[Federal Register Volume 63, Number 45 (Monday, March 9, 1998)]
[Rules and Regulations]
[Pages 11359-11361]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-5987]
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Rules and Regulations
Federal Register
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Federal Register / Vol. 63, No. 45 / Monday, March 9, 1998 / Rules
and Regulations
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DEPARTMENT OF AGRICULTURE
Food Safety and Inspection Service
9 CFR Part 381
[Docket No. 96-007F]
RIN 0583-AC17
Use of Two Kinds of Poultry Without Label Change
AGENCY: Food Safety and Inspection Service, USDA.
ACTION: Final rule.
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SUMMARY: The Food Safety and Inspection Service (FSIS) is amending the
poultry products inspection regulations by adding a provision to permit
manufacturers of poultry products to interchange the amounts and kinds
of poultry, within specified limits, in a product without requiring
that each such formulation change have a separate label. The provision
applies in situations where two kinds of poultry make up at least 70
percent of the poultry and poultry ingredients used in the product
formulation and neither of the two kinds of poultry used constitute
less than 30 percent of the poultry and poultry ingredients used. In
these situations, one label with the word ``and'' instead of a comma
between the names of each of the kinds of poultry in the ingredients
statement, and in the product name, indicates to consumers that the
order of predominance of the two kinds of poultry may be interchanged.
This action is designed to provide consistent provisions for meat and
poultry products.
EFFECTIVE DATE: May 8, 1998.
FOR FURTHER INFORMATION CONTACT: Robert Post, Director, Labeling and
Compounds Review Division, Office of Policy, Program Development, and
Evaluation, FSIS, (202) 418-8900.
SUPPLEMENTARY INFORMATION:
Background
FSIS, in response to a petition by Judith Quick and Associates
dated March 25, 1995, published in the Federal Register on December 27,
1996, a proposed rule to amend the poultry products inspection
regulations (61 FR 68167). FSIS proposed to permit the interchange of
the amounts of two kinds of poultry within specific limits so that
poultry product manufacturers would not have to modify the product
label if they change the product formulation within those limits. When
adopted, this change will make the poultry regulations and the meat
regulations more consistent.
Presently, the Federal meat inspection regulations provide that
when two red meat species comprise at least 70 percent of the meat and
meat byproduct ingredients of a product formulation, and when neither
of the two red meat species constitutes less than 30 percent of the
total weight of the meat and meat byproducts used, the red meat species
may be interchanged in the product formulation without a change being
made in the label ingredients statement, provided that the word ``and''
in lieu of a comma is inserted between the declaration of the red meat
species in the ingredients statement (9 CFR 317.2(f)(1)(v)). (Meat
byproduct ingredients are any parts of a meat animal carcass that are
capable of use as human food other than meat.) This provision for red
meat was promulgated in response to an industry request to allow red
meat processors to utilize different amounts of meat ingredients
without having to develop and maintain a large inventory of labels with
different ingredients statements. This flexibility of ingredients
permits processors to utilize whatever species of red meat is least
expensive at the time they are producing the product. At the time, USDA
did not include poultry in the coverage of this provision because the
poultry industry was not producing further processed poultry products
using different poultry kinds on a very widespread scale. Conditions
have changed in the poultry industry, however, and FSIS is now
extending this labeling flexibility to poultry and poultry ingredients.
(Poultry ingredients include such products as giblets, skin, or fat in
excess of natural proportions and Mechanically Separated (Kind of
Poultry))(MS(K)).
Discussion of the Effect of the Rule
Although the action that FSIS is announcing in this final rule is
simple, it is easy to misunderstand. Section 381.118(f), which the
Agency is adopting, applies to a poultry product in which, first, at
least 70 percent of the poultry (e.g., chicken, turkey, chicken meat,
turkey meat) and poultry ingredients (such as giblets, skin and fat in
excess of natural proportions and mechanically separated (kind))
consists of two kinds of poultry, exclusive of poultry ingredients;
and, second, when neither of the two kinds of poultry, exclusive of
poultry ingredients, constitute less than 30 percent of the poultry and
poultry ingredients.
As an example, let us consider a simplified product consisting of
29 percent chicken, 28 percent turkey, 22 percent mechanically
separated chicken (i.e., a poultry ingredient), and 21 percent peas.
The peas can be disregarded, since the rule applies only to the poultry
and poultry ingredients. The chicken and turkey together comprise 57/79
of the total of the poultry and poultry ingredients. This is
approximately 72 percent. Because the two kinds of poultry (chicken and
turkey) are over 70%, the product meets the first requirement. The
chicken is approximately 37 percent of the poultry and poultry
ingredients and the turkey is approximately 35 percent. Hence, they
both meet the second requirement of being greater than 30 percent of
the poultry and poultry ingredients. Therefore, this product could be
named ``Chicken and Turkey with Peas'' and the ingredient statement
would read, in order of predominance as required: ``Chicken and turkey,
mechanically separated chicken, and peas.''
As mentioned above, the poultry ingredients are included in the
total amount of poultry and poultry ingredients. However, poultry
ingredients must constitute no more than 30 percent of this amount,
since 70 percent must be the two kinds of poultry. In addition, all the
poultry ingredients must be listed separately in the ingredients
statement, including the mechanically separated (kind) in accordance
with the November 3, 1995, regulatory change in the poultry products
inspection regulations (9 CFR 381.117(e)), (60 FR 55962).
In poultry products, the two kinds of poultry that are most often
used are
[[Page 11360]]
chicken and turkey. Because chicken is generally less costly than
turkey, the use and applicability of this rule by poultry processors is
limited. But it will be useful in the management of stock on hand to
assure that inventory is used in a rational manner without numerous
label adjustments. It should also protect the integrity of labeling and
assure the consumer of a reasonable standard of consistency in the
product name and list of ingredients.
Comments
FSIS received seven comments in response to the proposed rule--two
from industry members and five from trade associations. Overall, the
comments were in full support of the flexibility provided by the
proposal. However, all but one suggested changes that they thought
would make the rule more effective.
Most of the comments agreed that the 70/30 flexibility permitted by
this rule (denoted by the use of the word ``and'') was needed in the
product name as well as the ingredients statement. Otherwise, they
pointed out, no benefit would be achieved with this regulatory change.
The Agency agrees with the comments, and thus it has provided in
Sec. 381.118(f) for the use of ``and'' in the product's name as well as
in the ingredient statement.
Several comments stated that mechanically separated (kind) (MS(K))
poultry (i.e., a poultry ingredient) should be permitted as part of the
two kinds of poultry. One comment suggested that, at the time of the
petition for this rule change, the standard of identity had not been
established for MS(K). Therefore, the petitioner would not have had
reason to request the explicit inclusion of MS(K) in the petition.
Further, it was suggested that the exclusion of MS(K) would undermine
the original intent of the petition and limit the application of this
provision so severely that the goals of the petition would not be
achieved. Several other comments wanted clarification in the final rule
whether MS(K) was permitted as part of the two kinds of poultry.
The purpose of the rule is to make the meat and poultry regulations
parallel with regard to this 70/30 provision. Inasmuch as mechanically
separated (species) (MS(S)), the red meat food product equivalent to
MS(K), cannot be used to fulfill the red ``meat'' requirements under
current regulations, MS(K), a poultry food product, cannot be used to
fulfill the ``poultry'' requirement. In the proposed rule, FSIS
specifically used MS(K) as an example of ``poultry ingredients''
(December 13, 1996, 61 FR 68167, 68168). Because MS(K) is a poultry
food product and not ``poultry,'' it cannot be used to fulfill the
poultry kind requirement.
Many of the comments suggested that rule permit the use of kinds of
poultry and red meat species so that both meat and poultry, e.g.,
``beef and chicken'' could be used in the 70/30 combination. The
original petitioner did not request the flexibility to vary the amounts
of meat species and poultry kinds in a product. Thus, this request is
outside the scope of the proposed rule and this final rulemaking.
Furthermore, the Agency has no information as to consumer expectations
for this suggested type of flexibility using both meat and poultry
without requiring each formulation change to have a separate label.
Lastly, this type of flexibility could affect the appropriateness of
the meat or poultry inspection legend on the label and raise standard
questions and requirements as to temperatures for specific meat and
poultry products. Thus, this type of suggested flexibility will need to
wait for further integration of the meat and poultry regulations.
Some commenters requested that the lower level of poultry kind be
changed to 20 percent and some requested the change be expanded to 80
percent/20 percent flexibility. The 20 percent lower level suggestion
was obtained from FSIS Policy Memos 029 and 030A entitled ``Labeling
Poultry Products Containing Livestock Ingredients,'' and ``Labeling
Meat Products Containing Poultry Ingredients,'' respectively. The
purpose of the policy memos was to distinguish between when a
``species'' or ``kind'' identification is needed as part of the product
name as opposed to being used as a product name qualifier. The use of
20 percent of one kind of poultry either in a 70/20 flexibility or in
an 80 percent/20 percent flexibility, could disrupt the order of
predominance of the ingredients in the ingredient statement and could
confound consumer expectations, since the Agency has no data on that
subject and none were submitted to support this change.
Executive Order 12988
This rule has been reviewed under Executive Order 12988, Civil
Justice Reform. If this rule is adopted: (1) All State and local laws
and regulations that are inconsistent with this rule will be preempted;
(2) no retroactive effect will be given to this rule; and (3)
administrative proceedings will not be required before parties may file
suit in court challenging this rule. Executive Order 12866 and the
Regulatory Flexibility Act.
This rule has been determined to be not significant under Executive
Order 12866 and, therefore, has not been reviewed by the Office of
Management and Budget.
The Administrator has made an initial determination that this rule
will not have a significant impact on a substantial number of small
entities, as defined by the Regulatory Flexibility Act (5 U.S.C. 601).
The rule will provide flexibility in the amount and kinds of poultry
that may be used in a formulation without having to change product
labels.
Paperwork Requirements
Any paperwork requirements are approved under OMB Control No. 0583-
0092.
List of Subjects in 9 CFR Part 381
Food labeling, Meat inspection, Poultry and poultry products.
For the reasons discussed in the preamble, part 381 of the poultry
products inspection regulations (9 CFR 381) is amended as follows:
PART 381--POULTRY PRODUCTS INSPECTION REGULATIONS
1. The authority citation for part 381 continues to read as
follows:
Authority: 7 U.S.C. 138f; 7 U.S.C. 450; 21 U.S.C. 451-470; 7 CFR
2.18, 2.53.
2. Section 381.118 is amended by adding a new paragraph (f) to read
as follows:
Sec. 381.118 Ingredients statement.
* * * * *
(f) Establishments may interchange the identity of two kinds of
poultry (e.g., chicken and turkey, chicken meat and turkey meat) used
in a product formulation without changing the product's ingredient
statement or product name under the following conditions:
(1)(i) The two kinds of poultry used must comprise at least 70
percent by weight of the poultry and the poultry ingredients [e.g.
giblets, skin or fat in excess of natural proportions, or mechanically
separated (kind)] used; and,
(ii) Neither of the two kinds of poultry used can be less than 30
percent by weight of the total poultry and poultry ingredients used;
(2) The word ``and'' in lieu of a comma must be shown between the
declaration of the two kinds of poultry in the ingredients statement
and in the product name.
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Done at Washington, DC, on March 2, 1998.
Thomas J. Billy,
Administrator.
[FR Doc. 98-5987 Filed 3-6-98; 8:45 am]
BILLING CODE 3410-DM-P