Stanley Works (Langfang) Fastening Systems Co. v. United States (964 F. Supp. 2d 1311, 2013)

OPINION

RIDGWAY, Judge:

In this consolidated action, foreign exporters of steel nails The Stanley Works (Langfang) Fastening Systems Co., Ltd. and The Stanley Works/Stanley Fastening Systems, LP (collectively “Stanley”) and domestic producer of steel nails Mid Continent Nail Corporation (“Mid Continent”) contest the final results, as amended, of the U.S. Department of Commerce’s first administrative review of the antidumping duty order covering steel nails from the People’s Republic of China (“PRC”). See Certain Steel Nails from the People’s Republic of China: Final Results of the First Antidumping Duty Administrative Review, 76 Fed.Reg. 16,379 . (March 23, 2011) (“Final Results”); Certain Steel Nails from the People’s Republic of China: Amended Final Results of the First Antidumping Duty Administrative Review, 76 Fed.Reg. 23,279 (April 26, 2011) (“Amended Final Results”).

Pending before the court are three separate motions: Mid Continent’s Motion for Judgment on the Agency Record, Stanley’s Motion for Judgment on the Agency Record, and Defendant United States’ Motion for Partial Voluntary Remand.

Mid Continent contests four aspects of Commerce’s Final Results specifically, Commerce’s decision not to use the intermediate input methodology when calculating Stanley’s normal value, Commerce’s decision not to apply adverse facts available to missing factors of production data, Commerce’s selection of sources for surrogate financial ratios, and Commerce’s selection of data for surrogate electricity values. See generally Amended Memorandum in Support of Mid Continent Nail Corporation’s Rule 56.2 Amended Motion for Judgment on the Agency Record (“Mid Continent Brief’); Reply Brief of Mid Continent Nail Corporation (“Mid Continent Reply Brief’). Stanley and the Government oppose Mid Continent’s motion. See generally Memorandum of Plaintiffs The Stanley Works (Langfang) Fastening Systems Co., Ltd. and The Stanley Works/Stanley Fastening Systems, LP in Opposition to Mid Continent’s Rule 56.2 Motion for Judgment Upon the Administrative Record (“Stanley Response Brief’); Defendant’s Memorandum in Opposition to Plaintiffs’ Rule 56.2 Motions for Judgment Upon the Agency Record (“Def.’s Brief’).

Stanley, in turn, challenges Commerce’s refusal to correct what Stanley maintains is a “ministerial error” relating to the calculation of normal value for Stanley’s nails. See generally Memorandum of Plaintiffs The Stanley Works (Langfang) Fastening Systems Co., Ltd. and The Stanley Works/Stanley Fastening Systems LP in Support of Their Rule 56.2 Motion for Judgment Upon the Agency Record (“Stanley Brief’); Plaintiffs’ Memorandum in Reply to Defendant’s and Defendant Intervenor’s Opposition to Plaintiffs’ Motion for Judgment on the Agency Record (“Stanley Reply Brief’).. Mid Continent and the Government oppose Stanley’s motion. See generally Response Brief of Mid Continent Nail Corporation (“Mid Continent Response Brief’); Def.’s Brief.

The Government maintains that the Final Results should be sustained in all respects, save one. See Def.’s Brief; Defendant’s Motion for Partial Voluntary Remand (“Def.’s Remand Motion”). Specifically, the Government requests a partial voluntary remand to permit Commerce to reconsider the selection of financial statements used for Stanley’s surrogate financial ratios in the Final Results. See generally Def.’s Remand Motion. Mid Continent supports the Government’s motion; Stanley opposes it. See generally Response of Mid Continent Nail Corporation to Defendant United States’ Motion for Partial Voluntary Remand (“Mid Continent Response to Def.’s Remand Motion”); Plaintiffs’ Opposition to Defendant’s Motion for Partial Voluntary Remand (“Stanley Response to Def.’s Remand Motion”).

Jurisdiction lies under 28 U.S.C. § 1581(c) (2006). For the reasons set forth below, Stanley’s Motion for Judgment on the Agency Record must be denied, and Mid Continent’s Motion for Judgment on the Agency Record must be granted in part and denied in part. In addition, the Government’s Motion for Partial Voluntary Remand must be granted.

I. Background

In September 2009, Commerce initiated its first administrative review of the anti-dumping duty order on certain steel nails from the People’s Republic of China (“PRC”), covering the period of review January 23, 2008 to July 31, 2009. See Initiation of Antidumping and Countervailing Duty Administrative Reviews and Request for Revocation in Part, 74 Fed.Reg. 48,224 (Sept. 22, 2009). Pursuant to its standard practice, Commerce issued questionnaires to the selected respondents, including Stanley, requesting information from Stanley, among others, about the factors of production consumed in the production of one kilogram of the subject merchandise ie., finished nails that may be collated (strung together) into strips or coils using materials such as plastic, paper, or wire, to form strips or coils that can be loaded into a nail gun. See Response of Stanley to the Commerce Department’s Antidumping Duty Questionnaire, Response to Section C (Pub.Doc. No. 159) (“Stanley’s Response to Section C Questionnaire”); ' Response of Stanley to the Commerce Department’s Antidumping Duty Questionnaire, Response to Section D (Pub.Doc. No. 160) (“Stanley’s Response to Section D Questionnaire”). Stanley reported that all of its nails were collated, the style of collation used in each sale, and the collating material for each style. See Stanley’s Response to Section C Questionnaire. Stanley then reported the quantities of each factor of production used in producing one kilogram. of nails. Id.

The primary factor of production for nails is wire rod. See generally Surrogate Values for the Preliminary Results (Pub. Doc. No. 287) (“Surrogate Valuation Memorandum for the Preliminary Results”). To make nails, wire rod is drawn so that it becomes wire. Id. Nail manufacturers either draw the wire rod into wire in their own facilities or contract with companies (“tollers”) who draw wire rod into wire as needed. Id. In this case, Stanley explained that, as an integrated, producer, it contracts with wire drawers to draw a portion of its wire rod into, wire rather than itself drawing all of the wire rod that it requires. See Stanley’s Response to Section D Questionnaire. In addition, Stanley stated that, although it was able to provide data for the “substantial majority” of its subcontractors, it was unable to obtain information from certain of these wire drawers about how much wire rod they consumed to produce the amount of wire supplied to Stanley. See Stanley’s Response to Section D Questionnaire; Issues & Decision Memorandum at 33 n. 90 (comment 17).

Commerce also requested that Stanley report how much wire it used to produce its nails. See Supplemental Questionnaire for Section D (Pub.Doc. No. 233). Wire, in contrast to wire rod, is not a factor of production, but, rather, an “intermediate input.” See generally Surrogate Valuation Memorandum for the Preliminary Results. Stanley provided complete data for its wire consumption. See Part 2 of Supplemental Section D Questionnaire Response of Stanley (Pub.Doc. No. 253).

Commerce subsequently published its Preliminary Results. See generally Certain Steel Nails From the People’s Republic of China: Notice of Preliminary Results and Preliminary Rescission, in Part, of the Antidumping Duty Administrative Review, 75 Fed.Reg. 56,070 (Sept. 15, 2010) (“Preliminary Results”). In the Preliminary Results, Commerce calculated a preliminary dumping margin for Stanley at 6.48% using “facts otherwise available” (or “neutral facts”) to fill the gaps in Stanley’s wire rod data. See Preliminary Results, 75 Fed.Reg. at 56,077.

In addition to wire rod, the Preliminary Results also analyzed Stanley’s other factors of production. Electricity, for example, plays a major role in the production of nails. See Surrogate Valuation Memorandum for the Preliminary Results at 11.- As a surrogate value for electricity in calculating the Preliminary Results, Commerce used historical data published by India’s Central Electricity - Authority in March 2008. See Surrogate Valuation Memorandum for the Preliminary Results at 11; Issues & Decision Memorandum at 15 (comment 5). Those data reflected “tax-exclusive electricity rates charged to small, medium, and large industries in India.” See Surrogate Valuation Memorandum for the Preliminary Results at 11.

Further, because valuing product-specific factors of production does not capture certain overall “general expenses and profits,” Commerce must separately reflect in the agency’s calculation of normal value (1) factory overhead, (2) selling, general, and administrative expenses (“SG & A”), and (3) profit. . 19 U.S.C. § 1677b(c)(l). As with other factors of production, Commerce uses surrogate values to determine a respondent’s financial ratios, relying on the financial statements of one or more producers of identical or comparable merchandise, which serve as surrogates for this purpose. See generally Ad Hoc Shrimp Trade Action Comm. v. United States, 618 F.3d 1316, 1319-20 (Fed.Cir.2010) (providing overview of use of financial statements to determine surrogate financial ratios).- In the Preliminary Results here, Commerce relied on the financial, statement of a.large, multinational Indian producer of fasteners, Lakshmi Precision Screws Ltd. (“Lakshmi”). See Surrogate Value Memorandum for the Preliminary Results. ■ According to Commerce,. Lakshmi produced- “comparable” merchandise, and its financial statement provided the best available information due/to the company’s use of “an integrated wire-drawing production process with steel wire rod as the main input, which closely mirrors [the process] of the respondents.” See Surrogate Valuation Memorandum for the Preliminary Results at 15-16.

Between mid-November and mid-December 2010, Commerce conducted a “successful]” verification of Stanley’s factors of production and U.S. sales questionnaire responses, as well as the factors of production data from one of Stanley’s unaffiliated wiredrawing subcontractors. See Final Results, 76 Fed.Reg. at 16,380; Issues & Decision Memorandum at 36 (comment 18). At verification, Stanley provided Commerce with further information and explanation regarding Stanley’s missing factors of production data. See generally Verification Report for Stanley (Pub.Doc. No. 352). •'

Following.issuanee of the Preliminary Results and completion of verification, Commerce solicited and received administrative case briefs and rebuttal briefs from Mid Continent, Stanley, and other interested parties. Final Results, 76 Fed. Reg. at 16,380: In its administrative case brief, Mid Continent challenged Commerce’s determination to use “facts otherwise available” (¿a, neutral facts) to substitute for Stanley’s missing wire rod data. Mid Continent Case Brief (Pub.Doc.. No. 367) at 15. Mid Continent argued- that Commerce instead should use the agency’s “intermediate input methodology” or apply “adverse facts available.” See generally Mid Continent Case Brief. Under Commerce’s intermediate input methodology, Commerce directly calculates the value of an intermediate input (such as wire) rather than valuing and then adding up all the separate individual factors of production that go into the production of that intermediate input (such as wire rod and wire-drawing services). See, e.g., Zhengzhou Harmoni Spice Co. v. United States, 33 CIT 453, 458-66, 617 F.Supp.2d 1281, 1289-95 (2009). “Adverse facts available” (or “adverse inferences”) are substitutes for missing information that are adverse to the interests of a party that has refused to cooperate with Commerce’s information requests. See, e.g., Gallant Ocean (Thailand) Co. v. United States, 602 F.3d 1319, 1321 (Fed.Cir.2010).

Also discussed in Mid Continent’s administrative case brief was electricity. Mid Continent contended that the use of the March 2008 report by the Central Electricity Authority did not reflect the most' contemporaneous information, and did not represent the best available information. See Mid Continent Case Brief at 53-54. According to Mid Continent, Commerce should have used data released in late March 2009 (which Mid Continent had placed on the record prior to filing its case brief), reflecting “updated electricity pricing in effect for a significant portion of the [period of review]” and “updated energy pricing” for certain Indian consumers. Mid Continent Case Brief at 53.

In addition, Mid Continent’s administrative case brief challenged Commerce’s reliance on Lakshmi’s financial statement for use in calculating the financial ratios, and submitted certain financial data for Sun-dram Fasteners Ltd. (“Sundram”). See Mid Continent Case Brief at 6, 41-46; Mid Continent Surrogate Value Submission (Pub.Doc. No. 301) (exhibit including 2009 and 2010 Limited Annual Reports for Sun-dram). Mid Continent urged Commerce to use Sundram’s data for purposes of the Final Results, emphasizing that like Lakshmi Sundram was a multi-national producer of fasteners, with a financial and production scale comparable to that of Stanley. See Mid Continent Case Brief; Mid Continent Surrogate Value Submission.

The Chinese respondents submitted other financial statements as possible sources for surrogate financial ratios, including statements from several significantly smaller Indian companies, including J & K Wire & Steel Industries (Pvt.) Ltd. (“J & K”), Bansidhar Granites Private Limited (“Bansidhar”), and Nasco Steels Private Ltd. (“Nasco”). See GDLSK Section A Client’s Second Surrogate Value Submission at Exhs. 1-3 (Pub.Doc. No. 299) (financial statements of Bansidhar, J & K, and Lakshmi); Stanley Resubmission of Comments (Pub.Doc. No. 330) (financial statements for Nasco). In its administrative case brief and its rebuttal brief filed with the agency, Mid Continent argued that use of the financial statements of J & K, Bansidhar, and Nasco would be inappropriate. See generally Mid Continent Rebuttal Brief (Pub.Doc. No. 370). According to Mid Continent, unlike the companies whose financial statements Mid Continent placed on the record, the production and financial experience of J & K, Bansidhar, and Nasco bore no similarity to that of Stanley. See id. at 22-37.

In the administrative case brief that Stanley filed with Commerce, Stanley challenged a number of issues, including Commerce’s decision to use zeroing to calculate Stanley’s dumping margin in the administrative review (an issue that Stanley initially pursued in this litigation, but has since dismissed). See Stanley Case Brief (Pub.Doc. No. 365) at 14-19. However, Stanley’s administrative case brief said nothing about Commerce’s calculations regarding the weight basis for nails used in calculating normal value. See Stanley Case Brief.

After considering the evidence and arguments on the record, Commerce issued the Final Results of the administrative review. See generally Final Results, 76 Fed.Reg. 16,379. In the Final Results, Commerce declined to use the intermediate input methodology in calculating Stanley’s normal value, and explained that it used facts otherwise available (ie., neutral facts) rather than adverse facts available to fill the gaps in Stanley’s data on wiredrawing factors of production. See Issues & Decision Memorandum at 32-36 (comments 17-18). The Final Results found that the use of adverse facts available was not warranted, because Stanley was forthcoming about the deficiencies in its factors of production data and because Commerce had not requested that Stanley make additional attempts to obtain the missing data or demonstrate that it had made such attempts. Commerce therefore did not conclude that Stanley had failed to cooperate by not acting to the best of its ability to comply with an agency request for information. See Issues & Decision Memorandum at 34 (comment 17).

As a surrogate value for electricity, the Final Results continued to use the data from India’s Central Electricity Authority published in March 2008. Issues & Decision Memorandum at 15 (comment 5). Commerce explained that the rates in that publication reflected the rates in effect for more of the period of review than the rates contained in the March 2009 data that Mid Continent had placed on the record, and thus were more “contemporaneous.” Id.

Commerce also reviewed all five financial statements on the record and modified its financial ratio calculations, relying on the financial statements of Bansidhar, J & K, and Nasco. Issues & Decision Memorandum at 11-13 (comment 3). Commerce explained that each of the three companies is an integrated producer of nails, produces nails from steel wire rod, and has invested in the capital equipment necessary to produce nails from steel wire rod. Id. Commerce decided not to rely on Lakshmi’s financial statement, because the agency had discovered evidence of a countervailable subsidy on the company’s financial statements. Id. Commerce also declined to use Sundram’s financial statements, explaining that Sundram is not an integrated producer of nails and does not consume steel wire rod in its production of nails. Issues & Decision Memorandum at 11 (comment 3).

Following issuance of the Final Results, Stanley submitted ministerial error allegations. See Stanley’s Request for Correction of Significant Ministerial Errors (Pub.Doc. No. 387). Stanley alleged that the Final Results contained two ministerial errors. Id. Stanley first alleged that Commerce had inadvertently calculated depreciation using a “total” rather than an “annual” figure. Id. at 2-4. Commerce corrected that error, and adjusted Stanley’s margin accordingly. In' addition, Stanley alleged a ministerial error concerning the weight basis for nails used in calculating normal value. Id. at 5-9. Commerce disagreed with Stanley’s second point, explaining that its calculation was intentional, and that there was no ministerial error. See Ministerial Error Memorandum (Pub.Doc. No. 393) at 3-4. Commerce further noted that the weight basis used in the Final Results was the same as the weight basis used' in the Preliminary Calculation Memorandum for Stanley. Id.; see also, Preliminary Calculation Memorandum for Stanley (Pub.Doc. No. 290) (“Preliminary Calculation Memorandum”). Commerce's Amended Final Results therefore reflected an adjustment to Stanley’s margin only for the company’s first allegation of ministerial error. See Amended Final Results, 76 Fed.Reg. at 23,280. The Amended Final Results adjusted Stanley’s margin from 13.9% to 10.63%. Id.

This action ensued.

After briefing was complete on the merits of Mid Continent’s challenge to the Final Results’ reliance on the financial statements of Bansidhar, Nasco, and J & K, Commerce in the second administrative review of the same antidumping duty order at issue here refined its practice for determining whether á company is a producer of “comparable” or “identical” merchandise for purposes of analyzing potential surrogates for financial ratios. See Issues and Decision Memorandum for Certain Steel Nails from the People’s Republic of China: Final Results of the Second Antidumping Duty Administrative Review, 2012 WL 699520 at Comment 2 (Feb. 23, 2012) (“Decision Memorandum for Second Nails Review”). Thereafter, the Government requested a voluntary remand to allow Commerce to reevaluate its determination concerning surrogate financial ratios in this administrative review. See Def.’s Remand Motion at 2-3.

II. Standard of Review

In an action reviewing an anti-dumping determination by Commerce, the agency’s determination must be upheld except to the extent that it is found to be “unsupported by substantial evidence on the record, or otherwise not in accordance with law.” 19 U.S.C. § 1516a(b)(1)(B)(i); see also NMB Singapore Ltd. v. United States, 557 F.3d 1316, 1319 (Fed.Cir.2009). Substantial evidence is “more than a mere scintilla”; rather, it is “such relevant evidence as a reasonable mind might accept as adequate to support a conclusion.” Universal Camera Corp. v. Nat’l Labor Relations Bd., 340 U.S. 474, 477, 71 S.Ct. 456, 95 L.Ed. 456 (1951) (quoting Consol. Edison Co. v. Nat’l Labor Relations Bd., 305 U.S. 197, 229, 59 S.Ct. 206, 83 L.Ed, 126 (1938)); see also Mittal Steel Point Lisas Ltd. v. United States, 548 F.3d 1375, 1380 (Fed.Cir.2008) (same). Moreover, any evaluation of the substantiality of evidence “must take into account whatever in the record fairly detracts from its weight,” including “contradictory evidence or evidence from which conflicting inferences could be drawn.” Suramerica de Aleaciones Laminadas, C.A. v. United States, 44 F.3d 978, 985 (Fed.Cir.1994) (quoting Universal Camera Corp., 340 U.S. at 487-88, 71 S.Ct. 456); see also Mittal Steel, 548 F.3d at" 1380-81 (same). That said, the mere fact that it may be possible to draw two inconsistent conclusions from the record does not prevent Commerce’s determination from being supported by substantial evidence. Am. Silicon Techs, v. United States, 261 F.3d 1371, 1376 (Fed.Cir.2001); see also Consolo v. Federal Maritime Comm’n,- 383 U.S. 607, 620, 86 S.Ct. 1018, 16 L.Ed.2d 131 (1966).

While Commerce must explain the bases for its decisions, “its explanations do not have to be perfect.” NMB Singapore, 557 F.3d at 1319. Nevertheless, “the path of Commerce’s decision must be reasonably discernable,” to support judicial review. Id. {citing Motor Vehicle Mfrs. Ass’n v. State Farm Mut. Auto. Ins. Co., 463 U.S. 29, 43, 103 S.Ct. 2856, 77 L.Ed.2d 443 (1983)); see generally 19 U.S.C. § 1677f(i)(3)(A) (requiring Commerce to “include in a final determination ... an explanation of the basis for its determination”).

III. Analysis

Dumping occurs when goods are imported into the United States and sold at a price lower than their “normal value,” resulting in material injury (or the threat of material injury) to the U.S. industry. See Taian Ziyang Food Co. v. United States, 35 CIT -, -, 783 F.Supp.2d 1292, 1299 (2011) {citing 19 U.S.C. §§ 1673, 1677(34), 1677b(a)); see generally id., 35 CIT at-, 783 F.Supp.2d at 1299-1302. The difference between the normal value of the goods and the U.S. price is the “dumping margin.” See 19 U.S.C. § 1677(35). When normal value is compared to the U.S. price and dumping is found, antidumping duties equal to the dumping margin are imposed to offset the dumping. See 19 U.S.C. § 1673.

Normal value is typically calculated using either the price in the exporting market {ie., the price in the “home market” where the goods are produced) or the cost of production of the goods, when the exporting country is a market economy country. See generally 19 U.S.C. § 1677b. However, where as here the exporting country has a non-market economy (“NME”), there is often concern that the factors of production used to produce the goods at issue are under state control, and that home market sales may not be reliable indicators of normal value. See 19 U.S.C. § 1677(18)(A).

In cases such as this, where Commerce concludes that concerns about the sufficiency or reliability of the available data do not permit the normal value of the goods to be determined in the typical manner, Commerce “determine^ the normal value of the subject merchandise on the basis of the value of the factors of production,” including “an amount for general expenses and profit plus the cost of containers, coverings, and other expenses.” See 19 U.S.C. § 1677b(c)(l); see generally Ningbo Dafa Chem. Fiber Co. v. United States, 580 F.3d 1247, 1250-51 (Fed.Cir.2009) (briefly summarizing “factors of production” methodology). The antidumping statute requires Commerce to value factors of production “based on the best available information regarding the values of such factors” in an appropriate surrogate market economy country in this case, India. See 19 U.S.C. § 1677b(c)(l) (emphasis added); see also Shakeproof Assembly Components v. United States, 268 F.3d 1376, 1382 (Fed.Cir.2001); Ningbo, 580 F.3d at 1254 (emphasizing that statute mandates that Commerce “shall” use “best available information” in valuing factors of production).

In determining which data constitute the “best available information,” Commerce generally looks to the criteria set forth in its “Policy Bulletin 04.1,” also known as the “NME Surrogate Country Policy Bulletin.” Policy Bulletin 04.1 explains: '

In assessing data and data sources, it is [Commerce’s] stated practice to use investigation or review period-wide price averages, prices specific to the input in question, prices that are net of taxes and import duties, prices that are contemporaneous with the period of investigation or review, and publicly available data.

See Import Administration Policy Bulletin 04.1, Non-Market Economy Surrogate Country Selection Process, at “Data Considerations” (March 1, 2004).

Within this general framework, the statute “accords Commerce wide discretion in the valuation of factors of production in the application of [the statute’s] guidelines.” See Shakeproof, 268 F.3d at 1381 (internal quotation marks and citation omitted); see also Ad Hoc Shrimp Trade Action Committee v. United States, 618 F.3d 1316, 1320 (Fed.Cir.2010) (same); Nation Ford Chem. -Co. v. United States, 166 F.3d 1373, 1377 (Fed.Cir.1999) (same). Commerce is recognized as the “master of antidumping law.” See Thai Pineapple Public Co. v. United States, 187 F.3d 1362, 1365 (Fed.Cir.1999); see also Shakeproof, 268 F.3d at 1381 (acknowledging. “Commerce’s special expertise”). And “[t]he process of constructing foreign market value for a producer in a non-market economy country is difficult and necessarily imprecise.” Id.

Nevertheless, Commerce’s discretion is not boundless. In exercising its discretion, Commerce is constrained by the purpose of the antidumping statute, which is “to determine antidumping margins ‘as accurately as possible.’ ” See Shakeproof, 268 F.3d at 1382 (quoting Lasko Metal Products, Inc. v. United States, 43 F.3d 1442, 1446 (Fed.Cir.1994)). And, Commerce’s discretion notwithstanding, “a surrogate value must be as representative of the situation in the [non-market economy] country as is feasible.” See Nation Ford, 166 F.3d at 1377 (internal quotation marks and citation omitted). Thus, “[i]n determining the valuation of ... factors of production, the critical question is whether the methodology used by Commerce is based on the best available information and establishes antidumping margins as accurately as possible.” See Ningbo, 580 F.3d at 1257 (emphases added) (quoting Shakeproof, 268 F.3d at 1382) (internal quotation marks omitted).

In the present case, Stanley and Mid Continent challenge multiple aspects of Commerce’s Final Results in the first administrative review of steel nails from the PRC. As discussed in greater detail below, Commerce’s decisions not to use intermediate input methodology, not to apply adverse facts available, and not to “correct” an alleged ministerial error must be sustained. See sections III.A, III.B & III.E, infra. On the other hand, Commerce’s selection of sources for Stanley’s surrogate financial ratios and Commerce’s valuation of Stanley’s electricity must be remanded to the agency for further consideration. See sections III.C & III.D, infra.

A. Intermediate Input Methodology

Mid Continent challenges Commerce’s normal value calculation for Stanley’s nails, arguing that in light of Stanley’s missing factors of production data Commerce erred by applying its “factors of production” methodology, and instead should have used the agency’s “intermediate input” methodology. See generally Mid Continent Brief at 7-11; Mid Continent Reply Brief at 1-4. Mid Continent contends that this case fits comfortably within both of the two exceptions to Commerce’s standard factors of production methodology. See Mid Continent Brief at 8-11; Mid Continent Reply Brief at 2-4. However, for the reasons described below, Mid Continent’s arguments must be rejected.

In NME antidumping proceedings, Commerce typically “determined the normal value of the subject merchandise on the basis of the value of the factors of production ... based on the best available information regarding the values of such factors in a market economy country.” 19 U.S.C. § 1677b(c)(l) (emphasis added). However, in some situations, Commerce resorts to an alternative approach for determining normal value the so-called intermediate input methodology. See generally Zhengzhou Harmoni Spice Co. v. United States, 33 CIT 453, 458-466, 617 F.Supp.2d 1281, 1289-95 (2009) (recognizing Commerce’s discretion to rely on intermediate input methodology under certain circumstances).

There are two exceptions to Commerce’s factors of production methodology that can give rise to a need for the intermediate input methodology the insignificant share exception and the significant element exception. See Issues & Decision Memorandum at 35 (comment 18) (discussing two exceptions); see also Issues and Decision Memorandum for Antidumping Duty Investigation of Certain Frozen Fish Fillets from the Socialist Republic of Vietnam, 2003 WL 24153843 at Comment 3 (June 23, 2003) (“Fish Fillets Decision Memorandum”) (same); Issues and Decision Memorandum for the Final Determination in the Antidumping Duty Investigation of Certain Ball Bearings and Parts Thereof from the People’s Republic of China, 2003 WL 24153825 at Comment 6 (March 6, 2003) (“Ball Bearings Decision Memorandum”) (same); Zhengzhou Harmoni Spice Co., 33 CIT at 461 n. 14, 617 F.Supp.2d at 1292 n. 14 (same). As detailed below, neither exception applies here.

1. The Insignificant Share Exception

Mid Continent contends that Commerce should have applied the intermediate input methodology based on the insignificant share exception. See Mid Continent Brief at 8-9; Mid Continent Reply Brief- at 3. Commerce invokes the insignificant share exception as an alternative to the agency’s standard factors of production methodology where “the factors [of production] used to produce an intermediate input represent a small or insignificant share of total output” and where the improvement to the overall accuracy of the normal value calculation “will be too small to justify the burden of valuing the factors.” Issues & Decision Memorandum at 35 (comment 18).

Mid Continent’s argument for the application of the exception is that the wire-drawing services of Stanley’s subcontractors constituted an insignificant share of total output cost. See Mid Continent Brief at 9 (arguing that, “based on the database that [Commerce] used for its Preliminary Results,” wiredrawing services “by no means constitute^] a significant share of the total output cost”); see also Mid Continent Reply Brief, at 3. However, in making its argument, Mid Continent misapplies the requirements for the insignificant share exception by focusing solely on whether one of the factors of production (wiredrawing services) was insignificant, rather than on whether the factors of production, taken together, represented such an insignificant share of total output that calculating values for each of them would not be worthwhile in valuing the intermediate input wire.

The insignificant share exception does not apply merely because, as Mid Continent contends, one of the factors of production (wiredrawing services) for the intermediate input (drawn wire) represented an insignificant share of total output. When considering whether to apply the insignificant share exception, Commerce focuses oh the significance of the intermediate input itself (or, in other words, all of the factors of production that make up the intermediate input), not on the significance of any one particular factor of production used to produce the intermediate input. See Stanley Response Brief at 23. As stated in Wooden Bedroom Furniture from the PRC, Commerce “applies] a surrogate value to an intermediate input”

when the intermediate input accounts for an insignificant share of total output, and the potential increase in accuracy to the overall calculation that results from valuing each of the [factors of production] is outweighed by the resources, time, and burden such an analysis would place on all of the parties to the proceeding.

Issues and Decision Memorandum for the Final Results of Antidumping Duty Administrative Review and New Shipper Review of Wooden Bedroom Furniture from the People’s Republic of China, 2008 WL 8608280 at Comment 29 (Aug. 11, 2008) (“Wooden Bedroom Furniture Decision Memorandum”) (emphasis added).

Further, Mid Continent contends that, in refusing to apply the exception here, Commerce wrongly focused on whether wire rod represented a significant share of total output. Mid Continent Brief at 11 (stating that Commerce conducted “the wrong analysis” by noting that “the main factor used to value the intermediate good, drawn wire, is rod, which represents a significant share of total output”). But Mid Continent’s argument is unavailing. By focusing on the significance of wire rod as a factor of production in its decision that the insignificant share exception does not apply here, Commerce indicated that not all of the factors used to produce wire represent insignificant shares of total output, and that, accordingly, the insignificant share exception did not apply. Issues & Decision Memorandum at 35 (comment 18).

In sum, Commerce reasonably found that, because the main factor of production (wire rod) for the intermediate input (drawn wire) “represents a significant share of total output,” the insignificant share exception did not apply and could not justify a departure from the agency’s standard factors of production methodology. Issues & Decision Memorandum at 35-36 (comment 18). Mid Continent’s argument to the contrary is without merit.

2. The Significant Element Exception

Mid Continent also contends that Commerce should have applied the intermediate input methodology based on the significant element exception. See Mid Continent Brief at 8-11; Mid Continent Reply Brief at 2-3, 4. Commerce invokes the significant element exception where a significant portion of the costs of the factors of production for an intermediate input cannot be accounted for by Commerce. Issues & Decision Memorandum at 35 (comment 18). Mid Continent’s argument for the second exception is that the intermediate input methodology should be applied because factors of production data were missing for what Mid Continent contends was a significant portion of the wire consumed by Stanley. Mid Continent Brief at 8-11; Mid Continent Reply Brief at 2-3, 4. However, Commerce’s decision to reject the significant element exception as a basis for departing from the agency’s standard factors of production methodology was reasonable.

The wiredrawing factors of production of Stanley’s subcontractors account for only a small portion of the normal value of Stanley’s nails, and the wire drawers whose factors of production Stanley did not report accounted for less than one-third of Stanley’s drawn wire. Stanley Response Brief at 24. In other words, Commerce had factors of production data that accounted for more than two-thirds of Stanley’s drawn wire. Id. at 24-25. As such, Commerce did not act unreasonably by deciding that the missing wiredrawing factors of production data were not significant enough to merit the- application of the intermediate input methodology through the significant element exception. As the “master of antidumping law” with “special expertise,” Commerce must be afforded some discretion under circumstances such as these. See Thai Pineapple Public Co. v. United States, 187 F.3d 1362, 1365 (Fed. Cir.1999); Shakeproof Assembly Components v. United States, 268 F.3d 1376,1381 (Fed.Cir.2001).

In sum, Commerce reasonably found that neither of the two exceptions was applicable here, and that, based on agency practice, it would not be appropriate to apply the intermediate input methodology given the circumstances of this case. Mid Continent’s arguments for use of Commerce’s intermediate input methodology therefore must be rejected.

B. Adverse -Facts Available

Mid Continent also contests Commerce’s decision not to apply adverse facts available to Stanley’s missing wiredrawing factors of production. See generally Mid Continent Brief at 12-19; Mid Continent Reply Brief at 4-7. Mid Continent argues that Stanley improperly withheld factors of production data. See Mid Continent Brief at 12,14-18; Mid Continent Reply Brief at 4-7. Mid Continent further contends that Commerce’s decision not to apply adverse facts available here was inconsistent with its decisions in other administrative proceedings. See Mid Continent Brief at 18-19. In addition, Mid Continent asserts that Commerce’s choice of data to replace the missing wiredrawing factors of production was not based on substantial evidence. See Mid Continent Brief at 12-14; Mid Continent Reply Brief at 6. However, for reasons discussed below, Mid Continent’s arguments are without merit.

When an interested party or any other person withholds information requested by Commerce, fails to provide requested information by the relevant deadline or in the manner and form requested, significantly impedes a proceeding, or provides information that cannot be verified, or when necessary information is for some other reason not available on the record of a proceeding, Commerce is authorized to fill in the information gaps using “facts otherwise available” (ie., facts that substitute for missing information). 19 U.S.C. § 1677e(a). Commerce may rely on neutral (ie., non-adverse) “facts otherwise available” to fill these gaps, or, if Commerce finds that “an interested party has failed to cooperate by not acting to the best of its ability to comply with a request for information,” Commerce may rely on “adverse facts available” (ie., facts that are adverse to the interests of that party). 19 U.S.C. § 1677e(b):

In its Issues and Decision Memorandum here, Commerce explained its rationale for not applying adverse facts available. According to Commerce, because Stanley complied with Commerce’s requests for information to the best of its ability during the course of the review and was able to provide factors of production data from unaffiliated wiredrawing subcontractors accounting for a substantial majority of drawn wire consumed during the period of review, Commerce had no reason to apply adverse facts available in this case. See Issues & Decision Memorandum at 33 & n. 90 (comment 17); see also Stanley Response Brief at 6-7.

Mid Continent asserts that, contrary to Commerce’s finding, Stanley did not act to the best of its ability to cooperate with Commerce, and withheld factors of production data for at least one of its unaffiliated -wiredrawing subcontractors. See Mid Continent Brief at 12, 14-18; Mid Continent Reply Brief at 4-7. However, record evidence supports Commerce’s determination. From the beginning of Commerce’s individual investigation of Stanley, Stanley was forthcoming with Commerce about the factors of production data that it possessed for the subcontractor in question and the reason why it was not submitting that data. For instance, in response to a questionnaire from Commerce, Stanley reported that despite multiple attempts it had been unable to obtain information that would allow it to verify the factors of production data that it possessed for the subcontractor. Supplemental Questionnaire for Section D at 12-13 (Conf.Doc. No. 109). Similarly, Stanley explained that it would have essentially been impossible to obtain the requested information from another of its subcontractors. Id. In light of Stanley’s forthcoming response to Commerce’s only questionnaire requesting factors of production data on Stanley’s wiredrawing subcontractors, and in light of Stanley’s multiple attempts to obtain verifiable data, it cannot be said that Commerce erred in concluding that Stanley cooperated with the agency and acted to the best of its ability.

Mid Continent fares no better on its claim that Commerce should have applied adverse facts available here based on Commerce’s determination in a previous administrative proceeding Activated Carbon from the PRC. Mid Continent Brief at 18; see also Issues and Decision Memorandum for the Final Determination in the Anti-dumping Duty Investigation of Certain Activated Carbon from the People’s Republic of China, 2007 WL 765248 at Comment 20 (Feb. 28, 2007) (“Activated Carbon. Decision Memorandum”). For the same two reasons noted by Commerce in its Issues and Decision Memorandum in this proceeding, Activated Carbon from the PRC is distinguishable from the instant case, and Mid Continent’s argument is unavailing. See Issues & Decision Memorandum at 34 (comment 17).

As Commerce explained here, “the extent by which the respondents failed to provide [factors of production] data [in Activated Carbon from the PRC] was much more significant than Stanley’s inability to obtain [factors of production data] from certain wiredrawing subcontractors.” Issues & Decision Memorandum at 34 (comment 17). In Activated Carbon from the PRC, a respondent failed to report factors of production data from two direct and three indirect suppliers, and Commerce applied partial adverse inferences for the missing data. Activated Carbon Decision Memorandum, .2007 WL 765248 at Comment 20. The situation here involves fewer subcontractors. Id. In addition, the respondent in Activated Carbon from the PRC failed to provide factors of production data for the producers of the subject merchandise itself, while, in this case, Stanley did not provide factors of production data for part of its production process that is subcontracted out to unaffiliated parties. Issues & Decision Memorandum at 34. In other words, Commerce here determined that it is more problematic when factors of production data are missing for the entire product (as in Activated Carbon from the PRC) than when factors of production data are missing for part of the production process (as in the instant case). Compare Activated Carbon Decision Memorandum, 2007 WL 765248 at Comment 20 with Issues & Decision Memorandum at 34. Based on these considerations, Commerce reasonably concluded that the result in Activated Carbon from the PRC is not controlling here. .

Mid Continent’s reliance on two other administrative determinations is similarly misplaced. See Mid Continent Brief at 18 (citing Issues and Decision Memorandum for the Administrative Review of Certain Cased Pencils from the People’s Republic of China; Final Results, 2002 WL 1732817 at Comment 10 (July 25, 2002) (“Cased Pencils Decision Memorandum”); Notice of Final Determination of Sales at Less Than Fair Value: Creatine Monohydrate From the People’s Republic of China, 64 Fed.Reg. 71,104, 71,109 (Dec. 20, 1999) (“Creatine Monohydrate Final Determination”)). In Cased Pencils from the PRC and Creatine Monohydrate from the PRC as in Activated Carbon from the PRC the non-cooperating suppliers were producers of the subject merchandise itself, not produeers of components of the subject merchandise. Further, in Creatine Monohydrate from the PRC, there was no indication that the respondents had even tried to obtain data from their suppliers. See Creatine Monohydrate Final Determination, 64 Fed.Reg. at 71,108-09. In this case, the two suppliers at issue were producers of components (wiredrawing services) of the subject merchandise, and Stanley made a concerted effort to obtain verifiable factors of production data from them. Thus, neither of the cases supports Mid Continent’s claim.

As Commerce noted in its Issues and Decision Memorandum, the agency’s analysis here “closely mirrors” that in its previous determination in yet another administrative review, Tapered Roller Bearings from the PRC. See Issues & Decision Memorandum at 33-34 (comment 17); Issues and Decision Memorandum for the Final Results of Antidumping Review on Tapered Roller Bearings from the People’s Republic of China, 2009 WL 170611 at Comment 4 (Jan. 13, 2009) (“Tapered Roller Bearings Decision Memorandum”). Tapered Roller Bearings from the PRC is analogous to the instant case because the respondent in that case, as in this one, was forthcoming about its inability to obtain factors of production data from subcontractors, and Commerce found that the respondent did not impede the proceeding. Compare Issues & Decision Memorandum at 33-34 with Tapered Roller Bearings Decision Memorandum, 2009 WL 170611 at Comment 4. Moreover, Tapered Roller Bearings from the PRC is also analogous to the instant case because, in both cases, “the missing [factors of production] were not for complete production of a product, but rather for a stage in the production process that is subcontracted out to unaffiliated parties.” Issues & Decision Memorandum at 34; Tapered Roller Bearings Decision Memorandum, 2009 WL 170611 at Comment 4.

Mid Continent’s claim that Commerce’s choice of data to replace the missing wire-drawing factors of production data was not based on substantial evidence is also unavailing. Mid Continent Brief at 12-13. Mid Continent faults Commerce for the assumption that the subcontractors whose data were missing from the record had production operations identical or comparable to the three subcontractors whose data were on the record. Id. at 13. According to Mid Continent, the subcontractors whose data were on the record had “significantly different” production experiences, resulting in “significantly different production efficiencies among them.” Id. Specifically, Mid Continent contends that these subcontractors had meaningful differences in their drawn wire yield rates (i.e., the quantity of wire produced from a given quantity of rod) and in their consumption of various inputs. Id. Based on these considerations, Mid Continent concludes that Commerce unreasonably assumed that the data on the record for Stanley’s wiredrawing subcontractors were appropriate to replace the missing data. Id. at 14.

However, since Commerce had already decided not to apply adverse facts available to substitute for the missing data, Commerce was simply looking for neutral data to fill the information gap. The weighted average of the three subcontractors’ data on the record constituted a reasonable substitute for the missing data because they were reflective of the majority of Stanley’s wiredrawing services data, which was already on the record.

In short, Commerce reasonably declined to apply adverse facts available because Stanley had cooperated with Commerce. Mid Continent’s arguments to the contrary notwithstanding, Commerce’s determination in this case was consistent with Commerce’s decisions in other administrative reviews. And Commerce’s selection of neutral facts available to account fqr the missing data was nqt unreasonable and was well within the agency’s ample discretion.

C. Surrogate Financial Ratios

In its Final Results, Commerce concluded that it could no longer use Lakshmi’s financial statement as a source for surrogate financial ratios in the underlying review, because the agency had identified evidence of countervailable subsidies in Lakshmi’s statement. See Issues & Decision Memorandum at 10-11 (comment 3). After reviewing the other potential sources on the record, Commerce ultimately settled on the financial statements of three small Indian companies J & K, Bansidhar, and Nasco. See Issues & Decision Memorandum at 9-13.

Mid Continent takes strong exception to Commerce’s decision to rely on the financial statements of J & K, Bansidhar, and Nasco, and objects to the agency’s rejection of the financial statements of Sundram and Lakshmi. See generally Mid Continent Brief at 2, 6-7, 19-27; Mid Continent Reply Brief at 7-9. But see Def.’s Response Brief at 9, 18-23; Stanley Response Brief at 15, 30-38. In any event, the Government now has requested a voluntary remand to allow Commerce to reconsider its position on the selection of financial statements, in light of recent intervening developments. See generally Def.’s Remand Motion. As discussed below, that request has merit and must be granted.

When constructing normal value for a foreign producer in a NME country, Commerce bases its determination on “the value, of the factors of production utilized in producing the merchandise.” 19 U.S.C. § 1677b(e)(l). However, - as discussed above, valuing the factors of production does not capture certain items, such as manufacturing overhead, selling, general and administrative expenses (“SG & A”), and profit. Commerce calculates those surrogate values using ratios derived from the financial statements of one or more companies that produce identical or at least comparable merchandise in the surrogate market economy country. See generally 19 C.F.R. § 351.408(c)(4); 19 U.S.C. § 1677b(c)(l);

In the Final Results, Commerce explained its reasons for rejecting Sundram as a source for surrogate financial ratios:

[Hjaving an integrated wiredrawing process with [steel wire rod, or “SWR”] is key to reflect the production processes of [Stanley]. However, the record does not permit a conclusion that Sundram’s production process mirrors Stanley Langfang’s. First, nowhere in its financial statement does it indicate that Sun-dram consumes SWR. Its raw material consumption report lists only “steel” as an input. Thus, even though Sundram produces some comparable merchandise, [Commerce] cannot be certain that it uses the same primary raw material as Stanley Langfang, and thus cannot conclude Sundram’s production process reflects that of [Stanley].

Issues & Decision Memorandum at 11 (comment 3). The Issues and Decision Memorandum further explains that Commerce rejected Sundram not only because, according to Commerce, Sundram “only produced comparable rather than identical merchandise,” but, in addition, because Sundram “also produced and sold a large array of products not comparable to subject merchandise.” Id. at 12.

The Final Results outlined as well Commerce’s reasons for selecting the financial statements of J & K, Bansidhar, and Nasco as sources for surrogate financial ratios:

Since the Preliminary Results, additional financial statements have been placed on the record, including those of Nasco, Bansidhar, and J & K. All three companies meet [Commerce’s] surrogate value (“SV”) selection criteria, and all three produce nails from SWR [steel wire rod]. In the case of Nasco, it also appears to produce nails either from drawn wire and/or hot-rolled sheet, but nonetheless consumed SWR during the fiscal year.... Second, of the remaining potential surrogate companies, only Nasco, Bansidhar, and J & K. produce nails and use SWR in the production process.

Issues & Decision Memorandum at 11-12 (comment 3). Commerce further noted that “Nasco, Bansidhar, and J & K have invested in equipment required to produce nails and use SWR similar to [Stanley], whereas the other potential surrogate companies [have] not.” Id. at 12. Reasoning that the financial ratios of companies that produce nails “are more appropriate to use than those of companies that do not produce nails” (apparently referring, perhaps mistakenly, to Sundram), Commerce concluded that it would use the financial statements of Nasco, Bansidhar, and J & K to calculate surrogate financial ratios for the Final Results. Id. at 12-13.

Noting that, in selecting sources of financial ratios, Commerce’s general practice is to attempt to match the production experience of a surrogate company to the production experience of a respondent, Mid Continent argues that Commerce erred in using the financial statements of Bansidhar, J & K, and Nasco, because Mid Continent asserts their production and operational experiences were “fundamentally incomparable” to those of Stanley. Mid Continent Brief at 19-20; see also id. at 21-26; Mid Continent Reply Brief at 7-9. Mid Continent characterizes Bansidhar, J & K, and Nasco as “very small scale, private enterprises,” while Stanley is a “large, diversified multi-national corporation.” Mid Continent Brief at 21-22; see generally id. at 2, 6-7, 19-27; Mid Continent Reply Brief at 7-9.

Mid Continent points to the financial statements of Bansidhar, J & K, and Nasco as proof that “their business activities and financial performance have fundamentally little to do with the production of steel nails or comparable [merchandise].” Mid Continent Brief at 22; see generally id. at 22-24. Mid Continent also criticizes Commerce as ignoring a laundry list of concerns that, Mid Continent contends, “undermin[e] the use of the Nasco, Bansidhar, and J & K financial statements” in the Final Results. Id. at 24-26; see also Mid Continent Reply Brief at 8.

Moreover, just as Mid Continent contends that the profiles of Bansidhar, J & K, and Nasco rendered them inappropriate as sources for surrogate financial ratios, Mid Continent argues that Lakshmi and Sundram are “large, multinational fastener producers like Stanley,” with similar production experiences. See Mid Continent Brief at 26; see also Mid Continent Reply Brief at 8-9. Mid Continent asserts, inter alia, that the sales revenues and fixed assets of Stanley, Sundram, and Lakshmi confirm that Sundram and Lakshmi “operate at comparable scales of production, and use comparable processes, and thus are more representative of Stanley’s production experience” than are Bansidhar, J & K, and Nasco, on which Commerce relied in the Final Results. See Mid Continent Brief at 26; see also Mid Continent Reply Brief at 8-9. Mid Continent therefore requests that Commerce be directed “to reject the use of Nasco’s, Bansidhar’s, and J & K’s financial statements as surrogate financial ratios and [to] apply the more appropriate financial ratios from Lakshmi and/or Sundram.” See Mid Continent Brief at 26-27.

The Government and Stanley maintain that the financial statements of Bansidhar, J & K, and Nasco constitute the best available information for surrogate financial ratios and that their use by Commerce should be upheld as supported by substantial evidence and otherwise in accordance with law. See generally Def.’s Brief at 9, 18-23; Stanley Response Brief at 15, 30-38.

The Government seeks to deflect Mid Continent’s emphasis on the magnitude of the differences in the scale of the production and operations of Stanley on the one hand and Bansidhar, J & K, and Nasco on the other. Specifically, the Government notes that, in the Final Results, Commerce cited several administrative decisions for the proposition that, in essence, “size doesn’t matter” (at least not necessarily) in surrogate selection. See Def.’s Brief at 21-22 (citing Issues & Decision Memorandum at 11-13 (comment 3), and authorities cited there).

In addition, the Government and Stanley particularly highlight Commerce’s focus on the production of “identical” or “comparable” merchandise and the importance of the similarity of processes in the use of steel wire rod in the production of nails. See generally Def.’s Brief at 9, 18, 20-22; Stanley Response Brief at 32, 34-38. Notably, however, Commerce’s conclusion that Sundram’s production processes may not mirror those of Stanley and its determination that Sundram does not consume steel wire rod appear to be predicated solely on Sundram’s financial statement. See Issues & Decision Memorandum at 11 (comment 3) (concluding that “the record does not permit a conclusion that Sun-dram’s production process mirrors [that of] Stanley,” because, inter alia, “nowhere in its financial statement does it indicate that Sundram consumes [steel wire rod]”). Commerce has not directly addressed Mid Continent’s specific arguments on this point; nor does it appear that Commerce has carefully considered all relevant evidence on the record. See, e.g., Mid Continent Case Brief at 43, 46 (explaining, inter alia, that both nails and screws/fasteners are produced from steel wire and steel wire rod, and that “the production processes for nails and screws/bolts is extremely similar, involving the same input material, which undergoes the same production process”; very favorably comparing “the production process, product range, and physical characteristics of Sundram’s screws and bolts and Stanley’s nails”).

In any event, after briefing the issue on the merits, the Government filed a motion requesting a voluntary remand of this matter to permit Commerce to reconsider its determination in the Final Results. See generally Def.’s Remand Motion. In its motion, the Government explains that, since issuing the Final Results in this first administrative review, Commerce now has issued its Final Results in the second administrative review, where Commerce examined whether Bansidhar was a producer of merchandise identical or comparable to that produced by Stanley. See Def.’s Remand Motion at 2; see also Decision Memorandum for Second Nails Review, 2012 WL 699520 at Comment 2. In the second administrative review, Commerce “refined [its] practice with regard to how [it] determined] whether a company is a producer of ‘identical’ or ‘comparable’ merchandise.” Decision Memorandum for Second Nails Review, 2012 WL 699520 at Comment 2. In light of this policy refinement, the Government requests a remand in order to permit Commerce to reconsider the selection of surrogate financial ratios in this first administrative review. See Def.’s Remand Motion at 2-3.

Stanley opposes the Government’s motion for a voluntary remand, dismissing the issue of whether a company is a producer of “identical” or “comparable” merchandise as a “minor element” of Commerce’s anti-dumping analysis, and asserting that the motion does not establish a “substantial and legitimate” concern within the meaning of SKF. See Stanley Response to Def.’s Remand Motion at 1-3 (citing SKF USA Inc. v. United States, 254 F.3d 1022, 1029 (Fed.Cir.2001) (citation omitted)). Stanley argues that the Government’s request is not made “for any purpose except a vague and open-ended ‘evaluation of this issue,’ ” and observes that the Government’s motion “does not state that such a determination would be of any substantive consequence.” Stanley Response to Def.’s Remand Motion at 3. Ultimately, Stanley maintains that there is no basis to believe that, even if Bansidhar were to be reclassified as a producer of “comparable” rather than “identical” merchandise, that determination would have any impact on Stanley’s dumping margin. See id.

Mid Continent, on the other hand, supports the Government’s motion and argues that the Government’s concerns are both substantial and legitimate. See Mid Continent Response to Def.’s Remand Motion at 3-4. According to Mid Continent, “Commerce’s recent refinement to its practice potentially will result in a change to the financial statements selected and the financial ratios calculated, thereby altering ... [the] final [dumping] margin.” See id. at 3. Mid Continent further notes that there is no “evidence that [the Government’s] request for partial remand is motivated by bad faith or is frivolous in nature.” Id. at 3-4 (citing Clemmons v. West, 206 F.3d 1401, 1403-04 (Fed.Cir. 2000) (citation omitted)).

As Stanley suggests, it may be that Commerce’s policy refinement will' have no impact on the ultimate dumping margin in this case. But, at this point, no one can be certain. In this review, Commerce has considered the issue of whether a company produced “identical” or “comparable” merchandise to be a relevant factor in its selection of surrogate companies for financial ratios. For instance, Commerce rejected Sundram in part because it was a producer of “comparable,” not “identical,” merchandise. Issues & Decision Memorandum at 12 (comment 3) (explaining that Commerce found Sundram to “only producen comparable rather than identical merchandise”). Similarly, in the Preliminary Results, Commerce, noted that it had selected Lakshmi, even though the company “producefd] comparable rather than identical merch