[Federal Register Volume 66, Number 227 (Monday, November 26, 2001)]
[Rules and Regulations]
[Pages 58938-58944]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-29361]


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DEPARTMENT OF THE TREASURY

Bureau of Alcohol, Tobacco and Firearms

27 CFR Parts 4, 19, 24, 194, 250 and 251

[T.D. ATF-470 RE: T.D. ATF-398, Notice No. 859, Notice No. 869, T.D. 
ATF-418, Notice No. 881 and T.D. ATF-430]
RIN 1512-AB71


Hard Cider, Semi-Generic Wine Designations, and Wholesale Liquor 
Dealers' Signs (97-2523)

AGENCY: Bureau of Alcohol, Tobacco and Firearms (ATF), Department of 
the Treasury.

ACTION: Final rule (Treasury decision).

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SUMMARY: This rule finalizes temporary regulations related to semi-
generic designations on wine labels and wholesale liquor dealers' 
signs. This rule also finalizes some of the temporary regulations 
concerning hard cider, and amends others.

DATES: Effective date: January 25, 2002.
    Compliance date: Compliance with the amendments to hard cider 
labeling requirements in 27 CFR 4.21 and 24.257(a) is not mandatory 
until May 27, 2002.

FOR FURTHER INFORMATION CONTACT: Marjorie D. Ruhf, Regulations 
Division, 650 Massachusetts Avenue, NW., Washington, DC 20226; (202) 
927-8202; or [email protected].

SUPPLEMENTARY INFORMATION:

Background

    This final rule implements some of the provisions of the Taxpayer 
Relief Act of 1997, Pub. L. 105-34, specifically the sections that 
amended the Internal Revenue Code (26 U.S.C., ``the IRC'') to:
    --Create a wine excise tax category for hard cider (sec. 908),
    --List semi-generic designations for wine (sec. 910), and
    --Repeal the requirement for wholesale dealers in liquors to post 
signs (sec. 1415).
    The definition of hard cider in Public Law 105-34 was amended by 
section 6009 of the Internal Revenue Service Restructuring and Reform 
Act of 1998, Pub. L. 105-206, as we will discuss later.
    On August 21, 1998, ATF issued a temporary rule, T.D. ATF-398 (63 
FR 44779), to implement various sections of Public Law 105-34. On the 
same day, ATF issued a notice of proposed rulemaking, Notice No. 859 
(63 FR 44819), inviting comments on this temporary rule for a 60 day 
period. In response to requests from the industry, ATF reopened the 
comment period for an additional 30 days on November 6, 1998, by Notice 
No. 869 (63 FR 59921). We will discuss our proposals, the public 
comments, and our decisions below.

Temporary Rule, Comments and Decision on Semi-generic Designations

    Section 910 of Public Law 105-34 amended 26 U.S.C. 5388 by adding a 
new subsection (c), Use of semi-generic designations, which generally 
parallels the language of 27 CFR 4.24 on the same subject, but places 
the existing list of semi-generic designations outside the discretion 
of the Secretary.
    Since the IRC regulations concerning wine labeling appear in 27 CFR 
24.257, we amended that regulation to incorporate the wording of 26 
U.S.C. 5388, concerning the use of semi-generic wine designations. 
Additionally, we incorporated the standards of identity for wines under 
27 U.S.C. 205 by reference in this section. Finally, we placed a cross-
reference to this new rule in Sec. 4.24.
    Since the rules for use of semi-generic designations have been made 
part of the IRC, the rules apply to all wines, including wines that 
contain less than 7 percent alcohol by volume and to wines sold only in 
intrastate commerce.
    The use of semi-generic designations on wine labels was the subject 
of two comments. Peter M. Brody of Ropes & Gray, writing on behalf of 
the Institut National des Appellations d'Origine (INAO) objected to 
``entrenching'' the U.S. policy of allowing use of the names champagne, 
chablis, burgundy and sauternes, on wines made outside France. Jean-
Christophe Paille, Counselor for Agriculture of the Ambassade de France 
aux Etats-Unis, made the same objection. However, these objections were 
to the underlying statute and not to the regulatory changes made as a 
result. Therefore, we are adopting the language of the temporary rule 
in this final regulation.

Temporary Rule, Comments and Decision on Wholesale Dealers' Signs

    Section 1415 of Public Law 105-34 repealed the requirement for 
wholesale dealers in liquor to post signs identifying their premises 
and made conforming changes to sections of the law which referenced 
that requirement. In the temporary rule, ATF amended the Liquor 
Dealers' regulations by removing Secs. 194.239 through 194.241, which 
relate to this requirement. This change received no comments, so we are 
adopting the language of the temporary rule in this final regulation.

Hard Cider

    The Taxpayer Relief Act of 1997, Pub. L. 105-34, was enacted on 
August 5, 1997. Section 908 added a new tax class (6) for wine, called 
``hard cider,'' to 26 U.S.C. 5041 and imposed a new rate of tax on hard 
cider as follows:

    On hard cider [which is a still wine] derived primarily from 
apples or apple concentrate and water, containing no other fruit 
product, and containing at least one-half of 1 percent and less than 
7 percent alcohol by volume, 22.6 cents per wine gallon.

    The phrase in brackets was added by section 6009 of the Internal 
Revenue Service Restructuring and Reform Act of 1998, Pub. L. 105-206, 
enacted July 22, 1998, and effective as if it were part of Pub. L. 105-
34.
    In the temporary rule, ATF added a definition of hard cider to the 
wine regulations and made other changes to the wine production and 
labeling regulations. In associated Notice Number 859, ATF invited 
comments on the definition of hard cider established in the temporary 
rule. We noted there were numerous traditional ways of making fermented 
cider, some of which

[[Page 58939]]

may not fit the definition of hard cider provided in the temporary 
rule. We invited comments, including citations of standard references 
on cider making, on whether adjustments to the definition of hard cider 
are warranted.
    The portion of the temporary rule related to cider generated 48 
comments on our definition of cider and the labeling rules. In 
particular, many commenters expressed concern that the labeling rules 
for hard cider in T.D. ATF-398 did not allow appropriate designation of 
their products. Therefore, on September 27, 1999, ATF published T.D. 
ATF-418 (64 FR 51896) postponing the labeling compliance date for the 
rules in T.D. ATF-398 for one year. At the same time, we published 
Notice No. 881 (64 FR 51933) to solicit comments on alternative 
labeling rules. ATF subsequently published T.D. ATF-430 (65 FR 57734) 
postponing the labeling compliance date until January 31, 2001. Our 
proposals and the public comments on both the original temporary rule 
and the later notice related only to labeling will be summarized and 
discussed below as background for this final rule.
Tax Rate and Credit Information: Temporary Rule, Comments and Decisions
    Public Law 105-34 created a new tax rate that applied to hard cider 
removed from bond on or after October 1, 1997. This law also amended 
the small producer's wine tax credit allowed by 26 U.S.C. 5041(c) to 
provide for a 5.6 cent credit on hard cider removed by small producers. 
This credit has the effect of reducing the net tax paid on hard cider 
by a small domestic producer to 17 cents, the equivalent of the lowest 
tax available to domestic producers for still wine under 14 percent 
alcohol by volume ($1.07 tax less $0.90 credit). As with the full 90 
cent credit applicable to other wines, the hard cider credit of 5.6 
cents per gallon is reduced by 1 percent ($.00056 per gallon) for each 
thousand gallons of wine over 150,000 gallons which are produced in a 
year. The full tax rate is reached at the 250,000 gallon annual 
production level. We amended 27 CFR 24.278, which implements the tax 
credit for small domestic producers, to reflect the change.
    Commenter Jeffrey House of California Cider Company, Inc. noted 
that ``Hard cider is marketed like beer and merchandised next to beer. 
It is fermented like wine but at less than half the volume of alcohol. 
It is unfair and illogical that a small beer producer is allowed up to 
1.8 million gallons before a new tax bracket and a cider mill that 
produces * * * hard apple/pear cider is only allowed 100,000 before a 
very substantial tax change.''
    Mr. House correctly notes that the reduced tax rate for small 
domestic brewers applies to the first 60,000 31-gallon barrels per year 
(1.86 million gallons), whereas the small domestic wine producer's tax 
credit applies only to the first 100,000 gallons per year. Mr. House's 
comment relates to a distinction that exists in the law, so we are 
unable to change the regulations. No other comments related directly to 
either the tax rate or the credit provisions, so we are adopting these 
provisions in the final rule without any change.
Changes Related To Wine and Flavor Credit: Temporary Rule, Comments and 
Decisions
    In T.D. ATF-398, we reworded the regulations related to the wine 
and flavor credit allowed against distilled spirits tax under 26 U.S.C. 
5010. We made these changes to clarify that the new still wine category 
of hard cider was not eligible for the wine and flavor credit. No 
comments were received on these changes, so they are adopted in the 
final rule.
Definition of Hard Cider
    ATF took the statutory definition of ``hard cider'' eligible for 
the new tax rate and placed it in the regulations. We added detail and 
clarification as follows:

------------------------------------------------------------------------
     26 U.S.C.5041(b)(6)         Temporary 27 CFR 24.10 ``hard cider''
------------------------------------------------------------------------
a still wine.................  (same)
derived primarily from apples  primarily from apples or apple
 or apple concentrate and       concentrate and water (apple juice, or
 water.                         the equivalent amount of concentrate
                                reconstituted to the original brix of
                                the juice prior to concentration, must
                                represent more than 50 percent of the
                                volume of the finished product)
containing no other fruit      containing no other fruit product nor any
 product.                       artificial product which imparts a fruit
                                flavor other than apple
containing at least one-half   (same)
 of 1 percent and less than 7
 percent alcohol by volume.
(no provision)...............  having the taste, aroma, and
                                characteristics generally attributed to
                                hard cider, and sold or offered for sale
                                as hard cider and not as a substitute
                                for any other alcohol product.
------------------------------------------------------------------------

    Each element of the regulatory definition was the subject of 
comment.
    Ten commenters, all distributors of cider and other alcohol 
beverages, specifically advocated adopting the Washington State 
definition of cider, which they quoted as:

    Hard cider means table wine that contains not less than one-half 
of one percent of alcohol by volume and not more than seven percent 
of alcohol by volume and is made from normal alcoholic fermentation 
of the juice of sound ripe apples and pears. Hard cider includes, 
but is not limited to flavored, sparkling, or carbonated cider and 
cider from condensed apple or pear must.

    Other commenters addressed only specific elements of the 
definition. We will summarize the comments and our decision for each 
element separately.
``Still''--Temporary Rule, Comments and Decision
    First, the regulatory definition specifies that hard cider is a 
still wine, as stated in 26 U.S.C. 5041(b)(6). The commenters 
supporting ATF adoption of similar rules to the Washington State 
definition noted that it allowed carbonation of cider. In addition, e-
mail commenter Dan Burick expressed support for a modest amount of 
carbonation in hard cider, equivalent to the carbonation in microbrews. 
ATF is precluded from even considering such a change, since the statute 
limits the application of the hard cider tax rate to still wine. In 
this final rule, we continue to specify that hard cider is a still 
wine. The law defines still wine as wine that contains not more than 
0.392 gram of carbon dioxide per hundred milliliters of wine.
``Primarily from Apples''--Temporary Rule, Comments and Decision
    We interpreted the statutory phrase ``derived primarily from apples 
or apple concentrate and water'' to mean that apple juice, or the 
equivalent amount of concentrate reconstituted to the original brix of 
the juice prior to concentration, must represent more than 50 percent 
of the volume of the finished product. We note the Washington State 
definition, supported by ten commenters, does not

[[Page 58940]]

contain a requirement for a minimum percentage of apple juice, as we 
did in our temporary rule. When we set a threshold for apple juice 
content as part of the regulatory definition of hard cider, we did so 
in an effort to implement the statutory requirement that hard cider be 
made ``primarily from apples.'' Although one commenter stated that he 
believed 95% apple juice should be the minimum, we recognize that one 
traditional method of making hard cider involves diluting apple wine 
(approximately 12% alcohol) with juice, concentrate and water, or other 
non-alcoholic ingredients to a final strength of 6 to 7 % alcohol. We 
also consulted dictionary definitions of the word ``primarily'', which 
yielded synonyms such as ``mainly'' ``chiefly,'' and ``for the most 
part.''
    Several other commenters objected to any use of concentrate in 
production of hard cider; however, the statutory definition of hard 
cider specifically allows the use of concentrate. In all other wine 
regulations, reconstituted concentrate is treated the same as 
unconcentrated juice.
    Several commenters stated that 50% was too high a requirement for 
apple juice. Nicholas Bradstock of the UK National Association of Cider 
Makers, stated that a ``parallel exists with beer where the 
characterising ingredient is malt, but the malt levels may often be at 
less than 50% of the extract material in beer.''
    In view of the comments on both sides of the question, we consulted 
the legislative history. When they introduced S. 475, the bill that 
eventually became the hard cider tax, Senator James Jeffords of Vermont 
noted it was ``designed to increase opportunities for the apple 
industry in the United States,'' and Senator Patrick Leahy of Vermont 
noted he had ``received letters from officials at state agriculture 
departments from across the nation--Arizona, Connecticut, Georgia, 
Maine, Massachusetts, New Hampshire, New York, Pennsylvania, Vermont 
and Virginia--supporting the taxing of draft cider at the beer rate 
because this change would allow apple farmers in their States to reap 
the benefits of an expanded culled apple market.'' That expressed 
intent, together with the choice of the word ``primarily'' in the 
version of the law that was finally enacted, leads us to adopt the 
definition of ``primarily'' in the temporary rule, unchanged, in this 
document.
``Containing No Other Fruit Product'' `` Temporary Rule, Comments and 
Decision
    The Act defined hard cider as ``containing no other fruit 
product.'' In the regulatory definition, ATF interpreted that to mean, 
``containing no other fruit product nor any artificial product which 
imparts a fruit flavor other than apple.'' In the accompanying notice, 
we acknowledged that some cider makers were experimenting with apple 
ciders flavored with other fruits, much as craft brewers experiment 
with different ingredients, including fruit. However, the statutory 
language expressly precludes the addition of any other fruit product to 
hard cider.
    The Washington State definition recommended as a model by ten 
commenters allows apple or pear juice as a base and includes flavored 
cider. In addition to those commenters, 21 commenters stated they 
believed fruit flavors should be allowed in hard cider. One commenter, 
Cheryl Lau, of Transportation, Inc., submitted letters from Senators 
James Jeffords and Patrick Leahy of Vermont and Representative Richard 
Neal of Massachusetts, all of whom sponsored bills to allow cider its 
own tax rate, and from former Senator Bob Dole. These letters were 
originally sent to ATF before the issuance of the temporary rule. In 
response to the publication of the temporary rule and the associated 
notice, we also received comments concerning flavored cider from 
Senator Harry Reid of Nevada and Representative Michael D. Crapo of 
Idaho. These legislators expressed concern that ATF was too restrictive 
in its interpretation of the statute. They stated that they believed a 
fermented apple cider could contain a minor amount of some other fruit 
flavor yet retain its cider character and remain eligible for the hard 
cider tax rate. Senators Jeffords and Leahy, in the April 23, 1998, 
letter submitted by Ms. Lau, said they ``hope [ATF] will adopt a 
definition of 'hard cider' which does not bar the addition of post-
fermentation fruit flavorings.'' Representative Crapo expressed concern 
on behalf of American cidermakers because he believed ATF's regulatory 
definition of hard cider would favor imports of traditional all-apple 
cider at the expense of the vitality of the American industry. He notes 
that the restrictive definition of cider ``is at odds with the 
historical nature of cidermaking in the U.S.'' He cites the book The 
Art of Cider Making by Paul Correnty, as an example: ``Raspberries have 
always held a special place in the cellars and casks of cidermakers.'' 
We did not receive any comments from legislators expressing the 
opposite view.
    Other commenters who favor allowing fruit flavors in hard cider 
included cidermakers, distributors, a State legislator (Don Perata of 
the California Assembly), and a publisher (Thomas E. Dalldorf, Sr. of 
Celebrator Beer News). Mr. Dalldorf noted the omission of fruit 
flavored ciders ``would adversely affect producers and consumers 
alike.'' Some of the producers and distributors commenting on this 
issue noted that cider has the same alcohol content as beer and is 
generally marketed in competition with beer. Fruit-flavored beers are 
taxed at the same rate as conventional beers ($0.584 per gallon), yet 
if cider producers add flavors to their cider, their tax would rise 
from $0.226 to the ``table wine'' rate ($1.07 per gallon).
    Other commenters did not discuss fruit flavors in general, but said 
they believed some pear juice should be allowed in cider. Jean-
Christophe Paille, Counselor for Agriculture of the Ambassade de France 
aux Etats-Unis, noted that French regulations authorize the use of pear 
must in apple cider ``for purpose of gustative quality.'' Nicholas 
Bradstock of the National Association of Cider Makers (NACM, 
representing UK cider makers) and Jeffrey House of California Cider 
Company expressed the view that perry (wine derived from pears) should 
be given equal tax treatment with cider since the two products are so 
similar. Only one commenter, Brian Black of Black & Fagan Cider Co., 
supported the complete prohibition on other fruit flavors, saying 
``wine coolers exist for that category.'' Representative Neal, in his 
March 17, 1998, letter to ATF, supported the idea of fruit flavored 
ciders, but noted the need for a distinction between an eligible 
product marketed as cider and ineligible products marketed as ``a fruit 
flavored wine cooler which was produced with an apple wine base.''
    Although the law specified ``no other fruit product,'' ATF 
interpreted this to mean no artificial fruit flavors, either. Our basis 
for making that decision was the legislative history of the Taxpayer 
Relief Act of 1997, Public Law 105-34, contained in the General 
Explanation of Tax Legislation Enacted in 1997 (the ``Blue Book'') 
published by the Joint Committee (JCS-23-97, Government Printing Office 
ISBN 0-16-055897-2), which said,

    Once fermented, eligible hard cider may not be altered by the 
addition of other fruit juices, flavor, or other ingredient that 
alters the flavor that results from the fermentation process. Thus, 
for example, cider fermented

[[Page 58941]]

from apples, but which has raspberry flavor added to it prior to 
bottling and marketing to the public, will not be eligible for the 
22.6 cents-per-gallon tax rate.

    Further, we do not believe it was Congress's intent to provide a 
tax incentive for use of artificial ingredients in preference to real 
ones.
    Finally, H.P. Bulmer North America suggested, in its comment, that 
ATF has the authority to make a de minimis rule that would allow a 
small amount of fruit flavor in hard cider. They cited court cases 
recognizing administrative discretion inherent in a statutory scheme to 
allow de minimis rules despite the absence of such an allowance in the 
statute, and to allow a de minimis maximum in accordance with 
congressional intent even when the statute is absolute.
    In the present case, ATF does not have discretion to set de minimis 
exceptions to the statutory definition of hard cider, which proscribes 
the use of any fruit product other than apples. First, the Blue Book 
reveals Congress' expressed intent to limit the fruit component of hard 
cider to apples as reflected in its statement that hard cider must be 
``fermented solely from apples or apple concentrate and water, 
containing no other fruit product'' and that post fermentation 
processing may not include the addition of other fruit juices or 
flavors prior to bottling and still be eligible for the 22.6 cents-per-
gallon rate. In addition, when Congress revisited the hard cider 
provisions in Public Law 105-206, the Internal Revenue Service 
Restructuring and Reform Act, it declined to allow other fruit products 
despite the fact that this very issue had been raised. These factors 
present a statutory scheme indicating that Congress intended that hard 
cider would not be composed of any fruit product other than apples. 
Finally, we note that the examples cited in the Bulmer comment differ 
from our situation in that the fruit flavorings, while small as a 
percentage of the total product, would change the character of the 
product enough so that the product would be described as, for instance, 
``raspberry flavored apple cider,'' and not ``apple cider.'' We are 
adopting this part of the temporary rule without change.
Other Flavors in Hard Cider
    Mr. House expressed concern that his cyser (apple cider mixed with 
honey) or his mulled cider (flavored with spices) might not be eligible 
for the hard cider tax rate. Flavoring materials will only affect the 
tax classification of hard cider if they are derived from or impart the 
flavor of a fruit other than apple. Products that are otherwise 
eligible for the hard cider tax rate may be flavored with honey or 
spices, to use Mr. House's examples, without affecting the tax. We did 
not make any regulatory changes related to this question.
Wine Treating Materials
    Although we did not address other wine ingredients in the 
regulatory language of the temporary rule, we asked in the notice if 
the prohibition on ``other fruit products'' should be interpreted to 
restrict use of authorized wine treating materials or sugars that were 
derived from fruits other than apple. We noted that some wine treating 
materials, such as tannin or citric acid, may be derived from fruit 
other than apples. Mr. Daniels of Green Mountain Cidery, Stephen Swift, 
Export Manager of Matthew Clark Brands, Ltd., Paul Thorpe of E. & J. 
Gallo Winery and Mr. Bradstock of NACM, expressed support for continued 
acceptance of citric acid and sugars as wine treating materials and not 
as fruit additives. Mr. Thorpe noted that, despite their names, 
``citric'' acid and ``fructose'' sugar may be derived from sources 
other than fruit. Scott Benson, an independent cider distributor, said 
he thought if fruit flavored ciders were not eligible for the cider tax 
rate, then citric acid and fruit derived sugars should not be allowed 
in cider, either. After reviewing these comments, we have decided not 
to restrict the use of approved wine treating materials in cider. We 
believe it would be impractical to make a distinction between fruit 
derived wine treating materials and the same materials derived from 
other sources, unless there were other circumstances that indicated the 
producer was using these materials as flavorings. Used as directed in 
27 CFR part 24, authorized wine treating materials would not impart a 
fruit flavor to wine. However, we note that some ciders are made under 
approved formulas rather than under the rules for production of natural 
wine in subparts F and L of part 24. In approving such formulas, ATF 
may allow the use of wine treating materials at a level beyond the 
amount necessary to stabilize or adjust the acidity of a natural wine. 
While there is no limit on the amount of wine treating materials that 
may be used in a formula wine, hard cider may not contain treating 
materials in amounts sufficient to impart a fruit flavor other than 
apple and still be taxed as hard cider. For example, if a cider 
contained more citric acid than the amount allowed under subpart L, and 
was labeled as ``citrus flavored,'' the product would be classified for 
tax purposes as a still wine under 14% alcohol by volume rather than a 
hard cider. As we will discuss in more detail in the background 
material on labeling, we will allow the use of the term ``hard cider'' 
on labels of products that do not belong to the ``hard cider'' tax 
class, as long as other information on the label allows us to determine 
the tax class.
Alcohol Content: Temporary Rule, Comment and Decision
    ATF's regulatory definition of hard cider included the phrase 
``containing at least one-half of 1 percent and less than 7 percent 
alcohol by volume.'' This portion of the definition comes directly from 
the law. Commenter Greg Kushmerek, who identified himself as someone 
who has made hard cider in the past, noted it would be difficult for a 
small producer or hobbyist to control fermentation to prevent the cider 
from exceeding 7% abv. The ``less than 7 percent'' limit was imposed by 
statute. Home winemakers may produce any type of wine, subject to the 
limitations in 24.75, Wine for personal or family use, so they will not 
be affected by the 7% alcohol limit for hard cider. For commercial 
producers, the tolerances as to alcohol content already in wine 
regulations at 24.257 will apply to cider as well. This portion of the 
definition is adopted without change from the temporary rule.
``Characteristics Generally Attributed To Hard Cider''--Temporary Rule, 
Comments and Decision
    ATF concluded the definition by stating that hard cider must have 
the taste, aroma and characteristics generally attributed to hard 
cider, and that it must be sold or offered for sale as hard cider. In 
its comment, Green Mountain Cidery noted that ``there are currently no 
agreed subjective taste, aroma or characteristic' profiles within the 
industry for cider.'' We recognize that hard cider may be made and 
presented a number of different ways. The limitations were added to 
insure that products eligible for the hard cider tax rate would not be 
confused with other types of beverages that are subject to different 
tax rates, such as malt-based ``coolers.''
Conclusions on Definition of Hard Cider
    Senator Leahy, when he introduced S. 475, said,

    Draft cider is one of the oldest categories of alcoholic 
beverages in North America. Back in Colonial times, nearly every 
innkeeper served draft cider to his or her patrons during the long 
winter. In fact, through the 19th Century, beer and draft cider sold 
equally in the United States.

[[Page 58942]]

    Recently, draft cider has made a comeback in the United States 
and around the world. Our tax law, however, unfairly taxes draft 
cider at a much higher rate than beer despite the two beverages 
sharing the same alcohol level and consumer market. This tax 
treatment, I believe, creates an artificial barrier to the growth of 
draft cider. Our legislation will correct this inequity.

    In his comment on the temporary rule, Richard G. Burge of Wyder's 
Cider said, ``We fail to understand how it is that our hard ciders will 
not only be unable to enjoy the lower tax rate, but will also be 
completely shut out of the very product category that we helped to 
establish * * *. We believe the rules should promote the category, not 
choke it * * *.''
    The exact wording of the law precludes ATF from making the changes 
in the definition requested by so many commenters.
Labeling of Hard Cider--Temporary Rule, Revised Notice, Comments and 
Decision
    In T.D. ATF-398, ATF added temporary regulations for labeling hard 
cider. We changed both the IRC and the Federal Alcohol Administration 
(FAA) Act labeling rules to require use of the term ``hard cider'' on 
products that are taxable as hard cider, and prohibit use of that term 
on any other wine. We set a compliance date of February 17, 1999 (six 
months after publication), to allow time for producers to change labels 
to comply with the temporary rule. In associated Notice No. 859, ATF 
requested comments on the labeling rules. The comments we received on 
the labeling portion of our temporary rule indicated that we had 
imposed an unintended and unnecessary burden.
    We learned there are producers who make ciders that are not 
eligible for the new tax rate, but who have been using the term ``hard 
cider'' to describe their products. Their products include apple wines 
containing 7 percent or more alcohol by volume and ciders that contain 
less than 7 percent alcohol by volume with other fruit flavors. Since 
such products are excluded from the definition of hard cider, we said 
in the temporary rule they were not entitled to be called ``hard 
cider'' on labels. The producers and other interested persons expressed 
concern that the temporary rule would create consumer confusion, since 
the word ``hard'' suggests ``hard liquor'' or higher alcohol content, 
rather than the meaning we gave it. Some producers of wines eligible 
for the hard cider tax rate stated they prefer to use a phrase like 
``draft cider'' or ``fermented cider'' on their labels and in their 
marketing, for the same reason.
    ATF based the requirement in the temporary rule on 26 U.S.C. 
5368(b), which gives the Secretary of the Treasury general authority to 
issue labeling regulations that require evidence of compliance with tax 
rules. The Secretary of the Treasury also has authority under the FAA 
Act, 27 U.S.C. 205(e), to prescribe regulations to insure that wines 
with 7 percent alcohol by volume or more are labeled or marked to ``* * 
* provide the consumer with adequate information as to the identity and 
quality of the products * * *''
    When we drafted the hard cider labeling sections of the temporary 
rule, we did not intend to cause a hardship for the industry or 
consumers. We intended to maintain the current system of identifying 
the tax class of wine by information on the label. The function of 
ATF's marking requirement is to insure proper identification of the 
wine for tax purposes, and to inform consumers of the identity of the 
product. From the comments, we saw that the term ``hard cider'' has 
broader meaning in the industry and among consumers than the definition 
given in the regulations.
    In light of these comments, we reviewed our need for tax 
identification on the labels of wines. Although much of our work takes 
place on wine premises where supplemental information is available to 
establish the tax rate of a given lot of wine, we believe there are 
times when we must be able to tell the tax rate by looking at the label 
alone. However, we believed it would be possible to meet our tax 
identification needs and still allow greater flexibility for the 
industry. On September 27, 1999, we issued T.D. ATF-418 (64 FR 51896) 
to postpone the effective date of the cider labeling rules until 
September 27, 2000, and associated Notice No. 881 (64 FR 51933) 
proposing alternative labeling rules and requesting public comments.
    Specifically, we proposed to remove the amendment we made to 
Sec. 4.21(e)(5) of the FAA Act wine labeling regulations. Part 4 only 
applies to wines that contain 7%-24% alcohol by volume. As amended, 
that section prohibited the use of the term ``hard cider'' on any wine 
with 7% or more alcohol by volume. We intended to avoid confusion 
between these higher alcohol wines and wines in the new hard cider tax 
class by this prohibition. After reviewing the comments, we find this 
precaution unnecessary. We believe, since hard cider with 7% or more 
alcohol by volume will be marked with the alcohol content, it will be 
easy to distinguish the product from a lower-alcohol hard cider 
eligible for the hard cider tax rate. Therefore, we will allow use of 
the term ``hard cider'' on products over 7% alcohol by volume. Second, 
we are amending the IRC marking requirements in part 24. When the new 
tax class of hard cider was established, we amended the labeling rules 
to substitute the phrase ``hard cider'' for the word ``wine'' to 
identify the tax class. On IRC wine labels, no single item of 
information gives the tax class. On conventional wines, the word 
``wine'' and the alcohol content (modified by the word ``carbonated'' 
or ``sparkling'' if either applies) identify the tax class.
    For products under 7% alcohol by volume, we want to differentiate 
between ciders which are eligible for the hard cider tax rate and those 
which are taxable as still wine containing not more than 14% alcohol by 
volume. Some producers have marketed eligible products as ``draft 
cider,'' ``fermented cider'' or ``apple cider'' and do not wish to use 
the term ``hard cider'' on labels. Some producers have marketed mixed-
fruit ciders or low-alcohol ciders that are otherwise excluded from the 
current definition of hard cider under the name ``hard cider'' and do 
not wish to rename their products.
    Other commenters asked questions that indicated labeling 
requirements were not clear in the temporary rule:
    --Does ATF require that the words ``hard cider'' must be inserted 
in the brand name?
    --Where on the label must the required information appear?
    --What size type should be used for the required information?
    --Do the FAA Act labeling rules and standards of fill apply to hard 
cider?
    To address these concerns, we proposed several changes to 27 CFR 
24.257. First, we proposed to adopt the minimum and maximum type size 
requirements of 27 CFR 4.38 because they are already in use by the wine 
industry for higher alcohol products. We did not propose to specify 
placement of information required in Sec. 24.257. Products with 7 
percent or more alcohol by volume will still be subject to the FAA Act 
rules covering placement.
    We proposed to remove the requirement that the word ``wine'' or the 
words ``carbonated wine'' must be ``part of the brand name or in a 
phrase in direct conjunction with the brand name.'' Information on the 
kind of wine may be anywhere on the label. We also proposed to add some 
alternative labeling terms to reflect the industry practice of calling 
products ``cider'' instead of ``wine'' on these labels. We did not 
propose to require or restrict the

[[Page 58943]]

use of words such as ``draft'', ``fermented'' or ``hard'' to identify 
products in the tax class of hard cider. We proposed, where the words 
on the label leave doubt as to the tax class, that cider makers must 
include a reference to the tax class by section of the law. For 
example, hard cider must contain more than 50 percent apple juice. If a 
cider contains less than 50 percent apple juice, it is taxed as a still 
wine under 14 percent alcohol by volume, but it may still be called 
cider. In order to make it clear that this cider is taxed at $1.07 
instead of $0.226, we will require that the label show ``tax class 
5041(b)(1) IRC'' or an equivalent phrase. This wording is similar to 
the wording of 27 CFR 25.242, on marking nontaxable cereal beverages. 
We requested industry and consumer comments on these proposals.
    In response to Notice No. 881, ATF received four comments. Roger 
Daniels of Green Mountain Cidery wrote to support the proposed changes, 
but objected to use of specific examples in the proposed rule that used 
the temporary rule's definition of hard cider, which they believe 
should be changed. Since we have not changed the definition, we have 
retained the examples. Mr. Daniels also reiterated his request that we 
clarify when FAA Act labeling rules apply and when they do not. We have 
amended the final rule to include this information. We have also added 
a reference to the Health Warning Statement, which is required for any 
alcohol beverage over \1/2\ percent alcohol, including cider. Richard 
G. Burge of Wyder's Cider supported our proposal to allow more open use 
of the word cider, but objected to our proposal that the tax class 
should be added to the label. He said the added tax information ``is 
not meaningful to the consumer and can be confusing.'' Mr. Bradstock of 
NACM said: ``Ciders qualifying as Hard Cider for tax purposes might be 
described in other terms, * * * and if the tax class is not clear from 
the manner of labelling [sic] then this might be confirmed by quoting 
the tax class on the label * * * with or without a supplementary 
declaration of hard cider.'' Stephen Swift of Matthew Clark Brands, 
Ltd., a cider maker from the U.K., wrote to express support for the 
NACM comment.
    All the commenters supported ATF's proposal to allow more 
flexibility in naming hard cider and related products. Three of the 
four also accepted ATF's suggestion to supplement the product name with 
the IRC quote when the name and alcohol content alone do not give 
enough information to establish the tax class.
    In response to Mr. Burge's objection to the use of the IRC cite as 
tax class identification, it is our responsibility under the Internal 
Revenue Code to identify taxable commodities and collect the tax. We 
have revised the requirement for the law cite to emphasize that it only 
applies in cases where it is impossible to identify the tax class from 
existing label information. In the notice, we requested suggestions for 
other ways of identifying the tax class, and received no suggestions. 
We have decided to adopt the proposed changes in this final rule with 
the revisions noted.
Conforming Changes on Hard Cider
    We amended the definition of ``eligible wine'' that appears in 
parts 19, 250 and 251 to clarify that wine in the new tax category of 
hard cider is not eligible for wine and flavor credit if used in a 
distilled spirits product. We did not receive any comments on this 
change, so amendments to 27 CFR 19.11, 250.11 and 251.11 in the 
temporary rule are adopted in this final rule without change.

Transition to New Rules

    While the labeling changes in this final rule are effective 60 days 
after publication in the Federal Register for new labels, we recognize 
that it is not practical to enforce the new requirements immediately 
for products already on the market. Therefore, we will allow a six-
month period to change labels as necessary. The new requirements will 
become mandatory six months after publication in the Federal Register.

Regulatory Flexibility Act

    Because no notice of proposed rulemaking is required, the 
provisions of the Regulatory Flexibility Act (5 U.S.C. 601 et seq.) do 
not apply. Moreover, any revenue effects of this rulemaking on small 
businesses flow directly from the underlying statute. Likewise, any 
secondary or incidental effects, and any reporting, recordkeeping, or 
other compliance burdens flow directly from the statute. Pursuant to 26 
U.S.C. 7805(f), the temporary regulation was submitted to the Chief 
Counsel for Advocacy of the Small Business Administration for comment 
on its impact on small business. That office did not comment on the 
regulation.
    Nine commenters mentioned potential economic harm coming from the 
exclusion of fruit flavored ciders from the tax category ``hard 
cider.'' As noted earlier, we believe the wording of the statute does 
not allow for any other interpretation, thus, any economic effects flow 
directly from the statute.

Executive Order 12866

    It has been determined that this temporary rule is not a 
significant regulatory action as defined by Executive Order 12866. 
Therefore, a regulatory assessment is not required.

Paperwork Reduction Act

    The provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 
3507) and its implementing regulations, 5 CFR part 1320, do not apply 
to this final rule because no new collection of information is 
contained in these regulations. Some of the amended regulatory sections 
contain collections of information that were previously approved by the 
Office of Management and Budget (OMB). Although these sections are 
being amended, the changes are not substantive or material.

Drafting Information

    Marjorie Ruhf, of the Regulations Division, Bureau of Alcohol, 
Tobacco and Firearms, drafted this document. Other personnel of ATF and 
the Treasury Department participated in developing the document.

List of Subjects

27 CFR Part 4

    Advertising, Consumer protection, Customs duties and inspection, 
Imports, Labeling, Packaging and containers, Wine.

27 CFR Part 24

    Administrative practice and procedure, Authority delegations, 
Claims, Electronic fund transfers, Excise taxes, Exports, Food 
additives, Fruit juices, Labeling, Liquors, Packaging and containers, 
Reporting and recordkeeping requirements, Research, Scientific 
equipment, Spices and flavoring, Surety bonds, Taxpaid wine bottling 
house, Transportation, Vinegar, Warehouses, Wine.

Authority and Issuance

    Accordingly, the temporary rule amending chapter I of title 27, 
Code of Federal Regulations, which was published at 63 FR 44779, August 
21, 1998, is adopted as a final rule with the following changes:

PART 4--LABELING AND ADVERTISING OF WINE

    Par. 1. The authority citation for 27 CFR part 4 continues to read 
as follows:

    Authority: 27 U.S.C. 205, unless otherwise noted.


[[Page 58944]]



    Par. 2. Section 4.21 is amended by revising the third sentence of 
paragraph (e)(5) to read as follows:


Sec. 4.21  The standards of identity.

* * * * *
    (e) Class 5; fruit wine * * *
    (5) * * * Fruit wines which are derived wholly (except for sugar, 
water, or added alcohol) from apples or pears may be designated 
``cider'' and ``perry,'' respectively, and shall be so designated if 
lacking in vinous taste, aroma, and characteristics. * * *
* * * * *

PART 24--WINE

    Par. 3. The authority citation for 27 CFR part 24 continues to read 
as follows:

    Authority: 5 U.S.C. 552(a); 26 U.S.C. 5001, 5008, 5041, 5042, 
5044, 5061, 5062, 5081, 5111-5113, 5121, 5122, 5142, 5143, 5173, 
5206, 5214, 5215, 5351, 5353, 5354, 5356, 5357, 5361, 5362, 5364-
5373, 5381-5388, 5391, 5392, 5511, 5551, 5552, 5661, 5662, 5684, 
6065, 6091, 6109, 6301, 6302, 6311, 6651, 6676, 7011, 7302, 7342, 
7502, 7503, 7606, 7805, 7851; 31 U.S.C. 9301, 9303, 9304, 9306.

    Par. 4. Section 24.4 is amended by adding a reference to part 16 
between the references to parts 9 and 18, to read as follows:


Sec. 24.4   Related Regulations.

* * * * *
27 CFR Part 16--Alcoholic Beverage Health Warning Statement
* * * * *
    Par. 5. Section 24.257 is amended by revising paragraph (a) to read 
as follows:


Sec. 24.257  Labeling wine containers.

    (a) The proprietor must label each bottle or other container of 
beverage wine prior to removal for consumption or sale. The minimum 
type size for information required by this section is: 2 millimeters 
for containers of more than 187 milliliters and 1 millimeter for 
containers of 187 milliliters or less. The maximum type size for 
alcohol content statements is 3 millimeters unless the container is 
larger than 5 liters. The label must be securely affixed and show:
    (1) The name and address of the wine premises where bottled or 
packed;
    (2) The brand name, if different from above;
    (3) The alcohol content as percent by volume or the alcohol content 
stated in accordance with 27 CFR part 4. For wine with less than 7 
percent alcohol by volume stated on the label there is allowed an 
alcohol content tolerance of plus or minus .75 percent by volume; and
    (4) The kind of wine, shown as follows:
    (i) If the wine contains 7 percent or more alcohol by volume and 
must have label approval under 27 CFR part 4, the kind of wine is the 
class, type, or other designation provided in that part.
    (ii) If the wine has an exemption from label approval, an adequate 
statement of composition may be used instead of the class and type in 
27 CFR part 4.
    (iii) If the wine contains less than 7 percent alcohol by volume, 
an adequate statement of composition may be used instead of the class 
and type in 27 CFR part 4. The rules in 27 CFR part 4 pertaining to 
label approval and standards of fill do not apply to wine under 7 
percent alcohol by volume. The rules in 27 CFR part 16 requiring a 
Health Warning Statement do apply to all wines over 1/2 percent 
alcohol. Except for the rules noted in this section, labeling of wines 
under 7 percent alcohol is under the jurisdiction of the Food and Drug 
Administration.
    (iv) The statement of composition must include enough information 
to identify the tax class when viewed with the alcohol content. First, 
the wine should be identified by the word ``wine,'' ``mead,'' ``cider'' 
or ``perry,'' as applicable. If the wine contains more than 0.392 grams 
of carbon dioxide per 100 milliliters, the word ``sparkling'' or 
``carbonated,'' as applicable, must be included in the statement of 
composition. If the statement of composition leaves doubt as to the tax 
class of the wine, the wine must be marked ``tax class 5041(b)(1) IRC'' 
or an equivalent phrase. For example, a still wine marked ``wine'' and 
``16 percent alcohol by volume'' is adequately marked to identify its 
tax class as 5041(b)(2). A still wine marked ``hard cider'' and ``9 
percent alcohol by volume'' is adequately marked to identify its tax 
class as 5041(b)(1). A still wine marked ``raspberry hard cider'' and 
``9 percent alcohol by volume'' is adequately marked to identify its 
tax class as 5041(b)(1). A still wine eligible for the hard cider tax 
rate marked ``cider'' or ``hard cider'' and ``6 percent alcohol by 
volume'' is adequately marked to identify its tax class as 5041(b)(6). 
However, if a still wine that is not eligible for the hard cider tax 
rate is marked ``cider'' or ``hard cider'' and ``6 percent alcohol by 
volume'' it is not adequately marked to identify its tax class as 
5041(b)(1), so the tax class must be shown.
    (5) The net content of the container unless the net content is 
permanently marked on the container as provided in 27 CFR part 4.
* * * * *

    Signed: July 13, 2001.
Bradley A. Buckles,
Director.

    Approved: October 26, 2001.
Timothy E. Skud,
Acting Deputy Assistant Secretary (Regulatory, Tariff and Trade 
Enforcement).
[FR Doc. 01-29361 Filed 11-23-01; 8:45 am]
BILLING CODE 4810-31-P