[Federal Register Volume 69, Number 133 (Tuesday, July 13, 2004)]
[Notices]
[Pages 42030-42033]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-15710]


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 Notices
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  Federal Register / Vol. 69, No. 133 / Tuesday, July 13, 2004 / 
Notices  

[[Page 42030]]



DEPARTMENT OF AGRICULTURE


Center for Nutrition Policy and Promotion; Notice of Proposal for 
Food Guide Graphic Presentation and Consumer Education Materials; 
Opportunity for Public Comment

AGENCY: Center for Nutrition Policy and Promotion, USDA.

ACTION: Notice.

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SUMMARY: The Food Guide Pyramid, USDA's current food guide, is an 
educational tool that interprets and helps Americans use the Dietary 
Guidelines for Americans. It provides guidance on types and amounts of 
foods to eat that meet current scientific standards for healthful 
eating to help consumers assess and improve their diets. The USDA 
Center for Nutrition Policy and Promotion (CNPP) has initiated a broad-
based review and update of the Pyramid, including its suggested food 
intake patterns, its graphic presentation, and new educational 
materials for professionals and consumers. The update is being 
conducted by USDA in consultation with the Department of Health and 
Human Services (HHS). This notice announces a proposed Food Guidance 
System for the food guide's graphic presentation and education 
materials. Written and oral public comments are solicited on the 
proposed Food Guidance System including ideas for a new food guide 
graphic. A public meeting will be held on August 19, 2004 for 
additional stakeholder input. Comments are welcomed on all aspects of 
the proposed Food Guidance System and are specifically requested on six 
topics described in this notice.

DATES: 1. Written comments on the proposed plan for revising the food 
guide's graphic presentation and consumer education materials can be 
submitted and must be received by the Agency on or before August 27, 
2004.
    2. A public meeting for stakeholder input will be held on August 
19, 2004, from 9 a.m. to 12:30 p.m. Requests to participate in this 
meeting must be received by 5 p.m. e.d.t. on August 12, 2004.

ADDRESSES: 1. Submit written comments to Food Guide Pyramid 
Reassessment Team, USDA Center for Nutrition Policy and Promotion, 3101 
Park Center Drive, Room 1034, Alexandria, VA 22302. No electronic 
written comments will be accepted or considered.
    2. The public meeting for stakeholder input will be held at the 
Jefferson Auditorium, USDA South Building, 1400 Independence Avenue 
SW., Washington, DC. Submit requests to participate to 
[email protected].

SUPPLEMENTARY INFORMATION: 

I. Relationship to the Dietary Guidelines for Americans

    The Food Guide Pyramid, USDA's current food guide, is an 
educational tool that interprets and helps Americans implement the 
Dietary Guidelines for Americans and other nutritional standards. 
Updating of the Pyramid is being coordinated with the review and 
revision of the Guidelines, a collaborative effort by USDA and the 
Department of Health and Human Services (HHS). Proposed Food Intake 
Patterns for the new food guide have been presented to and discussed 
with the 2005 Dietary Guidelines Advisory Committee for the purpose of 
obtaining the Committee's input into the process and outcomes. After 
receipt of the Committee report, the Food Intake Patterns will be 
finalized in consultation with HHS. The final Food Intake Patterns will 
reflect the recommendations of the 2005 Dietary Guidelines for 
Americans. The Dietary Guidelines and the final Food Intake Patterns 
will be used in development of all consumer messages and materials.

II. Background on the Food Guide Pyramid

    USDA has provided food guidance to the American public for over 100 
years; the Food Guide Pyramid is the current graphic representation of 
this guidance. The Pyramid was originally released in 1992. It was 
designed to help Americans make choices that are (1) adequate in 
meeting nutritional standards but (2) moderate in energy level and in 
food components often consumed in excess. Its goal was to make ``total 
diet'' recommendations. This differed from previous food guides that 
were concerned with adequacy only and were presented as ``foundation 
diets'' to which other foods could be added. What is ``adequate'' and 
``moderate'' is determined by recommendations from established 
authoritative bodies, expert panels such as the Dietary Guidelines 
Advisory Committee and the National Academies of Sciences' Institute of 
Medicine (IOM) committees. These science-based daily food intake 
patterns form the foundation for both the graphic presentation of the 
food guidance and for consumer messages about appropriate food choices 
and amounts to eat. A full description of how the original food 
patterns for the Pyramid and the graphic presentation were developed 
has been published in ``USDA's Food Guide Pyramid: Background and 
Development,'' available at http://www.usda.gov/cnpp/pyramid.html. 
Proposed updates to the food intake patterns were described in a 
previous Federal Register notice (available at http://www.cnpp.usda.gov/pyramid-update/index.html). This earlier notice (68 
FR 53536, September 11, 2003) solicited public comments on the proposed 
Food Intake Patterns. All comments that were received have been posted 
on the CNPP Web site (same URL as above) and are being considered in 
the development of the final Food Intake Patterns. These proposed food 
patterns were developed to meet current nutritional standards and were 
based on the same philosophical goals that were used in developing the 
original Pyramid--including the goals to represent a total diet that is 
both adequate and moderate. The updated food intake patterns also 
reflect current food consumption choices, in a nutrient dense form 
(with lowest fat and added sugars content), with amounts modified to 
meet nutritional goals. The nutritional standards for the proposed food 
patterns included the IOM Dietary Reference Intakes released between 
1997 and 2002 and the 2000 Dietary Guidelines for Americans. 
Incorporation of nutritional standards from the 2004 IOM report on 
water and electrolytes is underway.

[[Page 42031]]

III. Proposal for a Food Guidance System for Graphic Presentation and 
Educational Materials

    Most Americans are familiar with the Food Guide Pyramid, but few 
follow its recommendations in their entirety. The purpose for 
developing a new consumer presentation and materials is to help 
motivate consumers to put the food intake patterns into practice in 
order to improve their food choices. To accomplish this CNPP plans to 
develop and implement a system that includes focused messages and 
individualized educational tools. It is envisioned that the system will 
be delivered through multiple channels (e.g., print, internet, media) 
that connect with the individual and tailor information to their needs. 
The goals for this system are (1) to increase consumer awareness of the 
new science-based nutrition guidance, (2) to encourage consumers to 
make positive changes in their food choices, and (3) to educate 
consumers about food choices and amounts to eat.
    To reach these goals, CNPP proposes a Food Guidance System that 
will (1) use a graphic image as a symbol to represent the overall 
system and (2) define and communicate specific nutritional guidance 
messages clearly through multiple channels and materials. Proposed 
components of this system are described in the following sections.

A. Motivational/Awareness Components

    1. Graphic: CNPP proposes developing a graphic symbol to represent 
the Food Guidance System to the public and to identify/brand Food 
Guidance System materials. This graphic is not intended for use as a 
stand-alone educational tool because the food guidance messages to be 
conveyed are too complex for any single graphic. The rationale for this 
approach is described in section IV of this notice.
    2. Slogan: CNPP also proposes to develop a concise statement to be 
used in conjunction with the graphic symbol. The slogan will be 
designed to encourage consumers to make healthy food choices. It will 
not specifically try to convey other educational messages, but may link 
with statements directing consumers to sources where they can access 
food guidance system educational messages and additional information.

B. Educational Components

    1. Daily Food Intake Patterns: CNPP proposes using the revised 
Daily Food Intake Patterns to identify appropriate food choices and 
amounts, based on age, sex, and activity level. These food intake 
patterns list amounts to eat from five major food groups, as well as 
subgroups within the vegetable and grains groups. They also identify 
maximum amounts of added fats and sugars that fit within the caloric 
goal for each pattern. The proposed food intake patterns are the result 
of USDA's technical research process and were described at 68 FR 53539 
of the September 11, 2003 Federal Register. The food intake patterns 
will be finalized after the 2005 Dietary Guidelines Advisory Committee 
report is completed. CNPP envisions that the intake patterns will be 
disseminated in their detailed format primarily to professionals. They 
will also form the basis for interactive and print consumer materials 
in a simplified or individualized format.
    2. Core Messages and Framework: CNPP proposes developing a set of 
core messages for the Food Guidance System. These messages are intended 
to help individuals use the food intake patterns in selecting 
appropriate food choices and amounts. They will be used as the basis 
for development of educational materials. Federal agencies, health 
professionals, and nutrition educators may use the framework to 
incorporate the core messages into their nutrition education programs 
and materials. The core messages will give specific recommendations for 
making food choices and will be sufficiently detailed to be actionable. 
They are proposed as directional statements that will improve food 
choices for most Americans in comparison to their typical choices. The 
messages are intended to result in behavioral changes that will:
    a. Keep caloric intake balanced with energy expenditure to prevent 
weight gain, promote weight loss, and/or maintain a healthy weight.
    b. Promote nutrient dense food choices to increase the intake of 
vitamins, minerals, fiber, and other key nutrients, especially those 
that are often low in typical diets.
    c. Lower chronic disease risks by lowering intake of saturated 
fats, trans fats, cholesterol, sodium, and other food components that 
are often consumed in excessive amounts.
    3. Interactive personalized guidance tools: CNPP proposes 
developing a portfolio of interactive, educational tools for the new 
Food Guidance System that could be accessed through the Internet, CD-
ROMs, or other venues. These tools will individualize food intake 
recommendations and help consumers make healthful food choices. They 
will also be designed to provide additional nutrition and health 
information for consumers ``on demand.'' For example, consumers would 
be able to access specific information about food sources of calcium if 
and when they want it. It is envisioned that these tools will provide 
varied levels of information based on a consumer's interest and needs. 
For example:
    a. Level 1 will provide individualized daily food intake 
recommendations--identifying appropriate food choices and amounts from 
each food group and subgroup. These recommendations would be based on 
user-provided personal characteristics such as age, sex, height, 
weight, and physical activity level.
    b. Level 2 will provide more individualized information to help 
consumers plan their food choices. It will allow users to make sample 
food choices and give them immediate visual feedback on how these 
choices compare to their personal food intake recommendations.
    The interactive tools are not envisioned to replace but rather to 
work in concert with CNPP's existing Interactive Healthy Eating Index 
(IHEI) and Interactive Physical Activity Tool (IPAT). The new tools 
will provide links to the IHEI and IPAT for consumers wanting a 
detailed assessment of their own diet or physical activity level.
    4. Print materials and tools: CNPP proposes developing print 
materials and tools to provide core consumer messages for specific 
target audiences such as schools, food assistance programs, and 
nutrition education programs. A visually appealing pamphlet and poster 
for a general consumer audience are currently planned as the first 
print materials to be developed.
    All print materials will incorporate a subset of the consumer 
messages (educational component B2) that are appropriate for the target 
audience. For example, a poster intended for young children would 
include specific messages appropriate for this age group such as eating 
foods from each food group. The messages may be translated into words 
or visual images that are appropriate for the specific audience and 
material. Audiences with specific needs for materials, such as low 
literacy food program participants, will be identified. All print 
materials will incorporate the graphic symbol and slogan (motivational/
awareness components 1 and 2) in addition to selected educational 
messages.

IV. Rationale for the Food Guidance System Approach

    In planning the approach for the revised food guidance materials, 
the

[[Page 42032]]

development, use of, and consumer understanding of the original graphic 
image were examined. The original Pyramid graphic was designed to be 
used in conjunction with a 32-page booklet of nutrition advice titled 
The Food Guide Pyramid. (The booklet is available on-line at http://www.usda.gov/cnpp/pyramid.html.) The booklet provides more detailed 
advice about making food choices for health than provided by the 
Pyramid graphic alone. However, many professionals and consumers are 
unaware of the educational booklet and assume that the Pyramid's 
nutritional guidance is limited to the information on the graphic 
image. During the development of the original Pyramid, extensive 
consumer research with several shapes was conducted to select and 
confirm which shape best communicated several key messages. Based on 
this research, the Pyramid shape was selected to communicate the 
messages of variety, proportionality, and moderation. Among the other 
shapes that were tested, the bowl shape was found to communicate the 
variety message well and it was considered appealing by many consumers. 
However, the bowl shape did not communicate the proportionality and 
moderation messages as well as the pyramid shape.
    The Pyramid graphic has been widely used as a stand-alone 
educational tool. It appears on posters and on food packages and is 
used as a handout in health or nutrition education programs. In some 
instances, the general information in the graphic has been 
misinterpreted as specific advice. For example, the range of servings 
shown for each food group, intended to reflect caloric needs of the 
overall population, has been misunderstood to mean that an individual 
consumer can select any number of servings within the overall range. 
While the Pyramid graphic was not intended to provide complete 
nutritional guidance by itself, it has been successful in communicating 
several basic messages. Recent USDA research has found that many 
consumers can identify one or more of the key messages that the Pyramid 
graphic was intended to convey. For example, a number mentioned 
variety, moderation, or balance as ``what the Pyramid graphic tells you 
to do.'' Others referred to the concept of proportionality, stating 
that you should eat more from the base and less as you move up to the 
top. However, detailed messages about the food groups--placement, 
amounts to eat--were not well understood by consumers when viewing the 
graphic without supplemental materials.
    Stakeholders have proposed adding more nutrition education concepts 
(e.g., types of fat, water, exercise, nutrient density) to the graphic. 
Depicting all of the key nutritional guidance messages on a single 
graphic may increase the complexity of the image to the point that it 
cannot be understood at all. Details about food group placement, for 
example, are already missed by most consumers. Rather than further 
complicating the image, the proposed plan is to simplify the graphic 
and use it as a symbol, to identify food guidance messages and 
materials and to remind consumers to make healthful food choices. Then, 
educational materials that communicate the key guidance messages will 
be developed and identified or ``branded'' by using the graphic symbol 
on these materials. To the extent possible, these guidance materials 
will be developed in formats that are individualized, specific, and 
concrete to assure that intended messages are clear and useful.

V. Process for Development of Consumer Materials

A. Consideration of All Comments and Ideas Received in Response to This 
Notice

    CNPP will carefully consider all written and oral comments and 
suggestions received in response to this notice. All ideas submitted 
for the graphic symbol and for any educational materials can and may be 
used in the design and development process. It is understood that all 
ideas presented are offered freely for any potential use by USDA or 
others, and that no credit or other compensation will be made if these 
ideas are used.

B. Design and Testing Under Contract

    CNPP is contracting to develop the consumer materials through the 
USDA contracting process. To assure consistency with anticipated 
Dietary Guidelines consumer materials and coordination of the ``look 
and feel'' of all Federal guidance materials, the development will be 
conducted in consultation with HHS. The contractor will be responsible 
for designing, developing, and consumer testing all of the Food 
Guidance System elements described in this notice. CNPP staff will work 
closely with the contractor and final decisions about all products will 
be made by USDA.

C. Consumer Research To Test Understanding, Appeal, Motivational 
Elements, Usability and Usefulness

    As part of the design and development process, all potential 
images, messages, and materials will be tested with consumers to 
determine how well they communicate intended messages, how actionable 
they are, and how appealing they are to consumers. Results from the 
consumer research will be used to revise and finalize the materials. 
For many elements of the system, several rounds of consumer testing are 
envisioned to test early prototypes and then further refine the 
materials.

D. Finalization and Release

    Release of initial materials is planned for early 2005. CNPP 
envisions that these initial materials will include the graphic symbol 
and slogan, the core consumer messages, level 1 of the interactive 
tool, a pamphlet, and a poster.

E. Implementation

    CNPP plans to work with its Federal partners to implement the Food 
Guidance System. Guiding principles for use of all Food Guidance System 
materials will be developed. In addition, a plan for evaluation will be 
included as part of the development and implementation of all tools and 
materials. Implementation strategies include:
    1. Internet accessibility of all materials: CNPP plans to make all 
print, graphic, and internet materials available in usable and/or 
downloadable format through the CNPP website. Additional web venues 
will also be explored to maximize the visibility and accessibility of 
the materials.
    2. Partnerships: CNPP plans to work in coordination and 
collaboration with other information multipliers (such as educators) to 
foster widespread use of the food guide graphic, slogan, messages and 
materials. Partnerships may be sought with nutrition, health, and 
education organizations; trade associations; Federal, state, and local 
government agencies; and food companies. Guiding principles to maintain 
the integrity of the System and guidance messages and an organizational 
plan for partnerships will be developed within guidelines approved by 
the USDA Office of the General Counsel.
    3. Media: CNPP plans to work with the media to create opportunities 
to increase accessibility and communication of the Food Guidance System 
messages and materials.

[[Page 42033]]

VI. Topics of Particular Interest To CNPP for Comment

    Comments are welcomed on all aspects of the proposed Food Guidance 
System. CNPP has particular interest in receiving comments from the 
public on the following issues and questions:
    A. Advantages and disadvantages of retaining current shape for 
graphic and other potential shapes to use as a representative of the 
overall Food Guidance System. The current graphic, the Food Guide 
Pyramid, has attained a high level of recognition among American 
consumers. The proposed new graphic is envisioned as a simplified 
symbol to represent the system but not provide detailed information. Is 
the high level of recognition that the pyramid shape has attained as a 
symbol of food guidance important in considering a shape for the new 
symbol? How is a pyramid shape viewed in relation to food guidance? How 
could USDA best capitalize on the recognition the original Pyramid has 
attained? Are there reasons that a different shape would be preferable? 
What other shapes or graphic ideas might better communicate dietary 
guidance messages?
    B. Usefulness of the proposed strategies to highlight both 
motivational/awareness and educational messages. The proposed plan 
outlined in section III of this notice identifies both motivational/
awareness elements and educational elements for the food guidance 
system. What are the pros and cons to implementing this strategy? How 
can these elements be designed to best complement each other? Would 
other strategies better communicate the multiple consumer messages of 
the food guidance system?
    C. Advantages and disadvantages of the plan to individualize 
guidance in contrast to ``generalized'' messages. A major factor 
considered in the development of this proposed plan was that ``one 
size'' does not fit all for nutrition guidance. There are some 
universal messages such as the need for nutrients. However, with the 
rising incidence of obesity and overweight has come an increased need 
to focus on specific energy intake levels and therefore specific 
recommendations for types and amounts of food to consume. How can 
educational materials best be designed to provide this more specific 
guidance? What are the pros and cons of attempting to provide 
individualized rather than general guidance? What guidance messages are 
appropriate as general messages?
    D. Advantages and disadvantages of the planned focus on core 
messages in contrast to use of a graphic to represent educational 
messages. The original Pyramid graphic was successful in communicating 
several basic concepts. However, many consumers have not grasped 
specific concepts such as food group placement and amounts recommended 
to eat by viewing the graphic alone. Now, additional issues and 
messages are being proposed for incorporation into food guidance for 
consumers. Given the number and complexity of food guidance messages 
that must be communicated, CNPP has proposed that the graphic not be 
considered as an educational tool to communicate all of these messages. 
A framework containing core educational messages is envisioned for use 
in the development of all materials, with the graphic used to identify 
or ``brand'' these materials as part of the Food Guidance System. Is 
this plan feasible? Is it preferable to using the graphic to 
communicate essential food guidance messages? What advantages and 
disadvantages are there in using the graphic as a symbol to represent 
the system rather than as an educational tool?
    E. Key components for effective interactive educational tools. The 
premise for the educational components of the new Food Guidance System 
is to help consumers improve their food choices through use of 
personalized guidance. CNPP envisions doing this through development of 
interactive educational tools accessible through the internet, on CD-
ROMs, or other venues. What makes an effective personalized or 
interactive tool? What information should be provided to help consumers 
who seek only basic information on appropriate food choices and 
amounts? What information should be added for consumers that want to 
plan and assess their diets? What elements should be developed to help 
consumers personalize their diets? What caveats should be considered in 
developing individualized guidance?
    F. Channels of delivery for the Food Guidance System. Once the new 
Food Guidance System is released, what are the most efficient and 
effective ways to reach consumers? Are internet-based and print 
educational materials most accessible to educators (information 
multipliers) and consumers? CNPP has proposed using the internet as one 
of the key channels for delivering Food Guidance System elements. Are 
there audiences that will not be able to access this information? What 
alternatives are available for reaching these audiences?

VII. Public Disclosure and Availability of Comments

    All comments submitted in response to this notice will be included 
in the record and will be made available to the public. Please be 
advised that the substance of the comments and the identities of the 
individuals or entities submitting the comments will be subject to 
public disclosure. CNPP plans to make the comments publicly available 
by posting a copy of all comments on the CNPP Web site at http://www.cnpp.usda.gov/pyramid-update.

    Dated: July 2, 2004.
Eric J. Hentges,
Executive Director, Center for Nutrition Policy and Promotion.
[FR Doc. 04-15710 Filed 7-12-04; 8:45 am]
BILLING CODE 3410-30-P