[Federal Register: February 9, 2005 (Volume 70, Number 26)]
[Proposed Rules]
[Page 6792-6796]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr09fe05-14]
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DEPARTMENT OF THE TREASURY
Alcohol and Tobacco Tax and Trade Bureau
27 CFR Part 9
[Notice No. 33]
RIN 1513-AA97
Proposed Establishment of the Niagara Escarpment Viticultural
Area (2004R-589P)
AGENCY: Alcohol and Tobacco Tax and Trade Bureau, Treasury.
ACTION: Notice of proposed rulemaking.
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SUMMARY: The Alcohol and Tobacco Tax and Trade Bureau proposes to
establish the ``Niagara Escarpment'' viticultural area in Niagara
County, New York. We designate viticultural areas to allow bottlers to
better describe the origin of wines and to allow consumers to better
identify the wines they may purchase. We invite comments on this
proposed addition to our regulations.
DATES: We must receive written comments on or before April 11, 2005.
ADDRESSES: You may send comments to any of the following addresses:
Chief, Regulations and Procedures Division, Alcohol and
Tobacco Tax and Trade Bureau, Attn: Notice No. 33, P.O. Box 14412,
Washington, DC 20044-4412.
202-927-8525 (facsimile).
nprm@ttb.gov (e-mail).
http://www.ttb.gov/alcohol/ rules/index.htm. An online
comment form is posted with this notice on our Web site.
http://www.regulations.gov. Federal e-rulemaking portal;
follow instructions for submitting comments.
You may view copies of this notice, the petition, the appropriate
maps, and any comments we receive about this notice by appointment at
the TTB Library, 1310 G Street, NW., Washington, DC 20220. To make an
appointment, call (202) 927-2400. You may also access copies of the
notice and comments online at http://www.ttb.gov/alcohol/ rules/
index.htm.
See the Public Participation section of this notice for specific
instructions and requirements for submitting comments, and for
information on how to request a public hearing.
FOR FURTHER INFORMATION CONTACT: Jennifer Berry, Alcohol and Tobacco
Tax and Trade Bureau, Regulations and Procedures Division, P.O. Box
18152, Roanoke, VA 24014; telephone (540) 344-9333.
SUPPLEMENTARY INFORMATION:
Background on Viticultural Areas
TTB Authority
Section 105(e) of the Federal Alcohol Administration Act (the FAA
Act, 27 U.S.C. 201 et seq.) requires that alcohol beverage labels
provide the consumer with adequate information regarding a product's
identity and prohibits the use of misleading information on those
labels. The FAA Act also authorizes the Secretary of the Treasury to
issue regulations to carry out its provisions. The Alcohol and Tobacco
Tax and Trade Bureau (TTB) administers these regulations.
Part 4 of the TTB regulations (27 CFR part 4) allows the
establishment of definitive viticultural areas and 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) contains
the list of approved viticultural areas.
[[Page 6793]]
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 distinguishable by geographical features, the boundaries
of which have been recognized and defined 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 its geographic origin. The establishment of
viticultural areas allows vintners to describe more accurately the
origin of their wines to consumers and helps consumers to identify
wines they may purchase. Establishment of a viticultural area 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 outlines the procedure
for proposing an American viticultural area and provides that any
interested party may petition TTB to establish a grape-growing region
as a viticultural area. Section 9.3(b) of the TTB regulations requires
the petition to include--
Evidence that the proposed viticultural area is locally
and/or nationally known by the name specified in the petition;
Historical or current evidence that supports setting the
boundary of the proposed viticultural area as the petition specifies;
Evidence relating to the geographical features, such as
climate, elevation, physical features, and soils, that distinguish the
proposed viticultural area from surrounding areas;
A description of the specific boundary of the proposed
viticultural area, based on features found on United States Geological
Survey (USGS) maps; and
A copy of the appropriate USGS map(s) with the proposed
viticultural area's boundary prominently marked.
Niagara Escarpment Petition
Michael VonHeckler of Warm Lake Estate Vineyard and Winery
petitioned TTB for the establishment of an American viticultural area
to be called ``Niagara Escarpment'' in Niagara County, New York. The
proposed area runs in a narrow, 28-mile long band from the Niagara
River at Lewiston in the west, through the towns of Lockport and
Gasport, to Johnson Creek in the east. According to the petitioner, the
proposed area contains about 18,000 acres and has approximately 400
acres of established vineyards.
Name Evidence
The proposed Niagara Escarpment viticultural area derives its name
from the Niagara Escarpment, a limestone ridge that runs for more than
650 miles through the Great Lakes region. The Niagara Escarpment forms
a horseshoe that begins near Rochester, New York, continues west
through southern Ontario, Lake Huron, and the upper peninsula of
Michigan, and ends in eastern Wisconsin. The Niagara Escarpment enters
Niagara County in the east near the village of Johnson Creek and then
runs west through the middle of the county along State Route 104 to the
town of Lewiston. At the county's western end, the escarpment forms the
Niagara River Gorge, and, at the head of the gorge, the escarpment
forms the cliff over which the Niagara Falls plunge.
To demonstrate that the proposed viticultural area is known locally
and nationally as ``Niagara Escarpment,'' the petitioner submitted
several excerpts from government and travel Internet sites that discuss
the Niagara Escarpment in Niagara County. These included:
A page on the Institute for Local Governance and Regional
Growth Web site that discusses how the Niagara River flows over the
Niagara Escarpment creating Niagara Falls. (See http://www.regional-institute.buffalo.edu/regi/natu.
)
Vintage New York's Web site states that the prime vineyard
sites in western New York are ``bordered by the Niagara River on the
west, Lake Ontario on the north and the Niagara escarpment on the
south.'' (See http://www.vintagenewyork.com/regions/erie.)
The Niagara Tourism and Convention Corporation's Web site
notes that Niagara Landing Wine Cellars, a Niagara County winery, is
``located at the base of the Niagara Escarpment.'' (See http://www.niagara-usa.com/attractions/niagaralanding.
)
The Western New York Regional Information Network's Town
of Cambria Web site describes the town as an agricultural town
``divided in the middle by the Niagara Escarpment.'' (See http://www.wnyrin.com/c_niag/welc/juri/juri_cambt.
)
In addition, a July 26, 2004, Toronto Star newspaper article on New
York wineries included with the petition discusses the Niagara
Escarpment, and notes that:
Ontario wine lovers are keenly aware of the Niagara Escarpment,
and ``the Bench'' creating a special microclimate for grape growing
in Niagara. Well, guess what: It comes up in New York State on the
other side of the lake, in Lockport, north of Lewiston.
Although the Niagara Escarpment continues westward from Niagara
County for several hundred miles, the petitioner notes that most of its
length runs through Canada or the waters of the Great Lakes. The
petitioner adds that remaining areas through which the escarpment runs,
the upper peninsula of Michigan and eastern Wisconsin, are not known as
grape growing areas.
Boundary Evidence
The geography of the Niagara Escarpment defines the boundary of the
proposed viticultural area, according to the petitioner. He states that
the steepness of the Niagara Escarpment makes it topographically
distinct from the Ontario Plain, which extends from the south shore of
Lake Ontario to the escarpment's base, and the Huron Plain, which
begins at the escarpment's crest and extends southward past the Niagara
County line. Both plains are relatively flat, with slopes of less than
20 feet per mile, according to the ``Soil Survey of Niagara County, New
York (1972)'', a report submitted with the petition.
In contrast, the Niagara Escarpment has a steep slope of 106 to 317
feet per mile. The southern and northern boundaries of the proposed
Niagara Escarpment viticultural area encompass the escarpment's north-
facing slope between the 600- and 400-foot elevation lines, which, the
petitioner states, generally delineate the slope's top and bottom
within the proposed viticultural area.
The Niagara River, which forms the international boundary between
the United States and Canada, marks the western boundary of the
proposed viticultural area. The portion of the Niagara Escarpment that
extends west of the Niagara River into the Canadian province of Ontario
is included in the Niagara Peninsula viticultural area designated by
the Government of Canada.
In the eastern end of Niagara County, a portion of Johnson Creek,
south of the village of the same name, forms the eastern boundary of
the proposed viticultural area. East of the creek, elevations at the
base of the Niagara Escarpment climb from 400 to 500 feet, and its
slope becomes much narrower and steeper, according to the petitioner
and the ``Soil Survey of Niagara County, New York.'' The petitioner
states that these changes in the escarpment's topography make it less
desirable for wine grape production east of Johnson Creek, and, for
this reason, the petitioner did not include the
[[Page 6794]]
escarpment east of Johnson Creek within the proposed viticultural area.
Growing Conditions
Topography and Soils
According to the petitioner, the topography and soils of the
proposed area create distinct conditions for grape growing than those
in surrounding areas. He notes that the Ontario and Huron Plains are
nearly flat with deep soils that can harbor excessive water and
nutrients. In contrast, the petition notes, the Niagara Escarpment has
rather shallow soils with poor nutrient content, and has sufficient
slope (2-6%) to allow for drainage. The petitioner states that that the
conditions found in the proposed area--well drained soils, a steady but
moderate water supply, and restricted mineral content--result in
superior pigment and flavor compounds in the resultant wine. On the
other hand, he states, the conditions of the surrounding areas--poor
drainage and high nutrient content--result in less pigmentation,
diluted flavors, and lower quality wine.
As evidence of these soil differences, the petitioner cites the
``Soil Survey of Niagara County, New York.'' The survey states that the
central portion of Niagara County, along the escarpment, contains the
Hilton-Ovid-Ontario soil association. It describes this association as
``deep, well-drained to somewhat poorly drained soil.'' In contrast,
the survey states that the Ontario Plain north of the escarpment
contains the Rhinebeck-Ovid-Madalin association, which it describes as
having ``deep, somewhat poorly drained to very poorly drained soils.''
The Huron Plain south of the escarpment contains the Odessa-Lakemont-
Ovid association, which the survey also describes as having ``deep,
somewhat poorly drained to very poorly drained soils.''
Climate
According to the petitioner, the location of the proposed Niagara
Escarpment viticultural area in relation to Lake Ontario creates a
microclimate conducive to grape growing. He states that the maritime
influence of Lake Ontario on the Niagara Escarpment allows for
sufficient growing season heat accumulation in what is otherwise a cool
climate. The ``Soil Survey of Niagara County, New York,'' notes that
Lake Ontario greatly influences the climate of Niagara County, and it
states that ``in fall the lake waters are a source of heat that reduces
cooling at night and increases the length of [the] freeze-free growing
season.''
The climatic relationship between Lake Ontario and the Niagara
Escarpment is discussed in greater detail in ``Site Selection for
Grapes in the Niagara Peninsula,'' a publication issued by the
Horticultural Research Institute of Ontario to assist grape growers in
Canada's Niagara Peninsula in selecting the best vineyard sites. The
petitioner notes that this publication's climate information can be
applied to the proposed viticultural area, which is adjacent to the
Niagara Peninsula and shares Lake Ontario and the Niagara Escarpment
with it.
According to the site selection publication, a unique airflow
pattern affects the land between Lake Ontario and the crest of the
escarpment. While the land warms quickly on warm days and cools rapidly
on cool nights, the lake's temperature changes more slowly. Therefore,
in the spring the lake's temperature is cooler than the temperature of
the adjacent land, while in the fall it is warmer. In the fall, air
rises as it is warmed by the lake, drawing cooler air in from the
lakeshore and creating offshore breezes. As a result, the site
selection publication states, ``the air now above the lake is warmed,
rises and flows back over the land, creating a circular heat-pump
effect.'' In addition, the publication notes, ``the pattern airflow is
altered by the slope of the land. With steep slopes, cold air drainage
is rapid. Flat areas or depressions tend to accumulate cold air and
become `frost pockets.' '' For areas between the lake and the
escarpment, this airflow pattern minimizes frost conditions and
increases heat accumulation, thereby extending the proposed
viticultural area's growing season, according to the petition. Areas
south of the escarpment, the petition notes, do not benefit from this
effect and are more prone to frost damage.
On the other hand, the lake's airflow pattern cools the adjacent
land in the spring and early summer. Areas within two miles of the
lakeshore can have a two-week delay in bud break due to the cooling
effect of the lake. Also, daytime temperatures are often cooler because
of the lake's air currents. The site selection publication notes that
``most grape cultivars require a long, warm season and fruit quality is
sometimes poor close to the lake because of lower day temperatures.''
The proposed viticultural area, however, is between 6 and 8 miles from
Lake Ontario. The proposed area therefore experiences little or no
delay in bud break or cooler daytime temperatures due to the lake's
influence, according to the petitioner.
In sum, the petitioner states that this climate evidence shows that
the proposed Niagara Escarpment viticultural area has an extended
ripening season when compared to grapes grown outside its boundary. In
contrast, the petitioner notes that areas north of the escarpment
experience cooling spring temperatures that retard growth, while areas
south of the escarpment are more prone to fall frost damage.
Boundary Description
See the narrative boundary description of the petitioned-for
viticultural area in the proposed regulatory text published at the end
of this notice.
Maps
The petitioner provided the required maps, and we list them below
in the proposed 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. If we establish this proposed viticultural area, its
name, ``Niagara Escarpment,'' will be recognized as a name of
viticultural significance. Consequently, wine bottlers using ``Niagara
Escarpment'' 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 viticultural area's name as an
appellation of origin. On the other hand, we do not believe that any
single part of the proposed viticultural name standing alone, such as
``Niagara,'' would have viticultural significance if the new area is
established. Accordingly, the proposed part 9 regulatory text set forth
in this document specifies only the full ``Niagara Escarpment'' name as
a term of viticultural significance for purposes of part 4 of the TTB
regulations.
For a wine to be eligible to use as an appellation of origin the
name of a viticultural area specified in part 9 of the TTB regulations,
at least 85 percent of the grapes used to make the wine must have been
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 to use the viticultural area name as an appellation of origin
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 viticultural area name
appears in another reference on the label in a misleading manner, the
bottler would have to obtain approval of a new
[[Page 6795]]
label. Accordingly, if a new label or a previously approved label uses
the name ``Niagara Escarpment'' for a wine that does not meet the 85
percent standard, the new label will not be approved, and the
previously approved label will be subject to revocation, upon the
effective date of the approval of the Niagara Escarpment viticultural
area.
Different rules apply if a wine has a brand name containing a
viticultural area 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.
Public Participation
Comments Invited
We invite comments from interested members of the public on whether
we should establish the proposed viticultural area. We are also
interested in receiving comments on the sufficiency and accuracy of the
name, climatic, boundary and other required information submitted in
support of the petition. Please provide any available specific
information in support of your comments.
Because of the potential impact of the establishment of the
proposed Niagara Escarpment viticultural area on brand labels that
include the words ``Niagara Escarpment'' as discussed above under
Impact on Current Wine Labels, we are particularly interested in
comments regarding whether there will be a conflict between the
proposed area name and currently used brand names. If a commenter
believes that a conflict will arise, the comment should describe the
nature of that conflict, including any negative economic impact that
approval of the proposed viticultural area will have on an existing
viticultural enterprise. We are also interested in receiving
suggestions for ways to avoid any conflicts, for example by adopting a
modified or different name for the viticultural area.
Although TTB believes that only the full name ``Niagara
Escarpment'' should be considered to have viticultural significance
upon establishment of the proposed new viticultural area, we also
invite comments from those who believe that ``Niagara'' standing alone
would have viticultural significance upon establishment of the area.
Comments in this regard should include documentation or other
information supporting the conclusion that use of ``Niagara'' on a wine
label could cause consumers and vintners to attribute to the wine in
question the quality, reputation, or other characteristic of wine made
from grapes grown in the proposed Niagara Escarpment viticultural area.
Submitting Comments
Please submit your comments by the closing date shown above in this
notice. Your comments must include this notice number and your name and
mailing address. Your comments must be legible and written in language
acceptable for public disclosure. We do not acknowledge receipt of
comments, and we consider all comments as originals. You may submit
comments in one of five ways:
Mail: You may send written comments to TTB at the address
listed in the ADDRESSES section.
Facsimile: You may submit comments by facsimile
transmission to (202) 927-8525. Faxed comments must--
(1) Be on 8.5 by 11-inch paper;
(2) Contain a legible, written signature; and
(3) Be no more than five pages long. This limitation assures
electronic access to our equipment. We will not accept faxed comments
that exceed five pages.
E-mail: You may e-mail comments to nprm@ttb.gov. Comments
transmitted by electronic mail must'
(1) Contain your e-mail address;
(2) Reference this notice number on the subject line; and
(3) Be legible when printed on 8.5 by 11-inch paper.
Online form: We provide a comment form with the online
copy of this notice on our Web site at http://www.ttb.gov/alcohol/rules/index.htm.
Select the ``Send comments via e-mail'' link under
this notice number.
Federal e-rulemaking portal: To submit comments to us via
the Federal e-rulemaking portal, visit http://www.regulations.gov and
follow the instructions for submitting comments.
You may also write to the Administrator before the comment closing
date to ask for a public hearing. The Administrator reserves the right
to determine, in light of all circumstances, whether to hold a public
hearing.
Confidentiality
All submitted material is part of the public record and subject to
disclosure. Do not enclose any material in your comments that you
consider confidential or inappropriate for public disclosure.
Public Disclosure
You may view copies of this notice, the petition, the appropriate
maps, and any comments we receive by appointment at the TTB Library at
1310 G Street, NW., Washington, DC 20220. You may also obtain copies at
20 cents per 8.5 x 11-inch page. Contact our librarian at the above
address or by telephone at (202) 927-2400 to schedule an appointment or
to request copies of comments.
For your convenience, we will post this notice and any comments we
receive on this proposal on the TTB Web site. We may omit voluminous
attachments or material that we consider unsuitable for posting. In all
cases, the full comment will be available in the TTB Library. To access
the online copy of this notice and any posted comments, visit http://www.ttb.gov/alcohol/rules/index.htm.
Select the ``View Comments'' link
under this notice number to view the posted comments.
Regulatory Flexibility Act
We certify that this proposed regulation, if adopted, would not
have a significant economic impact on a substantial number of small
entities. The proposed regulation imposes no new reporting,
recordkeeping, or other administrative requirement. Any benefit derived
from the use of a viticultural area 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
This proposed rule is not a significant regulatory action as
defined by Executive Order 12866, 58 FR 51735. Therefore, it requires
no regulatory assessment.
Drafting Information
Jennifer Berry of the Regulations and Procedures Division drafted
this notice.
List of Subjects in 27 CFR Part 9
Wine.
Proposed Regulatory Amendment
For the reasons discussed in the preamble, we propose to amend
title 27, chapter 1, part 9, Code of Federal Regulations, as follows:
PART 9--AMERICAN VITICULTURAL AREAS
1. The authority citation for part 9 continues to read as follows:
Authority: 27 U.S.C. 205.
2. Amend subpart C by adding Sec. 9. ------ to read as follows:
Subpart C--Approved American Viticultural Areas
Sec. 9. ------ Niagara Escarpment.
(a) Name. The name of the viticultural area described in this
section is
[[Page 6796]]
``Niagara Escarpment''. For purposes of part 4 of this chapter,
``Niagara Escarpment'' is a term of viticultural significance.
(b) Approved Maps. The five United States Geological Survey (USGS)
1:25,000 scale, topographic maps used to determine the boundaries of
the Niagara Escarpment viticultural area are titled--
(1) Lewiston, New York-Ontario, 1980;
(2) Ransomville, New York, 1980;
(3) Cambria, New York, 1980;
(4) Lockport, New York, 1980; and
(5) Gasport, New York, 1979.
(c) Boundary. The Niagara Escarpment viticultural area is located
in Niagara County, New York. The area's boundaries are defined as
follows--
(1) On the Lewiston map, south of the village of Lewiston within
the Brydges State Artpark, begin on the east bank of the Niagara River
at the mouth of Fish Creek; then
(2) Proceed north along the east bank of the Niagara River about
0.6 mile to the northern boundary of the Brydges State Artpark; then
(3) Proceed east along the northern boundary of the Brydges State
Artpark about 0.8 mile to the park's northeast corner, and continue
east in a straight line a short distance to the Robert Moses Parkway;
then
(4) Proceed north along the Robert Moses Parkway about 0.25 mile to
Ridge Road, and then east on Ridge Road (State Route 104) about 0.15
mile to the road's first intersection with the 400-foot contour line;
then
(5) Continue easterly along the 400-foot contour line, through the
Ransomville map (crossing Model City Road, Dickersonville Road, and
State Route 429) and the Cambria map (crossing Baer Road, Plank Road,
and State Route 93/270), and pass onto the Lockport map to the contour
line's junction with Sunset Drive; then
(6) Proceed north on Sunset Drive 0.3 mile to its intersection with
Stone Road, then east on Stone Road about 1.25 miles (crossing
Eighteenmile Creek) to the intersection of Stone, Purdy, and Old
Niagara Roads, and continue east along Old Niagara Road about 0.4 mile
to its first intersection with the 400-foot contour line; then
(7) Proceed northeasterly along the 400-foot contour line to its
first junction with Slayton Settlement Road, proceed east on Slayton
Settlement Road to Day Road, and then proceed north on Day Road to its
first junction with the 400-foot contour line; then
(8) Proceed easterly along the 400-foot contour line, pass onto the
Gasport map (crossing Humphrey and Orangeport Roads), and continue to
the contour line's junction with Quaker Road; then
(9) Proceed north on Quaker Road about 0.4 mile to its intersection
with State Route 104, and then east on State Route 104 to its
intersection with Johnson Creek (at the village of Johnson Creek); then
(10) Proceed south along Johnson Creek (crossing the Erie Canal),
to the creek's junction with Mountain Road; then
(11) Proceed west on Mountain Road to its intersection with Gasport
Road, then south on Gasport Road to its intersection with Mill Road,
then west on Mill Road to its intersection with Kayner Road, then north
on Kayner Road 0.65 mile to its junction with the 600-foot contour
line; then
(12) Proceed westerly along the 600-foot contour line (crossing
Cottage Road) to its junction with State Route 31, and continue west on
State Route 31, passing onto the Lockport map and crossing the Erie
Canal within the city of Lockport, to the intersection of State Route
31 and Upper Mountain Road; then
(13) Proceed north-northwesterly on Upper Mountain Road 0.65 mile
and then northerly on Sunset Drive 0.25 mile to the junction of Sunset
Drive and the 600-foot contour line; then
(14) Proceed westerly along the 600-foot contour line, continuing
through the Cambria map (crossing State Route 93/270 and then Blackman
and Baer Roads), through the Ransomville map (crossing State Route 429
just north of Pekin and then crossing Black Nose Spring and Model City
Roads), and, passing onto the Lewiston map, continue westward along the
contour line (through the Escarpment, Ramsey Ridge, and Lewiston
Heights subdivisions), to the contour line's junction with Mountain
View Drive (just east of State Highway 104 near the Niagara Falls
Country Club); then
(15) Proceed west along Mountain View Drive a short distance to its
intersection with State Route 104, and then proceed south on State
Route 104 to its junction with Fish Creek; then
(16) Proceed westerly along Fish Creek and return to the beginning
point on the east bank of the Niagara River at the mouth of Fish Creek.
Signed: February 2, 2005.
John J. Manfreda,
Administrator.
[FR Doc. 05-2489 Filed 2-8-05; 8:45 am]
BILLING CODE 4810-31-P