70 This aligns with 64 Borregaard Postconf. Br. at 3; Conf. Tr. at 88 (Dohrn). We observe that the limited available information on the record indicates that there was *** U.S. production of HPDP as defined with alpha cellulose levels below *** percent in 2024. CR/PR at 4.7. 65 Conf. Tr. at 88 (Dohrn), 125-126 (Bartholsen). 66 Bracell Postconf. Br. at 4-5, Exh. 8 at 15. See also id., Exh. 18, for commodity grade specifications that overlap with some of the technical specifications contained in the scope. 67 Bracell Postconf. Br., Exh. 7 at 14-17. 68 Borregaard Postconf. Br. at 3; Bracell Postconf. Br., Exh. 8 at 14. 69 Specifically, a Bracell representative testified at the staff conference that, although mills designed for specialty grade products can produce both grades of pulp products, commodity grade mills “cannot produce specialty grade without significant investments to retrofit and rebuild the commodity grade production line.” Conf. Tr. at 89 (Dohrn). 70 Bracell Postconf. Br. at 6. 16 the information concerning uses contained in the Rayonier investor presentation and the Hawkins Wright report.71 Interchangeability. Bracell argues that commodity dissolving pulp is generally not interchangeable with specialty grade dissolving pulp for the various uses specialty pulp is applied to.72 Producer and Customer Perceptions. Bracell argues that commodity grade dissolving pulp is perceived differently by producers and customers, and is sold to different customers.73 Price. According to Bracell, prices for commodity grade dissolving pulp products are significantly less than prices for specialty grade dissolving pulp products.74 Conclusion. The parties agree that commodity dissolving pulp is a separate like product from specialized dissolving pulp. However, they do not agree on the definition for either category, or whether some of the products within the scope are commodity dissolving pulp. The record in this preliminary phase of our investigations does not contain information sufficient for us to establish definitions, or to conclude that the scope includes commodity grade dissolving pulp. If parties wish us to consider these issues further, we encourage them to address data collection issues in their comments to the draft questionnaires in any final phase of these investigations.75 3. Conclusion In sum, for the above reasons, we define a single domestic like product consisting of HPDP, coextensive with the scope, for purposes of these preliminary phase investigations. IV. 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 71 Bracell Postconf. Br., Exhs. 7 at 16, 8 at 6. 72 Bracell Postconf. Br. at 6; Conf. Tr. at 88 (Dohrn). In Mr. Dohrn’s view, interchangeability between commodity grade and specialty grade products is severely limited (“At best, some {commodity- grade mills} can edge into the very low end of the specialty grade”). 73 Bracell Postconf. Br. at 6. See also id., Exhs. 7 at 16, 8 at 6. 74 Bracell Postconf. Br. at 6. 75 See 19 C.F.R. § 207.20(b). We also invite parties to identify any proposed domestic like products in their comments on the Commission’s draft questionnaires, and specify with particularity those products for which they seek the Commission to collect separate data. 17 a major proportion of the total domestic production of the product.”76 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. Petitioners argue that the Commission should define the domestic industry as including all U.S. producers of the domestic like product–itself and Georgia-Pacific before it ceased producing HPDP at its facility in Perry, Florida in 2023.77 78 There are no related party issues in these investigations. No responding producer reported importing subject merchandise during the POI or affiliation to any importer or exporter of subject merchandise.79 Therefore, consistent with our definition of the domestic like product, we define the domestic industry to include all domestic producers of HPDP. V. 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.80 The Commission’s questionnaire data indicate that from August 2024 through July 2025, the 12-month period preceding the filing of the petitions, subject imports from Brazil accounted for *** percent of total U.S. imports of HPDP and subject imports from Norway accounted for *** percent of total U.S. imports of HPDP.81 As subject imports from both countries exceed negligible levels, we find that imports of HPDP from Brazil and Norway are not negligible. 76 19 U.S.C. § 1677(4)(A). 77 Petitioners Postconf. Br. at 8. 78 Respondents identified Cosmo Specialty Fiber, Inc. (“Cosmo”) as a third U.S. producer of HPDP during the POI. See, e.g., Bracell Postconf. Br. at 6-7, 29 (arguing that ***; Eastman Postconf. Br. at 11- 12 (arguing that Cosmo “primarily produced commodity grade wood pulp, as well as a small amount of HPDP”). Petitioners contend that Cosmo, which closed its mill in Cosmopolis, Washington, in 2022, produced only out-of-scope dissolving pulp products during the POI. Petitioners Postconf. Br. at 8 n.24. Staff were unable to verify whether or to what extent Cosmo produced in-scope HPDP during the POI. 79 CR/PR at 3.2, 3.17. 80 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)). 81 CR/PR at Table 4.4. 18 VI. 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.82 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.83 Only a “reasonable overlap” of competition is required.84 82 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). 83 See, e.g., Wieland Werke, AG v. United States, 718 F. Supp. 50 (Ct. Int’l Trade 1989). 84 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.”). 19 A. Arguments of the Parties Petitioners’ Arguments: Petitioners argue that the Commission should cumulate subject imports from both subject countries for its analysis of present material injury.85 They contend that subject imports from Brazil and Norway and the domestic like product are “highly fungible.”86 They submit that all HPDP corresponding to the scope shares the same physical characteristics and end uses, and is interchangeable regardless of production method or fiber source.87 Petitioners contend that subject imports from both subject countries and the domestic like product are sold through the same channel of distribution – end users.88 They claim further that imports of HPDP from each subject country and domestically produced HPDP products overlapped geographically during the period of investigation and were simultaneously present in the U.S. market during the 12-month period preceding the filing of the petitions.89 Respondents do not address cumulation for present material injury.90 B. Analysis and Conclusion We consider subject imports from Brazil and Norway on a cumulated basis, because the statutory criteria for cumulation appear to be satisfied. As an initial matter, Petitioners filed the antidumping petitions with respect to Brazil and Norway and the countervailing duty petition with respect to Brazil on the same day, August 12, 2025. The record in the preliminary phase of these investigations also supports finding a reasonable overlap of competition between subject imports from Brazil and Norway, and between subject imports from each source and the domestic like product, for the reasons discussed below. Fungibility. The record indicates that domestically produced HPDP and imports of HPDP from each subject country are reasonably fungible. Responses by U.S. producers and U.S. importers were mixed when comparing HPDP from the United States, Brazil, and Norway. *** reported that the domestic like product and subject imports from Brazil and Norway are *** interchangeable, whereas *** reported that HPDP from Norway and the United States are *** 85 Petitioners Postconf. Br. at 10-11. 86 Petitioners Postconf. Br. at 11-12. 87 Petitioners Postconf. Br. at 11. 88 Petitioners Postconf. Br. at 13. 89 Petitioners Postconf. Br. at 13-15. 90 Bracell indicates that, while it does not raise any cumulation issues in these preliminary phase investigations, it reserves the right to do so in any final phase investigations. Bracell Postconf. Br. at 1. 20 interchangeable and HPDP from Brazil and the United States are *** interchangeable.91 All but one responding importer reported that the domestic like product and subject imports from Brazil are at least sometimes interchangeable.92 A majority of responding importers reported that the domestic like product is always or frequently interchangeable with subject imports from Norway, and half reported that subject imports from Brazil and Norway are sometimes interchangeable.93 The record also shows substantial overlap between the domestic like product and subject imports from Brazil and Norway in terms of alpha cellulose content and form. In 2024, *** U.S. shipments of HPDP by U.S. producers had an alpha cellulose content of 95 percent or greater, as compared with *** percent of Bracell’s exports of HPDP to the United States and *** percent of Borregaard’s exports of HPDP to the United States.94 Additionally, both U.S. producers, three U.S. importers of subject imports from Brazil, and five U.S. importers of subject imports from Norway, reported shipping HPDP in the form of rolls, sheets, and/or bales.95 Channels of Distribution. During the POI, U.S. producers sold their HPDP primarily to end users, followed by distributors.96 U.S. importers sold *** their subject HPDP in the end user channel of distribution.97 Geographic Overlap. U.S. producers and importers of subject merchandise from Brazil and Norway reported selling to the *** regions of the United States during the POI.98 Official import statistics also indicate that a large majority of HPDP and out-of-scope dissolving pulp 91 CR/PR at Table 2.7. 92 CR/PR at Table 2.8. 93 CR/PR at Table 2.8. More U.S. importers reported that the domestic like product and subject imports from Norway were always or frequently interchangeable (three firms) compared to sometimes or never interchangeable (two firms). Id. Conversely, more U.S. importers reported that subject imports from Brazil and Norway were sometimes or never interchangeable (three firms) compared to frequently (one firm). Id. 94 CR/PR at 4.7. 95 CR/PR at Table 4.5. U.S. importers *** imported subject merchandise from both subject sources. Id. at Table 4.1. 96 CR/PR at Table 2.1. The sales reported to distributors were reported by ***. See *** U.S. producer questionnaire response at II-9. Sales to this channel of distribution declined throughout the POI, from *** percent in 2022 to *** percent in 2023, to *** percent in 2024, and *** percent in interim 2025. CR/PR at Table 2.1. 97 CR/PR at Table 2.1. 98 CR/PR at Table 2.2. 21 products from both subject countries entered the United States through ports located in the East in 2024.99 Simultaneous Presence in Market. Based on official import statistics which include HPDP and out-of-scope dissolving pulp products, imports from Brazil were present in the U.S. market throughout the 42-month POI, and imports from Norway were present in the market in all but one month of that period.100 The pricing data show sales of the domestic like product and subject imports from Brazil in every quarter of the POI, subject imports from Brazil entering in every quarter of the POI, and subject imports from Norway entering in all but one quarters of the POI.101 Conclusion. The record of the preliminary phase of these investigations indicates that subject imports from Brazil and Norway are reasonably fungible with the domestic like product and each other. The record also indicates that imports from each of the subject countries and the domestic like product were sold in overlapping channels of distribution and geographic markets and were simultaneously present in the U.S. market during the POI. Because there appears to be a reasonable overlap of competition between and among subject imports from Brazil and Norway and the domestic like product, we cumulate subject imports from these sources for our analysis of whether there is a reasonable indication of material injury by reason of subject imports. VII. 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.102 In making this determination, the Commission must consider the volume of 99 CR/PR at Table 4.6. Statistical reporting number statistical reporting number 4702.00.0040 primarily covers HPDP and other dissolving pulp produced using the kraft production method. Imports from Brazil under statistical reporting number 4702.00.0040 primarily entered the United States through borders of entry in the East. Statistical reporting number 4702.00.0020 primarily covers HPDP and other dissolving pulp produced using the sulfite method. Imports from Norway under statistical reporting number 4702.00.0020 primarily entered the United States through borders of entry in the East. Id. at Note. 100 CR/PR at Table 4.7. Imports from Norway did not enter the U.S. market in October 2023. Id. 101 CR/PR at Tables 5.4, 5.6. 102 19 U.S.C. §§ 1671b(a), 1673b(a). 22 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.103 The statute defines “material injury” as “harm which is not inconsequential, immaterial, or unimportant.”104 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.105 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.”106 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,107 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.108 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 tangential cause of injury and that there is a sufficient causal, not merely a temporal, nexus between subject imports and material injury.109 103 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). 104 19 U.S.C. § 1677(7)(A). 105 19 U.S.C. § 1677(7)(C)(iii). 106 19 U.S.C. § 1677(7)(C)(iii). 107 19 U.S.C. §§ 1671b(a), 1673b(a). 108 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). 109 The Federal Circuit, in addressing the causation standard of the statute, observed that “{a}s 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). 23 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.110 In performing its examination, however, the Commission need not isolate the injury caused by other factors from injury caused by unfairly traded imports.111 Nor does 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.112 It is 110 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. 111 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 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.”). 112 S. Rep. 96-249 at 74-75; H.R. Rep. 96-317 at 47. 24 clear that the existence of injury caused by other factors does not compel a negative determination.113 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.”114 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.” 115 The Federal Circuit has examined and affirmed various Commission methodologies and has disavowed “rigid adherence to a specific formula.”116 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 evidence standard.117 Congress has delegated this factual finding to the Commission because of the agency’s institutional expertise in resolving injury issues.118 113 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.”). 114 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. 115 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. 116 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.”). 117 We provide in our discussion below a full analysis of other factors that may have caused any material injury experienced by the domestic industry. 118 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.”). 25 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 HPDP is driven by demand for the range of downstream products for which it is used, namely in filtration, bioplastic, food, and pharmaceutical applications.119 HPDP’s share of the cost of end-use products varies, with reported cost shares ranging between 3 to 82 percent during the POI.120 The parties agree that demand trends in the HPDP market are fairly stable and are not generally tied to broader business cycles.121 U.S. producers reported downward trends in demand for HPDP during the POI.122 U.S. producer *** reported that demand peaked in 2022, as firms increased inventories levels due to supply chain disruptions caused by the COVID-19 pandemic.123 U.S. producer *** attributed decreased demand trends to macroeconomic slowdowns and downturns in the construction sector.124 U.S. importers’ responses regarding demand trends were mixed, with most firms reporting no change in demand.125 Apparent U.S. consumption of HPDP decreased modestly from *** air dried short tons (“ADST”) in 2022 to *** ADST in 2023, then increased moderately to *** ADST in 2024, for an overall increase of *** percent during this period.126 It was *** percent lower in January through June 2025 (“interim 2025”), at *** ADST, than in January through June 2024 (“interim 119 CR/PR at 2.6. Questionnaire respondents reported the following end uses for HPDP: acetate, cellulose ethers, microcrystalline cellulose (“MCC”), cellulose casing, nitrocellulose, cellophane film, klucel G, and klucel M. Id. See also Conf. Cr. at 17 (Haseltine). 120 CR/PR at 2.6. Firms reported that HPDP’s share of the cost of acetate products ranged from 30.0 to 45.0 percent, while its share of the cost of MCC ranged from 45.0 to 65.0 percent. Id. 121 Petitioners Postconf. Br. at 16-17; Eastman Postconf. Br. at 4; Conf. Tr. at 21-22, 44-45 (Hicks), 130 (Dohrn; Giampetro). U.S. producer *** and four of 11 U.S importers report that the HPDP market was subject to business cycles for certain applications, particularly in the automotives and building and constructions segments. CR/PR at 2.6. 122 CR/PR at Table 2.5. 123 CR/PR at 2.6. *** reported that inventory levels have been decreasing back to “normal levels” in subsequent years. Id. 124 CR/PR at 2.6. 125 CR/PR at Table 2.5. Four importers reported “no change” in demand; two reported upward trends; and two reported that demand fluctuated downward during the POI. Id. 126 CR at Tables 4.8, C.1. 26 2024”), at *** ADST.127 2. Supply Conditions The record indicates that the HPDP market is concentrated, with Rayonier, Borregaard, and Bracell among the few global suppliers of HPDP products.128 During the POI, the U.S. market for HPDP was supplied by the domestic industry, subject imports, and nonsubject imports.129 The domestic industry consisted of the two responding U.S. producers during the POI, Rayonier and Georgia-Pacific.130 Rayonier operates a facility in Fernandina Beach, Florida, that produces HPDP using the sulfite process and softwood chips, and a facility in Jesup, Georgia, that produces HPDP using the kraft process and hardwood chips.131 Georgia-Pacific produced HPDP using the kraft production method at its Foley Cellulose mill in Perry, Florida, which it closed in October 2023, though it reported shipments of its remaining inventories of HPDP in 2024.132 133 134 Petitioners claim that Rayonier’s sulfite-process and kraft-process production facilities give it ample capacity to supply the entire U.S. market.135 Based on available information, Rayonier’s ability to respond to changes in demand is enhanced by the availability of unused capacity, the availability of inventories, the ability to shift shipments from alternative 127 CR at Tables 4.8, C.1. For the limited purposes of these Views, quantity and value data are rounded. Ratios, shares, and percentage changes cannot be derived from the figures shown but have been calculated using unrounded data. 128 CR/PR at 2.1, 5.17. See also Conf. Tr. at 22 (Hicks), 88 (Dohrn), 166 (Müller). 129 CR/PR at Tables 4.8, C.1. 130 CR/PR at 3.1. 131 Conf. Tr. at 15-17 (Haseltine). 132 CR/PR at Table 3.3; Georgia-Pacific U.S. producer questionnaire response at I-2a. Georgia- Pacific indicated in an email to staff that the firm’s primary raw material was ***. See Revision to Part 4, EDIS Doc. No. 862388 (Sept. 19, 2025). Georgia-Pacific operates a second production facility in Memphis, Tennessee, that produces out-of-scope dissolving pulp products using the soda cook process. Georgia-Pacific U.S. producer questionnaire response at I-2a. 133 CR/PR at 3.1. Georgia-Pacific cited “lack of economic viability” as the reason for the mill’s closure. CR/PR at Table 3.4. We intend to further investigate the reasons for Georgia-Pacific’s closure in any final phase of these investigations. 134 As we discussed in Section III above, staff were unable to verify whether a third U.S. producer of dissolving pulp products, Cosmo, produced HPDP before closing its mill in December 2022. Id. at Table 3.3. In January 2023, Cosmo was acquired by Charlestown Investments which anticipated to re- open the mill. Id. We intend to re-examine this issue in any final phase of these investigations. 135 Conf. Tr. at 25 (Hicks). 27 markets, and the ability to shift production to or from alternative products, but lessened by its aging domestic asset base being more vulnerable to unexpected outages.136 The domestic industry was the largest source of supply of HPDP products to the U.S. market in 2022, then the second largest source throughout the remainder of the POI. Its share of apparent U.S. consumption by quantity declined from *** percent in 2022 to *** percent in 2023, and *** percent in 2024, for an overall loss of *** percentage points during this period.137 The domestic industry supplied *** percentage points more of the U.S. market in interim 2025, at *** percent, than in interim 2024, at *** percent.138 The domestic industry’s practical capacity declined irregularly over the POI, increasing from *** ADST in 2022 to *** ADST in 2023, then declining to *** ADST in 2024, after Georgia- Pacific ceased producing HPDP.139 It was lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST.140 Its production declined throughout the POI, from *** ADST in 2022 to *** ADST in 2023, then *** ADST in 2024.141 Its production was lower in interim 2025, at *** 136 CR/PR at 2.3, 5.17-5.18. 137 CR/PR at Tables 4.8, C.1. 138 CR/PR at Tables 4.8, C.1. On a producer-specific basis, Georgia-Pacific’s market share declined throughout the POI, from *** percent in 2022 to *** percent in 2023, and *** percent in 2024. Id. It was *** percent in interim 2025, down from *** percent in interim 2024. Id. Rayonier’s market share increased irregularly during the POI, declining slightly from *** percent in 2022 to *** percent in 2023, then increasing to *** percent in 2024, for an overall gain of *** percentage points during this period. Id. It was *** percent in interim 2025, up from *** percent in interim 2024. Id. 139 CR/PR at Tables 3.5, C.1. On a producer-specific basis, Georgia-Pacific’s practical HPDP capacity was *** ADST in 2022 and 2023, then declined to *** ADST in 2024 and the interim periods. Georgia-Pacific U.S. producer questionnaire response at II-3a. Rayonier’s practical HPDP capacity increased from *** ADST in 2022 to *** ADST in 2023, and *** ADST in 2024. Rayonier U.S. producer questionnaire response, EDIS Doc. No. 860485 (Aug. 26, 2025) at II-3a. It was *** ADST in interim 2025, down from *** ADST in interim 2024. Id. 140 A Rayonier representative testified at the staff conference that the firm has ample capacity to supply the entire U.S. market. Conf. Tr. at 25 (Hicks). We observe that the domestic industry’s reported unused practical HPDP capacity exceeds its reported unused installed overall and unused practical overall capacities. See CR/PR at Table 3.5. Counsel for Petitioners stated in an email that ***. CR/PR at 3.5; Rayonier email of August 28, 2025, EDIS Doc. No. 862843 (Sept. 24, 2025). The domestic industry therefore would have had to produce less of other products made on the same machinery to utilize fully its reported practical HPDP capacity. Rayonier’s practical HPDP capacity appears to reflect an optimal product mix rather than the actual product mix. We intend to re-examine this issue in any final phase of these investigations. 141 CR/PR at Tables 3.5, C.1. On a producer-specific basis, Georgia-Pacific’s HPDP production declined from *** in 2022 to *** ADST in 2023 and *** ADST in 2024. Georgia-Pacific U.S. producer questionnaire response at II-3a. Rayonier’s HPDP production declined irregularly during the POI, decreasing from *** ADST in 2022 to *** ADST in 2023, then increasing to ***, a level *** percent (Continued…) 28 ADST, than in interim 2024, at *** ADST.142 Its practical HPDP capacity utilization fluctuated within a narrow band after declining from *** percent in 2022 to *** percent in 2023: it increased slightly to *** percent in 2024, and was slightly lower in interim 2025, at *** percent, than in interim 2024, at *** percent.143 Cumulated subject imports were the second largest source of supply of HPDP products to the U.S. market in 2022, then the largest source throughout the remainder of the POI.144 Their share of apparent U.S. consumption by quantity increased, from *** percent in 2022 to *** percent in 2023, and *** percent in 2024, for an overall gain of *** percentage points.145 They supplied *** percentage points more of the market in interim 2025, at *** percent, than in interim 2024, at *** percent.146 Nonsubject imports were the smallest source of supply to the U.S. market throughout the POI. Their share of apparent U.S. consumption by quantity fluctuated, declining from *** percent in 2022 to *** percent in 2023, then increasing to *** percent in 2024.147 They supplied *** percentage points less of the market in interim 2025, at *** percent, than in interim 2024, at *** percent. Canada was the largest source of nonsubject imports in 2024, prior to the cessation of HPDP operations by Rayonier Canada.148 U.S. producer *** and most responding U.S. importers reported that they did not experience supply constraints during the POI.149 As noted above, U.S. producer Georgia-Pacific closed its HPDP production facility in October 2023, after announcing force majeure with respect to the mill in July 2021 due to production line and global supply chain difficulties.150 (…Continued) below that observed in 2022. Rayonier U.S. producer questionnaire response at II-3a. It was *** ADST in interim 2025, down from *** ADST in interim 2024. Id. 142 CR/PR at Tables 3.5, C.1. 143 CR/PR at Tables 3.5, C.1. On a producer-specific basis, Georgia-Pacific’s practical HPDP capacity utilization declined from *** percent in 2022 to *** percent in 2023. Derived from Georgia - Pacific U.S. producer questionnaire response at II-3a. Rayonier’s practical HPDP capacity utilization declined from *** percent in 2022 to *** percent in 2023, then increased slightly to *** percent in 2024. Derived from Rayonier U.S. producer questionnaire response at II-3a. It was lower in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 144 Bracell produces HPDP using the kraft process and hardwood chips, whereas Borregaard produces HPDP using the sulfite process and softwood chips. CR/PR at 2.8 n.7. 145 CR/PR at Tables 4.8, C.1. 146 CR/PR at Tables 4.8, C.1. 147 CR/PR at Tables 4.8, C.1. 148 CR/PR at 2.5. 149 CR/PR at 2.5, Table 2.4. 150 CR/PR at Table 3.3. See also Georgia-Pacific U.S. producer questionnaire response at I-2a. 29 ***, in connection with this closure.151 Rayonier reported a supply disruption in December 2022 at its Jesup, Georgia, production facility due to a force majeure declared by its natural gas provider.152 In October 2024, Rayonier reported a force majeure at its Georgia production facility due to a fire incident; production resumed fully after two weeks.153 Additionally, in July 2024, Rayonier indefinitely suspended operations at its production facility in Quebec, Canada, due to market weakness, a lack of affordable raw materials, and high costs.154 U.S. importer *** reported supply constraints in 2024 and 2025 in connection with this closure.155 3. Substitutability and Other Conditions Based on the record in the preliminary phase of these investigations, we find that there is at least a moderate degree of substitutability between domestically produced HPDP and subject imports.156 As we discussed in Section VI.B above, responses by U.S. producers and U.S. importers were mixed when comparing HPDP from the United States, Brazil, and Norway.157 158 The record in the preliminary phase of these investigations indicates that price is an important factor in purchasing decisions for HPDP, along with quality and availability/supply. U.S. purchasers responding to the lost sales and lost revenue survey most frequently ranked price/cost (five firms), followed by availability/supply (four firms), then quality (three firms) as their top-three most important purchasing factors.159 U.S. producer *** reported that there are *** significant differences other than price between HPDP from the United States, Brazil, Norway, and nonsubject countries.160 U.S. producer *** reported that there are frequently significant differences other than price between HPDP from the United States, Brazil, and 151 CR/PR at 2.5. U.S. importer *** reported supply constraints in 2023 and 2024 caused by Georgia-Pacific’s Foley Cellulose mill closure. Id. 152 CR/PR at Table 3.3. 153 CR/PR at Table 3.3. 154 CR/PR at Table 3.3. 155 CR/PR at 2.5. 156 CR/PR at 2.7. 157 See CR/PR at 2.9-2.11, Tables 2.7-2.8. 158 Furthermore, the record indicates that *** of the domestic industry’s U.S. shipments of the domestic like product, and most of the responding importers’ U.S. shipments of subject imports, had an alpha cellulose content of 95 percent or greater in 2024. CR/PR at 4.7 159 CR/PR at 2.8. Quality was the most frequently-reported first-most important purchasing factor (3 firms), followed by availability/supply (2 firms). Id. Availability/supply and price/cost were the most frequently reported second-most important purchasing factors (2 firms apiece), followed by price/cost as the third-most important purchasing factor (3 firms). Id. at Table 2.6. 160 CR/PR at 2.10, Table 2.9. 30 Norway.161 Additionally, most responding U.S. importers reported that there are always or frequently significant non-price differences in sales of HPDP from the United States, Brazil, Norway, and nonsubject countries.162 The parties generally agree that prospective suppliers of in-scope HPDP must meet extensive qualification requirements with each purchaser, though they disagree on the implications of these requirements. Petitioners argue that once qualified, purchasers treat HPDP supplied by qualified suppliers as fully interchangeable.163 Respondents contend that the prevalence of qualification requirements attenuates competition in the HPDP market.164 Domestically produced HPDP is produced to order, with lead times averaging *** days.165 Responding U.S. importers reported selling HPDP from U.S. inventories, with lead times averaging *** days, and foreign inventories, with lead times averaging *** days.166 *** responding U.S. importers reported selling a large majority of their HPDP through long-term contracts in 2024, with a small proportion of HPDP also sold ***.167 Rayonier *** reported sales using ***.168 Substitutes for HPDP are limited. U.S. producer *** and the majority of importers reported that there were no substitutes for HPDP.169 The primary raw material used to produce HPDP are wood chips, which are processed with specific chemicals to create cellulose.170 Monthly U.S. hardwood and softwood chip prices 161 CR/PR at 2.10, Table 2.9. 162 CR/PR at 2.11-2.12, Table 2.10. 163 Petitioners Postconf. Br. at 17-18. 164 Borregaard Postconf. Br. at 10-11; Eastman Postconf. Br. at 8, 12, Exh. 1 at 1-2. According to Eastman, some of its customers require HPDP that satisfies the Forest Stewardship Council’s (“FSC”) “strict environmental, social, and economic standards for sustainable forestry management.” Id. Eastman asserts that FSC-certified HPDP is only available from Borregaard, following the closure of Georgia-Pacific’s Foley Cellulose mill in 2023. Id. 165 CR/PR at 2.9. 166 CR/PR at 2.9. 167 CR/PR at Table 5.3. *** indicates that its contracts can have prices renegotiated, fix only price, and are not indexed to raw materials. Id. at 5.4. See also Eastman Postconf. Br., Exh. 1 at Att. 1 at § 4 (containing a limited ability to modify pricing that *** may initiate). Moreover, the available purchase cost data suggest that the landed, duty-paid purchase costs of subject imports from Brazil were ***. CR/PR at Table 5.6. In any final phase of these investigations, we invite the parties to provide information on long-term contracts and their role in the U.S. market, and any documentation of competition between the domestic like product and subject imports. 168 CR/PR at Table 5.3. 169 CR/PR at 2.7. Firms that did report substitutes for HPDP identified cotton linter pulp, synthetic polymers, and in some cases lower grade kraft pulps. Id. 31 in the South-Central United States declined from January 2022 through January 2024.171 Thereafter, prices of hardwood chips have increased slightly, while softwood chip prices have remained at or slightly above the levels observed in early 2024.172 Raw material costs were the largest component of the domestic industry’s cost of goods sold (“COGS”) throughout the period of investigation.173 As a ratio to total net sales, the domestic industry’s raw material costs declined throughout the POI, from *** percent in 2022 to *** percent in 2023 and *** percent in 2024.174 They were slightly lower in interim 2025, at *** percent, than in interim 2024, at *** percent.175 Effective April 5, 2025, HPDP from Brazil is subject to an additional 10 percent ad valorem duty under the International Emergency Economic Powers Act (50 U.S.C. § 1701 et seq.) (“IEEPA”).176 Effective August 7, 2025, HPDP from Norway is subject to an additional 15 percent ad valorem duty under IEEPA.177 C. Volume of the Subject Imports178 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.”179 The volume of cumulated subject imports decreased from *** ADST in 2022 to *** ADST in 2023, then increased to *** ADST in 2024, for an overall increase of *** percent during (…Continued) 170 CR/PR at 5.1. The wood chips used by domestic producers may be derived from either softwood or hardwood. Id. The chemicals used to digest these chips into cellulose vary depending on the production method employed. Id. For a breakdown of Rayonier’s raw material costs in 2024, see id. at Table 6.5. 171 CR/PR at Figure 5.1. 172 CR/PR at Table 5.1. 173 CR/PR at Table 6.1. 174 CR/PR at Table 6.1. 175 CR/PR at Table 6.1. 176 CR/PR at 1.9. HPDP from Brazil is not subject to additional IEEPA tariffs applied to Brazil starting in August 2025. Id. 177 CR/PR at 1.10. HPDP from Norway became subject to 10 percent duties under IEEPA in April 2025; this rate fluctuated but has been 15 percent since August 7, 2025. Id. 178 Commissioner Johanson does not join the remainder of the Commission’s Views. See Separate and Dissenting Views of Commissioner David S. Johanson. 179 19 U.S.C. § 1677(7)(C)(i). 32 this period.180 It was *** percent lower in interim 2025, at *** ADST, compared in interim 2024, at *** ADST.181 Cumulated subject imports’ market share increased from *** percent in 2022 to *** percent in 2023, and *** percent in 2024, for an overall gain of *** percentage points during this period.182 They supplied *** percentage points more of the market in interim 2025, at *** percent, than in interim 2024, at *** percent.183 Based on the record in the preliminary phase of these investigations, we find that the volume of subject imports and the increase in that volume are significant, both in absolute terms and relative to consumption in the United States. 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.184 As discussed in section VII.B.3 above, we find that there is at least a moderate degree of substitutability between subject imports and the domestic like product and that price is an important factor in purchasing decisions for HPDP, among other important factors. We have examined several sources of data in our underselling analysis, including pricing, purchase cost, and lost sales data. With respect to pricing data, the Commission collected quarterly quantity and f.o.b. pricing data from U.S. producers and importers on their sales of one HPDP product shipped to unrelated U.S. customers during the January 2022 to June 2025 period.185 Two U.S. producers and one U.S. importer provided usable pricing data for sales of 180 CR/PR at Table 4.2. 181 CR/PR at Table 4.2. 182 CR/PR at Tables 4.8, C.1. 183 CR/PR at Tables 4.8, C.1. 184 19 U.S.C. § 1677(7)(C)(ii). 185 CR/PR at 5.4. The pricing product is : Product 1.— High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. Id. 33 the requested product, although not all firms reported pricing data for all quarters.186 Pricing data reported by these firms accounted for *** percent of U.S. producers’ commercial U.S. shipments of HPDP and *** percent of U.S. importers’ commercial U.S. shipments of subject imports from Brazil.187 There were no reported sales of pricing product 1 from Norway during the POI.188 Accordingly, all the pricing data reported by importers of subject merchandise were for pricing product 1 from Brazil.189 With respect to purchase cost data, the Commission received import purchase cost data for pricing product 1 from eight importers.190 These data accounted for *** percent of imports from Brazil (three importers) and *** percent of imports from Norway (seven importers) in 2024.191 The pricing data indicate that subject imports undersold domestically produced HPDP in all 14 available quarterly comparisons, involving reported subject import sales of *** ADST, at margins ranging from *** to *** percent and averaging *** percent.192 Respondents argue that the sole pricing product fails to account for variations in HPDP product grades, specifications, and form, and that the resulting average prices cover different product mixes in different periods.193 194 The record also contains information to compare prices based on production method.195 Those comparisons show that subject imports from Brazil produced through hardwood digested in the kraft production method, which account for all subject imports from Brazil, undersold the domestic like product produced through the kraft production method in all 14 available instances, at margins ranging from *** to *** percent and averaging *** percent.196 The import purchase cost data show that the landed duty-paid (“LDP”) costs for subject imports were below the sales price for the domestic like product for product 1 in *** percent 186 CR/PR at 5.5. 187 CR/PR at Table 5.4. 188 CR/PR at 5.5. 189 CR/PR at 5.4-5.5. 190 CR/PR at 5.8. 191 CR/PR at 5.8. 192 CR/PR at Table 5.5. 193 Borregaard Postconf. Br. at 4-5; Bracell Postconf. Br. at 13, 22-26; Eastman Postconf. Br. at 24-26. 194 CR/PR at Table F.3. Given respondents’ contention that a wide variety of items are captured within pricing product 1, we invite parties to propose possible pricing products that will provide for apples-to-apples price comparisons in their comments on the draft questionnaires for any final phase of these investigations. See 19 C.F.R. § 207.20(b). 195 In response to staff’s request, Rayonier submitted its pricing data broken out by sales of HPDP produced through the kraft and sulfite production processes. 196 CR/PR at Table F.3. 34 (17 of 27 instances) of available quarterly comparisons, involving *** ADST of subject imports, at price-cost differentials ranging from *** to *** percent, and averaging *** percent.197 LDP costs were higher for subject imports in the remaining 10 quarterly comparisons, or *** percent of instances, involving *** ADST at price-cost differentials ranging from *** and *** percent, and averaging *** percent.198 Thus, on a volume basis, *** percent of subject imports reported in the purchase cost data had a lower LDP cost than the sales price of the domestic like product.199 The record also contains information to compare domestic producer prices to subject import purchase costs based on production method. In comparing direct import costs for product 1 with corresponding domestic like product prices for HPDP produced by the kraft production method, LDP costs for subject imports from Brazil (produced through the kraft production method) were below the sales price for the corresponding domestic like product in all 14 available instances, involving *** ADST of subject imports, at price-cost differentials ranging from *** to *** percent, and averaging *** percent. 200 LDP costs for subject imports from Norway (produced using softwood digested using the sulfite method) were below the sales price for the domestic like product produced using the sulfite method in five of 13 available instances, involving *** ADST at price-cost differentials ranging from *** to *** percent, and averaging *** percent.201 LDP costs were higher for subject imports in the remaining eight quarterly comparisons of domestic like product and subject imports produced using the sulfite method, involving *** ADST at price-cost differentials ranging from *** and *** percent, and averaging *** percent.202 Thus, on a volume basis, *** percent of subject imports from Norway (produced using the sulfite process) reported in the purchase cost data had a lower LDP cost than the sales price of the domestic like product produced using the sulfite process.203 We recognize that the import purchase cost data may not reflect the total cost of importing and therefore requested that U.S. importers provide additional information regarding the costs and benefits of directly importing HPDP.204 Six of eight importers reported 197 CR/PR at Tables 5.8-5.9. 198 CR/PR at Tables 5.8-5.9. 199 Derived from CR/PR at Tables 5.8-5.9. 200 CR/PR at Table F.4. 201 CR/PR at Table F.4. 202 CR/PR at Table F.4. 203 Derived from CR/PR at Tables 5.8-5.9. 204 Question III-3d.i. of the U.S. importers’ questionnaire instructs respondents to report “any additional costs by importing HPDP rather than purchasing from a U.S. producer or importer (e.g., (Continued…) 35 incurring additional costs beyond the LDP costs associated with importing HPDP.205 Of these, five firms estimated that the total additional cost incurred ranged from 1 to 14 percent of the LDP value, which they attributed to additional chemicals used in processing imported material, Customs fees, demurrage fees, financing costs, harbor maintenance fees, inland freight costs, and warehousing fees.206 Five of eight importers reported that they compare costs of importing to the costs of purchasing from a U.S. producer in determining whether to import subject merchandise, and three reported that they also compare costs of importing to the costs of purchasing from another U.S. importer.207 Three importers reported that they did not compare costs of importing to costs of purchasing from either U.S. producers or importers.208 All eight responding importers identified benefits from importing subject merchandise themselves instead of purchasing from U.S. producers or importers, including increased supply security or risk mitigation in connection with the closures of HPDP production operations by U.S. producers.209 A majority of importing firms reported that the import cost (both excluding and including additional costs) of HPDP are not lower than the price of purchasing HPDP from a U.S. producer or importer.210 However, three importers estimated that they saved *** percent of the purchase price by importing HPDP rather than purchasing from a U.S. importer and saving between *** percent compared with purchasing the product from a U.S. producer.211 212 (…Continued) logistical or supply chain management costs, warehousing/inventory carrying costs, insurance or other risk management fees, demurrage fees, indirect and overseas costs).” See Blank U.S. Importers’ questionnaire, EDIS Doc. No. 859593, Att. 2421378 (Aug. 14, 2025) at Question III-3d.i. 205 CR/PR at 5.11. 206 CR/PR at 5.11. 207 CR/PR at 5.11. 208 CR/PR at 5.11. 209 CR/PR at 5.11. 210 CR/PR at 5.12. We note that this reporting by U.S. importers that purchase costs excluding additional costs are not lower than the price of purchasing from a U.S. producer is inconsistent with the price-cost comparisons described above. 211 CR/PR at 5.12. 212 We have also considered U.S. purchasers’ responses to the Commission’s lost sales/lost revenue survey. Four of the five responding purchasers reported purchasing subject imports instead of the domestic like product during the POI. CR/PR at Table 5.12. Two of these purchasers reported that subject imports were priced lower than U.S.-produced HPDP products. Id. One of these purchasers reported that they purchased *** ADST of subject imports instead of the domestic like product based primarily on price, accounting for less than *** percent of the *** ADST of HPDP purchased or imported by the five responding purchasers during the POI. Derived from CR/PR at Tables 5.10, 5.12. 36 The predominance of subject import underselling is further corroborated by U.S. shipment data collected based on production method. Those data demonstrate that AUVs for U.S. shipments of subject imports from Brazil (produced using the kraft/sulfate process) were lower than those for domestically produced HPDP produced using the kraft/sulfate process throughout the POI.213 AUV data collected on the basis of production method indicate that U.S. shipments of subject imports from Norway were below those of domestically produced HPDP in 2022 and 2024.214 Given the at least moderate degree of substitutability between subject imports and the domestic like product, the importance of price in purchasing decisions, the predominant underselling shown by the pricing data and purchase cost data, and the fact that subject importers’ U.S. shipment AUVs were lower than the AUVs of U.S. producers’ U.S. shipments, we find that subject imports undersold the domestic like product to a significant degree during the POI. Chair Karpel cannot conclude, for purposes of these preliminary phase investigations, that subject import underselling did not cause a shift in market share from the domestic industry to subject imports from 2022 to 2024. She observes that subject imports gained *** percent of market share at the expense of the domestic industry from 2022 to 2024, but that domestic producers gained *** percentage points of market share from interim 2024 to 2025.215 Commissioner Kearns finds that underselling by subject imports contributed to subject imports gaining *** percentage points of market share from the domestic industry from 2022 to 2024.216 213 CR/PR at Tables E.1-E.2. 214 CR/PR at Tables E.1, E.3. 215 CR/PR at Tables 4.8, C.1. Chair Karpel observes that one of two domestic producers, Georgia- Pacific, ceased production in *** 2023 and sold off its remaining inventory in 2024. Georgia-Pacific indicated that it ceased production ***. CR/PR at Table 3.4. It did not specifically identify subject import competition as a reason for its closure, though Petitioners state that given the information on record, “it is reasonable to presume that Georgia-Pacific’s decision to cease domestic production of HPDP was at least in part, due to subject import competition.” Petitioners Postconf. Br. at 30. Chair Karpel intends to further investigate in any final phase of these investigations the extent to which subject import pricing was a factor in Georgia-Pacific’s closure and the extent to which subject import underselling allowed subject imports to gained sales and market share from the sole remaining domestic producer Rayonier. 216 Commissioner Kearns finds that it is likely that the economic viability of Georgia-Pacific’s HPDP production and the cessation of that production in 2023 was at least somewhat related to competition from low-price subject imports during the POI. Even if Georgia-Pacific exited the HPDP market for reasons other than subject imports, it is likely that between 2022 to 2024 Rayonier would have received more than *** percentage points of the *** percent share held by Georgia-Pacific in 2022 but for subject imports that significantly undersold the domestic like product throughout the POI. (Continued…) 37 We have also considered whether subject imports depressed or suppressed prices to a significant degree. Between the first quarter of 2022 and the second quarter of 2025, prices for domestically produced product 1 increased by *** percent.217 Prices for pricing product 1 imported from Brazil, the only source for which pricing data were available, increased by *** percent between the first and last quarters of the period of investigation.218 Purchase cost data also show that U.S. importer purchase costs for product 1 increased by *** percent for subject imports from Brazil and *** percent for subject imports from Norway.219 Moreover, no responding purchasers reported that U.S. producers lowered their prices in order to compete with lower-priced subject imports during the POI.220 Rayonier was the only U.S. producer to provide usable financial results.221 Rayonier’s average ratio of COGS to net sales declined from *** in 2022 to *** in 2024.222 The decline in the COGS-to-net-sales ratio from 2022 to 2024 was primarily driven by total raw material costs, which declined from $*** in 2022 to $*** in 2024, while its net sales AUVs increased.223 On a per ADST basis, Rayonier’s unit COGS fluctuated during the POI, increasing from $*** in 2022 to $*** in 2023, before decreasing to $*** in 2024, a level slightly below that observed in 2022.224 It was higher in interim 2025, at $***, than in interim 2024, at $***.225 Rayonier’s net sales AUV increased throughout the POI, from $*** in 2022 to $*** in 2023, and $*** in 2024, for an overall increase of *** percent during this period.226 It was higher in interim 2025, at $***, than in interim 2024, at $***.227 (…Continued) Rayonier’s market share did increase from *** percent in interim 2024 to *** percent in interim 2025, but this appears to have been driven by a decline in non-subject imports after the cessation of HPDP operations by Rayonier Canada in July 2024, as stated in Section VII.B.2. See CR/PR at Tables 4.8, C.1. 217 CR/PR at Tables 5.4, 5.7. 218 CR/PR at Tables 5.4, 5.7. 219 CR/PR at Table 5.7. 220 CR/PR at 5.15. 221 CR/PR at 6.1. Following revisions to the scope, Georgia-Pacific’s financial results captured some out-of-scope dissolving pulp production, and were thus not included in the staff report. Id. Georgia-Pacific’s broader financial results are presented in Appendix G of the staff report. See id. at Table G.1. 222 CR/PR at Tables 6.1, C.1. Rayonier’s COGS-to-net-sales ratio declined from *** percent in 2022 to *** percent in 2023, and *** percent in 2024. Id. It was higher in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 223 CR/PR at Table 6.1. 224 CR/PR at Tables 6.1, C.1. 225 CR/PR at Tables 6.1, C.1. 226 CR/PR at Tables 6.1, C.1. 227 CR/PR at Tables 6.1, C.1. 38 In sum, based on the record of the preliminary phase of these investigations, we conclude that subject imports significantly undersold the domestic like product. Chair Karpel cannot conclude for purposes of these preliminary phase proceedings that subject imports did not have significant price effects. Commissioner Kearns finds significant price effects as significant underselling contributed to a market share shift from the domestic industry to subject imports. E. Impact of the Subject Imports228 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.”229 The domestic industry’s performance declined during the POI according to most trade, employment, and financial indicators, driven by declines in the domestic industry’s sales volume and market share during the period.230 The domestic industry’s declining performance across key metrics occurred despite a net increase in apparent U.S. consumption between 2022 and 2024.231 The domestic industry’s trade indicators generally declined during the POI, after Georgia-Pacific’s exit from the HPDP market. As discussed above in section VII.B.2, the domestic industry’s practical capacity declined irregularly and significantly during the POI.232 Its 228 Commerce initiated the antidumping duty investigation on HPDP from Brazil based on an estimated dumping margin of 198.51 percent ad valorem, and of 110.04 percent ad valorem for HPDP from Norway. See CR/PR at 1.5; High Purity Dissolving Pulp From Brazil and Norway: Initiation of Less- Than-Fair-Value Investigations, 90 Fed. Reg. 43,168, 43,171 (Sept. 8, 2025). 229 19 U.S.C. § 1677(7)(C)(iii). This provision was amended by the Trade Preferences Extension Act of 2015, Pub. L. 114-27. 230 CR/PR at Tables 3.5, 3.9, 3.11-3.12, 4.8, 6.3, 6.7, 6.9, C.1. 231 CR/PR at Tables 4.8, C.1. 232 The domestic industry’s capacity increased from *** ADST in 2022 to *** ADST in 2023, then declined to *** ADST in 2024, for an overall decline of *** percent during this period. CR/PR at Tables 3.5, C.1. It was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 39 production declined at a faster rate than capacity over that period.233 Resultingly, the industry’s practical capacity utilization declined from 2022 to 2023, then fluctuated within a narrow band for the remainder of the POI.234 Key employment indicators also declined during the POI, with particularly sharp decreases in 2024 after Georgia-Pacific closed its HPDP production facility in *** 2023. The domestic industry’s number of production-related workers (“PRWs”),235 total hours worked,236 and wages paid237 declined during the full years from 2022 to 2024, and improved between interim periods. However, its productivity,238 hours worked per PRW,239 and unit labor costs240 improved during calendar year period, and declined between interim periods. The domestic industry’s total U.S. shipments by quantity declined during the POI241 as did its market share.242 Both recovered in interim 2025 as compared to interim 2024. 233 The domestic industry’s production declined from *** ADST in 2022 to *** ADST in 2023, and *** ADST in 2024, for an overall decline of *** percent during this period. CR/PR at Tables 3.5, C.1. It was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 234 The domestic industry’s capacity utilization fluctuated within a narrow band after declining from *** percent in 2022 to *** percent in 2023: it increased slightly to *** percent in 2024, and was slightly lower in interim 2025, at *** percent, than in interim 2024, at *** percent. CR/PR at Tables 3.5, C.1. 235 The number of PRWs employed by U.S. producers declined from *** in 2022 to *** in 2023, and *** in 2024, for an overall decline of *** percent during this period. CR/PR at Tables 3.12, C.1. It was *** percent higher in interim 2025, at ***, than in interim 2024, at ***. Id. 236 U.S. producers reported that total hours worked declined from *** in 2022 to *** in 2023, and *** in 2024, for an overall decline of *** percent during this period. CR/PR at Tables 3.12, C.1. They were *** percent higher in interim 2025, at ***, than in interim 2024, at ***. Id. 237 Wages paid by reporting U.S. producers declined from $*** in 2022 to $*** in 2023, and $*** in 2024, for an overall decline of *** percent during this period. CR/PR at Tables 3.12, C.1. They were *** percent higher in interim 2025, at $***, than in interim 2024, at $***. Id. 238 On an ADST per 1,000 hours basis, the domestic industry’s productivity declined from *** in 2022 to *** in 2023, then increased to *** in 2024, for an overall gain of *** percent. CR/PR at Tables 3.12, C.1. It was *** percent lower in interim 2025, at ***, than in interim 2024, at ***. Id. 239 U.S. producers reported that hours worked per PRW increased from *** in 2022 to *** in 2023, then declined to ***, for an overall gain of *** percent during this period. CR/PR at Table 3.12. They were slightly lower in interim 2025, at ***, than in interim 2024, at ***. Id. 240 On a dollars per ADST basis, the domestic industry’s unit labor costs increased from $*** in 2022 to $*** in 2023, then declined to $***, for an overall decline of *** percent during this period. CR/PR at Tables 3.12, C.1. They were *** percent higher in interim 2025, at $***, than in interim 2024, at $***. Id. 241 The domestic industry’s total U.S. shipments declined from *** ADST in 2022 to *** ADST in 2023, and *** in 2024. CR/PR at Tables 3.9, C.1. They were *** percent greater in interim 2025, at *** ADST than in interim 2024, at *** ADST. Id. 242 The domestic industry’s share of apparent U.S. consumption by quantity declined from *** percent in 2022 to *** percent in 2023, and *** percent in 2024, for an overall loss of *** percentage (Continued…) 40 The domestic industry’s end-of-period inventories declined irregularly during the POI. 243 As a ratio to total shipments, its end-of-period inventories also declined irregularly during the period.244 Rayonier was the only U.S. producer to provide usable financial results. 245 Most of its financial indicators fluctuated over the full years, with 2024 results higher than those in 2022, but were generally lower in interim 2025 than in interim 2024. Although its net sales revenue declined during the POI, 246 its gross profit, 247 operating income,248 and net income 249 indicators increased irregularly over the full years, but were lower in interim 2025 than in interim 2024. Its ratio of operating income to net sales increased during the 2022 to 2024 calendar period, but were lower in interim 2025 than in interim 2024, 250 whereas its ratio of net income to net sales increased irregularly, and were lower in interim 2025 compared to interim 2024.251 (…Continued) points during this period. CR/PR at Tables 4.8, C.1. It was *** percentage points greater in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 243 The domestic industry’s end-of-period inventories declined from *** ADST in 2022 to *** ADST in 2023, then increased to *** ADST, for an overall loss of *** percent during this period. CR/PR at Tables 3.11, C.1. It was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 244 The domestic industry’s ratio of end-of-period inventories to total shipments declined from *** percent in 2022 to *** percent in 2023, then increased to *** percent in 2024, for an overall decline of *** percentage points during this period. CR/PR at Tables 3.11, C.1. It was *** percentage points lower in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 245 CR/PR at 6.1. Following revisions to the scope, Georgia-Pacific’s financial results captured some out-of-scope dissolving pulp production, and were thus not included in the staff report. Id. Georgia-Pacific’s broader financial results are presented in Appendix G of the staff report. See id. at Table G.1. 246 Rayonier’s net sales revenues declined from $*** in 2022 to $*** in 2023, and $*** in 2024, for an overall loss of *** percent during this period. CR/PR at Tables 6.1, C.1. They were *** percent higher in interim 2025, at $***, than in interim 2024, at $***. Id. 247 Rayonier’s gross profits declined from $*** in 2022 to $*** in 2023, then increased to $*** in 2024, for an overall gain of *** percent. CR/PR at Tables 6.1, C.1. They were *** percent lower in interim 2025, at $***, than in interim 2024, at $***. Id. 248 Rayonier’s operating income declined from $*** in 2022 to $*** in 2023, then increased to $*** in 2024, for an overall gain of *** percent during this period. CR/PR at Tables 6.1, C.1. It was *** percent lower in interim 2025, at $***, than in interim 2024, at $***. Id. 249 Rayonier’s net income declined from *** in 2022 to *** in 2024, then increased to $*** in 2024. CR/PR at Tables 6.1, C.1. It was *** percent lower in interim 2025, at $***, than in interim 2024, at $***. Id. 250 Rayonier’s ratio of operating income to net sales increased from *** percent in 2022 and 2023 to *** percent in 2024, for an overall increase of *** percentage points. CR/PR at Tables 6.1, C.1. (Continued…) 41 Rayonier’s capital expenditure declined each year from 2022 to 2024, then improved between interim periods.252 253 Its total assets declined throughout the POI.254 Finally, Rayonier reported negative effects on growth and investment due to subject imports.255 We have found that subject imports are at least moderately substitutable for the domestic like product and entered the U.S. market in significant and increasing volumes during the POI. We have also found that subject import underselling was significant. Chair Karpel cannot conclude that subject import underselling did not cause a market share shift from the domestic industry to subject imports over the POI and therefore that the domestic industry’s output and financial indicators were lower than they otherwise would have been thus having an adverse impact on the domestic industry. Commissioner Kearns finds that underselling by subject imports contributed to a market share shift from the domestic industry to subject imports between 2022 and 2024. Consequently, he concludes that subject imports are a cause of the domestic industry’s declining trade, employment, and financial measures. On these bases, we find that there is a reasonable indication that subject imports had a significant impact on the domestic industry.256 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 have considered Respondents’ arguments that the closure of Georgia- Pacific for reasons unrelated to import competition heightened the structural need for imports to diversify sources of supply in a concentrated market.257 We intend to examine further the reasons for Georgia-Pacific’s closure and the extent to which subject import competition (…Continued) It was *** percentage points lower in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 251 Rayonier’s ratio of net income to net sales declined from *** percent in 2022 to *** percent in 2023, then increased to *** percent. CR/PR at Tables 6.1, C.1. It was *** percentage points lower in interim 2025, at *** percent, than in interim 2024, at *** percent. Id. 252 Rayonier’s capital expenditures declined from $*** in 2022 to $*** in 2023, and $*** in 2024, for an overall loss of *** percent during this period. CR/PR at Tables 6.7, C.1. They were *** percent higher in interim 2025, at $***, than in interim 2024, at $***. Id. 253 Rayonier did not report any research and development (“R&D”) expenditures. CR/PR at Tables 6.7. It reported that ***. Id. at Table 6.8. 254 Rayonier’s total assets declined from $*** in 2022 to $*** in 2023, and $*** in 2024, for an overall loss of *** percent during this period. CR/PR at Tables 6.7, C.1. 255 CR/PR at Table 6.9. 256 We will examine further in any final phase investigations the distribution of market share following Georgia-Pacific’s exit from the HPDP market. 257 See, e.g., Bracell Postconf. Br. at 40-43. 42 contributed to this closure in any final phase of these investigations.258 We observe however that the declines in the domestic industry’s financial performance over the POI reviewed above reflect data only from Rayonier and therefore do not reflect the impact of Georgia-Pacific’s closure on the domestic industry financial data. As discussed in section VII.B.2 above, nonsubject imports were mostly sourced from Rayonier’s affiliate in Canada.259 These imports declined substantially in the interim period, following Rayonier’s decision to indefinitely suspend operations at its plant in Quebec, Canada in July 2024.260 Moreover, the record indicates that the AUVs of nonsubject imports were higher than those of subject imports during the POI.261 Consequently, nonsubject imports do not explain the injury we have attributed to subject imports. Trends in demand also do not explain the injury we have attributed to subject imports. Apparent U.S. consumption increased slightly by *** percent from 2022 to 2024, as the domestic industry’s financial condition deteriorated, and was *** percent lower in interim 2025 than in interim 2024.262 Thus, the record in these preliminary phase investigations indicates that changes in demand do not explain the declining condition of the domestic industry observed during the POI. VIII. Conclusion For the reasons stated above, we determine that there is a reasonable indication that an industry in the United States is materially injured by reason of subject imports of HPDP from Brazil and Norway that are allegedly sold in the United States at LTFV and subsidized by the government of Brazil. 258 Commissioner Kearns observes that U.S. shipments of subject imports increased by more in percentage terms than U.S. shipments from Rayonier following Georgia-Pacific’s closure. U.S. shipments of subject imports increased by *** percent from 2022 to 2024 from *** ASDT in 2022 to *** ASDT in 2024, while Rayonier’s U.S. shipments increased by only *** percent from *** ASDT in 2022 to *** ASDT in 2024. Calculated from CR/PR at Table 4.8. As a result, subject imports added *** percentage points of Georgia-Pacific’s market share between 2022 and 2024, more than twice the *** percentage points of market share picked up by Rayonier. CR/PR at Table 4.8. 259 CR/PR at 2.5. 260 CR/PR at Tables 3.3, 4.8, C.1. 261 CR/PR at Tables 4.2, C.1. 262 CR/PR at Tables 4.8, C.1. 43 Separate and Dissenting Views of Commissioner David S. Johanson I. Introduction Based on the record in the preliminary phase of these investigations, I determine that there is reasonable indication that an industry in the United States is threatened with material injury by reason of imports of high purity dissolving pulp (“HPDP”) from Brazil and Norway that are allegedly sold in the United States at less than fair value and subsidized by the government of Brazil. I join sections I–VII.B of the Commission’s Views. II. No Reasonable Indication of Material Injury by Reason of Subject Imports A. Volume of Cumulated Subject Imports The volume of cumulated subject imports decreased from *** air dried short tons (“ADST”) in 2022 to *** ADST in 2023 before increasing to *** ADST in 2024; it was lower in interim 2025 at *** ADST compared with *** ADST in interim 2024.1 Overall, the volume of cumulated subject imports increased by *** percent from 2022 to 2024 but was *** percent lower in interim 2025 compared to interim 2024.2 Cumulated subject imports increased as a share of U.S. consumption throughout the POI, increasing from *** percent in 2022 to *** percent in 2023 and *** percent in 2024; it was up to *** percent in interim 2025 compared with *** percent in interim 2024.3 Cumulated subject imports’ market share increased by *** percentage points from 2022 to 2024 and by *** percentage points between interim periods.4 Cumulated subject imports relative to U.S. production increased from *** percent in 2022 to *** percent in 2024, an increase of *** percentage points.5 They were *** percent relative to U.S. production in interim 2025, down from *** percent in interim 2024.6 Based on the foregoing, I find that the volume of cumulated subject imports is significant absolutely and relative to U.S. consumption, and the increase in cumulated subject import volume is significant relative to U.S. consumption. 1 CR/PR at Table 4.2. 2 CR/PR at Table 4.3. 3 CR/PR at Tables 4.8, C.1. 4 CR/PR at Tables 4.8, C.1. 5 CR/PR at Tables 4.2, 4.3. 6 CR/PR at Tables 4.2, 4.3. 44 B. Price Effects As discussed in section VII.B.3 of the Commission’s Views, the record shows that there is at least a moderate degree of substitutability between subject imports and the domestic like product and that price is an important factor in purchasing decisions for HPDP, among other important factors such as quality and availability. The Commission collected quarterly quantity and f.o.b. pricing data from U.S. producers and importers for their sales of one HPDP product shipped to unrelated U.S. customers during the January 2022 to June 2025 period.7 The reported pricing data accounted for *** percent of U.S. producers’ commercial U.S. shipments of HPDP and *** percent of U.S. importers’ commercial U.S. shipments of subject imports from Brazil in 2024.8 There were no reported sales of pricing product 1 from Norway during the POI.9 The available pricing data indicate that subject imports undersold domestically produced HPDP in all 14 quarterly comparisons, involving subject import sales of *** ADST, at margins ranging from *** to *** percent and averaging *** percent.10 The Commission also collected import purchase cost data for imports of pricing product 1. Reported purchase cost data accounted for *** percent of imports from Brazil and *** percent of imports from Norway in 2024.11 In addition to the costs of the imported product, six of eight importers reported incurring additional costs associated with importing HPDP rather than purchasing from a U.S. producer or importer.12 Of these, five firms estimated that the additional costs incurred ranged from 1 to 14 percent of the LDP value, which they attributed to operational costs incurred in processing imported material, Customs fees, demurrage fees, financing costs, harbor maintenance fees, inland freight costs, and warehousing fees.13 Five of eight importers reported that they compare costs of importing to the costs of purchasing from a U.S. producer in determining whether to import subject merchandise, and three reported that they also compare costs of importing to the costs of purchasing from another U.S. importer.14 All eight responding importers identified benefits from importing subject merchandise 7 CR/PR at 5.4. The pricing product is: Product 1.— High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. Id. 8 CR/PR at 5.5. 9 CR/PR at 5.5. 10 CR/PR at Table 5.5. 11 CR/PR at 5.8. 12 CR/PR at 5.11. 13 CR/PR at 5.11. 14 CR/PR at 5.11. 45 themselves instead of purchasing from U.S. producers or importers, including increased supply security and risk mitigation in connection with the closures of domestic producers and the aging equipment of the remaining domestic producer.15 A majority of importing firms reported that the import cost (both excluding and including additional costs) of HPDP they imported are not lower than the price of purchasing HPDP from a U.S. producer or importer.16 Three importers estimated that they saved *** percent of the purchase price by importing HPDP rather than purchasing from a U.S. importer and saving between *** percent compared to purchasing the product from a U.S. producer.17 The purchase cost of subject imports was lower than the U.S. producer’s price in 17 of 27 quarterly comparisons, with price-cost differences in the quarters with lower import costs ranging between *** and *** percent and averaging *** percent.18 In the quarters with higher import costs than U.S. prices, price-cost differences ranged from *** to *** percent and averaged *** percent.19 There were *** ADST of subject imports in the quarterly comparisons with lower import purchase costs, *** percent of the volume of subject imports in the import purchase cost dataset.20 While the pricing and purchase cost data on this record show predominant underselling by subject imports and lower purchase costs for subject imports compared to domestic producer prices, the record indicates that the pricing data do not reflect competition for sales of the same product because the single, broadly defined pricing product captures a range of HPDP products sold at different prices. The single pricing product proposed by Petitioners captures nearly all U.S. shipments of the domestic like product and subject imports from Brazil and Norway during the POI.21 This single, broadly defined pricing product is in contrast to Petitioners’ characterization of HPDP as a customized product with multiple properties (e.g., purity, brightness, and viscosity) designed and produced to customers’ specifications.22 15 CR/PR at 5.11. 16 CR/PR at 5.12. 17 CR/PR at 5.12. 18 CR/PR at Table 5.8. 19 CR/PR at Table 5.8. 20 CR/PR at Table 5.8. 21 CR/PR at 5.5, 5.8. The pricing data account for *** percent of U.S. producers’ U.S. commercial shipments and *** percent of commercial shipments of subject imports from Brazil during the POI, while the import purchase cost data accounted for *** percent of imports from Norway during the POI. Derived from U.S. Producers’ Questionnaire Responses; U.S. Importers’ Questionnaire Responses 22 Conf. Tr. at 22 (Hicks) (“Our customers are also primarily manufacturing companies that require bespoke and custom specifications – for example, purity and/or brightness levels – that are driven by the requirements of the finished product they manufacture and sell.”), 23 (Hicks) (“We work (Continued…) 46 Additionally, prices can vary significantly for different specifications of HPDP.23 An official from Eastman, ***,24 provided an affidavit stating that Eastman purchases *** HPDP products from Rayonier, *** fall within the definition of pricing product 1, at *** different prices.25 The difference between the lowest and highest prices of these products ranged from *** percent during the POI.26 Indeed, Petitioners recognize a “continuum of prices” for HPDP and that the prices of HPDP vary by market and application,27 rendering a single, expansive pricing product a poor indicator of price comparisons in this market. Moreover, the record indicates that subject imports are more concentrated in types of HPDP that command lower prices than domestically produced HPDP, and HPDP of different specifications cannot be used interchangeably by purchasers.28 An Eastman official attested (…Continued) very closely with our customers to make products to their particular specification. This process can take months, even years, to align on the properties for the particular customers’ needs. The highly customized nature of the products we sell means that we often cannot sell that same product to a different customer.”); Petitioners Postconf. Br. Exh. 1 at 1 (“HPDP is a continuum of products produced to customer specifications.”). See also CR/PR at 1.12; Eastman Postconf. Br. at Exh. 2 (“Different customers and end-uses require exacting specifications. As a result, HPDP covers a range of highly differentiated product grades and specifications.”). 23 Eastman Postconf. Br. at Exh. 2; Bracell Postconf. Br. at Exh. 2, Attach. K; Conf. Tr. at 136 (McAlindon) (“We buy various grades from Rayonier, and they all have different pricing associated with each one.”), 50 (Hicks) and 137 (Dohrn) (noting different prices for HPDP depending on the end use). 24 CR/PR at Table 5.10. 25 Eastman Postconf. Br. at 25-26, Exh. 2. 26 Eastman Postconf. Br. at 26, Exh. 2. 27 Petitioners Postconf. Br. Exh. 1 at 7; Conf. Tr. at 50 (Hicks) (“There are different prices within HPDP. So the way we typically price would be based on market and application. We mentioned the different applications within HPDP so you’ll see different prices based on market within HPDP.”). Petitioners acknowledge that production costs vary by production method, resulting in an approximately $*** per ADST (*** percent) difference across HPDP grades between the highest production cost and the lowest. Petitioners Postconf. Br. Exh. 1 at 1-2. However, the difference in Rayonier’s prices of pricing product 1 for kraft-produced and sulfite-produced HPDP in the same quarters of the POI ranged from $*** to $*** per ADST (*** to *** percent) and averaged $*** per ADST (*** percent), demonstrating the range of prices within this pricing product. Derived from CR/PR at Tables F.1-F.2; U.S. Producer Questionnaire Responses. Petitioners attribute differences in average unit values for products produced at its two plants to product mix differences, further showing that prices vary for HPDP products. Petitioners Postconf. Br. Exh. 1 at 2 n.2. 28 See Petitioners Postconf. Br. at 17 (“Purchasers require HPDP that meets certain technical specifications – such as defined levels of purity, brightness, or viscosity – to ensure compatibility with their downstream production processes.”); Conf. Tr. at 18 (Haseltine) (“HPDP is a bespoke product made to each customer’s specifications”), 22-23 (Hicks), 33 (Haseltine); Eastman Postconf. Br. at Exh. 2 (stating that because of the “bespoke nature of HPDP,” Eastman cannot substitute different specifications for each other); Bracell Postconf. Br. at Exh. 4 (“The Petitioners’ definition of HPDP does not capture the (Continued…) 47 that the lowest-cost HPDP products it purchases from Rayonier are used in the same applications as the HPDP it purchases from Bracell and Borregaard.29 This official also attested that Eastman can only purchase certain higher-quality, more-expensive HPDP products from Rayonier.30 A Bracell official stated that the end uses in which Bracell’s HPDP is qualified are for lower-priced markets compared to the higher-end HPDP manufactured by Rayonier which command much higher prices because of their more specialized end uses.31 The Bracell official reported that Rayonier’s HPDP tends to have higher alpha cellulose and purity than Bracell’s HPDP, and Bracell’s products are typically unable to reach those higher alpha cellulose and purity levels for technical reasons related to the manufacturing process utilized by Bracell.32 This is supported by *** importer of subject imports from Brazil, noting that its Brazilian imports “cannot compete with U.S. HPDP where very high purity (over 98 percent) is required.”33 Thus, different HPDP products provided by different sources at different prices, along with the overly broad pricing product definition, result in observed price comparisons that are not representative of head-to-head competition for sales of the same product and in which domestic prices are inflated compared to subject import prices. The pricing comparisons broken out by production method do not rectify this issue.34 While this increases this specificity of the pricing products somewhat, it does not provide any more granularity in terms of factors that affect prices such as alpha cellulose content, brightness, and intrinsic viscosity.35 Within the hardwood and softwood categories, each (…Continued) reality that a pulp may meet those thresholds but still fail to perform in pharmaceutical applications. Low resin, low dirt counts, and end-product functionality are essential for pharmaceutical excipients.”). 29 Eastman Postconf. Br. at 26, Exh. 2. 30 Eastman Postconf. Br. at Exh. 2. 31 Bracell Postconf. Br. at Exh. 2. The official stated that Bracell’s product is not qualified for manufacturing casings, triacetate products, the highest-purity microcrystalline cellulose (“MCC”) used in pharmaceutical and food applications, filtration papers, or cellulose ethers. Id. Importer *** confirms that the domestic product and Brazilian imports are not interchangeable in applications that require long softwood fibers such as in filtration, cellulose ether, triacetate, or very high purity MCC applications for pharmaceuticals and food. CR/PR at 2.10. 32 Bracell Postconf. Br. at Exh. 2. 33 CR/PR at 5.5. *** accounted for *** percent of subject imports from Brazil in 2024. Id. at Table 4.1. Importer *** also reported that HPDP from subject and domestic sources are never interchangeable due to quality and product differences. Id. at 2.9. 34 See CR/PR at Appendix F. 35 See CR/PR at D.7 (importer *** reported that ***); Bracell Postconf. Br. at Exh. 2 (“The alpha cellulose is one of the key components used in our customers’ manufacturing processes. As such, these customers would willingly pay more for product with higher alpha cellulose content and fewer impurities for the same volume.”); Petitioners Postconf. Br. at 6 (“What purchasers look for are the (Continued…) 48 producer further customizes the HPDP to the customer’s end use, resulting in products that vary significantly in key specifications such as purity, brightness, and price.36 Likewise, comparisons of the average unit values (“AUVs”) of U.S. shipments of subject imports and the domestic like product do not corroborate subject import underselling. The U.S. shipment AUV data encompass all U.S. shipments of HPDP and have even less granularity than the pricing data.37 The higher AUVs of the domestic industry’s U.S. shipments compared with the AUVs of U.S. shipments of subject imports only confirm that subject imports compete in the same applications as those of the domestic industry’s lowest-cost HPDP grades, as argued by Eastman, and are more concentrated in lower-purity grades than the domestic product, as the record otherwise indicates.38 I have also considered the lost sales responses. The Commission sent lost sales/lost revenue surveys to six purchasers and received responses from five purchasers. The responding firms’ purchases accounted for the large majority, *** percent, of apparent U.S. consumption of HPDP during the POI.39 Of the five responding purchasers, four reported that they had purchased subject imports instead of the domestic like product and two of those four reported that subject import prices were lower than prices for the domestic like product.40 (…Continued) particular alpha cellulose, brightness, and inherent viscosity they need for their own production process.”); Conf. Tr. at 63-64 (Hicks) (“Generally, to get to, say, higher alpha cellulose or higher brightness, it’s going to require longer cooking or longer digesting and/or a different type of digesting.”), 93 (Dohrn) (“Customers perceive a difference in specialty grade dissolving pulp at purities above 98 percent because of the higher concentration of alpha cellulose and lower volume of impurities which must be removed in the customer’s manufacturing process.”). 36 CR/PR at 5.5; Eastman Postconf. Br. at Exh. 2; Conf. Tr. at 32-33 (Hicks), 33 (Haseltine) (“Customers will have various specifications in the different applications in which they participate. That would include what you had just mentioned, whether that be an alpha cellulose content specification, a brightness specification, viscosity, potentially mins and max values, along with density, roll diameters, widths, et cetera. So there are several different specifications which customers will require for any given application space.”). 37 Petitioners acknowledged there may be product mix issues in the data that could affect comparisons of AUVs. Conf. Tr. at 38 (Bhatti). See also CR/PR at 4.7 (noting that HPDP from the domestic industry and each subject source were concentrated differently even using the broadly defined delineation of greater or less than 95 percent alpha cellulose content). 38 CR/PR at 2.9-2.10, 5.5; Eastman Postconf. Br. at Exh. 2; Bracell Postconf. Br. at Exh. 2. 39 CR/PR at 5.14. 40 CR/PR at Table 5.11. Four purchasers reported buying subject imports from Brazil instead of the domestic like product; two purchasers reported that subject imports from Brazil were lower priced than the domestic product. CR/PR at Table 5.12. One purchaser reported buying subject imports from Norway instead of the domestic like product; this purchaser reported that subject imports from Norway were not lower priced than the domestic like product. Id. 49 Only one purchaser reported that price was a primary reason for buying subject imports rather than the domestic like product; the volume of confirmed lost sales is *** ADST, the equivalent of just *** percent of the volume of responding purchasers’ purchases and imports of subject imports during the POI, *** percent of the volume of U.S. shipments of cumulated subject imports during the POI, and *** percent of the volume of responding purchasers’ purchases of U.S.-produced HPDP during the POI.41 Purchasers identified supplier risk mitigation, quality decreases ***, and unavailability of a certain HPDP product as non-price reasons for purchasing imported rather than U.S.-produced product.42 Limitations in the substitutability between subject imports and the domestic like product further support the conclusion that lower prices for subject imports did not drive the increase in cumulated subject imports during the POI. Nearly all importers reported that differences other than price are always or frequently significant in their sales of HPDP.43 While U.S. producer *** reported that the U.S. product and subject imports from both sources are *** interchangeable, U.S. producer *** reported that HPDP from the United States and Brazil are *** interchangeable and HPDP from the United States and Norway are *** interchangeable.44 *** reported that HPDP from the United States and Norway are primarily produced from softwood, which has unique characteristics, while HPDP from Brazil is hardwood-based.45 A majority of responding importers rated the U.S. product to be sometimes or never interchangeable with subject imports from Brazil, and Brazil accounted for the vast majority of cumulated subject imports during the POI.46 Importer *** reported that HPDP from the United States, Brazil, and Norway are never interchangeable due to quality and product differences.47 Importer *** reported that HPDP from different sources are sometimes interchangeable because the wood source to produce HPDP has an impact on the efficiency and operations of cellulose casing operations.48 Importer *** reported that HPDP from the United States and Brazil are sometimes interchangeable because Brazilian HPDP is produced using short eucalyptus hardwood fibers which are not interchangeable in applications that require long softwood fibers such as the filtration market, the cellulose ether market, the triacetate 41 CR/PR at 5.15, Tables 4.8, 5.10, 5.11. 42 CR/PR at 5.15, Table 5.11. 43 CR/PR at 2.10-2.11, Table 2.10. U.S. producers were divided between whether such differences were *** or *** significant. Id. at 2.10, Table 2.9. 44 CR/PR at 2.9. 45 CR/PR at 2.9. 46 CR/PR at Tables 2.8, 4.2, C.1. 47 CR/PR at 2.9. 48 CR/PR at 2.9. 50 market, or markets where very high purity HPDP is required such as products for pharmaceuticals.49 I have also considered price trends during the POI. Prices for HPDP generally increased over the POI. The domestic industry’s prices for the sole pricing product increased by *** percent from the first quarter to the last quarter of the POI. 50 None of the five responding purchasers reported that U.S. producers had reduced prices in order to compete with lower- priced imports from Brazil or Norway. 51 Given the above considerations, I find that subject imports did not depress U.S. prices to a significant degree. 52 The record also indicates that subject imports did not prevent price increases that otherwise would have occurred to a significant degree. Rayonier’s net sales unit value increased by more than its per-unit COGS from 2022 to 2024, resulting in a decline in its COGS/net sales ratio. 53 From 2022 to 2023, Rayonier’s net sales unit value increased by $*** per ADST (*** percent) while unit COGS increased by $*** per ADST (*** percent), resulting in a slight decline in its COGS/net sales ratio from *** percent to *** percent. 54 From 2023 to 2024, Rayonier increased its net sales unit value by $*** per ADST (*** percent) as unit COGS declined by $*** per ADST (*** percent), causing its COGS/net sales ratio to fall from *** percent to *** percent. 55 In contrast, between interim periods Rayonier’s net sales unit value was $*** per ADST (*** percent) higher while its unit COGS was $*** per ADST (*** percent) 49 CR/PR at 2.9-2.10. 50 CR/PR at Table 5.7. Rayonier’s prices for pricing product 1 increased by *** percent over the POI. Derived from Rayonier’s U.S. Producer Questionnaire at IV-2b. Prices for the Brazilian product increased by *** percent over the period, purchase costs for the Brazilian product increased by *** percent, and purchase costs for the Norwegian product increased by *** percent. CR/PR at Table 5.7. 51 CR/PR at 5.15. 52 Petitioners also do not argue that subject imports depressed U.S. prices. Conf. Tr. at 38-39 (Bhatti); see generally Petitioners Postconf. Br. 53 Following revisions to the scope, Georgia-Pacific’s financial reporting includes a mix of in- scope and out-of-scope dissolving pulp and therefore was excluded from the domestic industry’s financial operations on HPDP. CR/PR at 6.1. As discussed below, based on this record I find that subject imports did not significantly contribute to the closure of Georgia-Pacific’s domestic HPDP operations, and therefore I find Rayonier’s financial data to be probative as to the impact of subject imports on the domestic industry’s financial performance for purposes of this determination. 54 CR/PR at Table 6.2. 55 CR/PR at Table 6.2. *** were the primary driver of changes in Rayonier’s COGS from 2022 to 2024, followed by ***. Id. Per-unit raw material costs declined by $*** per ADST (*** percent) from 2022 to 2024 while per-unit other factory costs increased by $*** per ADST (*** percent). Id. Direct labor costs increased by $*** per ADST (*** percent) from 2022 to 2024. Id. 51 higher, resulting in its COGS/net sales ratio increasing from *** percent in interim 2024 to *** percent in interim 2025.56 While Petitioners argue that their sales volumes are threatened if they try to raise prices,57 the pricing data show that Rayonier increased its average quarterly sales price for pricing product 1 by $*** per ADST (*** percent) from 2023 to 2024 and still gained *** percentage points of market share from 2023 to 2024.58 Given the domestic industry’s increased prices and improved profitability during the 2022 to 2024 period, I find that subject imports did not prevent price increases which otherwise would have occurred to a significant degree. In sum, subject imports did not depress U.S. prices or prevent price increases which otherwise would have occurred to a significant degree. While the available pricing data show underselling by subject imports, the record indicates that these data are not representative of head-to-head competition in the market. Moreover, as discussed below, I do not find that underselling resulted in subject imports gaining substantial market share at the expense of the domestic industry. Therefore, I do not find that subject imports had significant price effects. C. Impact The domestic industry’s trade and employment indicators declined from 2022 to 2024 while Rayonier’s financial performance improved. Between interim periods, the industry’s employment indicators improved although its trade and financial performance deteriorated. The domestic industry’s installed capacity declined by *** percent from 2022 to 2024, from *** ADST in 2022 to *** ADST in 2024, driven by the exit of Georgia-Pacific from the industry.59 Similarly, practical overall capacity on the machinery used to make HPDP declined by *** percent, from *** ADST in 2022 to *** ADST in 2024, and reported practical capacity allocated to HPDP declined by *** percent, from *** ADST in 2022 to *** ADST in 2024.60 Production of all products on the machinery used to manufacture HPDP declined by *** 56 CR/PR at Table 6.2. Per-unit raw material costs were *** between interim periods while direct labor costs were $*** per ADST (*** percent) higher and other factory costs were $*** per ADST (*** percent) higher. Id. 57 Petitioners Postconf. Br. at 28. 58 Derived from CR/PR at Table 4.8; Rayonier’s U.S. Producer Questionnaire at IV-2b. 59 CR/PR at Tables 3.5, 3.7. Installed capacity was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. at Table 3.5. 60 CR/PR at Table 3.5. Practical overall capacity was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. Practical HPDP capacity was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 52 percent, from *** ADST in 2022 to *** ADST in 2024, and production of HPDP declined by *** percent, from *** ADST in 2022 to *** ADST in 2024.61 The industry’s utilization rate of its practical overall capacity increased from *** percent in 2022 to *** percent in 2024, while the utilization rate of its practical capacity allocated to HPDP declined from *** percent in 2022 to *** percent in 2024.62 The domestic industry’s U.S. shipments of HPDP declined by *** percent, from *** ADST in 2022 to *** ADST in 2024.63 Its end-of-period inventories declined from *** ADST (*** percent of total shipments) in 2022 to *** ADST (*** percent of total shipments) in 2024.64 The domestic industry’s market share declined by *** percentage points from 2022 to 2024. The domestic industry’s market share declined from *** percent in 2022 to *** percent in 2023 and *** percent in 2024.65 However, this trend was driven by Georgia-Pacific’s exit from the market.66 The domestic industry’s market share was *** percentage points higher in interim 2025, at *** percent, than in interim 2024, at *** percent.67 The number of production-related workers in the domestic industry declined by *** percent from 2022 to 2024 but was *** percent higher in interim 2025 than in interim 2024.68 The number of hours worked declined by *** percent from 2022 to 2024 but was *** percent 61 CR/PR at Table 3.5. Production of all products on the machinery used to produce HPDP was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. Production of HPDP was *** percent lower in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 62 CR/PR at Table 3.5. As noted in the Commission’s Views, the domestic industry’s reported unused practical HPDP capacity exceeds its reported unused installed capacity and practical overall capacities. See id. Counsel for Petitioners clarified in an email that the lower practical overall excess capacity figures reflect the ***. CR/PR at 3.5; Rayonier email of August 28, 2025, EDIS Doc. 862843 (Sept. 24, 2025). The domestic industry therefore would have had to produce less of other products made on the same machinery in order to utilize fully its reported practical HPDP capacity. 63 CR/PR at Tables 4.8, C.1. U.S. shipments of HPDP were *** percent higher in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. 64 CR/PR at Table 3.11. Ending inventories were *** ADST (*** percent of total shipments) in interim 2025, lower than in interim 2024 at *** ADST (*** percent of total shipments). Id. 65 CR/PR at Tables 4.8, C.1. 66 Georgia-Pacific’s market share declined by *** percentage points from 2022 to 2024 and Rayonier’s market share increased by *** percentage points. CR/PR at Table 4.8. 67 CR/PR at Tables 4.8, C.1. Petitioners say that the domestic industry’s increase in market share between interim periods is due to the ***. Petitioners Postconf. Br. at 21. Rayonier’s Canadian imports accounted for *** percent of apparent U.S. consumption in 2022 and *** percent in 2024; their U.S. market share fell from *** percent in interim 2024 to *** in interim 2025. Derived from CR/PR at Table 4.8; Rayonier Canada’s Importer Questionnaire Response at II-4. 68 CR/PR at Tables 3.12, C.1. 53 higher between interim periods.69 Hourly wages increased by *** percent from 2022 to 2024 and by *** percent between interim periods. 70 Productivity increased by *** percent from 2022 to 2024 but was *** percent lower between interim periods. 71 Rayonier’s gross profits increased from $*** (*** percent of net sales) in 2022 to $*** (*** percent of net sales) in 2024. 72 Operating income increased from $*** (*** percent of net sales) in 2022 to $*** (*** percent of net sales) in 2024. 73 Net income increased from *** (*** percent of net sales) in 2022 to $*** (*** percent of net sales) in 2024. 74 The domestic industry’s capital expenditures declined by *** percent, from $*** in 2022 to $*** in 2024; they were *** percent higher in interim 2025 at $*** than in interim 2024 at $***. 75 The domestic industry’s loss of market share from 2022 to 2024 was *** due to the exit of Georgia-Pacific from the domestic industry. The domestic industry’s market share declined by *** percentage points from 2022 to 2024 as Georgia-Pacific ceded *** percentage points and Rayonier gained *** percentage points of market share. 76 Georgia-Pacific’s HPDP U.S. shipment quantity fell by *** ADST from 2022 to 2024 as Rayonier’s U.S. shipments increased by *** ADST.77 Georgia-Pacific’s production quantity declined by *** ADST from 2022 to 2024 as Rayonier’s production declined by *** ADST. 78 However, the record indicates that subject imports did not significantly contribute to the closure of Georgia-Pacific’s HPDP operations. 79 Georgia-Pacific reported that it ended HPDP 69 CR/PR at Tables 3.12, C.1. 70 CR/PR at Tables 3.12, C.1. 71 CR/PR at Tables 3.12, C.1. 72 CR/PR at Table 6.1. Its gross profits were lower in interim 2025 at $*** (*** percent of net sales) than in interim 2024 at $*** (*** percent of net sales). Id. 73 CR/PR at Table 6.1. Operating income was lower in interim 2025 at $*** (*** percent of net sales) than in interim 2024 at $*** (*** percent of net sales). Id. 74 CR/PR at Table 6.1. Net income was lower in interim 2025 at $*** (*** percent of net sales) than in interim 2024 at $*** (*** percent of net sales). Id. 75 CR/PR at Table 6.7. Rayonier reported that while ***. Id. at Table 6.8. 76 CR/PR at Table 4.8. 77 CR/PR at Table 4.8. 78 Derived from U.S. Producer Questionnaire Responses. As discussed below, the decline in Rayonier’s production quantity from 2022 to 2024 is ***. 79 The parties disagree as to the reasons for Georgia-Pacific’s closure. A Rayonier official testified that “our understanding is a significant part of why {Georgia-Pacific} was struggling {was} because they weren’t able to compete with those {subject} imports as well. It was certainly a contributing factor.” Conf. Tr. at 43-44 (Hicks). Petitioners invite the Commission to “presume” that Georgia-Pacific’s decision to cease production of HPDP was, at least in part, due to subject import competition. Petitioners Postconf. Br. at 30. On the other hand, Respondents contend that Georgia- Pacific’s closure was due to persistent production challenges and difficulties in producing quality HPDP. (Continued…) 54 manufacturing because these operations lacked economic viability.80 In a press release at the time of the closure, Georgia-Pacific stated that “various factors influenced” the decision to close the mill and that it “does not believe that the mill can competitively serve its customers in the long term.”81 The record shows that Georgia-Pacific’s mill struggled to produce adequate quality and supply of HPDP and required large investments to remediate environmental issues. Georgia-Pacific’s Perry, Florida, mill was built by Procter & Gamble in 1954 and was acquired by Georgia-Pacific in 2013.82 A news article states that the mill “has long been criticized for causing environmental harm” and Georgia-Pacific invested more than $300 million in environmental restoration since acquiring the mill.83 A Bracell official, who previously worked at the Perry, Florida, mill before it was acquired by Georgia-Pacific, attested that Georgia-Pacific ran the mill “like a commodity mill, underestimating the effort and experience necessary to operate a specialty mill.”84 Purchaser *** reported that Georgia-Pacific began experiencing quality issues in mid-2021 and exited the market in 2023 because it was unable to recover from those quality issues.85 Georgia-Pacific was the only producer of HPDP to use *** production method, while other producers used ***.86 Georgia-Pacific invoked a force majeure in July 2021 due to production line and global supply chain issues; Georgia-Pacific continued to operate under force majeure up until its ultimate closure, during which time it suffered from supply constraints.87 A Rayonier official testified that Georgia-Pacific never lifted the force majeure, suggesting that the mill had production challenges.88 Eastman (*** former purchaser of Georgia-Pacific’s HPDP89) attested that in February 2022, Georgia-Pacific informed Eastman that it would not be able to deliver scheduled orders for February and March 2022 and would (…Continued) Bracell Postconf. Br. at 32-33, Exhs. 2, 5; Eastman Postconf. Br. at 34. An Eastman official attested that he understood through industry contacts that Georgia-Pacific made the decision to close the mill due to the impact of high maintenance capital requirements on the long-term competitiveness of the mill. Eastman Postconf. Br. at Exh. 1. 80 CR/PR at 2.5, Table 3.4. 81 Borregaard Postconf. Br. at Attach. B.1. 82 Borregaard Postconf. Br. at Attach. B.1. 83 Borregaard Postconf. Br. at Attach. B.1; Eastman Postconf. Br. at Exh. 4. 84 Bracell Postconf. Br. at Exh. 2. 85 CR/PR at 5.17, Table 5.11. 86 See CR/PR at 5.9 n.10, F.3. 87 CR/PR at Table 3.3; Conf. Tr. at 91 (Dohrn); Bracell Postconf. Br. at Exhs. 2, 5. 88 Conf. Tr. at 31 (Hicks). 89 CR/PR at 5.17. Eastman was the *** purchaser of Georgia-Pacific’s HPDP. Georgia-Pacific’s U.S. Producer Questionnaire at IV-23. 55 be further reducing supply volumes for second quarter 2022.90 Georgia-Pacific’s volumes were further curtailed throughout 2022 and 2023.91 Additionally, HPDP accounted for *** percent of total production on Georgia-Pacific’s machinery used to produce pulp in 2022 and 2023, and Georgia-Pacific shuttered its entire mill, not just its HPDP operations.92 The record indicates that there is attenuated competition between subject imports and Georgia-Pacific’s HPDP. Brazil accounted for nearly all cumulated subject imports in 2022 and 2023, i.e., leading up to and during the time that Georgia-Pacific ceased production of HPDP.93 Georgia-Pacific reported that subject imports from Brazil are *** interchangeable with U.S.- produced HPDP due to differences in the *** the HPDP.94 While Georgia-Pacific and the Brazilian producer both used the kraft process to produce HPDP, Georgia-Pacific used *** to produce HPDP and Brazil uses hardwood.95 Some market participants report that hardwood- and softwood-based HPDP cannot be used in some of the same applications.96 Georgia-Pacific 90 Eastman Postconf. Br. at 34, Exh. 1. 91 Eastman Postconf. Br. at Exh. 1. 92 See Georgia-Pacific’s U.S. Producer Questionnaire at II-3a; Conf. Tr. at 91 (Dohrn); Borregaard Postconf. Br. at Attach. B.1. 93 CR/PR at Tables 4.2, 4.8. Subject imports from Brazil accounted for *** percent of cumulated subject imports in 2022 and *** percent in 2023. Id. at Table 4.2. While Georgia-Pacific claimed that it *** during the POI, it *** Georgia-Pacific’s U.S. Producer Questionnaire at IV-24. 94 CR/PR at 2.9; Georgia-Pacific’s U.S. Producer Questionnaire at IV-20. Georgia-Pacific also reported that differences other than price between the U.S. product and subject imports from Brazil and Norway are *** significant in its sales of HPDP. Georgia-Pacific’s U.S. Producer Questionnaire at IV-21. Bracell argues that Georgia-Pacific largely sold fluff pulp and non-acetate specialty pulp into end uses for which Bracell was not qualified, such as filter papers, tire cord, and casings, attenuating competition between imports from Brazil and Georgia-Pacific. Bracell Postconf. Br. at Exh. 2. 95 CR/PR at 5.9 n.10, F.3. 96 See CR/PR at D.5. Borregaard stated that the type of raw material (hardwood or softwood) and the production process used have a critical impact on the physical form of the final product, what type of market segment it can serve, and its pricing. Borregaard Postconf. Br. at 9. It said the properties of hardwood and softwood, including fiber length and other qualitative factors, greatly affect the marketability and application of HPDP. Id. at 10; Conf. Tr. at 98 (Müller) (“Hardwood and softwood have various attributes, such as the length of the wood fiber, which impact the final form of the HPDP. … The wood input dictates the market segment where the final product will be sold. … The differentiation in products necessarily means there is attenuated competition by companies that specialize in different production processes and produce HPDP using different types of wood inputs”). Petitioners’ Postconference Brief states: “When asked whether Bracell and Borregaard compete with each other given their different production methods and wood inputs, Mr. Müller of Borregaard stated unequivocally: ‘the very clear answer is yes.’” Petitioners Postconf. Br. at 11-12 (citing Conf. Tr. at 166). However, they omit Mr. Müller’s entire answer, which is “The very clear answer is yes but only in certain segments.” Conf. Tr. at 166 (Müller). Mr. Müller explained that they do not compete in segments where predominantly hardwood or softwood HPDP is used. Id. Mr. Dohrn of Bracell (Continued…) 56 reported that HPDP made from *** interchangeable with U.S.-produced HPDP.97 Importer *** reported that its “Brazil HPDP is wholly produced from hardwood and cannot be used for certain applications which require U.S. (softwood) HPDP, such as filtration and nitrocellulose.”98 Eastman reported that hardwood-based HPDP can only be used in its fiber products and is not suitable for its plastics, coatings, and ink products.99 Additionally, Georgia-Pacific’s HPDP was shipped *** while subject imports were sold *** to end users during the POI.100 In sum, the record shows that cumulated subject imports did not significantly contribute to Georgia-Pacific’s decision to cease domestic production of HPDP. The record in these preliminary phase investigations also indicates that cumulated subject imports did not prevent Rayonier from gaining substantially more sales and market share than it did following Georgia-Pacific’s exit. Rayonier’s market share *** between 2022 and 2023 and it gained *** percentage points of market share in 2024.101 Georgia-Pacific’s market share declined by *** percentage points from 2022 to 2023; it ceded *** percentage points of market share from 2023 to 2024, of which *** was the biggest beneficiary.102 Purchasers confirm increasing their purchases of Rayonier’s HPDP following Georgia-Pacific’s closure.103 Further, as discussed below, purchasers in this market require multiple sources of (…Continued) concurred, stating that the areas in which Brazil and Norway overlap are rather small and in general they are concentrating in different markets. Conf. Tr. at 167 (Dohrn). As previously discussed, Brazilian HPDP is made from hardwood and Norwegian HPDP is made from softwood. CR/PR at 2.8 n.7. 97 CR/PR at 2.9; Georgia-Pacific’s U.S. Producer Questionnaire at IV-20. 98 CR/PR at 5.5. *** reported that U.S.-produced and Brazilian HPDP are sometimes interchangeable because Brazilian HPDP is produced using short eucalyptus hardwood fibers which are not interchangeable in applications that require long softwood fibers such as the filtration market, the cellulose ether market, the triacetate market, or markets where very high purity HPDP is required, such as certain MCC applications for the food and pharmaceutical market. Id. at 2.10. 99 Eastman Postconf. Br. at Exh. 2. 100 CR/PR at 2.1, Table 2.1; Georgia-Pacific’s U.S. Producer Questionnaire at II-9. 101 CR/PR at Table 4.8. 102 CR/PR at Table 4.8. Rayonier gained *** percentage points of market share from 2023 to 2024, cumulated subject imports gained *** percentage points from 2023 to 2024, and nonsubject imports gained *** percentage points of market share (*** percentage points from Rayonier Canada) from 2023 to 2024. Id.; Rayonier Canada’s U.S. Importer Questionnaire Response at II-7a. Rayonier increased its U.S. shipment volumes as well as its prices in 2024, resulting in its operating income/sales ratio increasing from *** percent in 2023 to *** percent in 2024. CR/PR at Tables 5.4, 6.1, C.1; Rayonier’s U.S. Producer Questionnaire at IV-2b. 103 Purchaser *** reported that the amount it currently purchases from Rayonier is equivalent to the amount it formerly purchased from Georgia-Pacific. CR/PR at 5.17. Eastman reported that following Georgia-Pacific’s closure it increased purchases from Rayonier from *** percent to *** percent of its total purchases of HPDP in 2024 while increasing subject imports from *** percent to *** percent of (Continued…) 57 supply of HPDP to prevent costly disruptions to their own manufacturing operations which utilize HPDP, and purchasers report supply issues from Rayonier, reinforcing the need to have diverse sources of supply. Purchasers reported that supply disruptions from Rayonier in recent years adversely affected its ability to supply HPDP, including prolonged maintenance, unplanned shutdowns, and force majeure events.104 Purchaser *** stated that “Rayonier had several supply disruptions over the last years because of prolonged maintenance, unplanned shutdowns or internal or external caused force majeure events,” citing the interruption in the natural gas supply to Rayonier’s Jesup, Georgia, plant in December 2022 and the fire at that plant in October 2024.105 It reported that in *** Rayonier “did not deliver any ordered material to *** causing interruptions in our global supply chain.”106 Eastman describes multiple instances since 2021 in which Rayonier ***.107 Rayonier reported that it did not experience any supply constraints during the POI and that it was able to shift supply to its Fernandina Beach, Florida, plant while its Jesup, Georgia, plant was unable to produce due to the October 2024 fire.108 However, Rayonier produces different types of HPDP at each of its plants109 and this strategy was not costless to Rayonier’s customers.110 Georgia-Pacific reported that kraft- and sulfite-produced HPDP are *** (…Continued) total purchases, and in interim 2025 Rayonier reached *** percent of Eastman’s purchases while subject imports accounted for *** percent of its purchases. Eastman Postconf. Br. at Exh. 1. Rayonier thus *** following Georgia-Pacific’s closure. *** and Eastman were the two *** during the POI. CR/PR at Table 5.10. 104 CR/PR at 5.18, Table 3.3; Conf. Tr. at 105-106 (McAlindon); Eastman Postconf. Br. at 14, Exh. 1. 105 CR/PR at 5.18, Table 3.3. 106 CR/PR at 5.18. 107 Eastman Postconf. Br. at 13-14, Exh. 1; see Petitioners Postconf. Br. Exh. 1 at 8 (Rayonier ***). 108 CR/PR at 2.5, Tables 3.3, 3.4; Conf. Tr. at 75 (Hicks). 109 CR/PR at 5.9 n.10; Conf. Tr. at 16 (Haseltine) (noting that Rayonier produces HPDP using the kraft process at its Jesup plant and using the sulfite process at its Fernandina Beach plant). Rayonier uses *** inputs for its kraft production and *** inputs for its sulfite production. CR/PR at F.3. 110 Eastman reported that it incurred additional processing costs as a result of Rayonier switching supply from its Jesup plant to Fernandina Beach plant. Eastman Postconf. Br. at Exh. 1. While Petitioners contend that the increase in imports of Norway’s sulfite-produced HPDP following Georgia- Pacific’s closure of its kraft-produced HPDP production shows interchangeability between kraft- and sulfite-produced HPDP, in fact *** Georgia-Pacific and Norway’s Borregaard *** HPDP. Petitioners Postconf. Br. at 6; CR/PR at F.3. As discussed above, the type of *** appears to affect interchangeability (Continued…) 58 interchangeable because interchangeability between the products is ***111 As discussed above, some market participants report that hardwood and softwood HPDP cannot be used in some of the same applications and are not fully interchangeable.112 Along with the supply issues that purchasers report experiencing from Rayonier, these considerations underscore the importance of having multiple sources of supply for HPDP, a fact emphasized by responding purchasers in these investigations. Purchasers report that purchasing from multiple sources is critical for ensuring a constant supply of HPDP and avoiding disruptions to their own production operations. Purchasers attested that multi-supplier approaches have been standard practice in this market for decades and are often required by contract with their customers.113 Eastman officials confirmed that some of Eastman’s customers require supply chain diversification and multiple sources of supply, precluding Eastman from relying on a single supplier.114 *** reported that it requires a multi-supplier strategy to secure constant, seamless supply.115 This purchaser stated that its customers require it to diversify its supply base to reduce supply risks and avoid any supply disruptions.116 *** stated that its ***.117 *** reported that its sourcing strategy is focused on mitigating supply risks resulting from an aging domestic asset base, lack of investments, and supplier consolidation.118 It describes a “multi-sourcing strategy, supported by long-term contractual commitments, to minimize risks, while balancing domestic supply and imports to offset lack of enough reliable production in the U.S. to cover all the demand for the more specialized HPDP grades to serve the Cellulose Acetate and Cellulose Ethers end markets.”119 Purchasers aver that having multiple sources of supply is also necessary due to differences in the HPDP available from different sources.120 (…Continued) of HPDP from different sources. See CR/PR at 5.5, Table D.3; Eastman Postconf. Br. at Exh. 2; Borregaard Postconf. Br. at 9-10. 111 CR/PR at D.4. 112 See CR/PR at 5.5, Tables D.2, D.3; Eastman Postconf. Br. at Exh. 2; Borregaard Postconf. Br. at 9-10. 113 Bracell Postconf. Br. at Exh. 3 ***. 114 Eastman Postconf. Br. at Exhs. 1, 2. For example, Eastman has a large multinational customer (***) which required Eastman to disclose evidence of having multiple suppliers. Id. at Exh. 1. 115 CR/PR at 5.18. 116 CR/PR at 5.19. 117 CR/PR at Table 5.11. 118 CR/PR at 5.17. 119 CR/PR at 5.17-5.18. 120 Bracell Postconf. Br. at Exhs. 3, 4 (affidavits from purchasers Primester and JRS); Eastman Postconf. Br. at Exh. 2. 59 In sum, the record indicates that subject imports did not significantly contribute to Georgia-Pacific’s cessation of HPDP production or prevent Rayonier from gaining substantially more market share than it did. Therefore, subject imports did not gain market share at the expense of the domestic industry during the POI. As previously discussed, subject imports also did not depress domestic prices or prevent price increases which otherwise would have occurred to a significant degree. The record shows that factors other than subject imports caused the domestic industry’s performance to be worse than it otherwise would have been during the 2022 to 2024 period. Export shipments accounted for *** of the domestic industry’s total shipments and the volume of its export shipments declined *** over the POI, adversely affecting the industry’s production volumes and revenues.121 Indeed, the observed decline in Rayonier’s production volumes from 2022 to 2024 *** by its declining export shipments. Rayonier’s production of HPDP declined by *** ADST from 2022 to 2024 as its U.S. shipments increased by *** ADST and its export shipments declined by *** ADST.122 The domestic industry’s declining export shipments and the resulting adverse impact on the domestic industry’s performance are unrelated to competition with subject imports. Additionally, Rayonier opted to serve portions of U.S. demand from its Canadian operations due to *** prior to halting production at its Canadian plant in July 2024.123 Rayonier Canada’s U.S. market share was *** percent in 2022 and *** percent in 2024; its U.S. market share fell from *** percent in interim 2024 to *** in interim 2025.124 Rayonier stated that the increase in U.S. market share for its domestic operations in interim 2025 was due to ***.125 Based on the foregoing, I find that cumulated subject imports did not have a significant impact on the domestic industry and that there is not a reasonable indication of material injury to a U.S. industry by reason of subject imports from Brazil and Norway. 121 CR/PR at 3.12, Tables 3.9, C.1. The domestic industry’s export shipment quantity declined by *** ADST from 2022 to 2024 while its U.S. shipment quantity declined by *** ADST. Id. Exports as a share of the domestic industry’s total shipments fell from *** percent in 2022 to *** percent in 2024; they were *** percent in interim 2025 compared to *** percent in interim 2024. Id. Rayonier’s exports as a share of its total shipments *** from *** percent in 2022 to *** percent in 2023 and *** percent in 2024; they were *** percent in interim 2024 and *** percent in interim 2025. Derived from Rayonier’s U.S. Producer Questionnaire at II-8. 122 CR/PR at 3.7, 3.12, Tables 3.7, 4.8; Rayonier’s U.S. Producer Questionnaire Response at II-8. 123 CR/PR at 2.5, Table 3.3; Rayonier Canada’s Importer Questionnaire Response at II-4. 124 Derived from CR/PR at Table 4.8; Rayonier Canada’s U.S. Importer Questionnaire at II-7a. 125 CR/PR at 2.5; Petitioners Postconf. Br. at 21. 60 III. Reasonable Indication of Threat of Material Injury by Reason of Subject Imports A. Cumulation Section 771(7)(H) of the Tariff Act provides that the Commission may cumulatively assess the volume and price effects of subject imports if the petitions were filed on the same day and if such imports compete with each other and with the domestic like product in the U.S. market.126 As discussed in section VI of the Commission’s Views, subject imports from Brazil and Norway are eligible for cumulation because the petitions were filed on the same day, and the record indicates a reasonable overlap of competition between and among subject imports from Brazil and Norway and the domestic like product. The record indicates that there will likely continue to be a reasonable overlap of competition between and among subject imports from Brazil and Norway and the domestic like product in the U.S. market in the imminent future. Absent any other compelling information in the record of the preliminary phase of these investigations, I exercise my discretion to consider subject imports from Brazil and Norway on a cumulated basis for purposes of my threat of material injury analysis. B. Likely Volume of Cumulated Subject Imports127 As discussed above in section II.A of these Separate Views, cumulated subject imports increased significantly relative to U.S. consumption during the POI. The volume of cumulated subject imports increased from *** ADST in 2022 to *** ADST in 2024; it was lower in interim 2025 at *** ADST compared to *** ADST in interim 2024.128 Cumulated subject imports increased as a share of U.S. consumption throughout the POI, increasing from *** percent in 2022 to *** percent in 2023 and *** percent in 2024; their market share was *** percent in 126 19 U.S.C. § 1677(7)(H). Petitioners argue that the Commission should exercise its discretion to cumulate subject imports from Brazil and Norway for purposes of its threat analysis. Petitioners Postconf. Br. at 33. Respondents do not address cumulation for purposes of a threat analysis. 127 Commerce initiated a countervailing duty investigation on HPDP from Brazil based on 27 alleged subsidy programs, including a number of export subsidies. High Purity Dissolving Pulp from Brazil: Initiation of Countervailing Duty Investigation, 90 Fed. Reg. 43,174 (Sept. 8, 2025); High Purity Dissolving Pulp from Brazil: Enforcement and Compliance Office of AD/CVD Operations Countervailing Duty Investigation Initiation Checklist, Sept. 2, 2025. 128 CR/PR at Table 4.2. 61 interim 2025, up from *** percent in interim 2024.129 Cumulated subject imports’ market share increased by *** percentage points from 2022 to 2024 and by *** percentage points between interim periods.130 Cumulated subject imports thus continued to increase their market share in interim 2025 even after the shifts in supply to the U.S. market from 2023 to 2024 resulting from Georgia-Pacific’s closing its domestic HPDP operations. The subject industries in Brazil and Norway have available capacity with which they can increase exports to the United States in the imminent future, and their unused capacity was *** and capacity utilization lower in interim 2025 than in interim 2024.131 The combined subject industries’ practical HPDP capacity *** from 2022 to 2024 at *** ADST; it was *** in interim 2025 at *** ADST than in interim 2024 at *** ADST.132 Their projected capacity is *** ADST for 2025 and *** ADST for 2026.133 HPDP production in the subject industries increased from 2022 to 2024 from *** ADST to *** ADST; it was *** ADST in interim 2025 compared to *** ADST in interim 2024.134 Production is projected to *** to *** ADST in 2026 from *** ADST in 2025.135 The combined subject industries’ capacity utilization rate increased from *** percent in 2022 to *** percent in 2024; it was lower in interim 2025, at *** percent, than in interim 2024, at *** percent.136 Capacity utilization is projected to be *** percent in 2025 and *** percent in 2026.137 Thus, the subject industries project to have unused practical capacity to produce *** ADST of HPDP in 2025 and *** ADST in 2026.138 For comparison, cumulated subject imports increased by *** ADST from 2022 to 2024.139 129 CR/PR at Tables 4.8, C.1. 130 CR/PR at Tables 4.8, C.1. 131 CR/PR at 7.5, Table 7.3. The Commission received responses to its foreign producer/exporter questionnaires from one firm in Brazil and one firm in Norway, accounting for all known production of subject merchandise in Brazil and Norway in 2024. Id. at 7.3, Table 7.1. 132 CR/PR at Table 7.7. *** also reported the ability to produce other products on the same equipment and machinery used to produce HPDP. Id. at 7.14. HPDP accounted for between *** and *** percent of total production on the subject producers’ equipment used to produce HPDP during the POI. Id. at Table 7.10. 133 CR/PR at Table 7.7. 134 CR/PR at Table 7.7. 135 CR/PR at Table 7.7. 136 CR/PR at Table 7.7. 137 CR/PR at Table 7.7. 138 Derived from CR/PR at Table 7.7. The subject producers’ end-of-period inventories increased from *** ADST in 2022 to *** ADST in 2024; they were *** in interim 2025, at *** ADST, than in interim 2024, at *** ADST. Id. at Table 7.6. Ending inventories are projected to be *** ADST in 2025 and *** ADST in 2026. Id. 139 Derived from CR/PR at Table 4.2. 62 The cumulated subject industries are highly export-oriented, with export shipments *** as a share of their total shipments from *** percent in 2022 to *** percent in 2024.140 The United States is a *** destination for the subject industries’ exports: exports to the United States accounted for *** percent of their total shipments in 2022 and *** percent in 2024; this share *** to *** percent in interim 2025 from *** percent in interim 2024.141 Exports to the United States are projected to account for *** percent of the subject industries’ total shipments in 2025 and *** percent in 2026.142 U.S. importers’ end-of-period inventories of subject imports were higher in interim 2025, at *** ADST, than in interim 2024, at *** ADST.143 U.S. importers’ ending inventories of subject imports relative to U.S. shipments of subject imports were at their highest level of the POI in interim 2025 at *** percent, compared to *** percent in interim 2024.144 U.S. importers’ ending inventories of subject imports in interim 2025 were equivalent to *** percent of apparent U.S. consumption in 2024 and *** percent of apparent U.S. consumption in interim 2025.145 Effective April 5, 2025, imports of HPDP from Brazil are subject to 10 percent additional ad valorem duties under the International Emergency Economic Powers Act (“IEEPA”). Effective April 5, 2025, imports from Norway became subject to 10 percent additional ad valorem duties under IEEPA; this duty rate has fluctuated but is currently 15 percent as of August 7, 2025.146 Based on the above discussion, I cannot find that substantially increased subject imports are not likely in the imminent future. 140 CR/PR at Table 7.6. Exports accounted for *** percent of total shipments in interim 2024 and *** percent in interim 2025. Id. They are projected to account for *** percent in 2025 and *** percent in 2026. Id. 141 CR/PR at Table 7.6. 142 CR/PR at Table 7.6. 143 CR/PR at 7.17, Table 7.12. 144 Derived from CR/PR at Tables 4.8, 7.12, C.1. 145 Derived from CR/PR at Tables 4.8, 7.12, C.1. 146 CR/PR at 1.9-1.10. The IEEPA tariffs are currently subject to ongoing litigation, making their applicability to subject imports in the imminent future uncertain. CR/PR at 1.9 n.14; see V.O.S. Selections Inc., v. Trump, 149 F.4th 1312 (Fed. Cir. 2025) (en banc) (holding that IEEPA does not authorize these tariffs), cert. granted, (Sept. 9, 2025) (No. 25-250). 63 C. Likely Price Effects The record indicates that there is at least a moderate degree of substitutability between subject imports and the domestic like product and that price is an important purchasing factor, along with other factors. As discussed above in section II.B of these Separate Views, the available data show predominant underselling by subject imports, although the overly broad pricing product does not reflect head-to-head competition for sales of the same product in the market.147 Two of four responding purchasers who reported buying subject imports instead of the domestic like product reported that subject imports were lower priced than the domestic product, and one reported that price was a primary reason for buying subject imports instead of the domestic product.148 In contrast to the 2022 to 2024 period, Rayonier’s financial performance worsened in interim 2025 compared to interim 2024 as its ***. Rayonier’s unit COGS was $*** per ADST (*** percent) higher in interim 2025 than in interim 2024, while its net sales unit value was $*** per ADST (*** percent) higher.149 As a result, Rayonier’s COGS/net sales ratio increased from *** percent in interim 2024 to *** percent in interim 2025.150 This occurred as cumulated subject imports continued to gain market share and reached their highest level of market penetration of the POI at *** percent in interim 2025.151 Moreover, Rayonier’s reported financial performance in interim 2025 compared to interim 2024 is bolstered by ***. As previously discussed, export shipments account for a *** share of the domestic industry’s total shipments and therefore have a *** influence on the industry’s net sales values and COGS/net sales ratio, as these data reflect both U.S. shipments and export shipments.152 Between interim periods Rayonier’s U.S. shipment volume increased by *** ADST and the AUV of its U.S. shipments increased by $*** per ADST (*** percent).153 At the same time, its export shipments increased by *** ADST and the AUV of its export shipments 147 In any final phase of these investigations, the parties are encouraged to propose pricing products with more specific parameters to allow for head-to-head comparisons of prices for the same HPDP products. See 19 C.F.R. § 207.20(b). 148 CR/PR at Table 5.11. 149 CR/PR at Tables 6.1, 6.2. Increasing unit COGS was driven ***. Id. 150 CR/PR at Tables 6.1, C.1. 151 CR/PR at Tables 4.8, C.1. Apparent U.S. consumption was also *** percent lower in interim 2025 than in interim 2024. Id. 152 Exports account for *** percent of Rayonier’s total shipments of HPDP in interim 2024 and *** percent in interim 2025. Derived from Rayonier’s U.S. Producer Questionnaire at II-8. 153 Derived from Rayonier’s U.S. Producer Questionnaire at II-8. 64 increased by $*** per ADST (*** percent).154 As a result, the trends for Rayonier’s financial performance between interim periods for its U.S. sales, where it competes with subject imports, are likely more negative than as shown in its reported financial data which reflect both U.S. sales and export shipments.155 Based on the foregoing, particularly some purchasers’ reporting that subject imports were lower priced than the domestic product and the domestic industry’s declining financial performance in interim 2025 as subject imports continued to gain market share, I cannot determine that subject imports are not entering the U.S. market at prices that are likely to increase demand for further imports or have a significant depressing or suppressing effect on domestic prices. Therefore, I cannot find that cumulated subject imports will likely not have significant price effects in the imminent future. D. Likely Impact As discussed above in section II.C of these Separate Views, the domestic industry’s capacity, capacity utilization rate, production volume, and financial performance declined in interim 2025 compared to interim 2024, while its market share and employment indicators improved.156 Even as it increased its market share, Rayonier’s operating income to net sales ratio fell from *** percent in interim 2024 to *** percent in interim 2025 as cumulated subject imports continued to gain market share and reached their highest market share of the POI in interim 2025.157 Rayonier reported that it ***.158 As discussed above, I cannot find that substantially increased subject imports are not likely in the imminent future. I also cannot find that subject imports will likely not have 154 Derived from Rayonier’s U.S. Producer Questionnaire at II-8. 155 In any final phase of these investigations, I intend to seek more information on the domestic industry’s performance for its U.S. sales, separate from the results for its export shipments, in order to analyze better the impact of subject import competition on the domestic industry. 156 CR/PR at Table C.1. 157 CR/PR at Tables 4.8, 6.1, C.1. Rayonier’s net income to sales ratio declined from *** percent in interim 2024 to *** percent in interim 2025. Id. at Table 6.1. 158 CR/PR at Tables 6.9, 6.10. A Rayonier official testified that a purchaser informed Rayonier in 2025 that it will be reducing the volume of HPDP purchased from Rayonier in order to purchase subject imports from Brazil instead, a decision the Rayonier official attributes to the lower price of the imported product. Conf. Tr. at 19 (Haseltine). In any final phase of these investigations, the parties are encouraged to provide contemporaneous documentation, to the extent possible, of competition between the domestic industry and subject imports, including lost sales due to price and price negotiations. 65 significant price depressing or suppressing effects on U.S. prices in the imminent future, or that they will not gain market share from the domestic industry as a result of lower prices. While Rayonier’s market share increased in interim 2025 compared with interim 2024, this was due to ***.159 The *** was complete by the end of the POI and therefore this will not likely cause Rayonier’s market share to increase in the imminent future.160 Moreover, nonsubject imports accounted for just *** percent of the U.S. market in interim 2025, making further increases in cumulated subject import market share likely to come at the expense of the domestic industry. While apparent U.S. consumption was fairly stable from 2022 to 2024, it was *** percent lower in interim 2025 than in interim 2024.161 Market participants reported declining demand for HPDP due to shifts in consumer preferences for some end-use products such as *** and downturns in the construction sector.162 To the extent that domestic demand for HPDP continues to decline in the imminent future, it will make the domestic industry more vulnerable to the adverse effects of increased volumes of subject imports. Based on the foregoing, I cannot find that cumulated subject imports will not have a significant impact on the domestic industry in the imminent future. I therefore find that there is a reasonable indication that a U.S. industry is threatened with material injury by reason of subject imports from Brazil and Norway. IV. Conclusion For the reasons stated above, I determine that there is a reasonable indication that an industry in the United States is threatened with material injury by reason of imports of HPDP from Brazil and Norway that are allegedly sold in the United States at less than fair value and subsidized by the government of Brazil. 159 CR/PR at 2.5, Table 4.8; Petitioners Postconf. Br. at 21. 160 Rayonier Canada’s U.S. market share was *** percent in interim 2024 and *** percent in interim 2025, a decline of *** percentage points. Derived from CR/PR at Table 4.8; Rayonier Canada’s U.S. Importer Questionnaire at II-7a. Georgia-Pacific’s market share declined by *** percentage points between interim periods and Rayonier’s market share increased by *** percentage points. CR/PR at Table 4.9. Rayonier’s U.S. operations thus gained less market share than was ceded by ***, although the record is unclear as to if Rayonier should have reasonably expected to gain all of those sales but for competition with unfairly traded subject imports. 161 CR/PR at Tables 4.8, C.1. Apparent U.S. consumption increased by *** percent from 2022 to 2024. Id. 162 CR/PR at 2.6-2.7; Eastman Postconf. Br. at 4-5. 1.1 Part 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 Rayonier Advanced Materials, Inc. (“Rayonier”), Jacksonville, Florida and the United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL-CIO Washington, DC, on August 12, 2025, alleging that an industry in the United States is materially injured and threatened with material injury by reason of less-than-fair-value (“LTFV”) imports of high purity dissolving pulp (“HPDP”)1 from Brazil and Norway and alleged to be subsidized by the Government of Brazil. Table 1.1 presents information relating to the background of these investigations.2 3 Table 1.1 HPDP: Information relating to the background and schedule of this proceeding Effective date Action August 12, 2025 Petitions filed with Commerce and the Commission; institution of the Commission investigations (90 FR 39419, August 15, 2025) September 2, 2025 Commission’s conference September 2, 2025 Commerce’s notice of initiation (90 FR 43168 and 43174, September 8, 2025) September 25, 2025 Commission’s vote September 26, 2025 Commission’s determinations November 19, 2025 Commission’s views 1 See the section entitled “The subject merchandise” in Part 1 of this report for a complete description of the merchandise subject in this proceeding. 2 Pertinent Federal Register notices are referenced in appendix A and may be found at the Commission’s website (www.usitc.gov). 3 Appendix B presents a list of witnesses appearing at the conference. Note: Due to the lapse in appropriations and ensuring cessation of government operations, all import injury investigations conducted under the authority of Title VII of the Tariff Act of 1930 have been tolled pursuant to 19 U.S.C. 1671d(b)(2) and 1673d (b)(2). 1.2 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— 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—4 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 4 Amended by PL 114—27 (as signed, June 29, 2015), Trade Preferences Extension Act of 2015. 1.3 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—5 (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. 5 Amended by PL 114—27 (as signed, June 29, 2015), Trade Preferences Extension Act of 2015. 1.4 Market summary HPDP is a raw material suitable for use in various applications from eyeglass frames, excipient in pharmaceutical products, and bulking agent in food, to cellulose film and filtration products. Currently, the only U.S. producer of HPDP is Rayoiner, while leading producers of HPDP outside the United States include Bracell Bahia Speciality Cellulose S.A. (“Bracell”) of Brazil and Borregaard AS (“Borregaard”) of Norway. The leading U.S. importer of HPDP from Brazil is ***, while the leading importers of HPDP from Norway are ***. Leading importers of HPDP from nonsubject sources (primarily Canada and the Czech Republic) include ***. U.S. purchasers of HPDP are firms that produce products like acetate, cellulose ethers, cellulose casing, microcrystalline cellulose ("MCC"), nitrocellulose, that are used in downstream products like cigarette filters, linings for suit jackets, eyeglass frames, food products, and cellophane film.6 Leading purchasers include ***. Apparent U.S. consumption of HPDP totaled approximately *** air dried short tons (“ADST”) ($***) in 2024. Currently, one firm is known to produce HPDP in the United States.7 U.S. producers’ U.S. shipments of HPDP totaled *** ADST ($***) in 2024 and accounted for *** percent of apparent U.S. consumption by quantity and *** percent by value. U.S. imports from subject sources totaled *** ADST ($***) in 2024 and accounted for *** percent of apparent U.S. consumption by quantity and *** percent by value. U.S. imports from nonsubject sources totaled *** ADST ($***) in 2024 and accounted for *** percent of apparent U.S. consumption by quantity and *** percent by value. 6 Conference transcript, p. 17 (Haseltine). 7 A second firm, GP Cellulose GmbH (“Georgia-Pacific”), stopped production on HPDP in 2023. 1.5 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 June of 2024 (“interim 2024”) and January through June of 2025 (“interim 2025”). Except as noted, U.S. industry data are based on questionnaire responses of two firms that accounted for all known U.S. shipments of U.S.-produced of HPDP during 2024. U.S. imports are based on questionnaire responses. Previous and related investigations HPDP has not been the subject of prior countervailing or antidumping duty investigations in the United States. 1.6 Nature and extent of alleged subsidies and sales at LTFV Alleged subsidies On September 8, 2025, Commerce published a notice in the Federal Register of the initiation of its countervailing duty investigation on HPDP from Brazil. Based on its review of the Petition, Commerce found that there is sufficient information to initiate a CVD investigation on all 27 programs alleged by the petitioners.8 Alleged sales at LTFV On September 8, 2025, Commerce published a notice in the Federal Register of the initiation of its antidumping duty investigations on HPDP from Brazil and Norway.9 Commerce initiated antidumping duty investigations based on estimated dumping margins of 62.08 percent for HPDP from Brazil and 110.04 percent for HPDP from Norway. 8 90 FR 43174, September 8, 2025. For further information on the alleged subsidy programs see Commerce’s notice of initiation and related CVD Initiation Checklist. 9 90 FR 43168, September 8, 2025. 1.7 The subject merchandise Commerce’s scope In the current proceeding,10 Commerce has defined the scope as follows:11 The merchandise subject to these investigations is high purity dissolving pulp, which is a dissolving pulp with an alpha cellulose percentage of 90 percent by weight or higher on an oven dry basis, as calculated by: alpha cellulose percentage = (100¥S10) + 0.5 * (S10¥S18) where S10 and S18 values are determined by International Organization for Standardization (ISO) 692:1982, and having a brightness level of 90 percent or higher, as measured by ISO 2470–1:2016. High purity dissolving pulp may be derived from any virgin or recycled cellulose fiber source (including, but not limited to, those sourced from hardwoods, softwoods, woody crops, agricultural crops/byproducts/residue, an agricultural/industrial/other waste). High purity dissolving pulp may be produced from a chemical pulping process including without limitation a kraft (sulfate) pulping and/or sulfite pulping process. High purity dissolving pulp can be shipped in any form, including, but not limited to, a liquid slurry or in any dried form such as flakes, powder, granules, pellets, shreds, rolls and sheets. The scope includes merchandise matching the above description that has been finished, packaged, or otherwise processed in a third country, including but not limited to processes such as commingling, blending, diluting, repackaging, or any other process that would not otherwise remove the merchandise from the scope of the investigations if performed in the subject country. The scope also includes high purity dissolving pulp that is commingled or blended with high purity dissolving pulp from sources not subject to these investigations. Only the subject component of such commingled or blended products is covered by the scope of these investigations. 10 The current scope as published in Commerce’s initiation notice differs from the requested scope in the petition. The current scope now excludes cotton linters pulp that consists of at least 90 percent by weight, on an oven-dried basis, of cotton linters fibers. As a result, pulp produced by Georgia-Pacific at *** is now considered out-of-scope. HPDP produced at Georgia-Pacific’s facility in Perry, Florida remains in-scope. 11 90 FR 43168, September 8, 2025. 1.8 Excluded from the scope is high purity dissolving pulp with an intrinsic viscosity under 455 milliliters per gram (mL/g), as measured by ISO 5351:2010. Also excluded from the scope is cotton linters pulp that consists of at least 90 percent by weight, on an oven-dried basis, of cotton linters fibers. High purity dissolving pulp products are classified under subheadings 4702.00.0020 and 4702.00.0040, of the Harmonized Tariff Schedule of the United States (HTSUS). High purity dissolving pulp products may also enter under subheadings 4706.30.0000 or 4706.92.0100. Reference to the HTSUS classifications is provided for convenience and customs purposes, and the written description of the merchandise under investigation is dispositive. Tariff treatment HPDP is currently imported under Harmonized Tariff Schedule of the United States (“HTS”) statistical reporting numbers 4702.00.0020 (chemical woodpulp, dissolving grades- sulfite) and 4702.00.0040 (chemical woodpulp, dissolving grades- sulfate or soda). The general rate of duty is “free” for HTS subheading 4702.00.00.12 Decisions on the tariff classification and treatment of imported goods are within the authority of U.S. Customs and Border Protection. Section 301 tariffs The Office of the U.S. Trade Representative (“USTR”) announced they initiated an investigation effective July 15, 2025, into Brazil’s acts, policies, and practices related to digital trade and electronic payment services; unfair, preferential tariffs; anti-corruption enforcement; intellectual property protection; ethanol market access; and illegal deforestation under section 301 of the Trade Act of 1974. USTR held a public hearing for this investigation on September 3, 2025.13 Tariffs initiated under the International Emergency Economic Powers Act (“IEEPA”)14 Effective April 5, 2025, HPDP originating in Brazil was subject to an additional 10 percent ad valorem duty as part of tariffs initiated in April 2025 under IEEPA.15 12 USITC, HTS (2025) Revision 22, Publication 5672, September 2025, p. 47.2 13 90 FR 34069, July 18, 2025. 14 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 specific to Brazil were initiated in July 2025. Tariffs under IEEPA have been amended over time. The applicable IEEPA tariffs are currently subject to ongoing litigation. V.O.S. Selections Inc., v. Trump, No. 15-1812, 2025 WL 2490634 (Fed. Cir. Aug. 29, 2025) (en banc) (holding that IEEPA does not authorize these tariffs), petition for cert. filed (Sept. 3, 2025) (No. 25-250). 15 The tariff rate for HPDP originating from Brazil remained at 10 percent even as IEEPA tariffs were amended over time. Individualized country duties as part of tariffs initiated in April 2025 under IEEPA for all countries other than China were suspended until August 1, 2025. 90 FR 15041, April 7, 2025. 90 FR 15625, April 15, 2025. 90 FR 30823, July 10, 2025. 90 FR 37963, August 6, 2025. See also HTS heading 9903.01.25 and U.S. note 2(v) to subchapter 3 of chapter 99 and related tariff provisions for this duty treatment. USITC, HTS (2025) Revision 22, Publication 5672, September 2025, pp. 99.3.5 to 99.3.14, 99.3.318. 1.9 1.10 HPDP originating in Brazil is not subject to tariffs specific to Brazil initiated in August 2025 under IEEPA. 16 Effective April 5, 2025, HPDP originating in Norway was subject to an additional 10 percent ad valorem duty as part of tariffs initiated in April 2025 under IEEPA. Effective April 9, 2025, Norway was instead assigned an individualized country duty of 15 percent ad valorem. However, effective April 10, 2025, the individualized country duties were suspended and the additional duty rate as part of tariffs initiated in April 2025 under IEEPA for HPDP originating in Norway was returned to 10 percent. 17 Effective August 7, 2025, the individualized country duty of 15 percent was reinstated. 18 Table 1.2 provides information on these tariffs. Table 1.2 HPDP: Additional tariffs on imports originating in Brazil and Norway as of September 19, 2025 Duty rates in percent ad valorem Additional tariff Brazil Norway Section 232 Not applicable Not applicable Section 301 Not applicable Not applicable Tariffs initiated in April 2025 under IEEPA 10 15 Total additional ad valorem rate 10 15 Source: Federal Register notices and other sources cited in this section (Tariff treatment). Note: Duty rates in the table reflect the duty rates as of the writing of this report. See the text above for historical changes to the additional tariffs. 16 HPDP is not subject to the tariffs specific to Brazil initiated in August 2025 under IEEPA because it is included in a list of products in HTS U.S. note 2(x) to subchapter 3 of chapter 99 that are not subject to tariffs specific to Brazil initiated in August 2025 under IEEPA. 90 FR 37739, August 5, 2025. See also HTS headings 9903.01.77, 9903.01.80, 9903.01.81, 9903.01.82, and 9903.01.83 and U.S. note 2(x) to subchapter 3 of chapter 99 and related tariff provisions for this duty treatment. USITC, HTS (2025) Revision 22, Publication 5672, September 2025, pp. 99.3.15 to 99.3.20, 99.3.329 to 99.3.330. 17 Individualized country duties as part of tariffs initiated in April 2025 under IEEPA for all countries other than China were suspended until August 1, 2025. 90 FR 15041, April 7, 2025. 90 FR 15625, April 15, 2025. 90 FR 30823, July 10, 2025. See also HTS headings 9903.01.25 and 9903.01.46 and U.S. note 2(v) to subchapter 3 of chapter 99 and related tariff provisions for this duty treatment. USITC, HTS (2025) Revision 22, Publication 5672, September 2025, pp. 99.3.5 to 99.3.14, 99.3.318, 99.3.321. 18 90 FR 37963, August 6, 2025. See also HTS headings 9903.02.46 and U.S. note 2(v) to subchapter 3 of chapter 99 and related tariff provisions for this duty treatment. USITC, HTS (2025) Revision 22, Publication 5672, September 2025, pp. 99.3.5 to 99.3.14, 99.3.318, 99.3.321. 1.11 The product Description and applications High purity dissolving pulp (HPDP) is a chemical pulp generally derived from hardwood or softwood species, processed to isolate nearly pure cellulose. HPDP is a sustainable raw material suitable for use in various applications from eyeglass frames, an inactive ingredient in pharmaceutical products, a bulking agent in food, and filtration products, among others.19 HPDP can be made with virgin fibers, recycled fibers, or a combination of both.20 Regardless of the fiber used, the pulping process results in a white, odorless, fibrous sheet composed of over 90 percent alpha-cellulose and low levels of hemicellulose and lignin.21 Cellulose, hemicellulose, and lignin are the structural components of plant cell walls (figure 1.1) that are separated and broken down during the pulping process.22 Figure 1.1 Cellulose, hemicellulose, and lignin found in plant cells Source: Jensen et. al, (2017). “Fundamentals of Hydrofaction™: Renewable crude oil from woody biomass.” https://link.springer.com/article/10.1007/s13399-017-0248-8 , accessed August 18, 2025. 19 Petition, p. 1 20 While primarily derived from wood fibers, HPDP can also be derived from non-wood sources including, but not limited to, woody crops; agricultural crops, byproducts, and residue; and other agricultural or industrial waste. Petition, p. 6; HPDP produced from cotton linters is excluded from the scope. 21 Petition, Exhibit I-3, Quintana, E., Valls, C. & Roncero, M.B., Dissolving-grade pulp: a sustainable source for fiber production, Wood Sci Technol 58, pp. 23 to 85 (2024). 22 Alpha cellulose is the purest form of cellulose from the innermost layers of plant cell walls. For HPDP, this classification is based on the residual portion of cellulose that is resistant to 17.5 percent NaOH according to the Tappi T-203cm-09 method. Kemox, “Types of cellulose: what is the most common cellulose?,” August 4, 2023, https://www.kemoxcellulose.com/types-of-cellulose/; petition, Exhibit I-3. 1.12 HPDP is engineered for uniform fiber structure, low ash and moisture content, and high brightness.23 In-scope HPDP is characterized by three main properties: alpha cellulose content, brightness, and intrinsic viscosity. HPDP has an alpha cellulose percentage of 90 percent by weight or higher on an oven dry basis, as calculated according to ISO 692:1982.24 HPDP also has a brightness of 90 percent or higher as measured by ISO 2470-1:2016.25 Finally, HPDP has an intrinsic viscosity of at least 455 milliliters per gram (mL/g), as measured by ISO 5351:2010.26 HPDP is a customizable product that can be produced to customer specifications. In addition to the properties described above, customers may specify the desired fiber density, finished form, and delivery method, among other specifications.27 The final product is a fibrous sheet, often wound into jumbo rolls, though it can be delivered in any dried form, such as flakes, powder, granules, pellets, shreds, rolls, bales, or sheets, to meet the customer’s needs. 23 Petition, Exhibit I-3. Ash content refers to the share of inorganic components in the pulp, which are a contaminant in the dissolving kraft and sulfite processes. Ash is generally higher in HPDP produced using the sulfite process, due to more inorganic salts from cooking that deposit on fibers. The kraft process uses salts that are more soluble and washed out as part of the process, generally resulting in lower ash. Therefore, HPDP produced via the sulfite method has an ash limit while HPDP produced using the kraft (sulfate) method does not. Petitioner, postconference brief, Exhibit 1, p. 9. 24 ISO 692:1982 studies the behavior of bleached pulps in the presence of alkali solutions. It specifies the method for determining the solubility of pulp in cold sodium hydroxide solutions of various concentrations, most frequently S18 and S10. Alpha cellulose percentage = (100-S10) + 0.5*(S10-S18), where S10 concentration refers to 10 grams of sodium hydroxide per 100 grams of solution and S18 refers to 18 grams of sodium hydroxide per 100 grams of solution. Petition, Exhibit I-2, International Organization for Standardization (ISO), Pulps- Determination of alkali solubility (1982). 25 Petition, Exhibit I-2, ISO, Paper, board and pulps- Measurement of diffuse blue reflectance factor- Part 1: Indoor daylight conditions (ISO brightness) (2016). 26 Petition, Exhibit I-2, ISO, Pulps- Determination of limiting viscosity number in cupri-ethylenediamine (CED) solution (2010). 27 Conference transcript, pp. 16 and 33 (Haseltine). 1.13 Figure 1.2 HPDP: Example of final product Source: https://www.pulpandpaper-technology.com/products/bracell/soluble-cellulose, accessed September 11, 2025. Manufacturing processes HPDP is produced through the chemical breakdown of lignocellulosic biomass, typically hardwoods (e.g., maple, birch, eucalyptus), softwoods (e.g., pine, spruce), or a blend of both, into purified cellulose. This can be accomplished through two chemical pulping methods: the kraft (or sulfate) process and the sulfite process. The four main steps for either method are digesting (also referred to as “cooking”), washing, bleaching, and drying. The production process begins with the fiber source, typically wood chips or logs that are debarked and chipped on site. Both the kraft and sulfite pulping processes begin with wood chips loaded into digesters. The resulting pulp is typically formed into dry sheet, rolls, or bales for use in downstream applications, such as the production of cellulose esters, microcrystalline cellulose (“MCC”), and cellulose based films.28 The difference between the kraft process and the sulfite process lies in the chemicals used in digesting. Digesting Kraft process In the kraft process, wood chips in the digester are subjected to elevated temperatures (typically 150 to 170 degrees Celsius) and pressure in an alkaline solution composed primarily of sodium hydroxide (NaOH) and sodium sulfide (Na₂S).29 The white liquor breaks down lignin and dissolves hemicellulose, isolating the cellulose fibers. The cooking time may be adjusted depending on the desired alpha cellulose content. The digested output is a mixture of fibers 28 Petition, Exhibit I-3. 29 HPDP may be produced using a pre-hydrolosis kraft process, which consists of two cooking stages, an acidic cooking stage and an alkaline cooking stage. Petitioner postconference brief, Exhibit 1, p. 9. 1.14 and liquid (slurry) known as brown stock, which contains black liquor, a residual mixture of degraded lignin, extractives, and cooking chemicals. Figure 1.3 Kraft pulping process Source: Petition, p. 9. Sulfite process In contrast to the kraft process, which uses alkaline solutions to break down the pulp, the sulfite process is acidic. The acidic cooking liquor used in the sulfite process typically has a pH between 1.5 and 2 and is kept between 125 to 145 degrees Celsius.30 Similar to the kraft process, the sulfite process breaks down lignin and turns the hemicellulose into soluble sugars, isolating the cellulose. The sulfite process produces different byproducts than the kraft process because of the different chemicals used. The main byproduct is brown liquor (also referred to as red liquor, thick liquor, or sulfite liquor), which is the spent cooking liquor. 30 The sulfite cooking liquor contains a solution of sulfur dioxide and calcium, sodium magnesium, or ammonium bisulfite. Petition, Exhibit I-3. 1.15 Figure 1.4 Sulfite pulping process Source: Petition, p. 10. Washing, bleaching, drying Next, the digested output undergoes multiple washing stages using rotary vacuum drum washers. This system separates the pulp from the spent liquor while recovering chemicals for reuse. Multiple stages ensure minimal chemical carryover and high pulp cleanliness.31 Following washing, the pulp passes through a series of fine mesh screens that ensure only well separated fibers proceed to bleaching. Acceptable fibers pass through the screens, while rejected fibers are reprocessed or discarded.32 To achieve the requisite brightness, the pulp undergoes a multistage bleaching sequence using various bleaching chemicals. Each stage is followed by intermediate washing to prevent chemical carryover. The result is a high purity cellulose pulp with low hemicellulose content (typically under 2 percent) and high alpha cellulose of at least 90 percent. After bleaching, the pulp slurry enters a machine and is deposited onto a forming table, where water is removed. It then passes through press sections and a steam-heated drying section with serpentine drum dryers to reduce moisture content, typically to below 10 31 The number of washing stages may vary depending on the customer’s desired purity specification. 32 Petition, Exhibit I-3. 1.16 percent.33 The dried pulp is finished into continuous sheets, wound into jumbo rolls or cut down, depending on customer specifications. The finished product is then labeled and barcoded for shipment. Domestic like product issues The petitioner proposes a single domestic like product consisting of HPDP products that are coextensive with the scope of the investigations.34 Respondents profess uncertainty with the current scope.35 Assuming the scope does not include commodity grade pulp, respondents Bracell and Borregaard do not raise any domestic like product issues in the current preliminary investigations.36 33 Petition, Exhibit I-3. 34 Petitioner’s postconference brief, p. 3. 35 Respondent Borregaard’s postconference brief, p. 2 and Respondent Bracell’s postconference brief, pp. 4 to 6. 36 While Borregaard appears to argue that the Commission should "clarify" or "exclude" commodity products from its like product definition, in view of its statement that it endorses Bracell's domestic like product argument, Borregaard appears to make a similar argument to Bracell, namely that commodity grade and specialty grade dissolving pulp are distinct products. Respondent Borregaard’s postconference brief, p. 4 and Respondent Bracell’s postconference brief, p. 5. 2.1 Part 2: Conditions of competition in the U.S. market U.S. market characteristics High purity dissolving pulp (“HPDP”) is, according to Petitioner Rayonier, a unique specialty grade of cellulose pulp that represents the highest tier of the pulp market in the United States. 1 HPDP is defined by its purity and brightness specifications, having a greater than 90 percent alpha cellulose content, greater than 90 percent brightness, and an intrinsic viscosity of greater than 455 milliliters per gram.2 The pulping process results in a white, odorless, fibrous sheet composed of more than 90 percent alpha-cellulose with low levels of hemicellulose and lignin. This pulp is engineered for uniform fiber structure, low ash and moisture content, and high brightness. HPDP is produced through the chemical breakdown of lignocellulosic biomass, typically hardwoods (e.g., maple, birch, eucalyptus), softwoods (e.g., pine, spruce), or a blend of both, into purified cellulose. HPDP can be shipped in any form, including, but not limited to, a liquid slurry, flakes, powder, granules, pellets, shreds, rolls, or sheets. HPDP is used in a wide variety of end uses ranging from the production of eyeglass frames, pharmaceutical products, bulking agent in foods, cellulose films, and filtration products. *** U.S. producers and 5 of 11 importers indicated that the market was subject to distinctive conditions of competition. Specifically, U.S. producer *** reported that HPDP demand is driven by a global basket of suppliers. Importer *** similarly reported that the HPDP market is concentrated in a few global producers. Importer *** reported that the HPDP market was driven by unusual supply and demand dynamics. Importer *** reported that cotton linter pulp (“CLP”) can replace HPDP in some uses and price fluctuations in HPDP and CLP may cause some customers to switch between them. Apparent U.S. consumption of HPDP increased from 2022 to 2024. However, apparent U.S. consumption was lower in January to June 2025 compared to the same period of 2024. Channels of distribution U.S. producers and importers sold mainly to end users, as shown in table 2.1. 3 1 Conference transcript, p. 15 (Haseltine). 2 Conference transcript, p. 15 (Haseltine). 3 The shift in the U.S. producers’ channels of distribution from selling approximately *** of HPDP to distributors in 2022 to less than *** percent in 2024 is due to ***, the *** U.S. producer selling to distributors, sharply reducing its shipments of HPDP. 2.2 Table 2.1 HPDP: Share of U.S. shipments by source, channel of distribution, and period Shares in percent; interim is January through June Source Channel 2022 2023 2024 Interim 2024 Interim 2025 United States Distributor *** *** *** *** *** United States End user *** *** *** *** *** Brazil Distributor *** *** *** *** *** Brazil End user *** *** *** *** *** Norway Distributor *** *** *** *** *** Norway End user *** *** *** *** *** Subject sources Distributor *** *** *** *** *** Subject sources End user *** *** *** *** *** Nonsubject sources Distributor *** *** *** *** *** Nonsubject sources End user *** *** *** *** *** All import sources Distributor *** *** *** *** *** All import sources End user *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Geographic distribution U.S. producers and importers reported selling HPDP to the *** regions of the United States. Additionally, U.S. producers reported selling HPDP to the *** region of the United States (table 2.2). U.S. producers reported *** percent of sales were between 101 and 1,000 miles of their production facility, and *** percent were over 1,000 miles. Importers sold *** percent within 100 miles of their U.S. point of shipment, and *** percent between 101 and 1,000 miles. Table 2.2 HPDP: Count of U.S. producers’ and U.S. importers’ geographic markets Count in number of firms reporting Region U.S. producers Brazil Norway Subject sources Northeast *** *** *** 2 Midwest *** *** *** 1 Southeast *** *** *** 4 Central Southwest *** *** *** 2 Mountain *** *** *** 0 Pacific Coast *** *** *** 0 Other *** *** *** 0 All regions (except Other) *** *** *** 0 Reporting firms 2 2 4 5 Source: Compiled from data submitted in response to Commission questionnaires. Note: Other U.S. markets include AK, HI, PR, and VI. *** 2.3 Supply and demand considerations U.S. supply Table 2.3 provides a summary of the supply factors regarding HPDP from U.S. producers and from subject countries. Table 2.3 HPDP: Supply factors that affect the ability to increase shipments to the U.S. market, by country Quantity in ADST; ratios and shares in percent; Count in number of firms reporting Factor Measure United States Brazil Norway Capacity 2022 Quantity *** *** *** Capacity 2024 Quantity *** *** *** Capacity utilization 2022 Ratio *** *** *** Capacity utilization 2024 Ratio *** *** *** Inventories to total shipments 2022 Ratio *** *** *** Inventories to total shipments 2024 Ratio *** *** *** Home market shipments 2024 Share *** *** *** Non-US export market shipments 2024 Share *** *** *** Ability to shift production (firms reporting “yes”) Count *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Responding U.S. producers accounted for all known U.S. production of HPDP in 2024. Responding foreign producer/exporter firms accounted for all known of U.S. imports of HPDP from Brazil and Norway during 2024. 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. Domestic production Based on available information, U.S. producers of HPDP have the ability to respond to changes in demand with large changes in the quantity of shipments of U.S.-produced HPDP to the U.S. market. The main contributing factors to this degree of responsiveness of supply are the availability of unused capacity, the availability of inventories, the ability to shift shipments from alternate markets, and the ability to shift production to or from alternate products. Consistent with the cessation of HPDP production by Georgia-Pacific in 2023, U.S. producers reduced capacity and to a larger extent production resulting in a decrease in capacity utilization from 2022 to 2024. Inventories decreased but remained above *** percent of U.S. producers’ total shipments throughout the period. U.S. producers reported selling more than 2.4 *** of their HPDP in non-U.S. markets. *** U.S. producers reported that they *** able to produce other products on the same equipment used to produce HPDP. U.S. producer *** reported that it is able to produce other lower priced pulp products but that these products result in a lower profit margin for the company. U.S. producer *** reported that it was able to produce fluff pulp on the same equipment used to produce HPDP. Subject imports from Brazil Based on available information, producers of HPDP from Brazil have the ability to respond to changes in demand with moderate changes in the quantity of shipments of HPDP to the U.S. market. The main contributing factors to this degree of responsiveness of supply are the availability of inventories and ability to shift shipments from alternate markets or inventories. Factors mitigating responsiveness of supply include limited availability of unused capacity and an inability to shift production to or from alternate products. The Brazilian producer's production capacity and production remained largely constant resulting in a stable capacity utilization rate throughout the period. Inventories increased throughout the period and were equivalent to slightly less than *** of total shipments in 2024. While the Brazilian producer reported selling less than *** percent of shipments in its home market in 2024, sales to markets other than the United States accounted for over *** of total shipments in 2024. The Brazilian producer report being unable to produce other products on the same equipment used to produce HPDP. Subject imports from Norway Based on available information, producers of HPDP from Norway have the ability to respond to changes in demand with moderate-to-large changes in the quantity of shipments of HPDP to the U.S. market. The main contributing factors to this degree of responsiveness of supply are the availability of some unused capacity and inventories, ability to shift shipments from alternate markets and ability to shift production to or from alternate products. The Norwegian producer held capacity constant but increased production resulting in increased capacity utilization rates from 2022 to 2024. Inventories decreased throughout the period and were equivalent to slightly more than *** of total shipments in 2024. While the Norwegian producer is unable to shift large shipments of HPDP from its home market, they are able to shift large shipments that are exported to markets other than the United States. Exports to non-U.S. markets accounted for just under *** of total shipments in 2024. The Norwegian producer reported that it is able to produce other mixes of pulp that fall outside the definition of HPDP on the same equipment used to produce HPDP. 2.5 Imports from nonsubject sources As discussed in greater detail in Part 4, imports from nonsubject sources accounted for *** percent of total U.S. imports in terms of quantity in 2024. Canada was the largest source of imports from nonsubject sources, with importer Rayonier Canada accounting for *** percent of such imports in terms of quantity in 2024. Supply constraints U.S. producer *** and the majority of importers reported that they had not experienced supply constraints since January 1, 2022. U.S. producer *** reported supply constraints in 2023 that were caused by the ending of manufacturing operations in Florida because these operations lacked economic viability.4 Importer *** reported supply constraints in 2023 and 2024 caused by the closure of Georgia-Pacific’s production facilities and that it was forced to quickly find alternate suppliers. Importer *** reported supply constraints in 2024 and 2025 caused by its *** indefinitely suspending its HPDP operations in July of 2024 to focus on its U.S. production and these supply constraints persisted into 2025. Table 2.4 HPDP: Count of firms’ responses regarding timing of supply constraints, by firm type and source Count in number of firms reporting Period of constraint U.S. producers Importers 2022 *** 0 2023 *** 1 2024 *** 2 2025 *** 1 Source: Compiled from data submitted in response to Commission questionnaires. U.S. demand Based on available information, the overall demand for HPDP is likely to experience small changes in response to changes in price. The main contributing factors are the limited availability of substitute products and the moderate share of HPDP in most of its end-use products. 4 Respondents contend that the closure of Georgia-Pacific’s Florida production facility was the result of a force majeure caused by the State of Florida’s environmental regulations that mandated projects costing in excess of $100 million. Conference transcript, p. 100 (Muller). Petitioners argue that while the force majeure did impact production at that specific facility, it was able to meet demand by increasing production at different facilities. Conference transcript, p. 42 (Haseltine). 2.6 End uses and cost share U.S. demand for HPDP depends on the demand for downstream products. Reported end uses include acetate, cellulose ethers, microcrystalline cellulose (MCC), cellulose casing, nitrocellulose, cellophane film, klucel G, and klucel M. HPDP’s share of the cost of end-use products varies greatly. Reported cost shares of HPDP had a wide range (from 3 percent to 82 percent) but typically ranged between 30.0 to 65.0 percent.5 Firms reported HPDP’s share of the cost of acetate products ranged from 30.0 to 45.0 percent while HPDP’s share of the cost of MCC ranged from 45.0 to 65.0 percent. Business cycles *** of U.S. producers and 4 of 11 importers indicated that the market was subject to business cycles. Specifically, U.S. producer *** reported that the HPDP market was subject to macroeconomic shifts and cycles which impact the demand for HPDP. Importer *** reported that HPDP’s business cycle mirrors the business cycles of the products that use HPDP. Imports *** reported that HPDP business cycles followed general economic trends but are closely tied to the construction sector which currently has low levels of demand. Importer *** reported that cellulose acetate applications are mostly stable but will routinely soften in the last quarter of each year while cellulose ether applications are more seasonal as they are linked to the construction sector of the economy and increase during the warmer months of spring and summer. It also reported that cellulose ether applications for the food and pharmaceutical industry are more stable throughout the year. Demand trends U.S. producers reported that domestic and foreign demand for HPDP *** since January 1, 2022. U.S. producer *** reported that 2022 marked the high point of demand for HPDP, as firms increased inventory levels due to supply chain disruptions caused by the COVID-19 pandemic. U.S. producer *** further reported that inventory levels have been decreasing to normal levels in subsequent years. U.S. producer *** reported that decreases in demand are due to macroeconomic slowdowns and downturns in the construction sector. Importers’ responses to the changes in domestic and 5 Firms reported vastly different cost shares of HPDP for the same products. Importer *** reported that HPDP made up 3.0 percent the cost of cellulose casing while importer *** reported that HPDP made up 82.0 percent of the cost cellulose casing. U.S. producer *** reported that HPDP makes up *** percent of the cost of cellulose ethers while importer *** reported that HPDP made up *** percent of cellulose ethers. 2.7 foreign demand for HPDP were mixed (table 2.5). Importer *** reported that foreign demand increased steadily, driven by increased demand from new acetate, MCC, and cellulose production facilities in Asia. Importer *** reported constant levels of domestic and foreign demand from the food production sector. Importer *** reported that supply chain resets in the post-COVID pandemic years resulted in higher inventory levels across the market but starting in 2024 firms began to reduce inventories in the face of uncertainties. Importer *** further reported that there was decreased demand caused by shifts in consumer preference for end- use products and slower activity in the industrial and construction sectors of the economy. Table 2.5 HPDP: 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 upward No change Fluctuate downward Steadily decrease Domestic demand U.S. producers *** *** *** *** *** Domestic demand Importers 1 1 4 2 0 Foreign demand U.S. producers *** *** *** *** *** Foreign demand Importers 2 1 3 2 0 Source: Compiled from data submitted in response to Commission questionnaires. Substitute products U.S. producer *** and the majority of importers reported that there were no substitutes for HPDP. Firms that did report substitutes for HPDP identified cotton linter pulp, synthetic polymers, and in some cases lower grade kraft pulps. Substitutability issues This section assesses the degree to which U.S.-produced HPDP and imports of HPDP from subject countries can be substituted for one another by examining the importance of certain purchasing factors and the comparability of HPDP from domestic and imported sources based on those factors. Based on available data, staff believes that there is at least a moderate degree of substitutability between domestically produced HPDP and HPDP imported from 2.8 subject sources.6 7 Factors contributing to this level of substitutability include similar quality, similar lead times for HPDP produced to order by U.S. producers and sourced from importer inventories, and similarities between domestically produced HPDP and HPDP imported from subject countries across multiple purchase factors. Factors reducing substitutability include reported factors that limit interchangeability between domestic and subject sources, preference for particular country of origin, some factors other than price that firms consider when making purchasing decisions and reported decreased availability for U.S.-produced HPDP. Factors affecting purchasing decisions Most important purchase factors Purchasers responding to lost sales lost/revenue allegations were asked to identify the main purchasing factors their firm considered in their purchasing decisions for HPDP.8 As shown in table 2.6, the most often cited top three factors firms consider in their purchasing decisions for HPDP were price/cost (5 firms), availability/supply (4 firms), and quality (3 firms). Quality was the most frequently cited first-most important factor (cited by 3 firms), followed by availability/supply (2 firms); availability/supply and price/cost were the most frequently reported second-most important factor (2 firms each); and price/cost was the most frequently reported third-most important factor (3 firms). 6 The degree of substitution between domestic and imported HPDP depends upon the extent of product differentiation between the domestic and imported products and reflects how easily purchasers can switch from domestically produced HPDP to the HPDP 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.). 7 As discussed in greater detail below, Brazilian producers use the sulfate process (Conference transcript, p. 157 (Bohrn)) and hardwood, while Norwegian producers use the sulfite process and softwood (Conference transcript, p. 157 (Bartholsen)). U.S. producers use both the sulfate and sulfite processes and both hardwood and softwood (Conference transcript, p. 8 (Bhatti)) 8 This information is compiled from responses by purchasers identified by Petitioners to the lost sales lost revenue allegations. See Part 5 for additional information. 2.9 Table 2.6 HPDP: Count of ranking of factors used in purchasing decisions as reported by purchasers, by factor Count in number of firms reporting Factor First Second Third Total Price / Cost 0 2 3 5 Availability / Supply 2 2 0 4 Quality 3 0 0 3 All other factors 0 1 2 NA Source: Compiled from data submitted in response to Commission questionnaires. Note: Other factors include sustainability and meeting specifications. Lead times U.S. producers produce HPDP to order with lead times averaging 30 days. U.S. importers reported selling HPDP from U.S and foreign inventories with lead times averaging 32 and 40 days respectively. Comparison of U.S.-produced and imported HPDP In order to determine whether U.S.-produced HPDP can generally be used in the same applications as imports from Brazil and Norway, U.S. producers and importers were asked whether the products can always, frequently, sometimes, or never be used interchangeably. As shown in tables 2.7 to 2.8, U.S. producer responses were split when comparing HPDP from the United States, Brazil, Norway, and nonsubject countries. U.S. producer *** reported that HPDP from the United States, Brazil, and Norway are always interchangeable; while HPDP from nonsubject countries are frequently interchangeable with HPDP from the United Sates, Brazil, and Norway. U.S. producer *** reported that HPDP produced in the United States and Norway are frequently interchangeable while HPDP produced in Brazil is sometimes interchangeable with HPDP produced in the United States and Norway. U.S. producer *** reported that HPDP from the United States and Norway is primarily softwood which has unique characteristics while HPDP from Brazil is hardwood based. Importer responses on the interchangeability between HPDP from the United States, Norway, Brazil, and nonsubject countries were mixed. Importer *** reported that HPDP from different sources is never interchangeable due to quality and product differences and that Norwegian HPDP was only interchangeable with French HPDP. Importer *** reported that HPDP from different sources is sometimes interchangeable because the wood source to produce HPDP has an impact on the efficiency and operations of cellulose casing operations. It further reported that each producer has different waste and efficiency outcomes and that HPDP from Brazil has a higher waste and lower efficiency than HPDP produced in the United 2.10 States or Norway. Importer *** reported HPDP from the United States and Brazil is sometimes interchangeable because Brazilian HPDP is produced using short eucalyptus hardwood fibers which are not interchangeable in applications that require long softwood fibers such as the filtration market, the cellulose ether market, the tri-acetate market, or markets where very high purity HPDP is required, such as certain MCC applications for the food and pharmaceutical market. Table 2.7 HPDP: 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 U.S. vs. Brazil *** *** *** *** U.S. vs. Norway *** *** *** *** U.S. vs. other *** *** *** *** Brazil vs. Norway *** *** *** *** Brazil vs. Other *** *** *** *** Norway vs. Other *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Table 2.8 HPDP: 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 U.S. vs. Brazil 2 1 3 1 U.S. vs. Norway 2 1 1 1 U.S. vs. other 2 1 1 1 Brazil vs. Norway 0 1 2 1 Brazil vs. Other 0 1 2 1 Norway vs. Other 0 1 2 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 HPDP from the United States, subject, or nonsubject countries. As seen in table 2.9, U.S. producers were mixed in their responses to the differences other than price. U.S. producer *** reported that there are sometimes differences other than price between HPDP from the United States, Brazil, Norway, and nonsubject countries. U.S. producer *** reported that there are frequently differences other than price between HPDP from The United States, Brazil, and Norway. The majority of importers reported that there are always or frequently differences other than price between HPDP produced in the United States, Brazil, Norway, and nonsubject 2.11 countries (table 2.10). Importer *** reported that U.S. producers produce HPDP using the sulfate method and cannot produce HPDP with higher viscosity requirements. Importer *** reported that quality that is suitable for its production process, regular timely and seamless supply, payment terms, price stability and the contract terms are all factors other than price that differentiate HPDP from different sources. Importer *** reported that availability, customer/market need and requirements, and sustainability are factors other than price between HPDP from different sources. Importer *** reported that differences in quality and product properties are always important factors other than price in the HPDP market. Importer *** reported that product specifications, uniformity of product quality, availability, reliability, customer and technical service, financial strength of the supplier, and sustainability are factors other than price that differentiate HPDP from different sources. Table 2.9 HPDP: 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 U.S. vs. Brazil *** *** *** *** U.S. vs. Norway *** *** *** *** U.S. vs. other *** *** *** *** Brazil vs. Norway *** *** *** *** Brazil vs. Other *** *** *** *** Norway vs. Other *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Table 2.10 HPDP: Count of importers reporting the significance of differences 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 U.S. vs. Brazil 4 2 1 0 U.S. vs. Norway 4 0 1 0 U.S. vs. other 4 0 1 0 Brazil vs. Norway 2 1 1 0 Brazil vs. Other 2 1 1 0 Norway vs. Other 2 0 1 0 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 two firms that accounted for all known U.S. producers’ U.S. shipments of HPDP during 2024. 1 U.S. producers The Commission issued a U.S. producer questionnaire to two firms based on information contained in the petition. Both firms provided data on their operations, although Georgia- Pacific was not able to isolate financial data specific to the revised scope in the time allotted.2 Table 3.1 lists U.S. producers of HPDP, their production locations, positions on the petition, and shares of total production. Table 3.1 HPDP: 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 production Georgia-Pacific *** Perry, FL *** Rayonier Petitioner Jesup, GA Fernandina Beach, FL *** All firms Various Various 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Georgia-Pacific closed its HPDP production facility in Perry, Florida in ***. The product at Georgia- Pacific’s Memphis, Tennessee facility was not identified as being out-of-scope in the petitions. It was later determined to be out-of-scope based on the revised scope in Commerce’s initiation notice. Georgia- Pacific’s U.S. producer questionnaire response, section II; Petition, p. 6; and 90 FR 431687, September 8, 2025. 1 Georga-Pacific stopped production of HPDP in late 2023, although the firm reported ***. Georgia- Pacific’s U.S. producer questionnaire response, section II-8. 2 Accordingly, Part 3 contains information on Georgia-Pacific and Rayonier, while Part 6 contains information on Rayonier. Appendix G contains financial information for Georgia-Pacific’s combined in- scope and out-of-scope pulp operations. 3.2 Table 3.2 presents information on U.S. producers’ ownership, related and/or affiliated firms. Table 3.2 HPDP: U.S. producers’ ownership, related and/or affiliated firms 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 *** a former producer of HPDP in Canada which closed in 2024.3 In addition, ***.4 Table 3.3 presents events in the U.S. industry since January 1, 2022. Table 3.3 HPDP: Important industry events since 2022 Item Firm Event Plant closure Cosmo Specialty Fibers In December 2022, Cosmo shut down production at its pulp mill in Cosmopolis, Washington. The mill employed approximately 200 people and produced about 550 tons of dissolving pulp (acetate, viscose, and ether grades) each day. Supply disruption RYAM In December 2022, RYAM announced that its Jesup, Georgia facility was impacted by a force majeure declared by its natural gas provider, Southern Natural Gas Company, LLC. During the force majeure, RYAM’s Jesup facility was subject to a financial penalty for each MMBtu of natural gas consumed in excess of a contractually allocated amount. RYAM noted the event resulted in $4 million EBITDA loss to the company. Acquisition Cosmo Specialty Fibers In January 2023, Cosmo was acquired by Charlestown Investments, based in the United Kingdom, for an undisclosed amount. Robert Buchanan, CEO of Charlestown Investments, anticipated being able to reopen the mill in March after audits and repairs, however, as of September 2025 there was no further announcement on the mill reopening. Plant closure Georgia-Pacific In September 2023, Georgia-Pacific notified employees at the Foley Cellulose mill in Perry, Florida that the plant would be 3 Conference transcript, p. 116 (Lutz). 4 According to Georgia-Pacific ***. Questionnaire responses for these entities have been consolidated into one questionnaire response. Follow-up response from Georgia-Pacific, September 4, 2024, p. 1. 3.3 Item Firm Event shutting down permanently. This closure impacted approximately 525 jobs. Georgia-Pacific had announced force majeure of the mill in July 2021 due to production line and global supply chain issues. Production curtailment RYAM In October 2023, RYAM temporarily shut down production of one of its high-yield pulp lines at its Temiscaming high purity cellulose (HPC) plant in Quebec, Canada. The curtailment, which lasted 3 weeks, was taken to optimize inventory levels and address lower than anticipated demand. Plant closure RYAM In July 2024, RYAM indefinitely suspended operations at its Temiscaming HPC plant due to market weakness, uncertain availability of affordable wood fiber, and high capital and fixed costs associated with the plant. The Temiscaming facility had an annual production capacity of 150,000 metric tons, of which 30 percent was specialty cellulose materials. This closure resulted in approximately 275 layoffs. Force majeure RYAM In October 2024, an isolated fire occurred at RYAM’s facility in Jesup, Georgia during a planned maintenance activity (no injuries involved). The plant’s operations fully resumed after two weeks, incurring $3 million of emergency maintenance capital expenditures and a total estimated loss of $9 million EBITDA for 2024, including $2 million in immediate repair costs. RYAM’s preliminary estimates indicated that additional capital expenditures of approximately $15 million will be required over the next two years. Business reorganization RYAM In January 2025, RYAM reorganized its former High Purity Cellulose operating segment into three separate businesses: Cellulose Specialties, Cellulose Commodities, and Biomaterials. Facility investment RYAM In February 2025, the city of Fernandina Beach denied RYAM’s investment plan to construct a second generation (2G) bioethanol plant that would convert spend sulfite liquor (a byproduct of HPDP) into ethanol. The city determined the project constituted “chemical manufacturing or refining”, which is prohibited by the city’s zoning designation. In July 2025, RYAM filed a claim with the city for $6.6 million in compensation, claiming the city’s denial dropped the land’s value from $7.12 million to $517,800. RYAM officials previously stated the company had already invested $51 million in the project. Environmental violations Cosmo Specialty Fibers In July 2025, the Washington Department of Ecology issued Cosmo multiple penalties totaling $2.3 million for environmental 3.4 Item Firm Event violations. While the plant has not been operational since 2022, more than 800,000 gallons of corrosive waste remain stored at the site. The owners had been completing the financing plans for reopening the mill with a target date of November 2025; however those plans have been postponed. Sources: Timber Mart-South, “Quarterly Market Bulletin”, chrome- extension://efaidnbmnnnibpcajpcglclefindmkaj/https://timbermart-south.com/wp- content/uploads/2020/10/3Q2021-TMS-Bulletin.pdf, accessed September 5, 2025; Staff conference transcript, Hicks, p. 31; Washington Department of Ecology, “Cosmo Specialty Fibers”, https://ecology.wa.gov/regulations-permits/permits-certifications/industrial-facilities-permits/cosmo- specialty-fibers, accessed September 5, 2025. PaperAge, “RYAM's Specialty Cellulose Mill in Jesup, Georgia, Impacted by Natural Gas Supply Disruption”, https://www.paperage.com/2022news/12-27- 2022ryam-jesup-plant.html, December 27, 2022; RTTNews, “Rayonier Advanced Materials: Southern Natural Gas Company Cancels Force Majeure Declaration”, https://www.nasdaq.com/articles/rayonier- advanced-materials-:-southern-natural-gas-company-cancels-force-majeure, December 29, 2022; Staff conference transcript, McAlindon, p. 106; The Daily World, “Cosmo Specialty Fibers receives new ownership group”, https://www.thedailyworld.com/business/cosmo-specialty-fibers-receives-new- ownership-group/, January 22, 2023; Georgia-Pacific, “Georgia-Pacific to Close Foley Cellulose Facility”, https://news.gp.com/2023/09/georgia-pacific-to-close-foley-cellulose-facility, September 18, 2023; WSAV, “Jesup paper mill catches fire”, https://www.wsav.com/news/local-news/georgia-news/jesup-paper-mill- catches-fire/, October 12, 2024; Pulp & Paper Canada, “Rayonier temporarily cuts down pulp and paperboard production at Temiscaming”, https://www.pulpandpapercanada.com/rayonier-temporarily- cuts-down-pulp-and-paperboard-production-at-temiscaming/, October 10, 2023; Pulp & Paper Canada, “RYAM to halt operations at its Temiscaming HPC Plant for an indefinite period”, https://www.pulpandpapercanada.com/ryam-to-halt-operations-at-its-temiscaming-hpc-plant-for-an- indefinite-period/, April 29, 2024; United States SEC, “RYAM”, https://www.sec.gov/Archives/edgar/data/1597672/000159767225000008/ryam-20241231.htm, accessed September 5, 2025; staff conference transcript, Haseltine, p. 42, Hicks, p. 75, Baisburd, p. 76; The Globe and Mail, “RYAM Reports Second Quarter 2025 Results”, https://www.theglobeandmail.com/investing/markets/stocks/RYAM/pressreleases/33899659/ryam-reports- second-quarter-2025-results/, August 5, 2025; Fernandina Observer “RYAM strikes again: claims city owes $6.6 million over lost property value”, https://www.fernandinaobserver.org/stories/ryam-strikes- again-claims-city-owes-66-million-over-lost-property-value,69613, August 27, 2025; Washington Department of Ecology, “Closed pulp mill fined $2.3 million for environmental violations”, https://ecology.wa.gov/about-us/who-we-are/news/2025/july-22-cosmo-2-3-million-penalty, July 22, 2025; The Olympian, “Dormant Grays Harbor pulp mill fined $2.3 million for multiple environmental violations”, https://www.theolympian.com/news/state/washington/article311191645.html, July 23, 2025. Note: Petitioners testified Cosmo Specialty Fibers did not produce HPDP in 2022. Conference transcript, p. 170 (Baisburd). 3.5 Producers in the United States were asked to report any change in the character of their operations or organization relating to the production of HPDP since 2022. Both producers indicated in their questionnaires that they had experienced such changes. Table 3.4 presents the changes identified by these producers. Table 3.4 HPDP: U.S. producers’ reported changes in operations, since January 1, 2022 Item Firm name and narrative response on changes in operations Plant closings *** Plant closings *** Production curtailments *** Consolidations *** Source: Compiled from data submitted in response to Commission questionnaires. 3.6 U.S. production, capacity, and capacity utilization Table 3.5 presents U.S. producers’ installed and practical capacity and production on the same equipment. Overall, all metrics of capacity and production decreased from 2022 to 2024 consistent with the closure of Georgia-Pacific’s HPDP facility at the end of 2023. All metrics of capacity and production were lower in interim 2025 compared to interim 2024. Capacity utilization metrics fluctuated from 2022 to 2024 and were all lower in interim 2025 compared to interim 2024. Table 3.5 HPDP: U.S. producers’ installed and practical capacity and production on the same equipment as in-scope production, by period Capacity and production in ADST; utilization in percent; interim is January through June 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 HPDP Capacity *** *** *** *** *** Practical HPDP Production *** *** *** *** *** Practical HPDP Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: *** allocated more capacity to HPDP than was reflected in the actual product mix during the period for which data were collected. When asked about these data, ***. Correspondence from ***, August 28, 2025. Table 3.6 presents U.S. producers’ reported narratives regarding practical capacity constraints. Table 3.6 HPDP: U.S. producers’ reported capacity constraints since January 1, 2022 Item Firm name and narrative response on constraints to practical overall capacity Other constraints *** Other constraints *** Source: Compiled from data submitted in response to Commission questionnaires. 3.7 Table 3.7 and figures 3.1 and 3.2 present U.S. producers’ HPDP production, practical HPDP capacity, and capacity utilization. The practical HPDP capacity decreased from 2022 to 2024 with the close of Georgia-Pacific. As the sole U.S. producer of HPDP after 2023, Rayonier’s practical capacity was lower in interim 2025 compared to interim 2024. Production of HPDP for both producers decreased from 2022 to 2023. Rayonier’s production increased *** in 2024 but decreased overall from 2022 to 2024. Rayonier’s production was lower in interim 2025 compared to interim 2024. Georgia-Pacific’s production and capacity utilization decreased from 2022 to 2023, when it ceased production. Capacity utilization was lower in 2024 than in 2022, and lower in interim 2025 than in interim 2024, with a *** reduction in 2023. Table 3.7 HPDP: U.S. producers’ output, by firm and period Practical capacity Capacity in ADST; interim is January through June Firm 2022 2023 2024 Interim 2024 Interim 2025 Georgia-Pacific *** *** *** *** *** Rayonier *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 3.7 (Continued) HPDP: U.S. producers’ output, by firm and period Production Production in ADST; interim is January through June Firm 2022 2023 2024 Interim 2024 Interim 2025 Georgia-Pacific *** *** *** *** *** Rayonier *** *** *** *** *** All firms *** *** *** *** *** Table continued. 3.8 Table 3.7 (Continued) HPDP: U.S. producers’ output, by firm and period Capacity utilization Capacity utilization in percent; interim is January through June Firm 2022 2023 2024 Interim 2024 Interim 2025 Georgia-Pacific *** *** *** *** *** Rayonier *** *** *** *** *** All firms *** *** *** *** *** Note: Capacity utilization ratio represents the ratio of the U.S. producer’s production to its production capacity. Table continued. Table 3.7 (Continued) HPDP: U.S. producers’ output, by firm and period Share of production Share in percent; interim is January through June Firm 2022 2023 2024 Interim 2024 Interim 2025 Georgia-Pacific *** *** *** *** *** Rayonier *** *** *** *** *** All firms 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. 3.9 Figure 3.1 HPDP: U.S. producers’ output, by period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 3.10 Figure 3.2 HPDP: U.S. producers’ production, by firm and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 3.11 Alternative products As shown in table 3.8, less than *** of the product produced during the period for which data were collected by U.S. producers was HPDP. During this period, HPDP accounted for the highest share of production on shared capacity (though still less than ***) in 2022. Both U.S. producers reported producing ***.5 Table 3.8 HPDP: U.S. producers’ overall production on the same equipment as in-scope production, by period Quantity in ADST; ratio and share in percent; interim is January through June Product type Measure 2022 2023 2024 Interim 2024 Interim 2025 HPDP Quantity *** *** *** *** *** Other products Quantity *** *** *** *** *** All products Quantity *** *** *** *** *** HPDP 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. 5 Georgia-Pacific’s and Rayonier’s U.S. producer questionnaire responses, section II-3. 3.12 U.S. producers’ U.S. shipments and exports Table 3.9 presents U.S. producers’ U.S. shipments, export shipments, and total shipments. From 2022 to 2024, total shipments declined, as export shipments decreased at a rate *** faster than the decrease in U.S. shipments.6 The decrease in total shipments reflected Georgia-Pacific’s exit from the U.S. market. However, from 2022 to 2024 Rayonier’s U.S. shipments increased, in terms of quantity, by *** percent while its export shipments decreased, in terms of quantity, by *** percent. As a result, U.S. shipments constituted a greater share of total shipments in 2024 compared to 2022 and 2023. U.S. shipments were higher in interim 2025 compared to interim 2024 while export shipments were lower in interim 2025 compared to interim 2024, both in terms of quantity and in terms of value. The unit value of U.S. shipments increased annually from 2022 to 2024 and was higher in interim 2025 compared to interim 2024. Meanwhile, the unit value of export shipments increased from 2022 to 2023 then decreased slightly in 2024. The unit value of export shipments was higher in interim 2025 compared to interim 2024. 6 Petitioners testified that China and Japan were Rayonier’s main export markets. Conference transcript, p. 39 (Baisburd). 3.13 Table 3.9 HPDP: U.S. producers’ shipments, by destination and period Quantity in ADST; value in 1,000 dollars; unit value in dollars per ADST; shares in percent; interim is January through June 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. Georgia-Pacific closed is HPDP production facility in Perry, Florida in late 2023. ***. Georgia-Pacific’s U.S. producer questionnaire response, section II. Table 3.10 presents U.S. producers’ U.S. shipments by type. *** reported commercial shipments of toll processed HPDP.7 7 ***. Response to staff questions from Georgia-Pacific, September 4, 2025. 3.14 Table 3.10 HPDP: U.S. producers’ U.S. shipments, by type and period Quantity in ADST; value in 1,000 dollars; unit value in dollars per ADST; shares in percent; interim is January through June Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Commercial U.S. shipments Quantity *** *** *** *** *** Commercial U.S. shipments of toll processed pulp Quantity *** *** *** *** *** U.S. shipments Quantity *** *** *** *** *** Commercial U.S. shipments Value *** *** *** *** *** Commercial U.S. shipments of toll processed pulp Value *** *** *** *** *** U.S. shipments Value *** *** *** *** *** Commercial U.S. shipments Unit value *** *** *** *** *** Commercial U.S. shipments of toll processed pulp Unit value *** *** *** *** *** U.S. shipments Unit value *** *** *** *** *** Commercial U.S. shipments Share of quantity *** *** *** *** *** Commercial U.S. shipments of toll processed pulp Share of quantity *** *** *** *** *** U.S. shipments Share of quantity 100.0 100.0 100.0 100.0 100.0 Commercial U.S. shipments Share of value *** *** *** *** *** Commercial U.S. shipments of toll processed pulp Share of value *** *** *** *** *** U.S. 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 “—“. 3.15 U.S. producers’ inventories Table 3.11 presents U.S. producers’ ending inventories and the ratio of these inventories to U.S. producers’ production, U.S. shipments, and total shipments. Although Georgia-Pacific ceased production of HPDP in late 2023, ***. Ending inventories declined by nearly *** from 2022 to 2023 and remained at a similar level in 2024. Both U.S. producers reduced ending inventories from 2022 to 2023. Rayonier accounted for all ending inventories in 2024 and both interim periods. Ending inventories in interim 2025 were lower than ending inventories in interim 2024. Ending inventory as a ratio to U.S. production, U.S. shipments, and total shipments were highest in 2022 and lowest in 2023. Ending inventory as a ratio to U.S. production, U.S. shipments, and total shipments were lower in interim 2025 compared to interim 2024. Table 3.11 HPDP: U.S. producers’ inventories and their ratio to select items, by period Quantity in ADST; ratio in percent; interim is January through June 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. 3.16 U.S. producers’ imports from subject sources No responding U.S. producer reported imports of HPDP from subject sources during the period for which data were collected. U.S. producers' purchases of imports from subject sources No responding U.S. producer reported purchases of HPDP during the period for which data were collected. 3.17 U.S. employment, wages, and productivity Table 3.12 shows U.S. producers’ employment-related data. From 2022 to 2023, the number of production and related workers (“PRWs”) and total hours worked for both U.S. producers decreased. Industry employment trends from 2023 to 2024 similarly declined, consistent with the cessation of production by Georgia-Pacific in late 2023. All employment metrics except for hours worked per PRW were greater in interim 2025 compared to interim 2024. Table 3.12 HPDP: U.S. producers’ employment related information, by period Interim is January through June 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 (ADST per 1,000 hours) *** *** *** *** *** Unit labor costs (dollars per ADST) *** *** *** *** *** 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 26 potential importers of subject HPDP, as well as to all U.S. producers of HPDP.1 U.S. imports are based on the questionnaire responses of 11 U.S. importers, which account for essentially all U.S. imports of the subject merchandise from Brazil and Norway in 2024. Subject importer questionnaire data accounts for essentially all U.S. exports reported by foreign producers in 2024. Table 4.1 lists all responding U.S. importers of HPDP from Brazil, Norway, and other sources, their locations, and their shares of U.S. imports, in 2024. Table 4.1 HPDP: U.S. importers, their headquarters, and share of imports within each source, 2024 Share in percent Firm Headquarters Brazil Norway Subject sources Nonsubject sources All import sources Ashland Wilmington, DE *** *** *** *** *** B.C.H. Wilton, CT *** *** *** *** *** Eastman Kingsport, TN *** *** *** *** *** Henkel Rocky Hill, CT *** *** *** *** *** JRS Cedar Rapids, IA *** *** *** *** *** Primester Kingsport, TN *** *** *** *** *** Rayonier Canada Jacksonville, FL *** *** *** *** *** SC Marketing Wilmington, DE *** *** *** *** *** SE Tylose Plaquemine, LA *** *** *** *** *** Viscofan Danville, IL *** *** *** *** *** Viskase Lombard, IL *** *** *** *** *** All firms Various 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 “—“. Note: ***. 1 The Commission issued questionnaires to those firms identified in the petition; staff research; and proprietary, Census-edited Customs’ import records. 4.2 U.S. imports Tables 4.2 and 4.3 and figure 4.1 present data for U.S. imports of HPDP from Brazil, Norway, and all other sources. Overall, U.S. imports of HPDP from Brazil, Norway, and nonsubject sources increased during 2022 to 2024, both in terms of quantity and in terms of value. In particular, U.S. imports from Norway increased more than ***. U.S. imports of HPDP from Brazil, Norway, and nonsubject sources were *** lower in interim 2025 compared to interim 2024. The unit value of U.S. imports of HPDP from Brazil, Norway, and nonsubject sources increased annually from 2022 to 2024. While the unit value of U.S. imports of HPDP from Brazil and Norway were higher in interim 2025 compared to interim 2024, the unit value of U.S. imports of HPDP from nonsubject sources were lower in interim 2025 compared to interim 2024. As a share of total imports, imports of HPDP from Brazil consistently accounted for the majority of imports, both in terms of quantity and value, from 2022 to 2024. As a result of the *** increase in imports from Norway, as a share of total imports, imports from Norway accounted for less than *** percent in 2022 and more than *** percent of imports in 2024. As a share of total imports, imports from nonsubject sources accounted for approximately *** of imports from 2022 to 2024, but with the departure of Rayonier Canada, nonsubject imports accounted for less than *** percent of total imports in interim 2025, while imports from Brazil and Norway accounted for larger shares of total imports in interim 2025. 4.3 Table 4.2 HPDP: U.S. imports by source and period Quantity in ADST; value in 1,000 dollars; unit value in dollars per ADST; shares and ratio in percent; interim is January through June Source Measure 2022 2023 2024 Interim 2024 Interim 2025 Brazil Quantity *** *** *** *** *** Norway Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** Brazil Value *** *** *** *** *** Norway Value *** *** *** *** *** Subject sources Value *** *** *** *** *** Nonsubject sources Value *** *** *** *** *** All import sources Value *** *** *** *** *** Brazil Unit value *** *** *** *** *** Norway Unit value *** *** *** *** *** Subject sources Unit value *** *** *** *** *** Nonsubject sources Unit value *** *** *** *** *** All import sources Unit value *** *** *** *** *** Brazil Share of quantity *** *** *** *** *** Norway 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 Brazil Share of value *** *** *** *** *** Norway 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 Brazil Ratio *** *** *** *** *** Norway Ratio *** *** *** *** *** Subject sources Ratio *** *** *** *** *** Nonsubject sources Ratio *** *** *** *** *** All import sources Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Share of quantity is the share of U.S. imports by quantity; share of value is the share of U.S. imports by value; ratio are U.S. imports to production. 4.4 Table 4.3 HPDP: Changes in U.S. imports by source and period Changes (Δ) in percent (%) and in percentage point (ppt); interim is January through June Source Measure 2022 to 2024 2022 to 2023 2023 to 2024 Interim 2024 to 2025 Brazil %Δ Quantity ▲*** ▼*** ▲*** ▼*** Norway %Δ Quantity ▲*** ▲*** ▲*** ▼*** Subject sources %Δ Quantity ▲*** ▼*** ▲*** ▼*** Nonsubject sources %Δ Quantity ▲*** ▼*** ▲*** ▼*** All import sources %Δ Quantity ▲*** ▼*** ▲*** ▼*** Brazil %Δ Value ▲*** ▼*** ▲*** ▼*** Norway %Δ Value ▲*** ▲*** ▲*** ▼*** Subject sources %Δ Value ▲*** ▼*** ▲*** ▼*** Nonsubject sources %Δ Value ▲*** ▼*** ▲*** ▼*** All import sources %Δ Value ▲*** ▼*** ▲*** ▼*** Brazil %Δ Unit value ▲*** ▲*** ▲*** ▲*** Norway %Δ Unit value ▲*** ▲*** ▲*** ▲*** Subject sources %Δ Unit value ▲*** ▲*** ▲*** ▲*** Nonsubject sources %Δ Unit value ▲*** ▲*** ▲*** ▼*** All import sources %Δ Unit value ▲*** ▲*** ▲*** ▲*** Brazil ppt Δ Quantity ▼*** ▼*** ▼*** ▲*** Norway ppt Δ Quantity ▲*** ▲*** ▲*** ▲*** Subject sources ppt Δ Quantity ▲*** ▲*** ▼*** ▲*** Nonsubject sources ppt Δ Quantity ▼*** ▼*** ▲*** ▼*** All import sources ppt Δ Quantity *** *** *** *** Brazil ppt Δ Value ▼*** ▼*** ▼*** ▲*** Norway ppt Δ Value ▲*** ▲*** ▲*** ▲*** Subject sources ppt Δ Value ▼*** ▼*** ▼*** ▲*** Nonsubject sources ppt Δ Value ▲*** ▲*** ▲*** ▼*** All import sources ppt Δ Value *** *** *** *** Brazil ppt Δ Ratio ▲*** ▲*** ▲*** ▼*** Norway 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. 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. 4.5 Figure 4.1 HPDP: U.S. import quantities and average unit values, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 4.6 Negligibility The statute requires that an investigation be terminated without an injury determination if imports of the subject merchandise are found to be negligible.2 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.3 As presented in table 4.4, neither HPDP imports from Brazil nor HPDP imports from Norway accounted for less than 3 percent of the volume of U.S. imports of HPDP by quantity from August 2024 through July 2025. Table 4.4 HPDP: U.S. imports in the twelve-month period preceding the filing of the petition, August 2024 through July 2025 Quantity in ADST; share in percent Source of imports Quantity Share of quantity Brazil *** *** Norway *** *** All other sources *** *** All import sources *** 100.0 Source: Compiled from data submitted in response to Commission questionnaires. 2 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)). 3 Section 771 (24) of the Act (19 U.S.C § 1677(24)). 4.7 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 appears in Part 2. Additional information concerning fungibility, geographical markets, and simultaneous presence in the market is presented below. Fungibility There are two known methods used to produce in-scope HPDP: a sulfate method and a sulfite method. During the period for which data were collected, Rayonier’s production of HPDP was divided between the two production methods.4 Georgia-Pacific’s HPDP production, in contrast, used the *** method.5 Brazilian producer Bracell uses the sulfate method and Norwegian producer Borregaard uses the sulfite method.6 Appendix D provides further information comparing sulfate and sulfite production, and appendix E provides additional information on shipments of sulfate and sulfite produced HPDP. HPDP as defined by the scope has an alpha cellulose content of 90 percent or greater. In 2024 *** of Rayonier’s and Georgia-Pacific’s U.S shipments of HPDP had an alpha cellulose content of 95 percent or greater.7 In 2024, *** percent of Barcell’s exports of HPDP to the United States had an alpha cellulose content of 95 percent or greater.8 In 2024, *** percent of Borregaard’s exports of HPDP to the United States had an alpha cellulose content of 95 percent or greater.9 Finally, HPDP can be sold in various forms. Table 4.5 presents U.S. shipments of HPDP by form and source in 2024. Rolls, sheets, and bales are available from all sources, although imports from Norway are available in additional forms. 4 Rayonier’s U.S. producer questionnaire response, section II-10. 5 Georgia-Pacific’s U.S. producer questionnaire response, section II-10. 6 Conference transcript, p. 115 (Lutz) and p. 157 (Bartholsen). 7 Rayonier’s postconference brief, p. 4. Response to staff questions from Georgia-Pacific, September 4, 2025. 8 Barcell’s postconference brief, p. exh. 1. 9 Email from Greg Husisian, counsel to Borregaard, September 16, 2025. 4.8 Table 4.5 HPDP: Count of firm's U.S. shipments, by form and source, 2024 Form U.S producers Brazil Norway Subject sources Nonsubject sources All import sources Rolls, sheets, bales *** 3 5 6 3 8 Flakes, powders, granules, pellets *** 0 1 1 0 1 Liquid or slurry *** 0 1 1 0 1 Source: Compiled from data submitted in response to Commission questionnaires. Geographical markets Table 4.6 presents imports of HPDP and other dissolving pulp by border of entry in 2024. In 2024, the large majority of HPDP and other dissolving pulp from Brazil, Norway, and nonsubject sources entered through borders of entry in the East. Table 4.6 HPDP and other dissolving pulp: U.S. imports by source and border of entry, 2024 Quantity in ADST Source East North South West All borders Brazil 234,709 5,765 208 — 240,683 Norway 29,748 3,172 1,976 — 34,897 Subject sources 264,457 8,938 2,185 — 275,580 Nonsubject sources 51,084 26,130 2,899 — 80,114 All import sources 315,542 35,068 5,084 — 355,693 Table continued. Table 4.6 (Continued) HPDP and other dissolving pulp: U.S. imports by source and border of entry, 2024 Share in percent Source East North South West All borders Brazil 97.5 2.4 0.1 — 100.0 Norway 85.2 9.1 5.7 — 100.0 Subject sources 96.0 3.2 0.8 — 100.0 Nonsubject sources 63.8 32.6 3.6 — 100.0 All import sources 88.7 9.9 1.4 — 100.0 Table continued. 4.9 Table 4.6 (Continued) HPDP and other dissolving pulp: U.S. imports by source and border of entry, 2024 Share in percent Source East North South West All borders Brazil 74.4 16.4 4.1 — 67.7 Norway 9.4 9.0 38.9 — 9.8 Subject sources 83.8 25.5 43.0 — 77.5 Nonsubject sources 16.2 74.5 57.0 — 22.5 All import sources 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 4702.00.0020 and 4702.00.0040, accessed August 20, 2025. Imports are based on the imports for consumption data series. 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 “—“. The two statistical reporting numbers used to show monthly import volumes likely contain out-of-scope merchandise and/or have some reporting issues. Note: Statistical reporting number 4702.00.0040 primarily covers HPDP and other dissolving pulp produced using the sulfate method. Imports from Brazil under statistical reporting number 4702.00.0040 primarily entered the United States through borders of entry in the East. Statistical reporting number 4702.00.0020 primarily covers HPDP and other dissolving pulp produced using the sulfite method. Imports from Norway under statistical reporting number 4702.00.0020 primarily entered the United States through borders of entry in the East. 4.10 Presence in the market Table 4.7 and figures 4.2 and 4.3 present data on U.S. imports of HPDP and other dissolving pulp by source and month from January 2022 to June 2025. U.S. imports of HPDP and other dissolving pulp from Brazil and nonsubject sources were present in the market every month from January 2022 to June 2025. U.S. imports of HPDP and other dissolving pulp from Norway were present in the market every month from January 2022 to June 2025, except the month of October in 2023. Table 4.7 HPDP and other dissolving pulp: Quantity of U.S. imports, by source and month Quantity in ADST Year Month Brazil Norway Subject sources Nonsubject sources All import sources 2022 January 20,357 260 20,618 4,961 25,579 2022 February 18,595 451 19,046 6,246 25,291 2022 March 19,617 428 20,044 2,862 22,906 2022 April 14,325 69 14,394 4,278 18,672 2022 May 29,099 412 29,511 3,349 32,860 2022 June 14,220 843 15,063 3,631 18,694 2022 July 27,924 183 28,107 3,807 31,914 2022 August 7,843 507 8,350 4,454 12,804 2022 September 11,736 677 12,413 3,874 16,287 2022 October 40,036 332 40,368 5,400 45,768 2022 November 26,888 967 27,854 3,355 31,210 2022 December 23,769 129 23,898 6,212 30,110 2023 January 14,118 836 14,954 5,326 20,280 2023 February 17,534 682 18,217 4,181 22,398 2023 March 25,773 3,057 28,830 4,917 33,747 2023 April 20,346 154 20,501 5,029 25,529 2023 May 18,151 244 18,394 4,652 23,046 2023 June 16,117 119 16,236 3,831 20,066 2023 July 19,255 428 19,683 8,309 27,992 2023 August 20,877 1,736 22,613 1,930 24,543 2023 September 20,047 230 20,277 3,617 23,894 2023 October 16,310 — 16,310 5,097 21,407 2023 November 14,215 285 14,501 3,560 18,061 2023 December 16,015 3,601 19,617 4,878 24,494 Table continued. 4.11 Table 4.7 HPDP and other dissolving pulp (Continued): Quantity of U.S. imports, by source and month Quantity in ADST Year Month Brazil Norway Subject sources Nonsubject sources All import sources 2024 January 20,816 1,821 22,637 9,603 32,240 2024 February 23,613 3,878 27,491 6,478 33,969 2024 March 16,147 3,328 19,475 5,995 25,470 2024 April 25,344 7,688 33,032 15,378 48,410 2024 May 9,231 2,786 12,016 18,037 30,053 2024 June 24,433 1,858 26,291 9,452 35,744 2024 July 10,727 2,955 13,682 4,909 18,590 2024 August 29,157 2,693 31,850 6,766 38,616 2024 September 23,017 2,544 25,561 680 26,242 2024 October 13,935 1,584 15,519 859 16,378 2024 November 19,489 1,429 20,917 873 21,790 2024 December 24,774 2,334 27,108 1,082 28,190 2025 January 31,004 1,558 32,561 1,369 33,930 2025 February 7,718 402 8,121 2,431 10,551 2025 March 33,301 4,525 37,826 915 38,741 2025 April 15,857 1,154 17,011 1,156 18,167 2025 May 21,211 3,112 24,322 2,035 26,357 2025 June 14,148 2,702 16,850 2,673 19,523 Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 4702.00.0020 and 4702.00.0040, accessed August 20, 2025. Imports are based on the imports for consumption data series. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. The two statistical reporting numbers used to show monthly import volumes likely contain out-of-scope merchandise and/or have some reporting issues. Note: Statistical reporting number 4702.00.0040 primarily covers HPDP and other dissolving pulp produced using the sulfate method. Imports from Brazil under statistical reporting number 4702.00.0040 were present in the market every month from January 2022 to June 2025. Statistical reporting number 4702.00.0020 primarily covers HPDP and other dissolving pulp produced using the sulfite method. Imports from Norway under statistical reporting number 4702.00.0020 were present in the market every month from January 2022 to June 2025 except for October 2023. 4.12 Figure 4.2 HPDP and other dissolving pulp: U.S. imports from individual subject sources, by source and by month Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 4702.00.0020 and 4702.00.0040, accessed August 20, 2025. Imports are based on the imports for consumption data series. 4.13 Figure 4.3 HPDP and other dissolving pulp: 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 4702.00.0020 and 4702.00.0040, accessed August 20, 2025. Imports are based on the imports for consumption data series. 4.14 Apparent U.S. consumption and market shares Quantity Table 4.8 and figure 4.4 present data on apparent U.S. consumption and U.S. market shares by quantity for HPDP. Overall, the increase in U.S. shipments of imports from Brazil, Norway, and nonsubject sources and increases in U.S. shipments from Rayonier resulted in an increase in apparent U.S. consumption from 2022 to 2024 despite the closure of Georgia- Pacific. Apparent U.S. consumption was lower in interim 2025 compared to interim 2024. From 2022 to 2024, U.S. producers accounted for a decreasing share of apparent U.S. consumption while U.S. shipments of imports from Brazil, Norway, and nonsubject sources accounted for an increasing share. The share of apparent U.S. consumption accounted for by U.S. producers and U.S. shipments of imports from Brazil was higher in interim 2025 compared to interim 2024 while the share of apparent U.S. consumption accounted for by U.S. shipments of imports from Norway and nonsubject sources were lower in interim 2025 compared to interim 2024. 4.15 Table 4.8 HPDP: Apparent U.S. consumption and market shares based on quantity, by source and period Quantity in ADST; shares in percent; interim is January through June Source Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. producers: Georgia- Pacific Quantity *** *** *** *** *** U.S. producers: Rayonier Quantity *** *** *** *** *** U.S. producers: All Quantity *** *** *** *** *** Brazil Quantity *** *** *** *** *** Norway Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** All sources Quantity *** *** *** *** *** U.S. producers: Georgia- Pacific Share *** *** *** *** *** U.S. producers: Rayonier Share *** *** *** *** *** U.S. producers: All Share *** *** *** *** *** Brazil Share *** *** *** *** *** Norway 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. 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 import sources are U.S. importers' U.S. shipments of imports. 4.16 Figure 4.4 HPDP: Apparent U.S. consumption based on quantity, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires 4.17 Value Table 4.9 and figure 4.5 present data on apparent U.S. consumption and U.S. market shares by value for HPDP. Similar to apparent U.S. consumption by quantity, the increase in overall U.S. shipments of imports from Brazil, Norway, and nonsubject sources and increases in U.S. shipments from Rayonier resulted in an increase in apparent U.S. consumption from 2022 to 2024 despite the closure of Georgia-Pacific. Apparent U.S. consumption was lower in interim 2025 compared to interim 2024. From 2022 to 2024, U.S. producers accounted for a decreasing share of apparent U.S. consumption while U.S. shipments of imports from Brazil, Norway, and nonsubject sources accounted for a greater share. The share of apparent U.S. consumption accounted for by U.S. producers and U.S. shipments of imports from Brazil was higher in interim 2025 compared to interim 2024 while the share of apparent U.S. consumption accounted for by U.S. shipments of imports from Norway and nonsubject sources were lower in interim 2025 compared to interim 2024. 4.18 Table 4.9 HPDP: Apparent U.S. consumption and market shares based on value, by source and period Value in 1,000 dollars; shares in percent; interim is January through June Source Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. producers: Georgia-Pacific Value *** *** *** *** *** U.S. producers: Rayonier Value *** *** *** *** *** U.S. producers: All Value *** *** *** *** *** Brazil Value *** *** *** *** *** Norway Value *** *** *** *** *** Subject sources Value *** *** *** *** *** Nonsubject sources Value *** *** *** *** *** All import sources Value *** *** *** *** *** All sources Value *** *** *** *** *** U.S. producers: Georgia-Pacific Share *** *** *** *** *** U.S. producers: Rayonier Share *** *** *** *** *** U.S. producers: All Share *** *** *** *** *** Brazil Share *** *** *** *** *** Norway 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. 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 import sources are U.S. importers' U.S. shipments of imports. 4.19 Figure 4.5 HPDP: Apparent U.S. consumption based on value, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 5.1 Part 5: Pricing data Factors affecting prices Raw material costs The HPDP production process begins with wood chips or logs that are debarked and chipped on site to create wood chips, which provide cellulose for the production of HPDP. The wood chips are then processed with specific chemicals, which differ depending on whether the Kraft (sulfate) or sulfite process is used. The wood chips used by domestic producers may be derived from either softwood or hardwood.1 Specific attributes may be imparted to the HPDP based on the physical characteristics of the base wood, such as the length of the wood fiber.2 Sources of cellulose accounted for *** of domestic producers’ raw materials in 2024, with *** of fibers being sourced from virgin wood fibers. Prices of hardwood and softwood chips in the South-Central United States decreased from January 2022 through the first quarter of 2024; prices of hardwood have increased slightly since that time while softwood prices have remained at or slightly above that level (figure 5.1 and table 5.1). Raw materials, as a share of U.S. producers’ cost of goods sold (COGS), decreased from *** percent in 2022 to *** percent in 2024, and were *** percent in January to June 2025. 1 Petition, p. 7. 2 Conference transcript, p. 98 (Müller). 5.2 Figure 5.1 Wood chips: Price of hardwood and softwood chips, South-Central United States, quarterly, January 2022 to June 2025 * * * * * * * Source: ***. Table 5.1 Wood chips: Price of hardwood and softwood chips, South-Central United States, quarterly, January to March 2022 to April to June 2025 Price in dollars per gross ton Year Month Hardwood Softwood 2022 January *** *** 2022 April *** *** 2022 July *** *** 2022 October *** *** 2023 January *** *** 2023 April *** *** 2023 July *** *** 2023 October *** *** 2024 January *** *** 2024 April *** *** 2024 July *** *** 2024 October *** *** 2025 January *** *** 2025 April *** *** Source: ***. 5.3 Transportation costs to the U.S. market Transportation costs for HPDP shipped from subject countries to the United States averaged 3.6 percent for Brazil and 7.9 percent for Norway during 2024. These estimates were derived from official import data and represent the transportation and other charges on imports.3 U.S. inland transportation costs *** U.S. producers and all importers reported that they typically arrange transportation to their customers. U.S. producers reported that their U.S. inland transportation costs ranged from *** percent while responding importers reported costs of *** percent. Pricing practices Pricing methods *** producers and two of three responding importers reported using transaction-by- transaction and contracts to determine prices (table 5.2).4 One importer (***) uses set price lists. Table 5.2 HPDP: Count of U.S. producers’ and importers’ reported price setting methods Method U.S. producers Importers Transaction-by-transaction *** 2 Contract *** 2 Set price list *** 1 Other *** 0 Responding firms 2 3 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. 3 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 numbers 4702.00.0020 and 4702.00.0040. 4 Although 11 importers responded to the Commission’s importer questionnaire, many of the importers internally consume HPDP and therefore did not report data for questions pertaining to sales of HPDP. One of these importers, ***. 5.4 Importers reported selling the vast majority of their HPDP via long-term contracts in 2024, ***. While domestic producer Rayonier *** importers sold a small proportion on the spot market. (table 5.3). *** contracts typically can have prices renegotiated, fix only price, and are not indexed to raw material prices. *** contracts share similar characteristics, although its ***. Table 5.3 HPDP: U.S. producers’ and importers’ shares of commercial U.S. shipments by type of sale, 2024 Share in percent Type of sale U.S. producers Subject importers Long-term contracts *** *** Annual contracts *** *** Short-term contracts *** *** Spot sales *** *** Total 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 Two of three importers sell on an f.o.b. basis, while *** sell on a delivered basis. Producer Rayonier uses *** during its negotiations ***. Importer *** and importer ***. Price and purchase cost 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 HPDP product shipped to unrelated U.S. customers during January 2022 to June 2025. Firms that imported this product from Brazil and/or Norway for own use were requested to provide import purchase cost data. Product 1.-- High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent.5 5 The one pricing product was proposed by Petitioners in the Petition (page 22) to “get representative products and good coverage.” Conference transcript, p. 51 (Baisburd). Respondents argued that this singular product is overly broad for a product in which pricing for different grades can differ by up to 100 percent. See, e.g., respondent Bracell’s postconference brief, p. 23, Borregaard postconference brief, pp. 4-5, respondent Eastman’s postconference brief, p. 25, and conference transcript, p. 137 (Dohrn). Respondent Eastman provided sample yearly pricing data for the products it purchases; the difference between the highest-priced and the lowest-priced products was *** percent in 2024, and only the lowest-priced products from Rayonier are used in the same applications as those imported from Brazil and/or Norway. Respondent Eastman’s postconference brief, p. 26. 5.5 Price data Two U.S. producers and one importer (***) provided usable pricing data for sales of the requested products, although not all firms reported pricing for the products for all quarters.6 No importer provided pricing data for sales of HPDP from Norway. Pricing data reported by these firms accounted for approximately *** percent of U.S. producers’ U.S. commercial shipments of HPDP,7 and *** percent of commercial shipments of imports from Brazil in 2024.8 Importer *** noted “Our Brazil HPDP is wholly produced from hardwood and cannot be used for certain applications which require U.S. (softwood) HPDP, such as filtration and nitrocellulose. Within the hardwood HPDP, there are also varying purity grades, and our Brazil HPDP cannot compete with U.S. HPDP where very high purity (over 98 percent) is required.” Price data for product 1 are presented in table 5.4 and figure 5.2. 6 Per-unit pricing data are calculated from total quantity and total value data provided by U.S. producers and importers. The precision and variation of these figures may be affected by rounding, limited quantities, and producer or importer estimates. 7 ***. 8 Pricing coverage is based on commercial shipments of imports reported in questionnaires. Commercial shipment data represents *** percent of reported U.S. imports from Brazil. 5.6 Table 5.4 HPDP: 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 air dried short ton (“ADST”), quantity in ADST, margin in percent. Period U.S. price U.S. quantity Brazil price Brazil quantity Brazil 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 *** *** *** *** *** 2025 Q2 *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. 5.7 Figure 5.2 HPDP: Weighted-average f.o.b. prices and quantities of domestic and imported product 1, by source and quarter Price * * * * * * * Volume * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. 5.8 Price comparisons As shown in table 5.5, prices for product imported from Brazil were below those for U.S.-produced product in all 14 instances (*** ADST); margins of underselling ranged from *** to *** percent and averaged *** percent. Underselling margins were highest in 2022. Table 5.5 HPDP: Instances of underselling and overselling and the range and average of margins, by year Quantity in ADST; margin in percent Year Type Number of quarters Quantity Average margin Min margin Max margin 2022 Underselling 4 *** *** *** *** 2023 Underselling 4 *** *** *** *** 2024 Underselling 4 *** *** *** *** 2025 Underselling 2 *** *** *** *** Total, all years Underselling 14 *** *** *** *** Total, all years Overselling 0 — — — — 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. Import purchase cost data Eight importers reported useable import purchase cost data for product 1. Purchase cost data reported by these firms accounted for *** percent of imports from Brazil (three importers) and *** percent of imports from Norway (seven importers) in 2024. *** represented *** of the purchase cost data for Brazil throughout the period, and *** represented *** of the purchase cost data from Norway. Landed duty-paid purchase cost data for imports from Brazil and Norway are presented in table 5.6, along with U.S. producers’ sales prices.9 ***, which represents *** for Product 1 imported from Brazil and *** percent of purchase cost data for HPDP imported from Norway 9 LDP import value does not include any potential additional costs that a purchaser may incur by importing rather than purchasing from another importer or U.S. producer. Price-cost differences are based on LDP import values whereas margins of underselling/overselling are based on importer sales prices. They also do not include additional processing costs (including additional chemicals) that purchasers may incur to remove impurities in certain imported products due to their physical properties. These costs were estimated to be *** percent or about $*** per ADST for imports from Brazil. Conference transcript, p. 94 (Dohrn) and respondent Eastman’s postconference brief, pp. 26 to 27. 5.9 reported that its purchase cost of product from Norway was between $*** and $*** higher for product directly imported from Norway.10 Table 5.6 HPDP: Import landed duty-paid purchase costs and domestic prices, quantities of product 1, and price-cost differentials, by quarter Price and LDP value in dollars per ADST, quantity in ADST, price-cost differential in percent. Period U.S. price U.S. quantity Brazil LDP unit cost Brazil quantity Brazil Price-cost differential Norway LDP unit cost Norway quantity Norway Price-cost differential 2022 Q1 *** *** *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** — 0 — 2023 Q3 *** *** *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** *** *** 2025 Q2 *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. 10 HPDP production in Brazil uses a hardwood substrate and a sulfate digestion process, whereas HPDP production in Norway uses a softwood substrate and a sulfite digestion process. Domestic producers use both the sulfate and sulfite production methods. Pricing and purchase cost data separating these data by production method are presented in Appendix F. 5.10 Figure 5.3 HPDP: U.S. producer prices and import purchase costs, and quantities, of product 1, by quarter U.S. price and import purchase cost * * * * * * * Volume * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: High purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. 5.11 Importers reporting import purchase cost data were asked to provide additional information regarding the costs and benefits of importing HPDP themselves. Six of the eight importers providing purchase cost data reported that they incurred additional costs beyond landed duty-paid costs by importing HPDP themselves rather than purchasing from a U.S. producer or U.S. importer. Of these, five importers estimated the total additional cost incurred; estimates ranged from 1 to 14 percent compared to the landed duty- paid value. Firms were also asked to identify specific additional costs they incurred as a result of importing HPDP. Reported costs include increased operational costs like additional chemicals used in processing imported material, a Customs merchandise processing fee, additional Customs fees after a third container, demurrage, financing costs, a harbor maintenance fee, inland freight, and warehousing fees. Firms were also asked to describe how these additional costs incurred by importing HPDP themselves compares with additional costs incurred when purchasing from a U.S. producer or U.S. importer. Firms pointed to similar costs noted above like demurrage, duties, extra chemicals, inland freight, and warehousing as differences. Two importers also noted that domestically produced and previously imported HPDP are purchased on a delivered basis, whereas imports shipped from overseas are purchased on a c.i.f. basis. Five of eight importers reported that they compare costs of importing to the cost of purchasing from a U.S. producer in determining whether to import HPDP, three importers compare costs to purchasing from a U.S. importer, and three importers do not compare costs of purchasing from either U.S. producers or importers. All eight importers identified benefits from importing HPDP themselves instead of purchasing from U.S. producers or importers. Four importers reported that increased supply security or risk mitigation are benefits of directly importing. Importer *** observed that, *** have closed since 2022 and contended that the remaining U.S. producer has aging equipment that has not received sufficient investment to maintain. It also added that some of its customers require multiple sources to ensure their security of supply, and that it needs to be certain that ***. Four importers also noted varieties, qualities, and grades of HPDP that they require are not produced domestically. Importer *** estimated that it must import 20 to 40 percent of its HPDP requirements because those qualities only are available from France and Norway. Two importers noted that imports are necessary to maintain competition in the market or to protect from unreasonable commercial terms from Rayonier. 5.12 A majority of importing firms reported that the import cost (both excluding and including additional costs) of HPDP they imported are not lower than the price of purchasing HPDP from a U.S. producer or importer. Three importers estimated that they saved *** percent of the purchase price by importing HPDP rather than purchasing from a U.S. importer and saving between *** percent compared to purchasing the product from a U.S. producer.11 Price and purchase cost trends In general, prices increased during January 2022 to June 2025.12 Table 5.7 summarizes the price trends comparing domestic prices to those of the pricing product imported from Brazil. As shown in the table, domestic prices increased by *** percent during January 2022 to June 2025 while import sales prices from Brazil increased by *** percent. Landed duty-paid cost increases were *** and *** percent, respectively for product directly imported from Brazil and Norway. Table 5.7 HPDP: Summary of price and cost data, by product and source Volume in ADST, price and cost in dollars per ADST Product Source Number of quarters Volume of shipments Low price/ cost High price/ cost First quarter price/ cost Last quarter price/ cost Percent change in price/cost over period Product 1 United States price 14 *** *** *** *** *** *** Product 1 Brazil price 14 *** *** *** *** *** *** Product 1 Brazil cost 14 *** *** *** *** *** *** Product 1 Norway cost 13 *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Percentage change from the first quarter in 2022 to the last quarter in 2025. 11 Five firms reported that they based their estimates on previous company transactions and one reported basing its estimates on market research. 12 Rising prices were also noted by counsel for petitioners during the staff conference: “…everyone has sort of acknowledged that prices have increased over the period…” Conference transcript, p. 39 (Bhatti). 5.13 Price-purchase cost comparisons As shown in table 5.8, landed duty-paid costs for HPDP imported from Brazil were below the sales price for U.S.-produced product in all 14 instances (*** ADST); price-cost differentials ranged from *** to *** percent. Landed duty-paid costs for HPDP imported from Norway, in contrast, were below the sales price for U.S.-produced product in 3 of 13 instances (*** ADST); price-cost differentials ranged from *** to *** percent. In the remaining 10 instances (*** ADST), landed duty-paid costs for HPDP from Norway were between *** to *** percent above sales prices for the domestic product. Table 5.9 shows that in 2024, in seven of eight possible quarters of comparison, U.S. prices were above the LDP values of imports of HPDP from Brazil and Norway. This was the year in which all instances of Norway’s imported HPDP costs being below domestic prices occurred. Table 5.8 HPDP: Instances of lower and higher import purchase costs and the range and average of price-cost differentials, by source Quantity in ADST; price-cost differential in percent Source Type Number of quarters Quantity Average price-cost differential Min price- cost differential Max price- cost differential Brazil Lower than U.S. price 14 *** *** *** *** Norway Lower than U.S. price 3 *** *** *** *** Total Lower than U.S. price 17 *** *** *** *** Brazil Higher than U.S. price 0 — — — — Norway Higher than U.S. price 10 *** *** *** *** Total Higher than U.S. price 10 *** *** *** *** 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. 5.14 Table 5.9 HPDP: Instances of lower and higher import purchase costs and the range and average of price-cost differentials, by year Quantity in ADST; margin in percent Year Type Number of quarters Quantity Average margin Min margin Max margin 2022 Underselling 4 *** *** *** *** 2023 Underselling 4 *** *** *** *** 2024 Underselling 7 *** *** *** *** 2025 Underselling 2 *** *** *** *** Total, all years Underselling 17 *** *** *** *** 2022 Overselling 4 *** *** *** *** 2023 Overselling 3 *** *** *** *** 2024 Overselling 1 *** *** *** *** 2025 Overselling 2 *** *** *** *** Total, all years Overselling 10 *** *** *** *** 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 HPDP report purchasers with which they experienced instances of lost sales or revenue due to competition from imports of HPDP from Brazil during January 2022 to June 2025. *** responding U.S. producers reported that they had to reduce prices, *** reported that they had to roll back announced price increases, and *** firms reported that they had lost sales. One U.S. producer submitted lost sales and lost revenue allegations. This U.S. producer identified six firms with which it lost sales. All six contained allegations of lost sales with respect to Brazil and three of these also contained allegations of lost sales with respect to Norway. Staff contacted six purchasers and received responses from five purchasers. Responding purchasers reported purchasing *** of HPDP during January 2022 to June 2025 (table 5.10), which represents *** percent of total apparent U.S. consumption of HPDP during that period. 5.15 Table 5.10 HPDP: Purchasers’ reported purchases and imports, by firm and source Quantity in ADST, share in percent 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: All other includes all other sources and unknown sources. Change is the percentage point change in the share of the firm’s total purchases of domestic and/or subject country imports between first and last years. Of the five responding purchasers, four reported that, since 2022, they had purchased imported HPDP from Brazil and one reported it had purchased HPDP imported from Norway instead of U.S.-produced product (tables 5.11 and 5.12). Two of the four purchasers reported that subject import prices from Brazil were lower than U.S.-produced product, and the purchaser reporting that it purchased Norwegian imported HPDP reported that it was not priced lower than domestic product. Only one purchaser reported that price was a primary reason for the decision to purchase imported product rather than U.S.-produced product; this purchaser noted that these purchases totaled *** ADST during the period. Purchasers identified supplier risk mitigation, quality decreases, unavailability of a certain HPDP product as non-price reasons for purchasing imported rather than U.S.-produced product. None of the five responding purchasers indicated that U.S. producers had reduced prices in order to compete with lower-priced imports from Brazil or Norway. 5.16 Table 5.11 HPDP: Purchasers’ responses to purchasing subject imports instead of domestic product, by firm Quantity in ADST Purchaser Purchased subject imports instead of domestic Imports priced lower Choice based on price Quantity Explanation *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** All firms Yes: 4; No: 1 Yes: 2; No: 2 Yes: 1; No: 3 *** N/A Source: Compiled from data submitted in response to Commission questionnaires. 5.17 Table 5.12 HPDP: Purchasers’ responses to purchasing subject imports instead of domestic product, by source Quantity in ADST 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 Brazil 4 2 1 *** Norway 1 0 0 — Any subject source 4 2 1 *** Source: Compiled from data submitted in response to Commission questionnaires. In responding to the lost sales lost revenue survey, three purchasers provided additional information on purchases and market dynamics. Purchaser *** added, “The Cellulose Acetate grade HPDP market is highly concentrated due to the exit of Georgia-Pacific (GP) from the market in 2023 (plant located in Foley, FL). GP began experiencing quality issues in mid-2021 (…), and exited the market in 2023 because it was unable to recover from these quality issues. As a result, there remained only three major suppliers of acetate grade dissolved wood pulp (DWP) worldwide that meet ***'s qualifications for exceptional pulp purity, and two of them, Rayonier (U.S.) and Bracell (Brazil) control ~85 to 90 percent of the market (the third is Borregaard (Norway), from which *** has only purchased for trial and does not intend to purchase). *** has been purchasing HPDP from Rayonier since ***, and the amount we currently purchase from Rayonier is equivalent to the amount we formerly purchased from GP (although our purchases from Rayonier in Q1 2025 have been low, we anticipate full year purchases from Rayonier in 2025 will be equivalent to 2024 due to contracted amounts).” Purchaser *** remarked, “Purchasing patterns: *** purchases from its U.S. and foreign suppliers based on annual contracts with its customers with a set price. Its contract with U.S. supplier Rayonier also includes ***, which ***. In 2022 *** sourced *** percent of its HPDP needs from domestic suppliers and *** percent from imports. With the closures of Cosmo and GPC, which represented about *** percent of total purchases, *** increased the main U.S. supplier Rayonier from *** percent to *** percent and increased imports in only *** percent. *** HPDP sourcing strategy is focused on mitigating supply risks resulting from aging domestic asset base, lack of investments and supplier base consolidation. *** has a multi sourcing strategy, supported by long-term contractual commitments, to minimize risks, while balancing domestic supply and imports to offset lack on enough reliable production in the U.S. to cover all 5.18 the demand for the more specialized HPDP grades to serve the Cellulose Acetate and Cellulose Ethers end markets. *** key strategic sourcing objectives: 1) Protect value of existing U.S.- based cellulosics product lines serving crucial segments, with unique sole supplied industries and mature end markets with strict contract commitments. 2) Diversified supply base to ensure proper supplier risk management (balancing financial, operational, and commercial risk), contractual flexibility and quick responses to market dynamics. 3) Ensure supply to support increased demand coming from innovation-driven and strong asset footprint in the U.S. 4) Assuring Sustainable Sourcing and suppliers’ engagement by balancing commercial aspects with sustainability demands (***) Market outlook: Stable and growing demand for Cellulose Specialties (HPDP usage) products expected across end markets. Industrial applications (construction, automotive and durable goods markets) more exposed to current down cycle offer upside potential when markets recover. On the HPDP supply side, capacity constraints are increasing due to the closure of several mills and the ageing asset based being more vulnerable to unexpected outages. The most recent U.S. mill closures in 2023 (Cosmo and GPC) with no further investments in capacity expansion by the remaining US producer creates major concerns for other U.S.-based cellulosic producers serving crucial market segments (Pharma, Food, Ophthalmics, Display, Filters Products, Ammunition…). In 2021-2022 when markets sharply recovered post-COVID, strong demand and tight supply in the HPDP industry resulted in production-related curtailments and product allocations.” Purchaser ***13 added, “Rayonier Advanced Materials Inc. (Rayonier) provides a high- quality dissolving wood pulp to *** which is suitable for our production. With regards to supply reliability Rayonier had several supply disruptions over the last years because of prolonged maintenance, unplanned shutdowns or internal or external caused force majeure events (e.g., Jesup plant Dec 2022 - Interruption of natural gas supply causes by Southern Natural Gas Company, L.L.C; Fire at Jesup plant Oct 2024). In *** Rayonier did not deliver any ordered material to *** causing interruptions in our global supply chain. Moving additional purchase volumes to Rayonier would increase the risk of production interruption. To secure a constant seamless supply of *** requires a multi supplier strategy and qualified also material from Norway. Alternative suppliers in U.S., do currently not exist. In case *** would depend solely on Rayonier, *** may invest in additional production capacities outside of the U.S. and consequently reduce the U.S. production. This would be needed to reduce the dependency on one supplier only, which is not 13 This firm is owned by ***. 5.19 an acceptable situation for *** nor for our customers. ***’s customers clearly require *** to diversify the supply base to reduce supply risks and avoid any supply disruptions. The premium for Rayonier high purity dissolving wood pulp versus Brazilian pulp was mostly stable over the last years. Overall, the prices have increased significantly. Since the implementation of U.S. tariffs on Brazilian pulp, the cost of Brazilian pulp became even higher, giving Rayonier now a competitive advantage. In April 2022, Rayonier unilaterally announced an unnegotiable sudden price surcharge of 146 USD/t (>10 percent) for all customers worldwide.14 Rayonier justified this price increase on the basis of increased cost for raw materials and global freight cost although we are not aware of any logistic price changes in the U.S. nor other significant cost increases. All other global suppliers followed the contracted terms. Since then, Rayonier has insisted on 45-day price commitments, whereas we and the global end market change prices only at mid-year or year-end. This example shows, how critical a multi-supplier strategy for *** is. Should *** face further price increases and less supplier alternatives, the competit{iv}eness and supply reliability of *** would seriously be impacted.” 14 See also Rayonier’s Third Quarter 2022 results (“Sales prices increased 21 percent and 19 percent during the three-month and nine-month periods, respectively, when compared to the same prior year periods, driven by increases in cellulose specialties prices of 25 percent and 19 percent, respectively, which were inclusive of the $146 per metric ton cost surcharge effective April 2022, and increases in commodity prices of 13 percent and 19 percent, respectively.”), presented in respondent Bracell’s postconference brief, exh. 19. 6.1 Part 6: Financial experience of U.S. producers Background1 The petitioner, Rayonier, provided usable financial results on its HPDP operations. Rayonier reported financial data on a calendar year basis and on the basis of GAAP. Rayonier’s net sales were ***. Georgia-Pacific also produced HPDP through 2023. Georgia-Pacific reported financial data for dissolving pulp. However, following revisions to the scope, the firm’s financial reporting included a mixture of in-scope and out-of-scope merchandise. Accordingly, its operations are not included in Part 6. 2 1 The following abbreviations are used in the tables and/or text of this section: generally accepted accounting principles (“GAAP”), net sales (“NS”), 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”). 2 However, these data are presented in appendix G. For additional information on Georgia-Pacific’s operations, see Part 3 of this report. 6.2 Operations on HPDP Table 6.1 presents data on Rayonier’s operations in relation to HPDP, while table 6.2 presents corresponding changes in AUVs. Table 6.3 and figure 6.1 present net sales by type and period, while table 6.4 presents corresponding changes in total net sales by type and period. Table 6.5 presents 2024 raw material costs broken out by input. Table 6.1 HPDP: U.S. producer Rayonier’s results of operations, by item and period Quantity in ADST; value in $1,000; ratios in percent; interim is January through June 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 *** *** *** *** *** Interest expense 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. 6.3 Table 6.1 (Continued) HPDP: U.S. producer Rayonier’s results of operations, by item and period Shares in percent; unit values in dollars per ADST; count in number of firms reporting; interim is January through June 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 *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares represent the share of COGS. 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 “—”. 6.4 Table 6.2 HPDP: Changes in AUVs between comparison periods Changes in percent; interim is January through June Item 2022–24 2022–23 2023–24 Interim 2024–25 Total net sales ▲*** ▲*** ▲*** ▲*** COGS: Raw materials ▼*** ▼*** ▼*** ▲*** COGS: Direct labor ▲*** ▲*** ▼*** ▲*** COGS: Other factory ▲*** ▲*** ▼*** ▲*** COGS: Total ▼*** ▲*** ▼*** ▲*** Table continued. Table 6.2 (Continued) HPDP: Changes in AUVs between comparison periods Changes in dollars per ADST; interim is January through June Item 2022–24 2022–23 2023–24 Interim 2024–25 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 “0.0” or “0.00” represent values greater than zero, but less than “0.05” or “0.005,” respectively. 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. 6.5 Table 6.3 HPDP: U.S. producer Rayonier’s total net sales, by sales type and period Quantity in ADST; value in $1,000; shares in percent; interim period is January through June Sales type Measure 2022 2023 2024 Interim 2024 Interim 2025 Domestic sales Quantity *** *** *** *** *** Export sales Quantity *** *** *** *** *** Total net sales Quantity *** *** *** *** *** Domestic sales Share of quantity *** *** *** *** *** Export sales Share of quantity *** *** *** *** *** Total net sales Share of quantity 100.0 100.0 100.0 100.0 100.0 Domestic sales Value *** *** *** *** *** Export sales Value *** *** *** *** *** Total net sales Value *** *** *** *** *** Domestic sales Share of value *** *** *** *** *** Export sales Share of value *** *** *** *** *** Total net sales Share of value 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Table 6.4 HPDP: Changes in total net sales, by sales type and period % changes in percent; ppt change in percentage points Sales type Measure 2022–24 2022–23 2023–24 Interim 2024–25 Domestic sales %Δ Quantity ▲*** ▼*** ▲*** ▲*** Export sales %Δ Quantity ▼*** ▼*** ▼*** ▲*** Total net sales %Δ Quantity ▼*** ▼*** ▼*** ▲*** Domestic sales ppt Δ Quantity ▲*** ▲*** ▲*** ▼*** Export sales ppt Δ Quantity ▼*** ▼*** ▼*** ▲*** Total net sales ppt Δ Quantity ▲*** ▲*** ▲*** ▲*** Domestic sales %Δ Value ▲*** ▲*** ▲*** ▲*** Export sales %Δ Value ▼*** ▼*** ▼*** ▲*** Total net sales %Δ Value ▼*** ▼*** ▼*** ▲*** Domestic sales ppt Δ Value ▲*** ▲*** ▲*** ▼*** Export sales ppt Δ Value ▼*** ▼*** ▼*** ▲*** Total net sales ppt Δ Value ▲*** ▲*** ▲*** ▲*** Source: Compiled from data submitted in response to Commission questionnaires. 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. 6.6 Figure 6.1 HPDP: U.S. producer Rayonier’s net sales, by sales type and period * * * * * * * Net sales As shown in table 6.1, net sales quantity and value decreased by *** percent, respectively, from 2022 to 2023, then by *** percent, respectively, from 2023 to 2024.3 In interim 2025, net sales quantity and value were higher than in interim 2024. Average sales unit values increased by *** percent from 2022 to 2024 and were *** percent higher in interim 2025 than in interim 2024.4 The decline in total net sales from 2022 to 2024 reflected declines of *** and *** percent in export sales quantity and value, respectively, while domestic sales increased by *** percent by quantity and *** percent by value. In interim 2025, both domestic and export sales were higher in quantity and value than in interim 2024. 3 Rayonier reported that the declines in sales quantity and value were due to “***.” Rayonier’s U.S. producer questionnaire response, section III.9e. 4 Rayonier reported that it “***.” Rayonier’s U.S. producer questionnaire response, section III.9e. 6.7 Cost of goods sold and gross profit or loss As shown in table 6.1, raw material costs, direct labor, and other factory costs accounted for *** percent of total COGS, respectively, in 2024. Raw materials, the largest component of COGS in all periods for which data were collected, decreased by *** percent from 2022 to 2024.5 On an average per-ADST basis, raw materials decreased each year from $*** in 2022 to $*** in 2024 and were $*** in both interim periods. As a ratio to net sales, raw material costs decreased from *** percent in 2022 to *** percent in 2024. Table 6.5 presents details on specific raw material inputs as a share of total raw material costs in 2024. The table shows that sources of cellulose accounted for the *** of total raw material costs, followed by chemicals used to process cellulose and other raw material inputs. Table 6.5 HPDP: U.S. producer Rayonier’s raw material costs in 2024, by major raw material inputs Values in $1,000; unit values in dollars per ADST; share of value in percent Item Value Unit value Share of value Sources of cellulose *** *** *** Chemicals *** *** *** Other material inputs *** *** *** All raw materials *** *** 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Direct labor costs, the smallest component of COGS in all periods for which data were collected, decreased in absolute value, but increased irregularly on an average per-ADST basis from 2022 to 2024 and were higher in interim 2025 than in interim 2024.6 As a ratio to net sales, direct labor costs decreased from *** percent in 2022 to *** percent in 2024 but were higher in interim 2025 than in interim 2024 (see table 6.1). Other factory costs, the second largest component of COGS in all periods for which data were collected, increased irregularly in absolute value from 2022 to 2024 and was higher in interim 2025 than in interim 2024. On an average per-ADST basis and as a ratio to net sales, other factory costs increased irregularly from 2022 to 2024 and were higher in interim 2025 than in interim 2024. As shown in table 6.1, total COGS decreased by *** percent from 2022 to 2024 but was higher in interim 2025 than in interim 2024. On an average per-ADST basis, total COGS 5 Rayonier reported that there were ***. Rayonier’s U.S. producer questionnaire response, section III.9e. 6 Rayonier reported that labor costs ***.” Rayonier’s U.S. producer questionnaire response, section III.9e. 6.8 decreased irregularly from $*** in 2022 to $*** in 2024 but was higher in interim 2025 than in interim 2024. As a ratio to net sales, total COGS decreased from *** percent in 2022 to *** percent in 2024 but was higher in interim 2025 (at *** percent) than in interim 2024 (at *** percent). As shown in table 6.1, gross profit decreased from $*** in 2022 to $*** in 2023 and then increased to $*** in 2024. Gross profit was lower in interim 2025, at $***, than in interim 2024, at $***. As a ratio to net sales, gross profit increased from *** percent in 2022 to *** percent in 2024 but was lower in interim 2025 (at *** percent) than in interim 2024 (at *** percent). 6.9 SG&A expenses and operating income or loss SG&A expenses decreased from 2022 to 2024 but were higher in interim 2025 than in interim 2024.7 The SG&A expense ratio (total SG&A expenses divided by total sales value) increased slightly from *** percent in 2022 to *** percent in 2024 and was higher in interim 2025 (*** percent) than in interim 2024 (*** percent). As shown in table 6.1, operating income decreased by *** percent from 2022 to 2023, then increased by *** percent from 2023 to 2024. Operating income in interim 2025 was *** percent lower than in interim 2024. Operating income as a ratio to net sales increased from *** percent in 2022 to *** percent in 2024 but was lower in interim 2025 (*** percent) than in interim 2024 (*** percent). All other expenses and net income or loss Interest expense increased from 2022 to 2024 and was higher in interim 2025 than in interim 2024. 8 Rayonier had net *** in 2022 that *** in 2023 before *** in 2024. Its net income was lower in interim 2025 than in interim 2024. 7 Rayonier reported that it experienced a “***. Rayonier’s U.S. producer questionnaire response, section III.9e. 8 Rayonier ***. Rayonier’s U.S. producer questionnaire response, section III.9a. 6.10 Variance analysis A variance analysis for the operations of U.S. producers of HPDP is presented in table 6.6.9 The information for this variance analysis is derived from table 6.1. The data show that operating income increased irregularly from 2022 to 2024 due to a favorable price variance that was not fully offset by the unfavorable operating income cost and volume variances (i.e., the positive effect from the increase in net sales AUVs outweighed the negative effects of higher combined unit costs/expenses and lower net sales quantity). Between the two comparable interim periods, a lower operating income was primarily attributable to an unfavorable operating income cost variance despite favorable price and volume variances. Table 6.6 HPDP: Variance analysis on U.S. producer Rayonier’s operations between comparison periods Value in $1,000; interim is January through June Item 2022-24 2022-23 2023-24 Interim 2024-25 Net sales price variance *** *** *** *** Net sales volume variance *** *** *** *** Net sales total variance *** *** *** *** COGS cost variance *** *** *** *** COGS volume variance *** *** *** *** COGS total variance *** *** *** *** Gross profit variance *** *** *** *** SG&A cost variance *** *** *** *** SG&A volume variance *** *** *** *** SG&A total variance *** *** *** *** Operating income price variance *** *** *** *** Operating income cost variance *** *** *** *** Operating income volume variance *** *** *** *** Operating income total variance *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: These data are derived from the data in table 6.1. Unfavorable variances (which are negative) are shown in parentheses, all others are favorable (positive). 9 The Commission’s variance analysis is calculated in three parts: Net sales variance, COGS variance, and SG&A expense variance. Each part consists of a price variance (in the case of the net sales variance) or a cost or expense variance (in the case of the COGS and SG&A expense variance), and a volume variance. The sales or cost/expense variances are calculated as the change in unit price or per-unit cost/expense, respectively, times the new volume, while the volume variance is calculated as the change in volume times the old unit price or per-unit cost/expense. Summarized at the bottom of the table, the operating income price variance is from sales; the operating income cost/expense variance is the sum of the cost components in the COGS and SG&A expense variances, and the operating income volume variance is the sum of the volume components of the net sales, COGS, and SG&A expense variances. 6.11 Capital expenditures and research and development expenses Table 6.7 presents Rayonier’s capital expenditures, R&D expenses, net assets, and operating ROA. Table 6.8 presents Rayonier’s narrative explanations of the nature, focus, and significance of its capital expenditures, R&D expenses, and any significant changes in asset levels over time. Capital expenditures decreased from 2022 to 2024 but were higher in interim 2025 than in interim 2024, while *** R&D expenses were ***. Total assets decreased from 2022 to 2024, and operating ROA increased from *** percent in 2022 to *** percent in 2024. Table 6.7 HPDP: U.S. producer Rayonier’s capital expenditures, R&D expenses, total assets and ROA, by period Value in $1,000; interim is January through June Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Capital expenditures Value *** *** *** *** *** R&D expenses Value *** *** *** *** *** Total assets Value *** *** *** *** *** ROA Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Table 6.8 HPDP: U.S. producer Rayonier’s narrative descriptions of their capital expenditures, R&D expenses and total assets, by item Item Narrative on item Capital expenditures *** R&D expenses *** Total assets *** Source: Compiled from data submitted in response to Commission questionnaires. 6.12 Capital and investment The Commission requested the U.S. producers of HPDP to describe any actual or potential negative effects of imports of HPDP from Brazil and Norway on their firms’ growth, investment, ability to raise capital, development and production efforts, or the scale of capital investments. Table 6.9 presents the impact reported by Rayonier in each category and table 6.10 provides the Rayonier’s narrative responses. Table 6.9 HPDP: U.S. producer Rayonier’s actual and anticipated negative effects of imports from subject sources on investment, growth and development since January 1, 2022, by effect Count in number of firms reporting Effect Category Count Cancellation, postponement, or rejection of expansion projects Investment *** Denial or rejection of investment proposal Investment *** Reduction in the size of capital investments Investment *** Return on specific investments negatively impacted Investment *** Other investment effects Investment *** Any negative effects on investment Investment *** Rejection of bank loans Growth *** Lowering of credit rating Growth *** Problem related to the issue of stocks or bonds Growth *** Ability to service debt Growth *** Other growth and development effects Growth *** Any negative effects on growth and development Growth *** Anticipated negative effects of imports Future *** Source: Compiled from data submitted in response to Commission questionnaires. 6.13 Table 6.10 HPDP: U.S. producer Rayonier’s narratives relating to actual and anticipated negative effects of imports from subject sources on investment, growth, and development since January 1, 2022, by effect Item Firm name and narrative on impact of imports *** *** *** *** *** *** *** *** *** *** Table continued. 6.14 Table 6.10 (Continued) HPDP: U.S. producer Rayonier’s narratives relating to actual and anticipated negative effects of imports from subject sources on investment, growth, and development since January 1, 2022, by effect *** *** *** *** *** *** 7.1 Part 7: 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 two firms believed to produce and/or export HPDP from Brazil and Norway.3 Usable responses to the Commission’s questionnaire were received from two 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 HPDP, and their exports to the United States as a share of U.S. imports, by each subject country in 2024. Table 7.1 HPDP: 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 production (percent) Exports as a share of U.S. imports from subject country (percent) Brazil 1 *** *** Norway 1 *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Based on information provided in the petition and confirmed by respondents there is one known producer of HPDP in Brazil and one know producer of HPDP in Norway. Conference transcript, p. 120 (Lutz). 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 importer questionnaire data. 3 These firms were identified through a review of information submitted in the petition and presented in third-party sources. 7.4 Table 7.2 presents information on the HPDP operations of the responding producers in Brazil and Norway. Table 7.2 HPDP: Summary data on responding subject foreign producers in 2024, by firm Producer and (subject foreign industry) Production (ADST) Share of reported production (percent) Exports to the United States (ADST) Share of reported exports to the United States (percent) Total shipments (ADST) Share of firm's total shipments exported to the United States (percent) Brazil: Bracell *** *** *** *** *** *** Norway: Borregaard *** *** *** *** *** *** All individual producers *** 100.0 *** 100.0 *** *** Source: Compiled from data submitted in response to Commission questionnaires. There is no publicly available information regarding events in the subject countries’ industries since January 1, 2022. Changes in operations Subject producers were asked to report any change in the character of their operations or organization relating to the production of HPDP since 2022. Neither foreign producer reported any changes relating to the production of HPDP since 2022. Borregaard reported the following anticipated change in operations ***.4 4 Borregaard’s foreign producer questionnaire response, section II-2c. 7.5 Installed and practical overall capacity Table 7.3 presents data on subject producers’ installed capacity, practical overall capacity, and practical HPDP capacity and production on the same equipment. Installed overall capacity remained unchanged during the period for which data were collected. Practical overall capacity and practical HPDP capacity were unchanged from 2022 to 2024 and were slightly lower in interim 2025 compared to interim 2024. Overall production was comparable in 2022 and 2024 and lowest in 2023. Overall production was lower in interim 2025 compared to interim 2024 with both foreign producers reporting lower production in interim 2025. HPDP production increased in each year from 2022 to 2024 but was lower in interim 2025 compared to interim 2024. Capacity utilization metrics were relatively stable from 2022 to 2024 and lower in interim 2025 compared to interim 2024. Table 7.3 HPDP: Subject producers’ installed and practical capacity and production on the same equipment as in-scope production, by period Capacity and production in ADST; utilization in percent; interim period is January through June 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 HPDP Capacity *** *** *** *** *** Practical HPDP Production *** *** *** *** *** Practical HPDP Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.6 Constraints on capacity Tables 7.4 and 7.5 present subject producers’ reported production and capacity constraints since January 1, 2022. Table 7.4 HPDP: Constraints on practical overall capacity, by subject foreign industry Count in number of firms reporting Type of constraint Brazil Norway Subject producers Production bottlenecks *** *** *** Existing labor force *** *** *** Supply of material inputs *** *** *** Fuel or energy *** *** *** Storage capacity *** *** *** Logistics/transportation *** *** *** Other constraints *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Table 7.5 HPDP: 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 *** Fuel or energy *** Other constraints *** Source: Compiled from data submitted in response to Commission questionnaires. 7.7 Operations on HPDP Aggregate HPDP operations in the subject countries Table 7.6 presents information on the HPDP operations of the responding producers/exporters (aggregate data for all subject foreign industries). HPDP capacity remained unchanged from 2022 to 2024, and foreign producers project a small capacity decrease in 2025 and 2026. Meanwhile, HPDP production increased each year from 2022 to 2024. Foreign producers project production to be lower in 2025 and increase to its highest level in 2026. Capacity and production of HPDP were both lower in interim 2025 compared to interim 2024. End-of-period inventories were highest in 2024 and foreign producers project end-of-period inventories to be approximately *** of 2024 levels in 2025 and to remain approximately the same in 2026. End-of-period inventories were lower in interim 2025 compared to interim 2024. During 2022 to 2024 and both interim periods, export shipments accounted for nearly all of foreign producers’ shipments. Export to the United States accounted for roughly *** of total shipments in 2022, 2024, and interim 2024 and approximately *** of total shipments in 2023 and interim 2025. Foreign producers project nearly all shipments as exports in 2025 and 2026 with approximately *** of exports going to the United States. 7.8 Table 7.6 HPDP: Data on subject foreign industries, by item and period Quantity in ADST; interim period is January through June 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 *** *** *** *** *** *** *** Table continued. 7.9 Table 7.6 (Continued) HPDP: Data on subject foreign industries, by period Ratio and share in percent; interim period is January through June 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 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 “—“. 7.10 Practical HPDP capacity and production by subject foreign industry Table 7.7 presents information on subject producers’ production, capacity, and capacity utilization by subject country. Table 7.7 HPDP: Subject producers’ output: Practical capacity, by source and period Practical capacity Capacity in ADST; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.7 (Continued) HPDP: Subject producers’ output: Production, by source and period Production Production in ADST; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.7 (Continued) HPDP: Subject producers’ output: Capacity utilization, by source and period Capacity utilization Capacity utilization in percent; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Note: Capacity utilization ratio represents the ratio of the subject producer’s production to its production capacity. 7.11 Table 7.7 (Continued) HPDP: Subject producers’ output: Share of production, by source and period Share of production Share in percent; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** 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. HPDP exports, by subject country Table 7.8 presents information on subject producers’ exports of HPDP by subject country. Total exports of HPDP from Brazil fluctuated and decreased overall from 2022 to 2024. Exports of HPDP from Brazil to the United States fluctuated and increased overall from 2022 to 2024 as did the share of total shipments exported to the United States. Total exports of HPDP from Brazil were higher in interim 2025 compared to interim 2024 while exports to the United States followed the opposite trend. Total exports of HPDP from Norway and exports to the United States increased annually and overall from 2022 to 2024. From 2022 to 2024, exports of HPDP from Norway to the United States had the sharpest increase (*** percent). Exports of HPDP from Norway to the United States held increasing shares of Norwegian exports from 2022 to 2024. Total exports of HPDP from Norway and exports to the United States were both lower in interim 2025 compared to interim 2024. Exports from Brazil and Norway to the United States are projected to decrease from 2024 to 2026. Table 7.8 HPDP: Subject producers’ exports: Exports to the United States, by source and period Exports to the United States Quantity in ADST; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. 7.12 Table 7.8 (Continued) HPDP: Subject producers’ 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 through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.8 (Continued) HPDP: Subject producers’ exports: Exports to all destination markets, by source and period Total exports Quantity in ADST; Interim period is January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.8 (Continued) HPDP: Subject producers’ 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 through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.13 HPDP inventories, by subject foreign industry Table 7.9 presents information on ending inventories of the responding producers by subject foreign country. Bracell’s ending inventories were lowest in 2023 and highest in 2024 while Borregaard’s ending inventories were highest in 2023 and at similar levels in 2022 and 2024. Both foreign producers had lower inventories in interim 2025 compared to interim 2024. In 2025, Bracell projects ending inventories to be approximately *** of 2024 levels and to remain mostly stable in 2026. Borregaard projects ending inventories to be slightly lower in 2025 and comparable in 2026. Table 7.9 HPDP: Subject foreign industries’ ending inventories: Ending inventories, by source and period Quantity in ADST; Interim period in January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.9 (Continued) HPDP: Subject foreign industries’ ending inventories: Ratio of ending inventories to total shipments, by source and period Ratio in percent; Interim period in January through June Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Brazil *** *** *** *** *** *** *** Norway *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.14 Alternative products As shown in table 7.10, responding firms in Brazil and Norway produced other products on the same equipment and machinery used to produce HPDP. More than *** percent of all production on the same equipment and machinery was HPDP during the period for which data were collected. *** reported the ability to produce other products and the same equipment and machinery used to produce HPDP. These products include: ***.5 Table 7.10 HPDP: Subject foreign industries’ overall production on the same equipment as in- scope production, by product type and period Quantity in ADST; share in percent; Interim period in January through June Product type Measure 2022 2023 2024 Interim 2024 Interim 2025 HPDP Quantity *** *** *** *** *** Other products Quantity *** *** *** *** *** All products Quantity *** *** *** *** *** HPDP 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. 5 *** foreign producer questionnaire, section II-3a. 7.15 Exports Table 7.11 presents Global Trade Atlas (“GTA”) data for exports of HPDP and other dissolving pulp from subject countries to the United States and to all destination markets. In aggregate, subject countries’ exports of HPDP and other dissolving pulp to all destination markets including the United States increased from 2022 to 2024. Table 7.11 HPDP and other dissolving pulp: Global exports from subject foreign industries: Exports to the United States, by subject foreign country and period Quantity in ADST Exporter Measure 2022 2023 2024 Brazil Quantity 172,561 152,699 176,378 Norway Quantity 3,989 5,072 17,498 Subject exporters Quantity 176,551 157,772 193,875 Table continued. Table 7.11 (Continued) HPDP and other dissolving pulp: Global exports from subject foreign industries: Exports to all destination markets, by subject foreign country and period Quantity in ADST Exporter Measure 2022 2023 2024 Brazil Quantity 716,140 1,145,821 1,230,631 Norway Quantity 163,690 158,878 175,460 Subject exporters Quantity 879,830 1,304,699 1,406,091 Table continued. Table 7.11 (Continued) HPDP and other dissolving pulp: 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 Brazil Share 24.1 13.3 14.3 Norway Share 2.4 3.2 10.0 Subject exporters Share 20.1 12.1 13.8 Source: Official exports statistics from Brazil and Norway under HS subheading 4702.00 as reported by various national statistical authorities in the Global Trade Atlas Suite database, accessed August 28, 2025. Note: Shares represent the shares of value exported to the United States out of all destination markets. 7.16 U.S. inventories of imported merchandise Table 7.12 presents data on U.S. importers’ reported inventories of HPDP. From 2022 to 2024, U.S. importers’ inventories of HPDP from Brazil fluctuated and decreased overall. Meanwhile, U.S, importers’ inventories of HPDP from Norway increased annually during 2022 to 2024. U.S. importers’ inventories of HPDP from nonsubject sources were lowest in 2023 and were similar levels in 2022 and 2024. U.S. importers’ inventories of HPDP from both subject sources were higher in interim 2025 compared to interim 2024 while U.S. importers’ inventories of HPDP from nonsubject sources were lower in interim 2025 compared to interim 2024. U.S. importers’ inventories from Brazil as a ratio to imports were highest in 2022 and lowest in 2023. U.S. importers’ inventories from Norway as a ratio to imports were greater than *** percent in 2022 and 2023 then decreased to less than *** percent in 2024. U.S. importers’ inventories from nonsubject sources as a ratio to imports did not exceed *** percent from 2022 to 2024. U.S. importers’ inventories from Brazil, Norway, and nonsubject sources as a ratio to imports were higher in interim 2025 compared to interim 2024. 7.17 Table 7.12 HPDP: U.S. importers’ inventories and their ratio to select items, by source and period Quantity in ADST; ratio in percent; interim period is January through June Measure Source 2022 2023 2024 Interim 2024 Interim 2025 Inventories quantity Brazil *** *** *** *** *** Ratio to imports Brazil *** *** *** *** *** Ratio to U.S. shipments of imports Brazil *** *** *** *** *** Ratio to total shipments of imports Brazil *** *** *** *** *** Inventories quantity Norway *** *** *** *** *** Ratio to imports Norway *** *** *** *** *** Ratio to U.S. shipments of imports Norway *** *** *** *** *** Ratio to total shipments of imports Norway *** *** *** *** *** 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. 7.18 U.S. importers’ outstanding orders The Commission requested importers to indicate whether they imported or arranged for the importation of HPDP from Brazil and Norway after June 30, 2025. Their reported data are presented in table 7.13. Arranged imports from Brazil accounted for a large majority of all arranged imports. Table 7.13 HPDP: U.S. importers’ arranged imports, by source and period Quantity in ADST Source Q3 2025 Q4 2025 Q1 2026 Q2 2026 Total Brazil *** *** *** *** *** Norway *** *** *** *** *** Subject sources *** *** *** *** *** Nonsubect sources *** *** *** *** *** All import sources *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Third-country trade actions Based on available information, HPDP from Brazil and Norway have not been subject to antidumping or countervailing duty investigations outside the United States. 7.19 Information on nonsubject countries Table 7.14 presents global export data for HPDP and other dissolving pulp (HS 4702.00). South Africa was the largest exporter in 2024 and accounted for 26.8 percent of total global exports by quantity. Indonesia, Malaysia, and Brazil were the next largest exporters, respectively. Table 7.14 HPDP and other dissolving pulp: Global exports, by reporting country and by period Quantity in ADST; value in 1,000 dollars Exporting country Measure 2022 2023 2024 United States Quantity 931,708 726,807 590,049 Brazil Quantity 716,140 1,145,821 1,230,631 Norway Quantity 163,690 158,878 175,460 Subject sources Quantity 879,830 1,304,699 1,406,091 South Africa Quantity 1,025,535 1,142,720 2,862,533 Indonesia Quantity 1,470,222 1,324,267 1,768,512 Malaysia Quantity 1,189,526 251,574 1,308,422 Chile Quantity 290,565 327,168 504,635 Canada Quantity 406,472 461,969 431,435 Sweden Quantity 395,834 372,109 360,429 All other exporters Quantity 1,296,215 1,252,338 1,465,951 All reporting exporters Quantity 7,885,907 7,163,652 10,698,057 United States Value 1,059,303 808,013 669,117 Brazil Value 469,207 755,134 832,816 Norway Value 219,352 226,641 243,060 Subject sources Value 688,559 981,775 1,075,876 South Africa Value 871,534 1,018,321 1,064,612 Indonesia Value 946,581 716,974 1,031,104 Malaysia Value 169,086 198,497 195,396 Chile Value 240,652 248,290 412,313 Canada Value 368,165 365,108 361,220 Sweden Value 379,617 357,275 369,163 All other exporters Value 1,036,211 1,011,805 1,316,095 All reporting exporters Value 5,759,707 5,706,057 6,494,898 Table continued. 7.20 Table 7.14 HPDP and other dissolving pulp (Continued): Global exports, by reporting country and by period Unit values in dollars per ADST; share in percent Exporting country Measure 2022 2023 2024 United States Unit value 1,137 1,112 1,134 Brazil Unit value 655 659 677 Norway Unit value 1,340 1,427 1,385 Subject sources Unit value 783 752 765 South Africa Unit value 850 891 372 Indonesia Unit value 644 541 583 Malaysia Unit value 142 789 149 Chile Unit value 828 759 817 Canada Unit value 906 790 837 Sweden Unit value 959 960 1,024 All other exporters Unit value 799 808 898 All reporting exporters Unit value 730 797 607 United States Share of quantity 11.8 10.1 5.5 Brazil Share of quantity 9.1 16.0 11.5 Norway Share of quantity 2.1 2.2 1.6 Subject sources Share of quantity 11.2 18.2 13.1 South Africa Share of quantity 13.0 16.0 26.8 Indonesia Share of quantity 18.6 18.5 16.5 Malaysia Share of quantity 15.1 3.5 12.2 Chile Share of quantity 3.7 4.6 4.7 Canada Share of quantity 5.2 6.4 4.0 Sweden Share of quantity 5.0 5.2 3.4 All other exporters Share of quantity 16.4 17.5 13.7 All reporting exporters Share of quantity 100.0 100.0 100.0 Source: Official exports statistics under HS subheading 4702.00 as reported by various national statistical authorities in the Global Trade Atlas Suite database, accessed August 28, 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 “—“. United States is shown at the top followed by the countries under investigation, all remaining top exporting countries in descending order of 2024 data. 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 39419, August 15, 2025 High Purity Dissolving Pulp From Brazil and Norway; Institution of Antidumping and Countervailing Duty Investigations and Scheduling of Preliminary Phase Investigations https://www.govinfo.gov/content/pkg/FR- 2025-08-15/pdf/2025-15518.pdf 90 FR 43168, September 8, 2025 High Purity Dissolving Pulp From Brazil and Norway: Initiation of Less- Than Fair-Value Investigations https://www.govinfo.gov/content/pkg/FR- 2025-09-08/pdf/2025-17129.pdf 90 FR 43174, September 8, 2025 High Purity Dissolving Pulp From Brazil: Initiation of Countervailing Duty Investigation https://www.govinfo.gov/content/pkg/FR- 2025-09-08/pdf/2025-17224.pdf B.1 APPENDIX B LIST OF STAFF CONFERENCE WITNESSES B.3 CALENDAR OF PUBLIC PRELIMINARY CONFERENCE Those listed below appeared as witnesses at the United States International Trade Commission’s preliminary conference: Subject: High Purity Dissolving Pulp from Brazil and Norway Inv. Nos.: 701-TA-777 and 731-TA-1762-1763 (Preliminary) Date and Time: September 2, 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 (Roop K. Bhatti, Cassidy Levy Kent (USA) LLP) In Opposition to Imposition (Sydney L. Stringer, Akin Gump Strauss Hauer & Feld LLP) In Support of the Imposition of the Antidumping and Countervailing Duty Orders: Cassidy Levy Kent (USA) LLP Washington, DC on behalf of Rayonier Advanced Materials, Inc. (“Rayonier”) United Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied Industrial and Service Workers International Union, AFL-CIO (“USW”) Joshua Hicks, Senior Vice President, High Purity Cellulose, Rayonier Benjamin (Jamie) Haseltine, Senior Director, Global Product Management, Rayonier Colby Slaughter, General Counsel, Rayonier B.4 In Support of the Imposition of the and Countervailing Duty Orders (continued): Andy Matthews, Vice President, Supply Chain, Rayonier Kathryn Wallace, Legislative Representative, USW Yohai Baisburd ) Roop K. Bhatti ) ) – OF COUNSEL Chase J. Dunn ) Natalia King ) In Opposition to the Imposition of Antidumping and Countervailing Duty Orders: Akin Gump Strauss Hauer & Feld LLP Washington, DC on behalf of Eastman Chemical Company (“Eastman”) Julie McAlindon, Senior Vice President, Regions and Chief Supply Chain Officer, Eastman Henrique Britto, Global Sourcing Director, Eastman Bruno Giampietro, Managing Director, Eastman Yujin K. McNamara ) Sydney L. Stringer ) – OF COUNSEL Paul S. Bettencourt ) B.5 In Opposition of the Imposition of the and Countervailing Duty Orders (continued): Sidley Austin LLP Washington, DC on behalf of Bracell Bahia Specialty Cellulose S.A. (“BSC”) SC Marketing US Inc. (“SCUS”) Peer Dohrn, Vice President, Bracell Marketing SA Daniel Nils Trolin, Process & Technology Sr. Manager, BSC Jennifer Lutz, Partner, ION Economics, LLC Cara Groden, Senior Economic Consultant, ION Economics, LLC Rajib Pal ) Richard Weiner ) ) – OF COUNSEL Shawn M. Higgins ) Ashlande Gelin ) Foley & Lardner LLP Washington, DC on behalf of Borregaard ASA Ingo Müller, Sales Manager, Specialty Cellulose, Borregaard ASA Ove B. Bartholsen, Chief Technology Officer, Specialty Cellulose, Borregaard ASA Gregory Husisian ) – OF COUNSEL REBUTTAL/CLOSING REMARKS: In Support of Imposition (Yohai Baisburd, Cassidy Levy Kent (USA) LLP) In Opposition to Imposition (Shawn M. Higgins and Rajib Pal, Sidley Austin LLP and Gregory Husisian, Foley & Lardner LLP) C.1 APPENDIX C SUMMARY DATA Table C.1 HPDP: 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)............................ *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Importers' share (fn1): Brazil.................................................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Norway............................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Subject sources............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Nonsubject sources....................... *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** All import sources..................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** U.S. consumption value: Amount................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Producers' share (fn1)............................ *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Importers' share (fn1): Brazil.................................................. *** *** *** *** *** ▲*** ▲*** ▼*** ▲*** Norway............................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Subject sources............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Nonsubject sources....................... *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** All import sources..................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** U.S. importers' U.S. shipments of imports from: Brazil: Quantity.............................................. *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Value.................................................. *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Unit value........................................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Ending inventory quantity.................... *** *** *** *** *** ▼*** ▼*** ▲*** ▲*** Norway: 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.................... *** *** *** *** *** ▼*** ▼*** ▲*** ▲*** U.S. producers': Practical capacity quantity....................... *** *** *** *** *** ▼*** ▲*** ▼*** ▼*** Production quantity................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Capacity utilization (fn1).......................... *** *** *** *** *** ▼*** ▼*** ▲*** ▼*** U.S. shipments: Quantity.............................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Value.................................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Unit value........................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Export shipments: Quantity.............................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Value.................................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Unit value........................................... *** *** *** *** *** ▲*** ▲*** ▼*** ▲*** Table continued. C.3 Quantity=ADST; Value=1,000 dollars; Unit values, unit labor costs, and unit expenses=dollars per ADST; Period changes=percent--exceptions noted; Interim period is January through June Reported data Period change comparisons Calendar year Interim Calendar year Table C.1 Continued HPDP: 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': Continued. Ending inventory quantity........................ *** *** *** *** *** ▼*** ▼*** ▲*** ▼*** Inventories/total shipments (fn1)............. *** *** *** *** *** ▼*** ▼*** ▲*** ▼*** Production workers................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Hours worked (1,000s)............................ *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Wages paid ($1,000).............................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Hourly wages (dollars per hour).............. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Productivity (ADST per 1,000 hours)....... *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** Unit labor costs....................................... *** *** *** *** *** ▼*** ▲*** ▼*** ▲*** Net sales (fn2): Quantity.............................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Value.................................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Unit value........................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Cost of goods sold (COGS).................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Gross profit or (loss) (fn3)....................... *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** SG&A expenses..................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Operating income or (loss) (fn3)............. *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** Net income or (loss) (fn3)....................... *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** Unit COGS.............................................. *** *** *** *** *** ▼*** ▲*** ▼*** ▲*** Unit SG&A expenses.............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Unit operating income or (loss) (fn3)....... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Unit net income or (loss) (fn3)................. *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** COGS/sales (fn1)................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Operating income or (loss)/sales (fn1).... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Net income or (loss)/sales (fn1).............. *** *** *** *** *** ▲*** ▼*** ▲*** ▼*** Capital expenditures............................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Research and development expenses.... *** *** *** *** *** *** *** *** *** Total assets............................................ *** *** *** *** *** ▼*** ▼*** ▼*** *** Source: Compiled from data submitted in response to Commission questionnaires. 508-compliant tables for these data are contained in parts 3, 4, 6, and 7 of this report. fn1.--Reported data are in percent and period changes are in percentage points. fn2.--Financial results presented above are only for the petitioner, Rayonier. Financial data received by Georgia-Pacific included both in-scope and out-of-scope dissolving pulp and are presented separately in Appendix G of this report. fn3.--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. 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. C.4 Quantity=ADST; Value=1,000 dollars; Unit values, unit labor costs, and unit expenses=dollars per ADST; Period changes=percent--exceptions noted; Interim period is January through June Reported data Period change comparisons Calendar year Interim Calendar year D.1 APPENDIX D RESPONSES COMPARING SULFATE AND SULFITE HPDP D.3 Table D.1 HPDP: Count of firms' responses regarding the comparability of in-scope sulfate HPDP to in-scope sulfite HPDP, by domestic like product factor and firm type Count in number of firms reporting . Firm type Fully Mostly Somewhat Never Physical characteristics U.S. producers *** *** *** *** Interchangeability U.S. producers *** *** *** *** Channels U.S. producers *** *** *** *** Manufacturing U.S. producers *** *** *** *** Perceptions U.S. producers *** *** *** *** Price U.S. producers *** *** *** *** Physical characteristics Importers 1 3 2 1 Interchangeability Importers 2 0 4 1 Channels Importers 1 2 2 1 Manufacturing Importers 3 0 1 0 Perceptions Importers 2 1 2 1 Price Importers 2 0 3 2 Source: Compiled from data submitted in response to Commission questionnaires. D.4 Table D.2 HPDP: U.S. producers' narratives comparing sulfate HPDP to sulfite HPDP, by domestic like product factor and firm Factor Producer name and narrative response on comparability Physical characteristics *** Physical characteristics *** Interchangeability *** Interchangeability *** Channels *** Manufacturing *** Perceptions *** Price *** Price *** Source: Compiled from data submitted in response to Commission questionnaires. D.5 Table D.3 HPDP: U.S. importers' narratives comparing sulfate HPDP to sulfite HPDP, by domestic like product factor and firm Factor Importer name and narrative response on comparability Physical characteristics *** Physical characteristics *** Physical characteristics *** Physical characteristics *** Physical characteristics *** Physical characteristics *** Physical characteristics *** Interchangeability *** Interchangeability *** Interchangeability *** Interchangeability *** Interchangeability *** Interchangeability *** Interchangeability *** Manufacturing *** D.6 Factor Importer name and narrative response on comparability Manufacturing *** Manufacturing *** Manufacturing *** Manufacturing *** Manufacturing *** Channels *** Channels *** Channels *** Channels *** Channels *** Channels *** Perceptions *** Perceptions *** Perceptions *** Perceptions *** Perceptions *** Perceptions *** Price *** D.7 Factor Importer name and narrative response on comparability Price *** Price *** Price *** Price *** Price *** Price *** Source: Compiled from data submitted in response to Commission questionnaires. E.1 APPENDIX E INFORMATION ON SHIPMENTS BY PRODUCTION METHOD E.3 Table E.1 HPDP: U.S. producers' U.S. shipments, by production method and period Quantity in ADST; Value in 1,000 dollars; Unit values in dollars per ADST; Shares in percent; Interim period is January through June Production method Measure 2022 2023 2024 Interim 2024 Interim 2025 Sulfate Quantity *** *** *** *** *** Sulfite Quantity *** *** *** *** *** All production methods Quantity *** *** *** *** *** Sulfate Value *** *** *** *** *** Sulfite Value *** *** *** *** *** All production methods Value *** *** *** *** *** Sulfate Unit value *** *** *** *** *** Sulfite Unit value *** *** *** *** *** All production methods Unit value *** *** *** *** *** Sulfate Share of quantity *** *** *** *** *** Sulfite Share of quantity *** *** *** *** *** All production methods Share of quantity 100.0 100.0 100.0 100.0 100.0 Sulfate Share of value *** *** *** *** *** Sulfite Share of value *** *** *** *** *** All production methods Share of value 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. E.4 Table E.2 HPDP: U.S. importers' U.S shipments of imports from Brazil, by production method and period Quantity in ADST; Value in 1,000 dollars; Unit values in dollars per ADST; Shares in percent; Interim period is January through June Production method Measure 2022 2023 2024 Interim 2024 Interim 2025 Sulfate Quantity *** *** *** *** *** Sulfite Quantity *** *** *** *** *** All production methods Quantity *** *** *** *** *** Sulfate Value *** *** *** *** *** Sulfite Value *** *** *** *** *** All production methods Value *** *** *** *** *** Sulfate Unit value *** *** *** *** *** Sulfite Unit value *** *** *** *** *** All production methods Unit value *** *** *** *** *** Sulfate Share of quantity 100.0 100.0 100.0 100.0 100.0 Sulfite Share of quantity — — — — — All production methods Share of quantity 100.0 100.0 100.0 100.0 100.0 Sulfate Share of value 100.0 100.0 100.0 100.0 100.0 Sulfite Share of value — — — — — All production methods 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 “—“. According to conference testimony, all in-scope imports from Brazil are sulfate HPDP, as such all U.S. importers' questionnaire data have been placed in that category. E.5 Table E.3 HPDP: U.S. importers' U.S shipments of imports from Norway, by production method and period Quantity in ADST; Value in 1,000 dollars; Unit values in dollars per ADST; Shares in percent; Interim period is January through June Production method Measure 2022 2023 2024 Interim 2024 Interim 2025 Sulfate Quantity *** *** *** *** *** Sulfite Quantity *** *** *** *** *** All production methods Quantity *** *** *** *** *** Sulfate Value *** *** *** *** *** Sulfite Value *** *** *** *** *** All production methods Value *** *** *** *** *** Sulfate Unit value *** *** *** *** *** Sulfite Unit value *** *** *** *** *** All production methods Unit value *** *** *** *** *** Sulfate Share of quantity — — — — — Sulfite Share of quantity 100.0 100.0 100.0 100.0 100.0 All production methods Share of quantity 100.0 100.0 100.0 100.0 100.0 Sulfate Share of value — — — — — Sulfite Share of value 100.0 100.0 100.0 100.0 100.0 All production methods 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 “—“. According to conference testimony, all in-scope imports from Norway are sulfite HPDP, as such all U.S. importers' questionnaire data have been placed in that category. F.1 APPENDIX F PRICE DATA BASED ON METHOD OF MANUFACTURE AND CELLULOSE SOURCE F.3 As noted in Part 1, HPDP is produced using two different production methods and can be produced using hardwood or softwood as a cellulose source. Respondent Borregard contends that “the choices of raw materials – particularly the difference between softwood and hardwood – and production methods, such as the sulfite and kraft processes, have a critical impact on the physical form of the final product, what type of market segment it can serve, and its pricing.”1 Petitioner Rayonier submitted HPDP pricing data broken down via the method of manufacture. It reported that the *** method is used for processing *** cellulose sources and the *** method is used for processing *** cellulose sources.2 Producer Georgia-Pacific used the *** method for processing *** cellulose sources.3 Brazil only uses the sulfate method and hardwood inputs, while Norway only uses the sulfite method and softwood inputs.4 These price items and accompanying data are comparable to those presented in tables F.1 (sulfate) and F.2 (sulfite), as well as corresponding figures F.1 and F.2. In comparing pricing data for product 1 produced using the sulfate method, prices for product imported from Brazil were lower than prices for U.S.-produced product in all 14 instances (table F.3). In comparing direct import cost data for product 1 imported from Brazil produced using the sulfate method with the corresponding U.S. prices, import costs for product imported from Brazil were lower than U.S. prices in all 14 instances as well (table F.4). In comparing direct import cost data for product 1 imported from Norway produced using the sulfite method with the corresponding U.S. prices, import costs for product imported from Norway were higher than U.S. prices in eight instances and lower in five instances, although the volume of imported product from Norway was highest in the quarter when Norwegian LDP import costs were lower than domestic prices (table F.4). Domestic prices for product 1 produced using the sulfite method were higher than those produced using the sulfate method in every quarter. On average, for domestic producers, sulfite-produced product 1 prices were *** percent higher than sulfate-produced product 1 prices. The difference between prices for domestic product 1 based on using hardwood vs. softwood as a cellulose source was somewhat closer, averaging *** percent higher softwood prices over the period, but averaging *** percent in 2022 and 2023 when Georgia-Pacific was still producing HPDP (table F.5). While domestic hardwood product 1 was still always priced higher than imported Brazilian hardwood, whether sold or imported directly, domestic 1 Respondent Borregaard’s postconference brief, p. 9. 2 Email from ***, September 8, 2025. 3 Georgia-Pacific’s producer questionnaire response, question II-10 and email from ***, September 11, 2025 4 Conference transcript, p. 98 (Müller). F.4 softwood product 1 was priced below the LDP cost of softwood product 1 imported from Norway in 10 of 13 quarters. F.5 Table F.1 Sulfate method produced HPDP: Weighted-average f.o.b. prices and quantities of domestic and imported Brazilian product 1 and margins of underselling/(overselling), and import cost of imported Brazilian product 1 and price-cost differentials, by source and quarter Price in dollars per air dried short ton (“ADST”), quantity in ADST, margin and price-cost differential in percent. Period U.S. sulfate price U.S. sulfate quantity Brazil sulfate price Brazil sulfate quantity Brazil sulfate 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 *** *** *** *** *** 2025 Q2 *** *** *** *** *** Table continued. Period Brazil sulfate LDP unit cost Brazil sulfate direct import quantity Brazil sulfate price-cost differential 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 *** *** *** 2025 Q2 *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Sulfate method produced high purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. F.6 Table F.2 Sulfite method produced HPDP: Weighted-average f.o.b. prices and quantities of domestic product 1, and import cost of imported Norwegian product 1 and price-cost differentials, by source and quarter Price in dollars per short ton after drying (“ADST”), quantity in ADST, price-cost differential in percent. Period U.S. sulfite price U.S. sulfite quantity Norway sulfite LDP unit cost Norway sulfite direct import quantity Norway sulfite price-cost differential 2022 Q1 *** *** *** *** *** 2022 Q2 *** *** *** *** *** 2022 Q3 *** *** *** *** *** 2022 Q4 *** *** *** *** *** 2023 Q1 *** *** *** *** *** 2023 Q2 *** *** — 0 — 2023 Q3 *** *** *** *** *** 2023 Q4 *** *** *** *** *** 2024 Q1 *** *** *** *** *** 2024 Q2 *** *** *** *** *** 2024 Q3 *** *** *** *** *** 2024 Q4 *** *** *** *** *** 2025 Q1 *** *** *** *** *** 2025 Q2 *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Sulfite method produced high purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. F.7 Figure F.1 Sulfate method produced HPDP: Weighted-average prices of domestic and imported product 1, import cost of product 1 imported from Brazil, and quantities of each produced using the sulfate method, by quarter Price of sulfate product 1 * * * * * * * Volume of sulfate product 1 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Sulfate method produced high purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. F.8 Figure F.2 Sulfite method produced HPDP: Weighted-average prices of domestic product 1, import cost of product 1 imported from Norway, and quantities of each produced using the sulfite method, by quarter Price of sulfite product 1 * * * * * * * Volume of sulfite product 1 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Sulfite method produced high purity dissolving pulp with a minimum alpha cellulose percentage of 95 percent by weight or higher on an oven dry basis, and a minimum brightness level of 91.0 percent. F.9 Table F.3 Sulfate method produced HPDP: Instances of underselling and overselling and the range and average of margins, Quantity in ADST; margin in percent Year Type Number of quarters Quantity Average margin Min margin Max margin 2022 Underselling 4 *** *** *** *** 2023 Underselling 4 *** *** *** *** 2024 Underselling 4 *** *** *** *** 2025 Underselling 2 *** *** *** *** Total, all years Underselling 14 *** *** *** *** Total, all years Overselling 0 — — — — 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 F.4 HPDP: Instances of lower and higher import purchase costs and the range and average of price-cost differentials, by production method and source Quantity in ADST; price-cost differential in percent Source Type Number of quarters Quantity Average price-cost differential Min price- cost differential Max price- cost differential Brazil Lower than U.S. sulfate price 14 *** *** *** *** Brazil Higher than U.S. sulfate price 0 — — — — Norway Lower than U.S. sulfite price 5 *** *** *** *** Norway Higher than U.S. sulfite price 8 *** *** *** *** 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. F.10 Table F.5 HPDP: Weighted-average f.o.b. prices and quantities of hardwood and softwood domestic product 1, by quarter Price in dollars per short ton after drying (“ADST”), quantity in ADST. Period U.S. hardwood price U.S. hardwood quantity U.S. softwood price U.S. softwood quantity 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 *** *** *** *** 2025 Q2 *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Figure F.3 HPDP: Weighted-average f.o.b. prices, import costs, and quantities of hardwood and softwood domestic product 1, by quarter * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: U.S. prices presented in table F.5, Brazilian prices and LDP costs presented in table F.1, and Norwegian softwood LDP costs presented in table F.2. APPENDIX G FINANCIAL EXPERIENCE OF U.S. PRODUCER GEORGIA-PACIFIC G.1 G.3 U.S. producer Georgia-Pacific provided financial results on their pulp operations which include both in-scope and out-of-scope merchandise. Georgia-Pacific reported financial data on a calendar year and on the basis of GAAP. Georgia-Pacific is a ***.1 Georgia-Pacific’s net sales were ***.2 Table G.1 presents aggregated financial data concerning Georgia-Pacific’s operations with respect to dissolving pulp. 1 Georgia-Pacific ***. Georgia-Pacific’s ***. Since Georgia-Pacific’s ***. Georgia-Pacific’s U.S. producer questionnaire response, section III-9c. Follow-up response from Georgia-Pacific, September 4, 2024, p. 1. 2 The company indicated that ***. Georgia-Pacific’s U.S. producer questionnaire response, section II- 13. G.4 Table G.1 In-scope and out-of-scope dissolving pulp: U.S. producer Georgia-Pacific’s results of operations, by item and period Quantity in ADST; value in $1,000; ratios in percent; interim is January through June 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 *** *** *** *** *** Interest expense Value *** *** *** *** *** Net income or (loss) Value *** *** *** *** *** Depreciation/amortization Value *** *** *** *** *** Cash flow Value *** *** *** *** *** Capital expenditures Value *** *** *** *** *** R&D expenses Value *** *** *** *** *** Total assets 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. G.5 Table G.1 In-scope and out-of-scope dissolving pulp: U.S. producer Georgia-Pacific’s results of operations, by item and period Shares in percent; unit values in dollars per ADST; interim is January through June 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 *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares represent the share of COGS. 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 “—”.
Investigation 701-TA-3844 is a U.S. International Trade Commission antidumping (AD) proceeding on High Purity Dissolving Pulp from Brazil and Norway; Inv. Nos. 701-TA-777 and 731-TA-1762-1763 (Preliminary) from Norway, Brazil. 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-3844 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-3844 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