Trade Cases

Leibowitz: Too Many Chefs in the S232 Exclusion Process
Written by Lewis Leibowitz
October 30, 2022
People who purchase imported steel don’t like Section 232 tariffs. And domestic steel producers don’t like exclusions to the 25% duties.
Recent cases have highlighted a legal problem that mirrors commercial reality. If a domestic steel producer benefits from protective tariffs, does it have a right to participate in litigation against importers challenging the denial of an exclusion from those tariffs?
In the last couple of years, the Court of International Trade has decided several cases, It has held that domestic producers do not have that right. Allowing domestic producers to participate would largely duplicate the federal government’s role in defending its decisions in court. The time and money required to reach decisions would multiply if more parties were allowed to participate.
And if domestic opponents of steel exclusions could participate in these court cases, why could they not participate in litigation challenging the steel and aluminum tariffs in the first place—or in any tax or customs decisions that affected tax liability for any taxpayer? The accompanying complexities would delay proceedings. The public interest in achieving quick and clear results would suffer.
The importance of these issues should not be underestimated. We live in an age of litigation. More people sue each other than ever before. While courts pay lip service to rapid and efficient resolution of disputes, the complexity of the disputes makes rapid resolution impossible. And the more parties participate, the longer it takes to resolve the issues. Courts, Congress and state legislatures must choose between speed and efficiency on the one hand and more complete consideration of issues on the other.
The issue of intervention in litigation involving government decisions is one part of this endless balancing. Courts allow intervention when the party seeking to intervene shows that it has an interest in the dispute that is not adequately represented by the existing parties. If a statute permits intervention as a matter of right, there is no need to examine the issue further. But the issue is more complex if a statute does not guarantee the right to intervene (e.g., Section 232).
Why is intervention an important issue? The government has gained important new powers from the steel tariffs and the accompanying exclusion procedures. Nearly 500,000 exclusion requests have been submitted. Many are granted. The companies that obtain exclusions save 25% on their imports, so they clearly benefit. However, companies opposing exclusions have a difficult time establishing that they are actually injured by the exclusion. After all, exclusions are only granted if comparable domestic material is not “reasonably available.”
If the exclusion is denied, the plaintiff in ensuing litigation will be the company that requested the exclusion. Other companies participating in the case will want to defend the denial by the Commerce Department. Those companies are not likely to add anything to the case.
The government will defend its decision based on information in the administrative record. Private domestic companies will not be able to introduce new evidence that domestic supplies are “reasonably available” because court review will be on the administrative record, which is closed.
Sometimes, a court decision in an exclusion case will be sent back to the agency for further explanation because the original decision was not clear. During remand, the agency and the plaintiff may negotiate a settlement, resolving the case by granting refunds on some entries but not others. It is likely that intervenors would want to participate in these discussions and/or in the court’s consideration of the settlement once it is reached. Intervenors would probably frustrate efforts at settlement (or seek to do so).
Courts are generally in favor of efforts to settle cases by mutual agreement. Several cases involving exclusions have been resolved by mutual agreement. And, if they are settled, cases can be resolved without setting a precedent.
So these proposed intervenors, if their intention is to frustrate potential settlements, are “swimming upstream.” Public litigation about the reasonableness of settlements will frustrate settlement efforts.
An additional argument against intervention in exclusion denial cases is that the interest of the proposed intervenors is difficult to define precisely. If an exclusion is granted, a proposed intervenor may claim to have lost a sale. However, if the exclusion is denied, and the intervenor still did not obtain a sale, what exactly is the interest of the intervenor?
The courts have long held in many tax and tariff cases that the general interest in fewer imports in the market is insufficient. And the courts could be tied up for years if such claims were subject to litigation.
Lewis Leibowitz
The Law Office of Lewis E. Leibowitz
5335 Wisconsin Avenue, N.W., Suite 440
Washington, D.C. 20015
Phone: (202) 617-2675
Mobile: (202) 250-1551
E-mail: lewis.leibowitz@lellawoffice.com

Lewis Leibowitz
Read more from Lewis LeibowitzLatest in Trade Cases

Price on Trade: Auto tariffs, auto parts, and Hyundai – a world of rapid changes
Trump's new auto tariffs will apply to passenger vehicles (including sedans, sport utility vehicles, crossover utility vehicles, minivans, and cargo vans), light trucks, and certain automobile parts (including engines and engine parts, transmissions and powertrain parts, and electrical components).

CRU: Canacero urges Mexico-US partnership to fend off Asian steel imports
Victor Cairo, head of Mexico’s steel sector body Canacero and CEO of ArcelorMittal Mexico, says he is confident negotiations between the Mexican and US governments planned for April 2 will lead to the creation of a regional block to substitute imports, especially from Asia.
US chassis makers seek duties on imports from Mexico, Thailand, and Vietnam
Upon the request of US chassis manufacturers, the Commerce Department this week initiated investigations into the alleged dumping and subsidization of chassis imported from Mexico, Thailand, and Vietnam.

European Commission eyes stricter limit on tariff-free steel imports
The European Commmission is reducing the amount of tariff-free foreign steel that can enter the EU.

Trump says exceptions could exist on reciprocal tariffs
President Trump said on Monday there may be exceptions for some countries on reciprocal tariffs.