[Federal Register: July 13, 2004 (Volume 69, Number 133)]
[Notices]
[Page 42030-42033]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr13jy04-34]
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Notices
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains documents other than rules
or proposed rules that are applicable to the public. Notices of hearings
and investigations, committee meetings, agency decisions and rulings,
delegations of authority, filing of petitions and applications and agency
statements of organization and functions are examples of documents
appearing in this section.
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[[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
respond@cnpp.usda.gov.
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]
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