The United States is winning Japan's head on whether to lift the ban on U.S. beef imports, but it still must win over its heart.

Yesterday, the Japan Food Safety Commission agreed to change its policy requiring all live imported cattle to be tested for mad-cow disease. But influential Japanese consumer groups remain skeptical. The ruling comes five months after U.S. and Japan officials reached an agreement to work toward lifting the ban on U.S. imports of beef from animals 20 months old or younger.

Imports were halted after the United States found its first and only case of bovine spongiform encephalopathy 15 months ago. That cow in Mabton was imported from Canada, where three other cases have been reported.

Arguing the safety of U.S. beef, U.S. officials balked at Japan's earlier requirement that all cattle must be tested. In October, Japanese officials agreed to consider permitting imports of the younger animals, which are at much less risk from the disease.

Still, Japanese officials are not yet ready to lift the ban, even though yesterday's ruling is an important step.

Earlier this month, Secretary of State Condoleezza Rice pressured Japanese leaders to move more quickly toward lifting the ban. With growing impatience, some U.S. lawmakers have suggested imposing sanctions.

U.S. beef exporters are eager to start reclaiming the more than $1 billion share of Japan's beef market they enjoyed before the ban.

Complicating Japan's deliberations, however, is the U.S. Department of Agriculture decision to resume imports of live Canadian beef and processed beef products.

A Montana judge issued a court order preventing the rule from taking effect after Canada found its most recent case of the disease in an animal born after precautionary feed restrictions were imposed. Animals are believed to contract the disease from eating feed contaminated with materials from infected animals.

Three weeks ago, the U.S. Senate passed a resolution challenging the Agriculture Department's ruling to permit Canadian imports. If the House follows, the border would remain closed until Congress acts.

Congress also would be wise to enact Washington U.S. Sen. Maria Cantwell's legislation tightening feed restrictions even further.

Japan, with 14 of its own cases, is understandably cautious. U.S. beef remains a safe bet for Japan — a stepped-up monitoring system has not found another single case of mad-cow disease beyond the one, imported Canadian cow.

But the United States must take pains not to startle Japan away from the promising steps it is taking to lift the ban on U.S. imports.