[Federal Register Volume 81, Number 176 (Monday, September 12, 2016)]
[Rules and Regulations]
[Pages 62626-62629]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-21849]


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DEPARTMENT OF THE TREASURY

Alcohol and Tobacco Tax and Trade Bureau

27 CFR Part 9

[Docket No. TTB-2016-0002; T.D. TTB-143; Ref: Notice No. 157]
RIN 1513-AC23


Establishment of the Willcox Viticultural Area

AGENCY: Alcohol and Tobacco Tax and Trade Bureau, Treasury.

ACTION: Final rule; Treasury decision.

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SUMMARY: The Alcohol and Tobacco Tax and Trade Bureau (TTB) establishes 
the approximately 526,000-acre ``Willcox'' viticultural area in 
portions of Graham and Cochise Counties in southeastern Arizona. The 
``Willcox'' viticultural area is not located within any other 
viticultural area. TTB designates viticultural areas to allow vintners 
to better describe the origin of their wines and to allow consumers to 
better identify wines they may purchase.

DATES: This final rule is effective October 12, 2016.

FOR FURTHER INFORMATION CONTACT: Karen A. Thornton, Regulations and 
Rulings Division, Alcohol and Tobacco Tax and Trade Bureau, 1310 G 
Street NW., Box 12, Washington, DC 20005; phone 202-453-1039, ext. 175.

SUPPLEMENTARY INFORMATION:

Background on Viticultural Areas

TTB Authority

    Section 105(e) of the Federal Alcohol Administration Act (FAA Act), 
27 U.S.C. 205(e), authorizes the Secretary of the Treasury to prescribe 
regulations for the labeling of wine, distilled spirits, and malt 
beverages. The FAA Act provides that these regulations should, among 
other things, prohibit consumer deception and the use of misleading 
statements on labels and ensure that labels provide the consumer with 
adequate information as to the identity and quality of the product. The 
Alcohol and Tobacco Tax and Trade Bureau (TTB) administers the FAA Act 
pursuant to section 1111(d) of the Homeland Security Act of 2002, 
codified at 6 U.S.C. 531(d). The Secretary has delegated various 
authorities through Treasury Department Order 120-01, dated December 
10, 2013 (superseding Treasury Order 120-01, dated January 24, 2003), 
to the TTB Administrator to perform the functions and duties in the 
administration and enforcement of these laws.
    Part 4 of the TTB regulations (27 CFR part 4) authorizes TTB to 
establish definitive viticultural areas and regulate the use of their 
names as appellations of origin on wine labels and in wine 
advertisements. Part 9 of the TTB regulations (27 CFR part 9) sets 
forth standards for the preparation and submission of petitions for the 
establishment or modification of American viticultural areas (AVAs) and 
lists the approved AVAs.

Definition

    Section 4.25(e)(1)(i) of the TTB regulations (27 CFR 4.25(e)(1)(i)) 
defines a viticultural area for American wine as a delimited grape-
growing region having distinguishing features, as described in part 9 
of the regulations, and a name and a delineated boundary, as 
established in part 9 of the regulations. These designations allow 
vintners and consumers to attribute a given quality, reputation, or 
other characteristic of a wine made from grapes grown in an area to the 
wine's geographic origin. The establishment of AVAs allows vintners to 
describe more accurately the origin of their wines to consumers and 
helps consumers to identify wines they may purchase. Establishment of 
an AVA is neither an approval nor an endorsement by TTB of the wine 
produced in that area.

Requirements

    Section 4.25(e)(2) of the TTB regulations (27 CFR 4.25(e)(2)) 
outlines the procedure for proposing an AVA and provides that any 
interested party may petition TTB to establish a grape-growing region 
as an AVA. Section 9.12 of the TTB regulations (27 CFR 9.12) prescribes 
standards for petitions for the establishment or modification of AVAs. 
Petitions to establish an AVA must include the following:
     Evidence that the area within the proposed AVA boundary is 
nationally or locally known by the AVA name specified in the petition;
     An explanation of the basis for defining the boundary of 
the proposed AVA;
     A narrative description of the features of the proposed 
AVA affecting viticulture, such as climate, geology, soils, physical 
features, and elevation, that make the proposed AVA distinctive and 
distinguish it from adjacent areas outside the proposed AVA boundary;
     The appropriate United States Geological Survey (USGS) 
map(s) showing the location of the proposed AVA, with the boundary of 
the proposed AVA clearly drawn thereon; and
     A detailed narrative description of the proposed AVA 
boundary based on USGS map markings.

Willcox Petition

    TTB received a petition from Paul S. Hagar, the special projects 
manager of Dragoon Mountain Vineyard, on behalf of Dragoon Mountain 
Vineyard and other local winery and vineyard owners, proposing the 
establishment of the ``Willcox'' AVA. The proposed AVA contains 
approximately 526,000 acres, and there are 21 commercially-producing 
vineyards covering a total of approximately 454 acres distributed 
throughout the proposed AVA, along with 18 wineries. According to the 
petition, an additional 650 acres of vineyards are planned for the near 
future. The proposed Willcox AVA is not located within any established 
AVA. According to the petition, the distinguishing features of the 
proposed Willcox AVA are its geology, topography, soils, and climate.
    The proposed AVA is in the Arizona geological province known as the 
``basin-and-range'' province, which is characterized by high mountain 
ranges that are separated by valleys. The proposed Willcox AVA is 
located within a broad, shallow basin and is surrounded by higher 
mountain ranges including the Chiricahua, Dos Cabezas, Pinalenos, 
Dragoon, Little Dragoon, and Winchester Mountains. The underlying 
geology of the proposed AVA is comprised mainly of water-borne and 
wind-borne deposits, in contrast to the surrounding mountain ranges 
which are comprised of igneous rock and other volcanic materials. Over 
time, the geologic activity of the region has disrupted the flow of 
creeks, rivers, and drainage systems and has left the proposed AVA in a 
``closed basin.'' Because the basin is ``closed,'' the aquifer beneath 
the proposed AVA is recharged only through rainfall, in contrast to the 
nearby ``open basin'' valleys which have year-round or seasonal creeks. 
Therefore, vineyard owners within the proposed AVA use drip irrigation 
to conserve water.
    The topography within the proposed Willcox AVA is relatively 
uniform and very flat, with slope angles ranging from 0 to 1.5 percent. 
The very shallow slopes, combined with the lack of creeks or streams, 
reduces the risk of erosion

[[Page 62627]]

within the proposed AVA. Because the proposed AVA is surrounded by 
higher, steeper mountains, cool nighttime air flowing down from those 
mountains settles in the vineyards within the proposed AVA. In the 
early spring, this cool air can increase the risk of frost damage to 
new shoots and buds, so vineyard owners often install large fans to mix 
the warmer ambient air with the cooler descending air streams and 
prevent the cool air from pooling.
    The most prevalent soils within the proposed Willcox AVA are Tubac, 
Sonoita, Forrest, and Frye soils, which are predominately loams 
comprised of sand, silt, and clay in relatively even proportions. Loamy 
soils retain adequate amounts of moisture to hydrate vineyards while 
allowing excess water to percolate quickly through to the aquifer. 
Loamy soils are also generally high in nutrients and, therefore, are 
not typically preferred for vineyards because the nutrient levels can 
promote overly vigorous vine and leaf growth. However, the petition 
states that the stress placed on vines by the hot, dry climate of the 
proposed AVA keeps vine and leaf growth in check. The soils of the 
surrounding regions are also mostly loams. However, the four major 
soils of the proposed AVA do not make up as large a percentage of the 
surrounding area, except within the Chiricahua Mountains to the 
southeast of the proposed AVA, where Tubac soils are more prevalent 
than within the proposed Willcox AVA.
    Southeast Arizona, including the region of the proposed Willcox 
AVA, is generally considered to have an arid climate. The most 
significant rainfall occurs during the monsoon season, in July and 
August, when humid air flows into the region from both the Gulf of 
Mexico and the Gulf of California. As the humid air rises over the 
mountains that surround the proposed AVA, the air cools and eventually 
reaches the point where it releases the moisture in the form of rain. 
As the storms move beyond the mountains and foothills, they begin to 
weaken and dissipate. Therefore, growing season precipitation amounts 
are typically lower in the proposed Willcox AVA than in the surrounding 
mountains.
    In the region of the proposed Willcox AVA, elevation also plays a 
role in climate. Regions at higher elevations typically have lower 
growing season temperatures than regions at lower elevations. The 
proposed AVA has higher growing season temperatures than the higher 
surrounding mountains, including the Chiricahua Mountains to the 
southeast. Large valleys lie beyond the mountain ranges that surround 
the proposed AVA. These valleys are at lower elevations than the 
proposed Willcox AVA and, therefore, have higher growing season 
temperatures.

Notice of Proposed Rulemaking and Comments Received

    TTB published Notice No. 157 in the Federal Register on January 21, 
2016 (81 FR 3356), proposing to establish the Willcox AVA. In that 
document, TTB summarized the evidence from the petition regarding the 
name, boundary, and distinguishing features for the proposed AVA. The 
proposed rule also compared the distinguishing features of the proposed 
AVA to the features of the surrounding areas. For a detailed 
description of the evidence relating to the name, boundary, and 
distinguishing features of the proposed AVA, and for a detailed 
comparison of the distinguishing features of the proposed AVA to the 
surrounding areas, see Notice No. 157.
    In Notice No. 157, TTB solicited comments on the accuracy of the 
name, boundary, and other required information submitted in support of 
the petition. The comment period closed on March 21, 2016. TTB received 
three comments in response to Notice No. 157. Two of the three comments 
were from local residents who supported the proposed AVA. One of the 
supporting comments (comment 3) was submitted by a representative of 
Cellar 433 winery and its Dragoon Mountain Vineyard and included three 
letters of support for the proposed AVA from other wine industry 
members within the proposed AVA. The three letters were dated in 2013 
and were provided at that time to the Willcox AVA petitioner, who was 
also an employee of Dragoon Mountain Vineyards. However the letters 
were not included with the proposed Willcox AVA petition, nor had they 
been received by TTB prior to the opening of the comment period. The 
three letters support the proposed Willcox AVA and also mention support 
for a ``Chiricahua Foothills'' AVA. TTB notes that the proposed Willcox 
AVA petition was submitted simultaneously with a petition to establish 
an adjacent ``Chiricahua Foothills'' AVA, but that petition was not 
accepted as perfected by TTB, and the comments regarding the 
petitioned-for Chiricahua Foothills are not being considered as part of 
this rulemaking.
    TTB received one comment from a local resident (comment 2) opposing 
the establishment of an AVA ``in the foothills of the Chiricahua 
Mountains * * *.'' The commenter states his belief that vineyards 
``fragment the open spaces that ranches provide, disrupt the watershed 
and block wildlife patterns.'' The commenter also states his belief 
that the vineyards in the Willcox region do not provide economic 
benefit to the community because most of the vineyards ``are not 
sustainable economically'' and employ seasonal workers from outside the 
area.
    TTB's purpose in establishing an AVA is to allow winemakers to more 
accurately describe the origins of the grapes used to make their wine, 
so that consumers can have more information about the wines they may 
purchase. Economic benefits and other impacts derived from the use of 
an AVA name are the result of a proprietor's efforts and consumer 
acceptance of wines from that area.
    Section 4.25 of the TTB regulations defines an AVA as a delimited 
grape-growing region having distinguishing features and a name and 
delineated boundary as described in part 9 of the regulations. Section 
9.12 of the TTB regulations requires an AVA petition to provide 
sufficient name and geographical and/or climatic information, data, and 
evidence to enable TTB to determine whether the features of the 
proposed AVA are distinguishable from the surrounding regions and have 
an effect on viticulture. TTB determined that the petition to establish 
the proposed Willcox AVA contained sufficient evidence to merit notice 
and comment. Furthermore, TTB has determined that the opposing comment 
did not contain any evidence to contradict the name or distinguishing 
features data contained in the petition. Therefore, TTB does not 
believe that there is sufficient evidence to warrant the withdrawal or 
modification of the proposal to establish the Willcox AVA.

TTB Determination

    After careful review of the petition and the comments received, TTB 
finds that the evidence provided by the petitioner supports the 
establishment of the Willcox AVA. Accordingly, under the authority of 
the FAA Act, section 1111(d) of the Homeland Security Act of 2002, and 
parts 4 and 9 of the TTB regulations, TTB establishes the ``Willcox'' 
AVA in southeastern Arizona, effective 30 days from the publication 
date of this document.

Boundary Description

    See the narrative description of the boundary of the AVA in the 
regulatory text published at the end of this final rule.

[[Page 62628]]

Maps

    The petitioner provided the required maps, and they are listed 
below in the regulatory text.

Impact on Current Wine Labels

    Part 4 of the TTB regulations prohibits any label reference on a 
wine that indicates or implies an origin other than the wine's true 
place of origin. For a wine to be labeled with an AVA name or with a 
brand name that includes an AVA name, at least 85 percent of the wine 
must be derived from grapes grown within the area represented by that 
name, and the wine must meet the other conditions listed in 27 CFR 
4.25(e)(3). If the wine is not eligible for labeling with an AVA name 
and that name appears in the brand name, then the label is not in 
compliance and the bottler must change the brand name and obtain 
approval of a new label. Similarly, if the AVA name appears in another 
reference on the label in a misleading manner, the bottler would have 
to obtain approval of a new label. Different rules apply if a wine has 
a brand name containing an AVA name that was used as a brand name on a 
label approved before July 7, 1986. See 27 CFR 4.39(i)(2) for details.
    With the establishment of this AVA, its name, ``Willcox,'' will be 
recognized as a name of viticultural significance under Sec.  
4.39(i)(3) of the TTB regulations (27 CFR 4.39(i)(3)). The text of the 
regulation clarifies this point. Consequently, wine bottlers using the 
name ``Willcox'' in a brand name, including a trademark, or in another 
label reference as to the origin of the wine, will have to ensure that 
the product is eligible to use the AVA name as an appellation of 
origin.
    The establishment of the Willcox AVA will not affect any existing 
AVA. The establishment of the Willcox AVA will allow vintners to use 
``Willcox'' as an appellation of origin for wines made primarily from 
grapes grown within the Willcox AVA if the wines meet the eligibility 
requirements for the appellation.

Regulatory Flexibility Act

    TTB certifies that this regulation will not have a significant 
economic impact on a substantial number of small entities. The 
regulation imposes no new reporting, recordkeeping, or other 
administrative requirement. Any benefit derived from the use of an AVA 
name would be the result of a proprietor's efforts and consumer 
acceptance of wines from that area. Therefore, no regulatory 
flexibility analysis is required.

Executive Order 12866

    It has been determined that this final rule is not a significant 
regulatory action as defined by Executive Order 12866 of September 30, 
1993. Therefore, no regulatory assessment is required.

Drafting Information

    Karen A. Thornton of the Regulations and Rulings Division drafted 
this final rule.

List of Subjects in 27 CFR Part 9

    Wine.

The Regulatory Amendment

    For the reasons discussed in the preamble, TTB amends title 27, 
chapter I, part 9, Code of Federal Regulations, as follows:

PART 9--AMERICAN VITICULTURAL AREAS

0
1. The authority citation for part 9 continues to read as follows:

    Authority: 27 U.S.C. 205.

Subpart C--Approved American Viticultural Areas

0
2. Subpart C is amended by adding Sec.  9.259 to read as follows:


Sec.  9.259  Willcox.

    (a) Name. The name of the viticultural area described in this 
section is ``Willcox''. For purposes of part 4 of this chapter, 
``Willcox'' is a term of viticultural significance.
    (b) Approved maps. The 21 United States Geological Survey (USGS) 
1:24,000 scale topographic maps used to determine the boundary of the 
Willcox viticultural area are titled:
    (1) Fort Grant, AZ, 1996;
    (2) West of Greasewood Mountain, AZ, 1996;
    (3) Greasewood Mountain, AZ, 1996;
    (4) Willcox North, AZ, 1996;
    (5) Railroad Pass, Ariz., 1979;
    (6) Simmons Peak, AZ, 1996;
    (7) Dos Cabezas, AZ, 1996;
    (8) Pat Hills North, Ariz., 1974;
    (9) Pat Hills South, Arizona, 1986 provisional edition;
    (10) Sulphur Hills, AZ, 1996;
    (11) Pearce, AZ., 1996;
    (12) Turquoise Mountain, AZ, 1996;
    (13) Black Diamond Peak, AZ, 1996;
    (14) Cochise Stronghold, AZ, 1996;
    (15) Cochise, AZ, 1996;
    (16) Red Bird Hills, AZ, 1996;
    (17) Steele Hills, AZ, 1996;
    (18) Square Mountain, AZ, 1996;
    (19) Muskhog Mountain, AZ, 1996;
    (20) Reiley Peak, AZ, 1996; and
    (21) Sierra Bonita Ranch, Ariz., 1972.
    (c) Boundary. The Willcox viticultural area is located in Cochise 
and Graham Counties in southeastern Arizona. The boundary of the 
Willcox viticultural area is as described below:
    (1) The beginning point is on the Fort Grant map at the 
intersection of State Highway 266 and an unnamed light-duty road known 
locally as Curtis Parkway, in Fort Grant, section 35, T9S/R23E. From 
the beginning point, proceed south-southeast in a straight line 
approximately 20.4 miles, crossing over the West of Greasewood Mountain 
and the Greasewood Mountain map and onto the Willcox North map, to the 
intersection of three unnamed light-duty roads known locally as Porters 
Ranch Road, East Saguaro Road, and North Circle I Road, near benchmark 
(BM) 4,243 on the Willcox North map, section 36, T12S/R24E; then
    (2) Proceed east in a straight line approximately 5 miles to 
Interstate Highway 10 near the community of Raso, section 1, T13S/R25E; 
then
    (3) Proceed south in a straight line approximately 0.8 mile to the 
4,400-foot elevation contour, section 1, T13S/R25E; then
    (4) Proceed southwesterly along the 4,400-foot elevation contour 
around the west end of the Dos Cabezas Mountains and continue 
southeasterly along the 4,400-foot elevation contour for a total of 
approximately 13.3 miles, crossing over the Railroad Pass map and onto 
the Simmons Peak map, to State Highway 186 on the Simmons Peak map, 
section 28, T14S/R26E; then
    (5) Proceed south-southeast in a straight line approximately 15.8 
miles, crossing over the Dos Cabezas map and onto the Pat Hills North 
map, to the intersection of the 4,700-foot elevation contour and an 
unnamed light-duty road known locally as East Creasey Ranch Road on the 
Pat Hills North map near BM 4,695, section 21, T16S/R28E; then
    (6) Proceed southerly along the 4,700-foot elevation contour 
approximately 10.6 miles, crossing onto the Pat Hills South map, to an 
unnamed light-duty road known locally as East Uncle Curtis Lane, 
section 7, T18S/R28 E; then
    (7) Proceed west along East Uncle Curtis Lane approximately 0.5 
mile to an unnamed light-duty road known locally as South Single Tree 
Lane near the marked 4,664-foot elevation point, section 7, T18S/R28E; 
then
    (8) Proceed south along South Single Tree Lane approximately 0.5 
mile to State Highway 181, section 7, T18S/R28E; then
    (9) Proceed west along State Highway 181 approximately 9.9 miles, 
crossing onto the Sulphur Hills map, to State Highway 191, section 10, 
T18S/R26E; then

[[Page 62629]]

    (10) Proceed north-northeasterly, then west, along State Highway 
191 approximately 4.8 miles, crossing onto the Pearce map, to an 
unnamed light-duty road known locally as Kansas Settlement Road, near 
BM 4,327, section 36, T17S/R25E; then
    (11) Proceed southwest in a straight line approximately 8.9 miles, 
crossing over the Turquoise Mountain map and onto the Black Diamond 
Peak map, to the southeastern-most corner of the boundary of the 
Coronado National Forest on the Black Diamond Peak map, section 35, 
T18S/R24 E; then
    (12) Proceed north along the boundary of the Coronado National 
Forest approximately 2 miles to the marked 4,821-foot elevation point, 
section 26, T18S/R24E; then
    (13) Proceed north-northwest in a straight line approximately 13 
miles, crossing over the Cochise Stronghold map and onto the Cochise 
map, to the northeastern corner of the boundary of the Coronado 
National Forest at the marked 4,642 elevation point on the Cochise map, 
section 26, T16S/R23E; then
    (14) Proceed north-northwest in a straight line approximately 1.2 
miles to the intersection of the 4,450-foot elevation contour and an 
unnamed secondary highway known locally as West Dragoon Road, section 
23, T16S/R23E; then
    (15) Proceed north in a straight line approximately 1.3 miles to 
the 4,400-foot elevation contour, section 11, T16S/R23E; then
    (16) Proceed generally northerly along the 4,400-foot elevation 
contour approximately 10 miles, crossing onto the Red Bird Hills map, 
to Interstate Highway 10, section 3, T15S/R23E; then
    (17) Proceed north-northwest in a straight line approximately 5.8 
miles, crossing onto the Steele Hills map, to the intersection of the 
4,600-foot elevation contour and an unnamed light-duty road known 
locally as West Airport Road, section 7, T14S/R23E; then
    (18) Proceed east-northeasterly, then easterly, then northerly, 
then easterly along West Airport Road approximately 7.2 miles, crossing 
back onto the Red Bird Hills map and then onto the Square Mountain map, 
to the 4,240-foot elevation contour east of BM 4,264, section 6, T14S/
R24E; then
    (19) Proceed north-northwest in a straight line approximately 20.5 
miles, crossing over the Muskhog Mountain and Reiley Peak maps and onto 
the Sierra Bonita Ranch map, to the intersection of two unnamed light-
duty roads known locally as West Ash Creek Road and South Wells Road, 
near BM 4,487 on the Sierra Bonita Ranch map, section 3, T11S/R22E; 
then
    (20) Proceed generally northerly along South Wells Road to BM 
4,502, then continuing northerly along the western fork of the road for 
a total of approximately 7.7 miles to an unnamed light-duty road known 
locally as Bonita Aravaipa Road, section 27, T9S/R22E; then
    (21) Proceed east in a straight line approximately 8.2 miles, 
crossing onto the Fort Grant map, to the beginning point.

    Signed: July 25, 2016.
John J. Manfreda,
Administrator.
    Approved: August 22, 2016.
Timothy E. Skud,
Deputy Assistant Secretary (Tax, Trade, and Tariff Policy).
[FR Doc. 2016-21849 Filed 9-9-16; 8:45 am]
BILLING CODE 4810-31-P