[Federal Register Volume 61, Number 115 (Thursday, June 13, 1996)]
[Proposed Rules]
[Pages 30017-30018]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-14860]



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DEPARTMENT OF THE TREASURY
Bureau of Alcohol, Tobacco and Firearms

27 CFR Part 18

[Notice No. 823]
RIN 1512-AB59


Production of Volatile Fruit-Flavor Concentrate (95R-026P)

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

ACTION: Notice of proposed rulemaking.

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SUMMARY: Pursuant to the President's regulatory reform initiative, the 
Bureau of Alcohol, Tobacco and Firearms (ATF) is proposing to amend the 
regulations in 27 CFR Part 18. The proposed amendment would 
specifically authorize the transfer of volatile fruit-flavor 
concentrate (VFFC) unfit for beverage use from one VFFC plant to 
another for further processing. The proposed amendment would clarify 
the regulations in order to allow greater flexibility in the production 
processes of VFFC plants.

DATES: Written comments must be received on or before August 12, 1996.

ADDRESSES: Submit written comments to: Chief, Wine, Beer, and Spirits 
Regulations Branch, Bureau of Alcohol, Tobacco and Firearms, P.O. Box 
50221, Washington, DC 20091-0221. ATTN: Notice No. 823.

FOR FURTHER INFORMATION CONTACT: Mary A. Wood, Wine, Beer, and Spirits 
Regulations Branch, Bureau of Alcohol, Tobacco and Firearms, 650 
Massachusetts Avenue NW.ca a13jn2.071, Washington, DC 20226; (202) 927-
8210.

SUPPLEMENTARY INFORMATION:

Background

    On February 21, 1995, President Clinton announced a regulatory 
reform initiative. As part of this initiative, each Federal agency was 
instructed to conduct a page by page review of all agency regulations 
to identify those which are obsolete or burdensome and those whose 
goals could be better achieved through the private sector, self-
regulation or state and local governments. In cases where the agency's 
review disclosed regulations which should be revised or eliminated, the 
agency would, as soon as possible, propose administrative changes to 
its regulations.
    The page by page review of all regulations was completed as 
directed by the President. In addition, on April 13, 1995, the Bureau 
published Notice No. 809 (60 FR 18783) in the Federal Register 
requesting comments from the public regarding which ATF regulations 
could be improved or eliminated. No comments were received regarding 27 
CFR part 18, Production of Volatile Fruit-Flavor Concentrate; however, 
ATF is proposing a clarifying amendment to this part based on a 
variance request received from a volatile fruit-flavor concentrate 
(VFCC) producer.
    The Internal Revenue Code of 1986, 26 U.S.C. 5511, authorizes the 
manufacture of volatile fruit-flavor concentrate by any process which 
includes evaporations from the mash or juice of any fruit. Section 5511 
also places certain restrictions on the manufacture of volatile fruit-
flavor concentrate. Pursuant to section 5511(1), the concentrate, and 
the mash or juice from which it is produced, must contain no more 
alcohol than is reasonably unavoidable in the manufacture of such 
concentrate. Section 5511(2) provides that the concentrate must be 
rendered unfit for use as a beverage before removal from the place of 
manufacture; however, concentrate which is fit for beverage use and 
which does not exceed 24 percent alcohol by volume may be transferred 
to a bonded wine cellar for use in production of natural wine. Finally, 
section 5511(3) authorizes the Secretary to prescribe such regulations 
as are necessary for the protection of the revenue regarding 
applications, records, reports, bonds, and other requirements with 
respect to the production, removal, sale, transportation, and use of 
concentrate and the mash or juice from which the concentrate is 
produced.
    Volatile fruit-flavor concentrate which is produced in accordance 
with the requirements of the regulations is not subject to the 
distilled spirits or wine excise tax. However, section 5001(a)(6) 
provides for the imposition of tax on any volatile fruit-flavor 
concentrate (or any fruit mash or juice from which such concentrate is 
produced) containing one-half of 1 percent or more of alcohol by 
volume, which is manufactured free from tax under section 5511, and is 
then sold, transported, or used by any person in violation of Chapter 
51 or the regulations promulgated thereunder.

Proposed Amendment

    The current regulations in 27 CFR 18.54(a) allow the transfer of 
volatile fruit-flavor concentrate (``concentrate'') which is unfit for 
beverage use for any purpose authorized by law. However, ATF recently 
received a request from a VFFC producer as to whether a concentrate 
unfit for beverage use could be transferred from one VFFC plant to 
another for further processing. Apparently it was more cost-effective 
for the second VFFC plant to conduct the processing operation at issue. 
While the transfer of the concentrate was clearly authorized by current 
regulations, since the concentrate was unfit for beverage use, there 
was nothing in the current regulations which specifically authorized 
the second VFFC plant to receive concentrate for further processing.
    The existing regulations in section 18.51 allow proprietors to 
receive processing material which is produced elsewhere, subject to 
certain restrictions

[[Page 30018]]

and recordkeeping requirements. However, the term ``processing 
material'' is defined in section 18.11 to mean ``[t]he fruit mash or 
juice from which concentrate is produced.'' This definition does not 
include concentrate intended for further processing. The regulations in 
section 18.56 authorize a VFFC producer to accept the return of a 
shipment of concentrate shipped by it, and provide recordkeeping and 
reporting requirements regarding the returned concentrate. However, 
these regulations do not specifically authorize the proprietor to 
accept concentrate from another proprietor for further processing.
    In response to the request from the VFFC producer, ATF determined 
that nothing in the Internal Revenue Code or existing regulations 
precludes one VFFC proprietor from accepting concentrate from another 
VFFC proprietor for further processing. However, since the existing 
regulations do not specifically authorize such an operation, ATF is 
proposing to amend section 18.56 to specifically allow a proprietor to 
accept concentrate which is unfit for beverage use for further 
processing. Such concentrate will be subject to the existing 
recordkeeping and reporting requirements for concentrate which is 
returned to the proprietor. ATF believes that the proposed amendment 
will clarify to VFFC proprietors that the transfer of concentrate from 
one plant to another for further processing is allowed, as long as the 
concentrate meets the definition of a concentrate unfit for beverage 
use at the time it leaves the place of manufacture. This liberalizing 
amendment will allow VFFC proprietors greater flexibility in production 
operations without jeopardizing the revenue in any way.

Other Possible Changes

    ATF also solicits public comment concerning other possible changes 
to the regulations in Part 18, such as amendments which would authorize 
VFFC plants to alternate the use of their premises so as to operate 
temporarily as a distilled spirits plant, bonded winery, or other 
regulated facility. Comments on this proposal, as well as any other 
suggestions, are welcome.

Public Participation

    ATF requests written comments from all interested persons. All 
comments received on or before the closing date will be carefully 
considered. Comments received after that date will be given the same 
consideration if it is practical to do so, but assurance of 
consideration cannot be given except as to comments received on or 
before the closing date.
    ATF will not recognize any material as confidential. Any material 
which the commenter considers to be confidential or inappropriate for 
disclosure should not be included in the comment. The name of the 
person submitting the comment is not exempt from disclosure.
    Any interested person who desires an opportunity to comment orally 
at a public hearing should submit a request, in writing, to the 
Director within the 60-day comment period. The Director, however, 
reserves the right to determine, in light of all circumstances, whether 
a public hearing will be scheduled.
    Written comments will be available for public inspection during 
normal business hours at the following address: ATF Reading Room, 
Office of Public Affairs and Disclosure, Room 6480, 650 Massachusetts 
Avenue, NW, Washington, DC.

Regulatory Flexibility Act

    It is hereby certified that this proposed regulation, if 
implemented as a final rule, will not have a significant economic 
impact on a substantial number of small entities. The proposed 
amendment would liberalize the regulations to add a provision that will 
allow for the transfer of concentrate from one VFFC plant to another 
for further processing. Accordingly, a regulatory flexibility analysis 
is not required because the proposal, if promulgated as a final rule, 
will not have a significant economic impact on a substantial number of 
small entities.
    Pursuant to section 7805(f) of the Internal Revenue Code, this 
proposed regulation has been submitted to the Chief Counsel for 
Advocacy of the Small Business Administration for comment on its impact 
on small business.

Executive Order 12866

    It has been determined that this proposed regulation is not a 
significant regulatory action as defined in Executive Order 12866. 
Accordingly, this proposal is not subject to the analysis required by 
this Executive Order.

Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995, no persons are required 
to respond to a collection of information unless it displays a valid 
OMB control number. The collections of information contained in the 
regulations proposed to be amended by this notice have been previously 
reviewed and approved by the Office of Management and Budget in 
accordance with the Paperwork Reduction Act of 1980 (44 U.S.C. 3504(h)) 
under control numbers 1512-0046 and 1512-0098. The proposed amendment 
is not expected to result in any change in the total number of burden 
hours.

    Drafting Information: The principal author of this document is 
Mary A. Wood of the Wine, Beer, and Spirits Regulations Branch, 
Bureau of Alcohol, Tobacco and Firearms.

List of Subjects in 27 CFR Part 18

    Administrative practice and procedure, Authority delegations, 
Excise taxes, Exports, Labeling, Reporting requirements, Security 
measures, Spices and flavorings, Stills, and Surety bonds.

Authority and Issuance

    ATF is proposing to amend Part 18 in Title 27 of the Code of 
Federal Regulations as follows:

PART 18--PRODUCTION OF VOLATILE FRUIT-FLAVOR CONCENTRATE

    Par. 1. The authority citation for Part 18 continues to read as 
follows:

    Authority: 26 U.S.C. 5001, 5172, 5178, 5179, 5203, 5511, 5552, 
6065, 7805; 44 U.S.C. 3504(h).

    Par. 2. Section 18.56 is revised to read as follows:


Sec. 18.56  Receipt of concentrate.

    (a) General. The proprietor of a concentrate plant may accept the 
return of concentrate that it shipped. In addition, concentrate that is 
unfit for beverage use may be received from another concentrate plant 
for further processing in accordance with this part.
    (b) Record of concentrate received. When concentrate is received, 
the proprietor shall record the receipt, including the name of the 
consignor and a notation regarding any loss in transit or other 
discrepancy.
    (c) Report of concentrate received. The quantity of concentrate 
received shall be reported on an unused line on the annual report, ATF 
Form 1695 (5520.2).

(Approved by the Office of Management and Budget under control 
numbers 1512-0046 and 1512-0098).

    Signed: May 20, 1996.
John W. Magaw,
Director.

    Approved: May 24, 1996.
John P. Simpson,
Deputy Assistant Secretary (Regulatory, Tariff and Trade Enforcement).
[FR Doc. 96-14860 Filed 6-12-96; 8:45 am]
BILLING CODE 4810-31-U