Cottage Food Laws in the United States PDF Free Download
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CoƩ age Food Laws
in the
United States
August 2013
FoodLawandPolicyClinic,HarvardLawSchool 2|Page
Author
ThisreportwaswrittenbyAlliCondra,ClinicalFellowintheHarvardLawSchoolFoodLawandPolicy
Clinic(adivisionoftheCenterforHealthLawandPolicyInnovation),andpreparedunderthe
supervisionofEmilyBroadLeib,DirectoroftheHarvardLawSchoolFoodLawandPolicyClinic.
Thisprojectwasbasedonpriorresearch,writing,andeditingofthefollowingstudents:
VanessaAssae‐Bille,HarvardLawSchool
TareahIkharo,HarvardLawSchool
EvanKubota,HarvardLawSchool
VincentLee,HarvardLawSchool
DanielPreysman,HarvardLawSchool
RaishayLin,HarvardLawSchool
Contact
FormoreinformationabouttheHarvardLawSchoolFoodLawandPolicyClinic,email
flpc@law.harvard.edu.
FoodLawandPolicyClinic,HarvardLawSchool 3|Page
TableofContents
Introduction..................................................................................................................................................4
ImportanceofPassingandStrengtheningCottageFoodLaws....................................................................6
SummaryofU.S.CottageFoodLaws............................................................................................................7
Regulating“FoodEstablishments”............................................................................................................7
CreatingCottageFoodLaws.....................................................................................................................8
CommonElementsFoundinCottageFoodLaws...................................................................................10
TypesofCottageFoodProductsAllowed...........................................................................................10
LimitsonWhereFoodCanBeSold.....................................................................................................12
RequiredRegistration,Licenses,and/orPermits................................................................................13
LimitsonTotalSales............................................................................................................................14
RequiredLabeling...............................................................................................................................16
Conclusion...................................................................................................................................................17
TableofFigures
Figure1.Fifty‐StateReviewofCottageFoodLaws......................................................................................5
Figure2.TypesofCottageFoodProductsAllowed....................................................................................11
Figure3.LimitsonWhereCottageFoodProductsCanBeSold.................................................................12
Figure4.RequiredRegistration,Licenses,and/orPermits.........................................................................13
Figure5.LimitsonTotalSales.....................................................................................................................15
Figure6.RequiredLabeling........................................................................................................................16
FoodLawandPolicyClinic,HarvardLawSchool 4|Page
Introduction
Thepastfewyearshaveseenamarkedincreaseintheamountoflocalandsmall‐scalefoodproduction
intheUnitedStates.Forexample,thenumberoffarmersmarketsthroughouttheUnitedStateshas
beenontheriseoverthepastdecade,increasingby9.6percentinoneyearalonebetween2011and
2012.1Alongwiththisrecentgrowthinfarmersmarketsandexplodingdemandforlocalfoodshascome
apushtoallowindividualstoproduceandsellnon‐potentiallyhazardousfoodsmadeintheirhome
kitchens,outsideofexpensivepermittingandlicensingprocedures.
ManyofthefoodsafetylawsregulatingfoodproductionintheUnitedStatesweredesignedasone‐size‐
fits‐allregulations.Forexample,commercialfoodproductionisalmostalwaysrequiredtotakeplaceina
certifiedcommercialkitchen.Thisrequirementisbasedontheideathatcommercialkitchensthathave
metcertainrequirements(suchasincludingsurfacesmadeofstainlesssteel,separatehand‐ anddish‐
washingsinks,andmeetingspecificlicenseandinspectionrequirements)willbesaferthanproducing
foodinanunlicensed,uninspectedkitchen.Forsomefoodproduction,thisrequirementmakessense.
Butnotallfoodproductionishighrisk.“Cottagefoods,”non‐potentiallyhazardousfoods(suchasbaked
goods,jams,andjellies),donotpresentthesamefoodsafetyrisksasotherprocessedfoods.Therefore,
allowingproducerstomakethesenon‐potentiallyhazardousgoodsintheirhomes,ratherthanina
commercialkitchen,reducesthebarrierstoentryforsmall‐scaleproducerswhilerecognizingthelow‐
risknatureoftheseproducts.
Foodproductionoperationsvaryintermsofsizeofoperationandtypeoffoodproduced,turningone‐
size‐fits‐allregulationsintosignificantbarrierstoentryforcertainfoodproducers.Becausethereisno
waytocompletelyeliminateallriskinthefoodsystemandbecausethelawsthatexistcreatebarriersto
small‐scaleproducers,thereneedstobescale‐appropriatelawsthatbalancefoodsafetywhile
maintainingopportunityforsmall‐scalefoodentrepreneurstoenterthemarket.
Allowingcottagefoodstobesoldatfarmersmarketsandin
similarlocationsprovidesanumberofimportantbenefits,
includingbothdirectandindirecteconomicbenefitsand
communitybenefits.Increasingthenumberoflocallymade
productsavailableforpurchaseatfarmersmarketsand
similarlocationshasthedirecteconomicbenefitof
increasingtheamountofmoneythatstaysinthelocal
economy.Homefoodproductionorcottagefood
productioncanalsoserveasabusinessincubatorby
reducingsomeofthestart‐upbarriersforfledgling
entrepreneursandprovidingtheindirecteconomicbenefit
ofgrowingmorelocalbusinesses.Communitiesbenefit
fromcottagefoodproductionbecauseitprovidesresidents
greateraccesstolocallyproducedfoods.Additionally,
cottagefoodlawsencouragemorepeopletogrowfood
becausethegrowersknowtheyhaveanoutlettocreate
value‐addedproductsfromanyexcessfreshfruitsand
vegetablestheyproduce.
1FarmersMarketsandLocalFoodMarketing,U.S.DEP’TOFAGRIC.,AGRIC.MKTG.SERV.,
http://www.ams.usda.gov/AMSv1.0/ams.fetchTemplateData.do?template=TemplateS&leftNav=WholesaleandFarmersMarkets
&page=WFMFarmersMarketGrowth&description=Farmers%20Market%20Growth(lastvisitedJan.16,2013).
AWin‐WinSituation
AswasnotedbyMichiganState
RepresentativePamByrnes,allowingthe
productionofcottagefoodsis“awin‐win
situation—residentslookingtolauncha
startupbusinesswillhaveaneasiertime
settingupshop,andconsumerslooking
fordelicioushomemadeitemsfortheir
familieswillhavemoreoptions.”
DanielLai,GranholmSignsCottageFood
OperationsBillIntoLaw,
HERITAGENEWSPAPERS.COM,July12,2010,
http://www.heritage.com/articles/2010/07/12
/heritagewest/news/doc4c3b698fa1b8071400
1632.txt.
FoodLawandPolicyClinic,HarvardLawSchool 5|Page
Inlightofthesebenefits,stateshavepassedvariousversionsofcottagefoodlawsoverthepastfew
years.Althoughtherearesomecommonalitiesbetweenstatelaws,therearealsosomeveryimportant
differences.Currently,nocomprehensiveanalysisofstatecottagefoodlawsexists.Thisreportis
intendedtofillthatgap.InordertoprovideafullpictureofthecottagefoodlawsacrosstheUnited
States,thisreportwillexplainhowcottagefoodlawswork,providesomeexamplesofbestpractices,
anddiscusswhystatesshouldpassnewcottagefoodlawsorstrengthenexistinglaws.Finally,this
reportincludesaseriesofchartsthatpresentasummaryofthecottagefoodlawsinthefiftystatesasof
May2013.Basedonwhatisallowedindifferentstates,somemaydisagreeaboutwhichstatesactually
havecottagefoodlaws.Inourreport,weconsiderastatetohaveacottagefoodlawifthestateallows
forsomekindofin‐homeprocessingoffood.However,itisimportanttorememberthatevenstates
thatalreadyhaveacottagefoodlawcanchangeandimprovetheircottagefoodlawregime.
Cottagefoodlawsvarywidelyintherequirementsandlimitssetbythestates,andasthisreportis
intendedtoprovideanoverviewofallthestatelaws,theinformationisnecessarilylimited.Any
individualinterestedinstartingupacottagefoodbusinesscanusethisreportasastartingpoint,but
shouldconsultanattorneyfamiliarwiththestatelawineffectinhis/herstatetohelpnavigatethe
process.Additionally,theinformationiscurrentasofMay2013,butasstatescontinuetopasslawsand
developrulesandregulationstoimplementtheselaws,itwillbeimportanttoresearchyourstate’s
laws,regulations,andstatedepartmentofhealthand/oragriculture’swebsiteforanyupdates.
StatesthatAllowCottageFoodOperations
Ohio
Oregon
Pennsylvania
RhodeIsland
SouthCarolina
SouthDakota
Tennessee
Texas
Utah
Vermont
Virginia
Washington
Wisconsin
Wyoming
Alabama
Alaska
Arizona
Arkansas
California
Colorado
Delaware
Florida
Georgia
Illinois
Indiana
Iowa
Kentucky
Louisiana
Maine
Maryland
Massachusetts
Michigan
Minnesota
Mississippi
Missouri
Montana
Nebraska
Nevada
NewHampshire
NewMexico
NewYork
NorthCarolina
StatesthatDoNotAllow
CottageFoodOperations
Connecticut
DistrictofColumbia
Hawaii
Idaho
Kansas
NewJersey
NorthDakota
Oklahoma
WestVirginia
Figure1.Fifty‐StateReviewofCottageFoodLaws
FoodLawandPolicyClinic,HarvardLawSchool 6|Page
ImportanceofPassingandStrengtheningCottageFoodLaws
Attheirmostbasic,cottagefoodlawspermitthein‐homeproductionandsaleofnon‐potentially
hazardousfoods.Asofthepublicationofthisreport,forty‐twostateshadsomesortofcottagefoodlaw,
andninestates,includingWashington,D.C.,didnot.2Althoughmorethantwo‐thirdsofstateshave
cottagefoodlaws,thereisnouniformityamongthelaws.Somestatesrestricthome‐basedfood
processingactivitiestoaverynarrowcategoryofprocessors(suchason‐farmonly).3Otherscap
allowablesalesatalowamount,suchthatin‐homeprocessingactivitiescanonlybeahobbyandnota
viablebusinessorlaunchingpadforamoretraditionalfoodprocessingbusiness.4Somecottagefood
lawsarerelativelyeasytofindinthestates’lawsandhaveclearrequirements,whileotherstates’
cottagefoodlawsaredifficulttofindandmaynotclearlystatetherequirementsforacottagefood
operation.
Fortheninestatesthathavenotyetpassedacottagefoodlaw,thereisagreatopportunitytolearn
fromotherstatesandcraftathoughtful,thoroughcottagefoodlawthatwillbeclear,easytofind,and
willallowin‐homeprocessorstostartbusinessestosupportthelocaleconomy.Inturn,businesses
createdunderthesecottagefoodlawswillincreaseaccesstolocalproductsfortheircommunities.
Stateswithverylimitedcottagefoodlawsalwayshavetheopportunitytoreviewandimprovethese
existinglaws,basedontheexamplesofotherstates.Forexample,itseemsthatmanycottagefoodlaws
werepassedwiththeintentionofonlyallowingcottagefoodprocessorstousetheirhome‐basedfood
businessesasasidebusinessorhobby.Withtheincreasedfocusonsupportingandgrowinglocal
economiesandprovidingaccesstolocalproducts,cottagefoodlawsneedtobebroadenoughtoallow
producerstomaketheiroperationsviablebusinesses.Removingorincreasingthesaleslimitsfor
cottagefoodoperationswouldhelpestablishcottagefoodoperationsasimportantcontributorstothe
localeconomy.Similarly,removingrestrictionsthatlimitcottagefoodoperationstoon‐farmprocessors
wouldalsoallowasignificantnumberofpotentialcottagefoodproducerstoenterthemarket.
Cottagefoodlawsalsoneedtobeeasytofindwithinastate’slawsorregulations.Whenpotentialin‐
homeprocessorsarelookingtostartcottagefoodoperations,theyshouldbeabletofindthelawsand
regulationsgoverningtheirbusinessesrelativelyeasily,andtheyshouldbeabletounderstandwhatis
requiredofthem.Byhavingdifficult‐to‐findcottagefoodlawsorhiddenexemptionsfromthe
requirementsforfoodestablishments,statesmaycausecottagefoodoperatorstoinadvertentlybreak
theirstate’slawsorleadpotentialcottagefoodoperatorstoforegostartingcottagefoodbusinesses.
Statesshouldreviewhowtheirlawsarestructuredanddirectrelevantstateagenciestocreateeasy‐to‐
followguidesforpotentialcottagefoodoperators.Tohelppotentialcottagefoodoperatorsunderstand
andcomplywithlawsandregulations,itiscriticaltoensurethatrelevantguidelinesareeasytofindon
thestate’sdepartmentofagricultureand/ordepartmentofhealth’swebsite.
2Nevadaisthemostrecentstatetopassacottagefoodlaw:Nevada’sgovernorapprovedthecottagefoodbillonMay24,
2013,andthelawtookeffectJuly1,2013.AnActRelatingtoFoodEstablishments,2013Nev.LawsCh.152(S.B.206);seeJoan
Whitely,CottageFoodsComingSoontoaFarmers’MarketNearYou,KNPR.ORG,July31,2013,
http://www.knpr.org/son/archive/detail2.cfm?SegmentID=10332&ProgramID=2840.
3Seee.g.,KY.REV.STAT.ANN.§§217.015,.136,.137(West2012);902KY.ADMIN.REGS.45:090(2012).
4Seee.g.,MINN.STAT.§28A.15(10(a))(2012)(limitingcottagefoodsalesto$5,000peryear).
FoodLawandPolicyClinic,HarvardLawSchool 7|Page
SummaryofU.S.CottageFoodLaws
Cottagefoodlawshavebeenimplementedinafewways.Manystatespasstheircottagefoodlaws
throughlegislation.Thedetailsofthelawsareoftenthenfilledoutthroughregulationspassedbya
statedepartmentofhealthordepartmentofagriculture.Forexample,Maryland’scottagefoodlaw,
passedin2012,directstheDepartmentofHealthtoadoptregulationstocarryouttherequirementsof
thecottagefoodlaw.5Otherstatesestablishtheircottagefoodrulesthroughregulationsonly.Georgia’s
recentlyenactedcottagefoodregimeisonlyfoundinregulationsadoptedbytheDepartmentof
Agriculture.6Cottagefoodlawscanalsobeimplementedlessformally,throughanagreementbetween
thestatedepartmentofagricultureandstatedepartmentofhealthorthroughguidelinespostedona
statewebsite.7Itisimportanttobeawareofthevarietyofwaystocreatecottagefoodlaws,notonlyto
illustratehowcomplicateditcanbetolocateandunderstandthecottagefoodregimesoperatingwithin
variousstates,butalsotoshowcottagefoodadvocatesthevariousroutestocreatingoramending
cottagefoodlawsintheirstates.8
Regulating“FoodEstablishments”
Stateshaveprimaryauthorityoverthehealthand
well‐beingoftheirresidents;aspartofthis
responsibility,statesandlocalgovernments
establishlawsandregulationsthataddressthe
productionoffoodat“foodestablishments”
withinthestate.States,ratherthanthefederal
government,thereforehavetheabilitytodecide
whethertoallowthein‐homeproductionoflow‐
riskfoodsthatwillbesoldwithinthestate,rather
thanrequireallfoodproductiontooccurina
certifiedcommercialkitchen.
Althoughstateshavethepowertoregulatefood
production,theU.S.FoodandDrug
Administration(FDA)haspublishedaModelFood
Code(FDAFoodCode)thatstatescanadoptthat
setsoutmodelfoodsafetystandardsfora
numberoftopics,includingfoodproductionat
foodestablishments.Manystatesdidnotallow
cottagefoodproductioninthepastbecausethey
hadadoptedtheFDAFoodCode’sprovisions
definingandregulatingfoodestablishments.TheFDAFoodCodedoesnotallowanyprocessingtotake
placeoutsideofcommercialkitchens,andtheresultofstatesadoptingthisportionoftheCodewasa
banoncottagefoodoperationsinthosestates.9Asdiscussedbelow,inordertoallowcottagefood
operationsinstatesthathaveadoptedtheFDAFoodCodeinitsentirety,thestatemustamendits
5MD.CODEANN.,HEALTH–GEN.§21‐330.1(2012).
6GA.COMP.R.®S.40‐7‐19‐.01–.10(2012).
7Forexample,informationonNorthCarolina’shome‐basedfoodprocessorregimeisonlyfoundontheDepartmentof
Agriculture’swebsiteandnotinthestatecodeorregulations.
8Advocatesshouldkeepinmindthatstatescannotpassregulationsthatconflictwithstatelegislation,however,theremaybe
roomtostrengthenregulationswhilestillmeetinglegislativeintent.
9FDAFOODCODE2009§1‐201.10(definitionoffoodestablishment).
FDAFoodCode
TheU.S.FoodandDrugAdministrationFoodCode
(“FDAFoodCode”)isamodelcodeandreference
documentforstateandlocalgovernmentsonfood
safetylaws.TheFDAdoesnotrequirestatesto
adoptthecode,butmanystateshavechosentodo
sobecausethecodereflectstheexpertiseand
attentionofdozensoffoodsafetyexperts.
Importantly,theFDAFoodCodeitselfisnotlaw;it
onlybecomesbindingwhenstatesadoptitby
statuteorregulation,andstatestypicallyaddtheir
ownmodificationsbystatuteorregulation.Anew
versionoftheFDAFoodCodewaspublishedevery
twoyearsuntil2001andisnowpublishedevery
fouryears.ThelatestFDAFoodCodewas
publishedin2009.
FDAFoodCode,U.S.DEP’TOFHEALTH&HUMANSERVS.,FOOD
&DRUGADMIN.,
http://www.fda.gov/Food/FoodSafety/RetailFoodProtec
tion/FoodCode/default.htm(lastvisitedJan.16,2013).
FoodLawandPolicyClinic,HarvardLawSchool 8|Page
adoptedversionoftheFDAFoodCodetoallowcottagefoodoperations.Statesthathavenotadopted
theFDAFoodCodecanpassnewlegislationestablishingacottagefoodlaw.
CreatingCottageFoodLaws
Thetwomostcommonwaysthatstatescreatecottagefoodregimesarebymodifyingthedefinitionof
“foodestablishment”toexcludehomekitchensorbycreatingaseparatelegalstructureforcottage
foodproduction.Forexample,Missouriadoptedthe1999FDAFoodCode,whichdoesnotpermit
cottagefoodoperations,andmodifiedthedefinitionof“foodestablishment”togivelocalgovernments
theauthoritytoallowcottagefoodoperationsiftheysochoose.10Missouri’sdefinitionof“food
establishment”nowexempts
[w]herelocalcodesallow,individualstandsinwhichonlyfoodsmeetingthefollowing
conditionsaresold,sampledorserved:(AA)Non‐potentiallyhazardousprocessedfoods
...(BB)Theselleristheindividualactuallyproducingthefoodoranimmediatefamily
memberresidingintheproducer’shouseholdwithextensiveknowledgeaboutthefood;
...[and](DD)Allprocessedpackagedfoodsbearalabelstating...thattheproductis
preparedinakitchenthatisnotsubjecttoinspectionbytheDepartmentofHealthand
SeniorServices.11
Bycontrast,California’scottagefoodlawhasitsownsubchapterofthestate’sRetailFoodCodeentitled
“CottageFoodOperations”12anddefinescottagefoodoperationsas
anenterprisethathasnotmorethantheamountingrossannualsalesthatisspecified
inthissubdivision,isoperatedbyacottagefoodoperator,andhasnotmorethanone
full‐timeequivalentcottagefoodemployee,notincludingafamilymemberor
householdmemberofthecottagefoodoperator,withintheregisteredorpermitted
areaofaprivatehomewherethecottagefoodoperatorresidesandwherethecottage
foodproductsarepreparedorpackagedfordirect,indirect,ordirectandindirectsales
toconsumerspursuanttothispart.13
Additionally,whilemostcottagefoodlawsallowanycitizenofthestatetobeacottagefoodoperator,a
fewstateslimitin‐homefoodproductiontofarmerswhoconducton‐farmprocessing.14Toillustrate,
RhodeIsland’slawallowsfor“farmhomefoodmanufactureandthesaleofproductsoffarmhomefood
manufactureatfarmers’markets,farmstands,andothermarketsandstoresoperatedbyfarmersforthe
purposeoftheretailsaleoftheproductsofRhodeIslandfarms”provided,inpart,that“thefarmhome
foodproducts[are]producedinakitchenthatisonthepremisesofafarm.”15AlthoughwecountRhode
Islandasallowingcottagefoodoperations,thestateprovidesanexampleofaveryrestrictivecottage
foodlawthatshouldbeexpandedtopermitanycitizentobeacottagefoodoperator.
10MO.CODEREGS.ANN.tit.19,§20‐1.025(1)(B)(5)(2012).
11MO.CODEREGS.ANN.tit.19,§20‐1.025(1)(B)(5)(2012).
12CAL.HEALTH&SAFETYCODE§§114365–114365.6(West2012).
13CAL.HEALTH&SAFETYCODE§§113758(West2012).
14Delaware,Kentucky,NewHampshire,andRhodeIslandlimitin‐homeprocessingtofarmersconductingtheprocessingonthe
farm.DEL.CODEANN.tit.3,§100(2012);KY.REV.STAT.ANN.§§217.136‐.137(West2012);N.H.REV.STAT.ANN.§143A:12(2012);
R.I.GEN.LAWS§21‐27‐6.1(2012).
15R.I.GEN.LAWS§21‐27‐6.1(2012).
FoodLawandPolicyClinic,HarvardLawSchool 9|Page
StateRegulationofFoodEstablishments
Statelaws(followingtheFDAFoodCode)generallydesignatealllocationswherefood
isproducedorsoldforpayas“foodestablishments.”Oncealocationisconsidereda
“foodestablishment,”itissubjecttoahostofrulesincludingrequirementssuchas
obtainingarangeoflicensesandpermits,beingsubjecttoinspection,requiringmulti‐
compartmentsinks,ensuringfloorsandwallsaremadeoutofspecificnon‐absorbent
materials,andusingspecificventilationsystems.1Thesearejustsomeofthehundreds
ofrequirementsimposedonsuchcertifiedkitchens.AccordingtotheFDAFoodCode,
homekitchensusedforhouseholdfoodpreparationcannotbecertifiedkitchens,so
anyonewishingtopreparefoodforsalemusthaveaccesstoaseparatecertified
kitchenoutsidethehome.2ThisalsomeansthatnoneoftheversionsoftheFDAFood
Codeallowforcommercialsalesoffoodsproducedinahomekitchen.3
Thereareafewimportantexceptionstothedefinitionoffoodestablishmentinthe
FDAFoodCode.Themostrelevantexceptionisforcharitybakesalesandreligious
events.Homekitchensthatareusedtoproducenon‐potentiallyhazardousfoodfor
saleatcharitybakesalesandreligiouseventsareexcludedfromthedefinitionoffood
establishments,aslongastheconsumerisnotifiedthatthefoodwasproducedinan
unregulatedanduninspectedhomekitchen.4Thisexceptionallowsindividualsto
prepareinahomekitchenfoodsidentifiedasnon‐potentiallyhazardous,suchas
bakedgoods,jams,jellies,granola,popcorn,coffee,andtea,whenthosefoodsare
beingsoldatacharitybakesaleorsimilarfunction.
ThefactthatthisexceptionisintheFDAFoodCodeisevidencethattheFDAitselfhas
deemedhomeproductionoffoodstobesafewhenthosefoodsarenot“potentially
hazardous.”Thisexceptionprovidesamodelforapplyingthesamelogictosalesof
non‐potentiallyhazardousfoodsinotherlocations,suchasfarmersmarkets.Indeed,
manystatesallowforcottagefoodoperationsbyextendingtheexemptionforthe
salesofhomemadenon‐potentiallyhazardousfoodtofarmersmarkets.Todoso,
statessimplyaddthewords“farmersmarkets”after“charityorganization’sbakesale”
inthelanguageadoptedfromtheFDAFoodCode.5
1SeeFDAFOODCODE2009§1‐103.10(“ThisCodeestablishesdefinitions;setsstandardsformanagement
andpersonnel,foodoperations,andequipmentandfacilities;andprovidesforfoodestablishmentplan
review,permitissuance,inspection,employeerestriction,andpermitsuspension.”);§§8‐301–304
(PermittoOperate);§§8‐401—406(InspectionandCorrectionofViolations);§4‐301.12(Manual
Warewashing,SinkCompartmentRequirements);§§6‐101.11,201.11(facilitymaterialsanddesign);§4‐
204.11(VentilationHoodSystems,DripPrevention).
2FDAFOODCODE2009§6‐202.111.Notethatinsomestates,onemodificationallowingforin‐home
productionmerelyallowstheHealthDepartmenttocertifyhomekitchensforproductionofsomefood
items.
3FDAFOODCODE2009§1‐201.10(definitionoffoodestablishment).
4FDAFOODCODE2009§1‐201.10(definitionoffoodestablishment).
5Alabamafollowedthismodelfortheirin‐homeprocessinglaw.“In‐homeprocessing”isanotherwayto
describecottagefoodproduction.ALA.ADMIN.CODEr.420‐3‐22‐.01(4)(a)(11)(2012).
FoodLawandPolicyClinic,HarvardLawSchool 10|Page
CommonElementsFoundinCottageFoodLaws
Analysisofthefiftystates’lawsfoundfivemaintypesofrestrictionsthatstateshaveusedintheir
cottagefoodlaws:typesofcottagefoodproductsallowed;limitsonwherecottagefoodproductscan
besold;requiredregistration,licenses,and/orpermits;limitsontotalsales;andrequiredlabeling.
TypesofCottageFoodProductsAllowed
Forthemostpart,stateslimitcottagefoodproductiontofoodsthatare“notpotentiallyhazardous.”
Somestatesprovideadetailedlistofallowedfoods,whileotherssimplyrequirethefoodtobenot
potentiallyhazardous.Forexample,inArkansas,thelawstatesthatcottagefoodoperationsmayonly
produce“nonpotentiallyhazardousfoods,
includingwithoutlimitation:(A)Bakeryproducts;
(2)Candy;(C)Fruitbutter;(D)Jams;(E)Jellies;and
(F)Similarproductsspecifiedinrulesadoptedby
theDepartmentofHealth.”16However,the
ArkansasDepartmentofHealthandthe
DepartmentofAgriculturehaveindicatedthatthey
donotplantoaddanynewfoodstothelistinthe
nearfuture;therefore,onlythosefivetypesof
productsareallowedtobesoldascottagefood
products.17California’slawlistssixteenfoodsthat
areapprovedforcottagefoodoperationsand
directstheDepartmentofHealthtoadoptandpost
toitswebsitealistofotherapprovedfoods.18The
sixteenfoodsthatCalifornia’scottagefoodlaw
allowsare:
∙ Bakedgoodswithoutcream,custard,ormeat
fillings,suchasbreads,biscuits,churros,
cookies,pastries,andtortillas.
∙ Candy,suchasbrittleandtoffee.
∙ Chocolate‐coverednonperishablefoods,such
asnutsanddriedfruit.
∙ Driedfruit.
∙ Driedpasta.
∙ Drybakingmixes.
∙ Fruitpies,fruitempanadas,andfruittamales.
∙ Granola,cereals,andtrailmixes.
∙ Herbblendsanddriedmolepaste.
∙ Honeyandsweetsorghumsyrup.
16ARK.CODEANN.§20‐57‐201(1)(2012).
17ARK.DEP’TOFHEALTH,COTTAGEFOODGUIDE(May2012),
http://www.healthy.arkansas.gov/programsServices/environmentalHealth/foodProtection/Documents/CottageFoodGuidelines
.pdf;ARK.DEP’TOFHEALTH&ARK.AGRIC.DEP’T,FARMERS’MARKETVENDORGUIDE:AGUIDEFORFARMERSANDCONSUMERS(May2012),
http://www.healthy.arkansas.gov/programsServices/environmentalHealth/foodProtection/Documents/FarmersMarketGuidelin
es.pdf.
18CAL.HEALTH&SAFETYCODE§114365.5(West2012).
Whatisa“PotentiallyHazardous”Food?
Thedefinitionof“potentiallyhazardous”foodin
theFDACodeisdetailedandtechnical,referring
totheacidityofagivenfoodtodetermine
whetheritisconsideredpotentiallyhazardous.
Thefocusisonwhetheraparticularitemislikely
todevelopbacteriaorvirusesthatcarrydisease.
Themainquestioniswhetherthefoodsupports
“pathogenicmicroorganismgrowthortoxin
formation.”Meat,dairy,andshellfishareall
examplesofpotentiallyhazardousfoods.
However,lessobviousfoodssuchaslow‐sugar
jams,cookedvegetables,andlow‐aciditypickles
andsalsaarealsoconsideredpotentially
hazardousbecausetheycansupportviralor
bacterialgrowthifnotproperlystored.Ineffect,
ifthefoodhasthepotentialtocauseharmto
consumerswhennotkeptunderproper
temperatureandstorageconditions,thefoodis
considered“potentiallyhazardous.”
Accordingtothe2009FDACode,thefollowing
areconsideredpotentiallyhazardousfoods:
meat,poultry,andeggs;fishandshellfish;
cookedvegetables;dairyproducts;mushrooms;
cutmelons;unmodifiedcuttomatoesormixtures
ofcuttomatoes;untreatedgarlic‐in‐oilmixtures;
bakedgoodssubjecttospoilage(suchascream‐
filledpastriesorothersthatmustbe
refrigerated);reducedsugarjamsandjellies;
picklesandsalsa;and,rawseedsprouts.
FDAFoodCode2009§1‐201.10.
FoodLawandPolicyClinic,HarvardLawSchool 11|Page
∙ Jams,jellies,preserves,andfruitbutterthatcomplywithfederalstandardsforfruitbutter.19
∙ Nutmixesandnutbutters.
∙ Popcorn.
∙ Vinegarandmustard.
∙ Roastedcoffeeanddriedtea.
∙ Waffleconesandpizelles. 20
UtahandNewMexico’scottagefoodlaws,ontheotherhand,onlyspecifythatcottagefoodscannotbe
potentiallyhazardousfoods(anddonotprovidealistofallowedcottagefoodproducts).21Cottagefood
operatorsinbothstates,however,musthavethefoodproductstheywanttoproduceapprovedbythe
governmentpriortoproducingthefoodforsale.22Mississippi’scottagefoodlawsimplydefinescottage
foodproductsasthosethatare“nonpotentiallyhazardousfoodproducts”andinstructstheStateBoard
ofHealthtoprovidemoredetailsaboutwhatfallsunderthecategoryof“nonpotentiallyhazardousfood
products.”23Wisconsin’sin‐homeprocessinglaw,sometimesreferredtoasthe“picklebill,”onlyallows
processedvegetablesorfruitsthatmeetacertainpHvalue,suchaspickledfruitsandvegetables(but
notrefrigeratorpickles),sauerkraut,salsas,chutneys,jamsandjellies,andapplesauce.24Vermont’slaw
isalsolimitedandonlyallowsbakedgoods,orbreads,cakes,piesorotherfoodproductsmadeeither
whollyorinpartfromflour.25
19Notethatotherstates,suchasGeorgia,expresslyprohibitfruitbuttersfromthelistofapprovedcottagefoods.GA.COMP.R.&
REGS.40‐7‐19‐.05(2012).Illinoisallowscertainfruitbutters(apple,apricot,grape,peach,plum,quince,andprune),butnot
others(pumpkin,banana,andpear).410ILL.COMP.STAT.625/4(2012).
20California’scottagefoodlawpassedin2012.CAL.HEALTH&SAFETYCODE§114365.5(West2012).
21N.M.CODER.§7.6.2.16(C)(2)(Weil2012);UTAHCODEANN.§4‐5‐9.5(1)(a)(2012).
22N.M.CODER.§7.6.2.16(C)(2)(Weil2012);UTAHADMIN.CODEr.70‐560‐3(2012).
23ActofApril1,2013,ch.481,2013Miss.LawsCh.481(S.B.2553)(anacttoexemptcottagefoodproductionoperationsfrom
regulation).
24WIS.STAT.ANN.§97.29(2)(b)(2)(West2012).
25VT.STAT.ANN.tit.18,§4451(2012).
Figure2.TypesofCottageFoodProductsAllowed
BroadList
ofAllowed
Foods
LimitedList
ofAllowed
Foods
Other
(More
Restrictive)
Alabama,Alaska,Arizona,California,Delaware,Florida,Georgia,
Iowa,Massachusetts,Michigan,Mississippi,Missouri,Nebraska,
NewHampshire,NewMexico,NewYork,NorthCarolina,
Pennsylvania,RhodeIsland,SouthCarolina,SouthDakota,
Tennessee,Texas,Utah,Virginia,Washington,Wyoming
Arkansas,Colorado,Illinois,Montana,Nevada,NewHampshire,
Ohio
Indiana,Kentucky,Louisiana,Maine,Maryland,Minnesota,
Oregon,Vermont,Wisconsin
e.g.,“non‐potentially
hazardousfoods,
including…”or“non‐
potentiallyhazardous
foods”generally
e.g.,“non‐potentially
hazardousfoods,
limitedto…”
e.g.,nohomecanned
goodsmadeusing
pressurecooker,
primaryingredients
mustbegrownby
microprocessor,
pickledproductsonly
FoodLawandPolicyClinic,HarvardLawSchool 12|Page
LimitsonWhereFoodCanBeSold
Inouranalysis,wefoundthatsomestatecottagefoodlawslimittheplacesatwhichcottagefood
productscanbesold.Nearlyallstatesrestrictcottagefoodoperationstosellingdirectlytoconsumers
anddonotpermitsalestorestaurantsorotherretailfoodestablishments.Statesvaryinthelimitsthey
imposeonsaleslocationsbyrestrictingsalesto,forexample,farmersmarkets,countyfairs,roadside
stands,ontheproducer’spremises,andthroughcommunitysupportedagricultureoperations(CSA).
Toillustrate,Tennessee’slawstatesthatcottagefoodproducts“maybesoldatthatperson’spersonal
residence,acommunityorsocialevent,includingchurchbazaarsandfestivals,fleamarkets,orat
farmers’marketslocatedinthisstate.”26Bycontrast,California’scottagefoodlawallowsbroadersales
thanmoststates.InCalifornia,therearetwolevelsofcottagefoodoperations,eachbearingdistinct
regulationsonthelocationsofsalesallowed:ClassAcottagefoodoperationsareauthorizedtosell
directtoconsumersonly;ClassBoperationsmayengageinbothdirectandindirectsales,meaningthey
canselltorestaurantsandotherretailfoodestablishments.27
Additionally,ahandfulofstatesexpresslyprohibitmailorderand/orinternetsalesofcottagefood
products.28Thislimitationmakessensebecauseofthewaystateandfederallawsinteract;because
cottagefoodlawsarestate‐based,cottagefoodproductscannotbesoldacrossstatelineswithout
becomingsubjecttofederalregulations.Cottagefoodproducts,therefore,canonlybesoldwithinthe
stateinwhichtheyweremade.Asanexampleofthiskindoflimitation,Michigan’scottagefoodlaw
26TENN.CODEANN.§53‐8‐117(b)(West2012).
27CAL.HEALTH&SAFETYCODE§113758(a)(West2012).
28Seee.g.,FLA.STAT.ANN.§500.80(2)(2012);902KY.ADMIN.REGS.§§45:090(2)(12),(3)(8)(2012);MICH.COMP.LAWS§289.4201(4)
(2012);N.M.CODER.7.6.2.16(C)(4)(Weil2012);TEX.HEALTH&SAFETYCODEANN.§437.0194(Vernon2012);WASH.REV.CODE§
69.22.020(4)(2012).
Figure3.LimitsonWhereCottageFoodProductsCanBeSold
Key:1(internetsalesexpresslyprohibited);2(sitelimitation:e.g.,farmersmarkets,producers’premises)
DirecttoConsumerSalesOnly
Alabama2
Alaska
Arizona
Arkansas1,2
Colorado2
Delaware2
Florida1
Georgia
Illinois2
Indiana2
Iowa
Kentucky1,2
Maryland2
Michigan1
Minnesota2
Mississippi
Missouri
Nebraska2
Nevada1,2
NewMexico1,2
Oregon2
RhodeIsland2
SouthCarolina
SouthDakota
Tennessee
Texas1,2
Vermont2
Virginia2
Washington1,2
Wisconsin2
W
y
omin
g
2
IndirectSalesAllowed
e.g.,restaurants,retail,wholesale
California
Maine
NewHampshire2
Ohio
Pennsylvania2
Louisiana
Massachusetts
NewYork
NorthCarolina
Utah
NoInformation/NoRequirement
FoodLawandPolicyClinic,HarvardLawSchool 13|Page
stipulatesthat“[c]ottagefoodproductsmaybesolddirectlyfromthecottagefoodoperationtothe
consumeronly,andnotbyinternetormailorder.”29Georgia,ontheotherhand,explicitlyallows
internetsalessolongasthesaleisfromaproducerdirectlytoanendconsumerlocatedinGeorgia.30
Arkansas’cottagefoodlawitselfdoesnotexpresslyprohibitinternetsales,butanArkansasDepartment
ofHealthguidancedocumentclearlyprohibitsthesaleofcottagefoodproductsovertheinternet.31
RequiredRegistration,Licenses,and/orPermits
Statesvarywidelyastowhetherornotacottagefoodoperationmustbelicensedand/orpermitted,as
wellaswhatrequirementsmustbemetforsuchauthorization.Somestatesdonotrequireanylicensing
orpermitsforcottagefoodoperations.Forexample,Florida,Maryland,andMichigan,expresslydonot
requirelicensesforcottagefoodoperations.32Otherstates,suchasTexas,makenomentionofalicense
requirement,whichsuggeststhatnolicenseisrequired.33
Somestatesrequirespecificlicenses:forexample,Alaskarequirescottagefoodoperatorstoobtaina
businesslicense;34Coloradorequiresacertificateinsafefoodhandlingandprocessing,butnoother
licenseorpermit;35Washingtonrequiresafoodandbeverageserviceworker’spermit;36andUtah
requiresavalidfoodhandler’spermit.37Othertypesofpermitsmayalsoberequired.InPennsylvania,
29MICH.COMP.LAWS§289.4201(4)(2012).
30Georgia’scottagefoodlawsaysnothingaboutinternetsales,butadocumentontheGeorgiaDepartmentofAgriculture’s
website,CottageFoods:FrequentlyAskedQuestions,clearlystatesthatinternetsalesareallowed.CottageFoods:Frequently
AskedQuestions,GA.DEP’TOFAGRIC.,
http://agr.georgia.gov/Data/Sites/1/media/ag_consumerprotection/cottage_food/files/cottagefoodsfaq.pdf(lastvisitedJan.
17,2013).
31ARK.DEP’TOFHEALTH,COTTAGEFOODGUIDE3(May2012),
http://www.healthy.arkansas.gov/programsServices/environmentalHealth/foodProtection/Documents/CottageFoodGuidelines
.pdf.
32FLA.STAT.ANN.§500.80(1)(a)(2012);MD.CODEANN.,HEALTH–GEN.§21‐330.1(b)(2012);MICH.COMP.LAWS§289.4102(1)(2012).
3325TEX.ADMIN.CODE§229.661(2012).
34ALASKAADMIN.CODEtit.18,§31.012(a)(4)(2012).
35COLO.REV.STAT.ANN.§25‐4‐1614(1)(c)(2012).
36WASH.REV.CODE§69.22.030(2)(2012).
37UTAHCODEANN.§4‐5‐9.5(4)(a)(2012).
Figure4.RequiredRegistration,Licenses,and/orPermits
StatesthatHaveSomeSortof
Registration,Permit,orLicense
Requirement
Alaska
Arizona
California
Colorado
Delaware
Georgia
Illinois
Kentucky
Maine
Massachusetts
Nevada
NewMexico
Oregon
Pennsylvania
RhodeIsland
Tennessee
Utah
Washington
StatesthatHaveNoRegistration,Permit,or
LicenseRequirement
Alabama
Arkansas
Florida
Indiana
Iowa
Louisiana
Maryland
Michigan
Minnesota
Mississippi
Missouri
Montana
Nebraska
NewHampshire
NewYork
NorthCarolina
Ohio
SouthCarolina
SouthDakota
Texas
Vermont
Virginia
Wisconsin
Wyoming
FoodLawandPolicyClinic,HarvardLawSchool 14|Page
forexample,“homefoodprocessors”musthavetheirkitchensinspectedaspartoftheregistration
processtoensurethatthekitchenfacilitiesmeettheapplicablelawsandregulations.38Thereareoften
feesassociatedwithlicensingandpermitting:somestateshavelowfees($20feeinMaine),39while
othershaveanumberofdifferentfeesassociatedwiththevaryingpermitsrequired.Forexample,in
Washingtonstate,thereisa$125inspectionfee,a$75publichealthreviewfee,anda$30processing
fee.40
LimitsonTotalSales
Abouthalfofthestatesthatallowcottagefoodproductionplacealimitationontheamountofincomea
cottagefoodoperationcanearnandstillqualifyasacottagefoodoperation.Forthemostpart,states
framethelimitintermsofadollaramountinsalesperyear.Thesesaleslimitsrangefrom$5,000/year
upto$50,000/year.Forexample,Texaslimitsthesaleofcottagefoodsto$50,000peryear.41Louisiana,
Minnesota,andWisconsin,however,capannualsalesforcottagefoodoperationsatonly$5,000/year.42
BothMichiganandCaliforniaprovideforagradualincreaseintheannualceilingoveraperiodofyears.
InMichigan,until2017,cottagefoodoperationsarecappedat$20,000insales;after2017,Michigan
cottagefoodoperatorscanmakeupto$25,000.43InCalifornia,cottagefoodoperationsarelimitedto
$35,000in2013;$45,000in2014;and$50,000in2015andbeyond.44
Coloradosetsa$5,000/yearsaleslimitforeacheligiblefooditem,andacottagefoodproducermay
havemultipleeligiblefooditems(eachindividualflavorofjam,eachtypeofcake,andeachtypeof
cookierepresentsaneligiblefooditem).45Florida,ontheotherhand,limitscottagefoodoperationsin
thestateto$15,000forallproductsinalllocations.46
Ahandfulofstatesframetheirsaleslimitsintermsotherthanadollaramountperyear.Forexample,
Tennesseelimitscottagefoodoperationsto100unitsofsaleaweek.47A“unitofsaleistheformof
packaginginwhichtheproductisnormallyofferedforsaletotheconsumer,”suchasoneloafofbread,
onedozencookies,oronecontainerofjelly.48SouthCarolinadoesnotexplicitlyplacealimitonthe
amountofmoneyacottagefoodoperationcanmake,butimposesdifferentrequirementsonthe
operationbasedontheamountofmoneymade.Forexample,ahome‐basedfoodoperationthatmakes
lessthan$500/yearisexemptfromallprovisionsregulatinghome‐basedfoodoperations,whereasa
home‐basedfoodoperationthatmakesmorethan$500butlessthan$15,000/yearmayapplytothe
DepartmentofAgricultureforanexemptionfrominspectionandlabelreview.49Vermontmeasuresits
cottagefoodsalesintermsofdollarperweek;acottagefoodoperatorinVermontislimitedto
$125/weekofsales(equalto$6,500/year).50
38HomeFoodProcessing:Description,PA.DEP’TOFAGRIC.,
http://www.agriculture.state.pa.us/portal/server.pt/gateway/PTARGS_0_2_24476_10297_0_43/agwebsite/ProgramDetail.asp
x?name=Home‐Food‐Processing&navid=12&parentnavid=0&palid=134&(lastvisitedJuly25,2013).
3901‐001‐345ME.CODER.§8(A)(2012);01‐001‐330ME.CODER.§2(2012).
40WASH.REV.CODE§69.22.030(1)(2012).
41TEX.HEALTH&SAFETYCODEANN.§437.001(2‐b)(Vernon2013).
42LA.REV.STAT.ANN.§4:9(B)(2012);MINN.STAT.§28A.15(10(a)(2012);WIS.STAT.§97.29(2)(b)(2)(c)(2012).
43MICH.COMP.LAWS§289.4102(5)(2012).
44CAL.HEALTH&SAFETYCODE§113758(a)(West2012).
45COLO.REV.STAT.§25‐4‐1614(2)(e)(2012);CottageFoodsFactSheet&Guidance,COLO.DEP’TOFPUB.HEALTH&ENV’T,
http://www.colorado.gov/cs/Satellite/CDPHE‐DEHS/CBON/1251586894464(lastvisitedJan.18,2013).
46FLA.STAT.§500.80(1)(2012).
47TENN.COMP.R.®S.0080‐04‐11‐.03(2012).
48TENN.COMP.R.®S.0080‐04‐11‐.02(2012).
49S.C.CODEANN.§44‐1‐143(G)–(H)(2012).
50VT.STAT.ANN.tit.18,§4451(2012).
FoodLawandPolicyClinic,HarvardLawSchool 15|Page
Figure5.LimitsonTotalSales
StateswithSalesLimits
State$500to
$15,000
$15,000to
$25,000
$25,000and
aboveOther
Alaska
California
Colorado
Delaware
Florida
Illinois
Indiana
Iowa
Kentucky
Louisiana
Maryland
Michigan
Minnesota
Mississippi
Nevada
NewHampshire
Oregon
SouthCarolina
Tennessee
Texas
Vermont
Washington
Wisconsin
StateswithNoSalesLimit
Alabama
Arizona
Arkansas
Georgia
Indiana
Maine
Massachusetts
Missouri
Montana
Nebraska
NewMexico
NewYork
NorthCarolina
Ohio
Pennsylvania
RhodeIsland
SouthDakota
Utah
Virginia
Wyoming
FoodLawandPolicyClinic,HarvardLawSchool 16|Page
RequiredLabeling
Almostallstateswithcottagefoodlawshavelabelingrequirements.51Generally,cottagefoodproducts
arerequiredtobelabeledwithsomecombinationofthefollowinginformation:
∙ Nameandaddressofproducer;
∙ Commonorusualnameofproduct.
∙ Ingredientsofproductindescendingorderofpredominancebyweight;
∙ Anyfoodallergens;
∙ Netweightandvolumeoffoodproductbystandardmeasureornumericalcount;
∙ Dateonwhichthefoodwasprocessed;and
∙ Astatementsimilartothefollowing:“Madeinahomekitchenthathasnotbeeninspectedbythe
(state)’sdepartmentofhealth(oragriculture).”
Toillustrate,Marylandrequiresthenameandaddressofthecottagefoodbusiness;thenameofthe
cottagefoodproduct;theingredientsofthecottagefoodproductindescendingorderoftheamountof
eachingredientbyweight;thenetweightornetvolumeofthecottagefoodproduct;allergen
informationasspecifiedbyfederallabelingrequirements;ifanynutritionalclaimismade,nutritional
informationasspecifiedbyfederallabelingrequirements;andthefollowingstatementprintedin10
pointorlargertypeinacolorthatprovidesaclearcontrasttothebackgroundofthelabel:“Madebya
cottagefoodbusinessthatisnotsubjecttoMaryland’sfoodsafetyregulations.”52Ontheotherhand,
Virginiaonlyrequiresthecottagefoodlabeltoread:“NOTFORRESALE–PROCESSEDANDPREPARED
WITHOUTSTATEINSPECTION”53andLouisianahasnolabelingrequirementatall.54
51Theonlystatesthatdonothaveanysortoflabelingrequirementare:Louisiana,Montana,andVermont.
52MD.CODEANN.,HEALTH–GEN.§21‐330.1(c)(2)(West2012).
53VA.CODEANN.§3.2‐5130(A)(3)(2012).
54LA.REV.STAT.ANN.§40:4.9(2012).
Figure6.RequiredLabeling
StateswithLabelingRequirements
Alabama
Alaska
Arizona
Arkansas
California
Colorado
Delaware
Florida
Georgia
Illinois
Indiana
Iowa
Kentucky
Maine
Maryland
Massachusetts
Michigan
Minnesota
Mississippi
Missouri
Nebraska
Nevada
NewHampshire
NewMexico
NewYork
NorthCarolina
Ohio
Oregon
Pennsylvania
RhodeIsland
South
Carolina
South
Dakota
Tennessee
Texas
Utah
Virginia
Washington
Wisconsin
Wyoming
StateswithNOLabeling
Requirements
Louisiana
Montana
Vermont
FoodLawandPolicyClinic,HarvardLawSchool 17|Page
Conclusion
Allowingforcottagefoodoperationsisaneasywaythatstatescansupportthedevelopmentofsmall
businessesandincreasetheavailabilityoflocalproductswithintheirborders.Thefactthatforty‐two
statesallowsomesortofin‐homeprocessingofnon‐potentiallyhazardousfoodsdemonstratesthat
thesetypesofoperationsareimportantandvaluabletothecitizensofthosestates.
Statescontinuetointroducenewcottagefoodlawsoramendtheirexistingcottagefoodstructures,
whichmeanstherearenumerousopportunitiesforadvocatestogetinvolvedandmakechange.Inthe
mostrecentlegislativesession,severalstateswithoutcottagefoodlawsintroducedlegislationtoallow
cottagefoodproductioninthestate.Forexample,thestatelegislaturesinNewJerseyandNevadaboth
introducedbillsthatwouldpermitcottagefoodproductioninthosestates;55Nevada’scottagefoodbill
passed,whileNewJersey’sdidnot.56Additionally,afewstatesthatalreadyallowcottagefood
productionhaveintroduced,andinsomecasespassed,legislationthatclarifiesandstrengthenstheir
cottagefoodlaws.
Thereareanumberofwaysstatescanimprovetheircottagefoodlaws:
First,statesshouldmakesuretheircottagefoodlawsareeasytofindandunderstand.Statesdo
notneedtogosofarastointroduceanewlaw.Statesshouldensurethereareclearguidance
documentsthatcottagefoodproducerscanfindandusetostarttheircottagefoodoperations.
Second,statesshouldexpandtheircottagefoodlawstomakesurethatallcitizens(notjust
farmers)canparticipate,andbroadenthetypesoffoodsthatcanbesold(e.g.,notjustpickles
orbakedgoods).
Third,statesshouldconsiderallowingcottagefoodproducerstosellindirectlytoconsumersat
restaurantsandretailestablishments(likeinCalifornia).
Fourth,statesshouldeliminatesaleslimitsorsethigherthresholds.Abusinesswithannualsales
of$5,000(even$25,000)wouldqualifyasahobbyor,atbest,averysmallbusiness.Ifstates
wanttoencouragelocaleconomicdevelopment,increasingthesalesthresholdforcottagefood
operationsisanecessarysteptowardaccomplishingthatgoal.
Fifth,somestatesplacemanyrequirementsoncottagefoodoperations,insomecasesimposing
thesamestandardsthatotherfoodprocessingestablishmentsmustmeet.Forexample,in
additiontolimitingthein‐homeprocessingofnonpotentiallyhazardousfoodstoon‐farm
kitchens,RhodeIslandrequiresthekitchento
beequippedatminimumwitheitheratwo(2)compartmentsinkora
dishwasherthatreachesonehundredfifty(150)degreesFahrenheitafterthe
finalrinseanddryingcycleandaonecompartmentsink;...[and]havedrain
boardsandfoodpreparationsurfacesthatshallbeofanonabsorbentcorrosion
55S.B.206,77thLeg.,Reg.Sess.(Nev.2013)(“Thisbilladdstothelistofentitiesthatareexcludedfromthedefinitionof‘food
establishment’acottagefoodoperationthat:(1)manufacturesorpreparescertainfooditemsforsale;(2)meetscertain
requirementsrelatingtothepreparation,labelingandsaleofthosefooditems;and(3)registerswiththehealthauthority.This
billalsoprohibitsalocalgovernmentfromadoptinganyordinanceorotherregulationthatprohibitsapersonfrompreparing
foodinacottagefoodoperationwithintheperson'sprivatehome.”);A.B.1761,215thLeg.,FirstAnnualSess.(N.J.2012).
56AnActRelatingtoFoodEstablishments,2013Nev.LawsCh.152(S.B.206).
FoodLawandPolicyClinic,HarvardLawSchool 18|Page
resistantmaterialsuchasstainlesssteel,formicaorotherchipresistant,
nonpittedsurface.57
StatessuchasRhodeIslandshouldensurethattheregulationstheyplaceoncottagefood
operationsreflectthesmallsizeandlow‐risknatureoftheseoperationsandthatthe
requirementsarenotoverlyburdensome.
Asmoreconsumersbecomeinterestedinsupportinglocalfoodeconomiesandmoreproducersbegin
startingtheirownfoodbusinesses,statesneedtomakesurethatthoselocalbusinessescansurviveand
thrive.Althoughmanystateshavecottagefoodorhome‐basedfoodprocessinglawsontheirbooks,
therearestillanumberofwaysinwhichstatescanupdateandimprovetheircottagefoodregimesto
matchthegrowingdemandandopportunityforcottagefoodoperations.
57R.I.GEN.LAWS§21‐27‐6.1(1)(2013).
