Public Act 098-0660
 
HB5657 EnrolledLRB098 19064 RPM 54214 b

    AN ACT concerning public health.
 
    Be it enacted by the People of the State of Illinois,
represented in the General Assembly:
 
    Section 5. The Food Handling Regulation Enforcement Act is
amended by changing Sections 3.3 and 4 and by adding Sections
3.4 and 3.5 as follows:
 
    (410 ILCS 625/3.3)
    Sec. 3.3. Farmers' markets.
    (a) The General Assembly finds as follows:
        (1) Farmers' markets, as defined in subsection (b) of
    this Section, provide not only a valuable marketplace for
    farmers and food artisans to sell their products directly
    to consumers, but also a place for consumers to access
    fresh fruits, vegetables, and other agricultural products.
        (2) Farmers' markets serve as a stimulator for local
    economies and for thousands of new businesses every year,
    allowing farmers to sell directly to consumers and capture
    the full retail value of their products. They have become
    important community institutions and have figured in the
    revitalization of downtown districts and rural
    communities.
        (3) Since 1999, the number of farmers' markets has
    tripled and new ones are being established every year.
    There is a lack of consistent regulation from one county to
    the next, resulting in confusion and discrepancies between
    counties regarding how products may be sold.
        (4) In 1999, the Department of Public Health published
    Technical Information Bulletin/Food #30 in order to
    outline the food handling and sanitation guidelines
    required for farmers' markets, producer markets, and other
    outdoor food sales events.
        (5) While this bulletin was revised in 2010, there
    continues to be inconsistencies, confusion, and lack of
    awareness by consumers, farmers, markets, and local health
    authorities of required guidelines affecting farmers'
    markets from county to county.
    (b) For the purposes of this Section:
    "Department" means the Department of Public Health.
    "Director" means the Director of Public Health.
    "Farmers' market" means a common facility or area where the
primary purpose is for farmers to gather to sell a variety of
fresh fruits and vegetables and other locally produced farm and
food products directly to consumers. Local food artisans may
participate at farmers' markets.
    (c) In order to facilitate the orderly and uniform
statewide implementation of the standards established in the
Department of Public Health's administrative rules for this Act
interpretation of the Department of Public Health's Technical
Information Bulletin/Food #30, the Farmers' Market Task Force
shall be formed by the Director to assist the Department in
implementing statewide administrative regulations for farmers'
markets.
    (d) This Act does not intend and shall not be construed to
limit the power of counties, municipalities, and other local
government units to regulate farmers' markets for the
protection of the public health, safety, morals, and welfare,
including, but not limited to, licensing requirements and time,
place, and manner restrictions. This Act provides for a
statewide scheme for the orderly and consistent interpretation
of the Department of Public Health administrative rules
pertaining to the safety of food and food products sold at
farmers' markets.
    (e) The Farmers' Market Task Force shall consist of at
least 24 members appointed within 60 days after the effective
date of this Section. Task Force members shall consist of:
        (1) one person appointed by the President of the
    Senate;
        (2) one person appointed by the Minority Leader of the
    Senate;
        (3) one person appointed by the Speaker of the House of
    Representatives;
        (4) one person appointed by the Minority Leader of the
    House of Representatives;
        (5) the Director of Public Health or his or her
    designee;
        (6) the Director of Agriculture or his or her designee;
        (7) a representative of a general agricultural
    production association appointed by the Department of
    Agriculture;
        (8) three representatives of local county public
    health departments appointed by the Director and selected
    from 3 different counties representing each of the
    northern, central, and southern portions of this State;
        (9) four members of the general public who are engaged
    in local farmers' markets appointed by the Director of
    Agriculture;
        (10) a representative of an association representing
    public health administrators appointed by the Director;
        (11) a representative of an organization of public
    health departments that serve the City of Chicago and the
    counties of Cook, DuPage, Kane, Kendall, Lake, McHenry,
    Will, and Winnebago appointed by the Director;
        (12) a representative of a general public health
    association appointed by the Director;
        (13) the Director of Commerce and Economic Opportunity
    or his or her designee;
        (14) the Lieutenant Governor or his or her designee;
    and
        (15) five farmers who sell their farm products at
    farmers' markets appointed by the Lieutenant Governor or
    his or her designee.
    Task Force members' terms shall be for a period of 2 years,
with ongoing appointments made according to the provisions of
this Section.
    (f) The Task Force shall be convened by the Director or his
or her designee. Members shall elect a Task Force Chair and
Co-Chair.
    (g) Meetings may be held via conference call, in person, or
both. Three members of the Task Force may call a meeting as
long as a 5-working-day notification is sent via mail, e-mail,
or telephone call to each member of the Task Force.
    (h) Members of the Task Force shall serve without
compensation.
    (i) The Task Force shall undertake a comprehensive and
thorough review of the current Statutes and administrative
rules that define which products and practices are permitted
and which products and practices are not permitted at farmers'
markets and to assist the Department in developing statewide
administrative regulations for farmers' markets.
    (j) The Task Force shall advise the Department regarding
the content of any administrative rules adopted under this Act
prior to adoption of the rules. Any administrative rules,
except emergency rules adopted pursuant to Section 5-45 of the
Illinois Administrative Procedure Act, adopted without
obtaining the advice of the Task Force are null and void. If
the Department fails to follow the advice of the Task Force,
the Department shall, prior to adopting the rules, transmit a
written explanation to the Task Force. If the Task Force,
having been asked for its advice, fails to advise the
Department within 90 days after receiving the rules for review,
the rules shall be considered to have been approved by the Task
Force. The Task Force shall assist the Department of Public
Health and the Department of Agriculture in developing
administrative regulations and procedures regarding the
implementation of the various Acts that define which products
and practices are permitted and which products and practices
are not permitted at farmers' markets.
    (k) The Department of Public Health shall provide staffing
support to the Task Force and shall help to prepare, print, and
distribute all reports deemed necessary by the Task Force.
    (l) The Task Force may request assistance from any entity
necessary or useful for the performance of its duties. The Task
Force shall issue a report annually to the Secretary of the
Senate and the Clerk of the House.
    (m) The following provisions shall apply concerning
statewide farmers' market food safety guidelines:
        (1) The Director, in accordance with this Section,
    shall adopt administrative rules (as provided by the
    Illinois Administrative Procedure Act) for foods found at
    farmers' markets.
        (2) The rules and regulations described in this Act
    shall be consistently enforced by local health authorities
    throughout the State.
        (2.5) Notwithstanding any other provision of law
    except as provided in this Act, local public health
    departments and all other units of local government are
    prohibited from creating sanitation guidelines, rules, or
    regulations for farmers' markets that are more stringent
    than those farmers' market sanitation regulations
    contained in the administrative rules adopted by the
    Department for the purposes of implementing Section 3.3 of
    this Act. Except as provided for in Section 3.4 of this
    Act, this Act does not intend and shall not be construed to
    limit the power of local health departments and other
    government units from requiring licensing and permits for
    the sale of commercial food products, processed food
    products, prepared foods, and potentially hazardous foods
    at farmers' markets or conducting related inspections and
    enforcement activities, so long as those permits and
    licenses do not include unreasonable fees or sanitation
    provisions and rules that are more stringent than those
    laid out in the administrative rules adopted by the
    Department for the purposes of implementing Section 3.3 of
    this Act.
        (3) In the case of alleged non-compliance with the
    provisions described in this Act, local health departments
    shall issue written notices to vendors and market managers
    of any noncompliance issues.
        (4) Produce and food products coming within the scope
    of the provisions of this Act shall include, but not be
    limited to, raw agricultural products, including fresh
    fruits and vegetables; popcorn, grains, seeds, beans, and
    nuts that are whole, unprocessed, unpackaged, and
    unsprouted; fresh herb springs and dried herbs in bunches;
    baked goods sold at farmers' markets; cut fruits and
    vegetables; milk and cheese products; ice cream; syrups;
    wild and cultivated mushrooms; apple cider and other fruit
    and vegetable juices; herb vinegar; garlic-in-oil;
    flavored oils; pickles, relishes, salsas, and other canned
    or jarred items; shell eggs; meat and poultry; fish;
    ready-to-eat foods; and commercially produced prepackaged
    food products; and any additional items specified in the
    administrative rules adopted by the Department to
    implement Section 3.3 of this Act.
    (n) Local health department regulatory guidelines may be
applied to foods not often found at farmers' markets, all other
food products not regulated by the Department of Agriculture
and the Department of Public Health, as well as live animals to
be sold at farmers' markets.
    (o) The Task Force shall issue annual reports to the
Secretary of the Senate and the Clerk of the House with
recommendations for the development of administrative rules as
specified. The first report shall be issued no later than
December 31, 2012.
    (p) The Department of Public Health and the Department of
Agriculture, in conjunction with the Task Force, shall adopt
administrative rules necessary to implement, interpret, and
make specific the provisions of this Act, including, but not
limited to, rules concerning labels, sanitation, and food
product safety according to the realms of their jurisdiction in
accordance with subsection (j) of this Section. The Task Force
shall submit recommendations for administrative rules to the
Department no later than December 15, 2014.
    (q) The Department and the Task Force shall work together
to create a food sampling training and license program as
specified in Section 3.4 of this Act.
(Source: P.A. 97-394, eff. 8-16-11.)
 
    (410 ILCS 625/3.4 new)
    Sec. 3.4. Product samples.
    (a) For the purpose of this Section, "food product
sampling" means food product samples distributed free of charge
for promotional or educational purposes only.
    (b) Notwithstanding any other provision of law, except as
provided in subsection (c) of this Section, a vendor who
engages in food product sampling at a farmers' market may do so
without obtaining a State or local permit to provide those food
product samples, provided the vendor complies with the State
and local permit requirements to sell the food product to be
sampled and with the food preparation, food handling, food
storage, and food sampling requirements specified in the
administrative rules adopted by the Department to implement
Section 3.3 and Section 3.4 of this Act.
    The Department of Public Health is instructed to work with
the Farmers' Market Task Force as created in Section 3.3 of
this Act to establish a food sampling at farmers' market
training and certification program to fulfill this
requirement. The Department shall adopt rules for the food
sampling training and certification program and product
sampling requirements at farmers' markets in accordance with
subsection (j) of Section 3.3. The Department may charge a
reasonable fee for the training and certification program. The
Department may delegate or contract authority to administer the
food sampling training to other qualified public and private
entities.
    (c) Notwithstanding the provisions of subsection (b) of
this Section, the Department of Public Health, the Department
of Agriculture, a local municipal health department, or a
certified local health department may inspect a vendor at a
farmers' market to ensure compliance with the provisions in
this Section. If an imminent health hazard exists or a vendor's
product has been found to be misbranded, adulterated, or not in
compliance with the permit exemption for vendors pursuant to
this Section, then the regulatory authority may invoke
cessation of sales until it deems that the situation has been
addressed.
 
    (410 ILCS 625/3.5 new)
    Sec. 3.5. Product origin.
    (a) All vendors or booths selling specialty crops and raw
agricultural commodities at a farmers' market in Illinois must
post at the point of sale a placard or include on a label or
packing slip the physical address of the farm or farms on which
those products were grown or produced.
    Specialty crops and raw agricultural commodities purchased
through wholesale or retail markets may be offered for resale
at a farmers' market. If the physical address of the farm or
farms where the products were grown or produced is unknown,
then the vendor must post at the point of sale a placard or
include on a label or packing slip the physical address and
business name, when applicable, where the products were
purchased.
    (b) Specialty crops and raw agricultural commodities
direct marketed at farmers' markets that do not include a
placard at the point of sale or on a label or packing slip
stating the physical location of the farm on which those
products were grown or produced shall be considered misbranded.
    (c) Any related federal rules or regulations adopted
through the implementation of the federal Food Safety
Modernization Act regarding transparency, traceability, and
product origin labeling pertaining to specialty crops and raw
agricultural commodities shall supersede the provisions of
this Section.
 
    (410 ILCS 625/4)
    Sec. 4. Cottage food operation.
    (a) For the purpose of this Section:
    "Cottage food operation" means an operation conducted by a
person who produces or packages non-potentially hazardous food
in a kitchen located in of that person's primary domestic
residence or another appropriately designed and equipped
residential or commercial-style kitchen on that property for
direct sale by the owner or a family member, stored in the
residence or appropriately designed and equipped residential
or commercial-style kitchen on that property where the food is
made.
    "Department" means the Department of Public Health.
    "Farmers' market" means a common facility or area where
farmers gather to sell a variety of fresh fruits and vegetables
and other locally produced farm and food products directly to
consumers.
    "Potentially hazardous food" means a food that is
potentially hazardous according to the Department's
administrative rules the Federal Food and Drug Administration
2009 Food Code (FDA 2009 Food Code) or any subsequent
amendments to the FDA 2009 Food Code. Potentially hazardous
food (PHF) in general means a food that requires time and
temperature control for safety (TCS) to limit pathogenic
microorganism growth or toxin formation. In accordance with the
FDA 2009 Food Code, potentially hazardous food does not include
a food item that because of its pH or Aw value, or interaction
of Aw and pH values, is designated as a non-PHF/non-TCS food in
Table A or B of the FDA 2009 Food Code's potentially hazardous
food definition.
    (b) Notwithstanding any other provision of law and except
as provided in subsections (c) and (d) of this Section, neither
the Department of Public Health nor the Department of
Agriculture nor the health department of a unit of local
government may regulate the service of food by a cottage food
operation providing that all of the following conditions are
met:
        (1) The food is not a potentially hazardous baked good,
    jam, jelly, preserve, fruit butter, dry herb, dry herb
    blend, or dry tea blend and is intended for end-use only.
    The following provisions shall apply:
            (A) The following jams, jellies and preserves are
        allowed: apple, apricot, grape, peach, plum, quince,
        orange, nectarine, tangerine, blackberry, raspberry,
        blueberry, boysenberry, cherry, cranberry, strawberry,
        red currants, or a combination of these fruits.
        Rhubarb, tomato, and pepper jellies or jams are not
        allowed. Any other jams, jellies, or preserves not
        listed may be produced by a cottage food operation
        provided their recipe has been tested and documented by
        a commercial laboratory, at the expense of the cottage
        food operation, as being not potentially hazardous,
        containing a pH equilibrium of less than 4.6.
            (B) The following fruit butters are allowed:
        apple, apricot, grape, peach, plum, quince, and prune.
        Pumpkin butter, banana butter, and pear butter are not
        allowed. Fruit butters not listed may be produced by a
        cottage food operation provided their recipe has been
        tested and documented by a commercial laboratory, at
        the expense of the cottage food operation, as being not
        potentially hazardous, containing a pH equilibrium of
        less than 4.6.
            (C) Baked goods, such as, but not limited to,
        breads, cookies, cakes, pies, and pastries are
        allowed. Only high-acid fruit pies that use the
        following fruits are allowed: apple, apricot, grape,
        peach, plum, quince, orange, nectarine, tangerine,
        blackberry, raspberry, blueberry, boysenberry, cherry,
        cranberry, strawberry, red currants or a combination
        of these fruits. Fruit pies not listed may be produced
        by a cottage food operation provided their recipe has
        been tested and documented by a commercial laboratory,
        at the expense of the cottage food operation, as being
        not potentially hazardous, containing a pH equilibrium
        of less than 4.6. The following are potentially
        hazardous and prohibited from production and sale by a
        cottage food operation: pumpkin pie, sweet potato pie,
        cheesecake, custard pies, creme pies, and pastries
        with potentially hazardous fillings or toppings.
        (2) The food is to be sold at a farmers' market.
        (3) Gross receipts from the sale of food exempted under
    this Section do not exceed $25,000 in a calendar year.
        (4) The food packaging conforms to the labeling
    requirements of the Illinois Food, Drug and Cosmetic Act
    and includes the following information on the label of each
    of its products:
            (A) the name and address of the cottage food
        operation;
            (B) the common or usual name of the food product;
            (C) all ingredients of the food product, including
        any colors, artificial flavors, and preservatives,
        listed in descending order by predominance of weight
        shown with common or usual names;
            (D) the following phrase: "This product was
        produced in a home kitchen not subject to public health
        inspection that may also process common food
        allergens.";
            (E) the date the product was processed; and
            (F) allergen labeling as specified in federal
        labeling requirements.
        (5) The name and residence of the person preparing and
    selling products as a cottage food operation is registered
    with the health department of a unit of local government
    where the cottage food operation resides. No fees shall be
    charged for registration. Registration shall be for a
    minimum period of one year.
        (6) The person preparing and selling products as a
    cottage food operation has a Department of Public Health
    approved Food Service Sanitation Management Certificate.
        (7) At the point of sale a placard is displayed in a
    prominent location that states the following: "This
    product was produced in a home kitchen not subject to
    public health inspection that may also process common food
    allergens.".
    (c) Notwithstanding the provisions of subsection (b) of
this Section, if the Department of Public Health or the health
department of a unit of local government has received a
consumer complaint or has reason to believe that an imminent
health hazard exists or that a cottage food operation's product
has been found to be misbranded, adulterated, or not in
compliance with the exception for cottage food operations
pursuant to this Section, then it may invoke cessation of sales
until it deems that the situation has been addressed to the
satisfaction of the Department.
    (d) Notwithstanding the provisions of subsection (b) of
this Section, a State-certified local public health department
may, upon providing a written statement to the Department of
Public Health, regulate the service of food by a cottage food
operation. The regulation by a State-certified local public
health department may include all of the following
requirements:
        (1) That the cottage food operation (A) register with
    the State-certified local public health department, which
    shall be for a minimum of one year and may include a
    reasonable fee set by the State-certified local public
    health department that is no greater than $25
    notwithstanding paragraph (5) of subsection (b) of this
    Section and (B) agree in writing at the time of
    registration to grant access to the State-certified local
    public health department to conduct an inspection of the
    cottage food operation's primary domestic residence in the
    event of a consumer complaint or foodborne illness
    outbreak.
        (2) That in the event of a consumer complaint or
    foodborne illness outbreak the State-certified local
    public health department is allowed to (A) inspect the
    premises of the cottage food operation in question and (B)
    set a reasonable fee for that inspection.
(Source: P.A. 97-393, eff. 1-1-12.)
 
    Section 10. The Sanitary Food Preparation Act is amended by
changing Section 11 as follows:
 
    (410 ILCS 650/11)  (from Ch. 56 1/2, par. 77)
    Sec. 11. Except as hereinafter provided and as provided in
Sections 3.3, 3.4, and 4 of the Food Handling Regulation
Enforcement Act, the Department of Public Health shall enforce
this Act, and for that purpose it may at all times enter every
such building, room, basement, inclosure or premises occupied
or used or suspected of being occupied or used for the
production, preparation or manufacture for sale, or the
storage, sale, distribution or transportation of such food, to
inspect the premises and all utensils, fixtures, furniture and
machinery used as aforesaid; and if upon inspection any such
food producing or distribution establishment, conveyance, or
employer, employee, clerk, driver or other person is found to
be violating any of the provisions of this Act, or if the
production, preparation, manufacture, packing, storage, sale,
distribution or transportation of such food is being conducted
in a manner detrimental to the health of the employees and
operatives, or to the character or quality of the food therein
being produced, manufactured, packed, stored, sold,
distributed or conveyed, the officer or inspector making the
inspection or examination shall report such conditions and
violations to the Department. The Department of Agriculture
shall have exclusive jurisdiction for the enforcement of this
Act insofar as it relates to establishments defined by Section
2.5 of "The Meat and Poultry Inspection Act", approved July 22,
1959, as heretofore or hereafter amended. The Department of
Agriculture or Department of Public Health, as the case may be,
shall thereupon issue a written order to the person, firm or
corporation responsible for the violation or condition
aforesaid to abate such condition or violation or to make such
changes or improvements as may be necessary to abate them,
within such reasonable time as may be required. Notice of the
order may be served by delivering a copy thereof to the person,
firm or corporation, or by sending a copy thereof by registered
mail, and the receipt thereof through the post office shall be
prima facie evidence that notice of the order has been
received. Such person, firm or corporation may appear in person
or by attorney before the Department of Agriculture or the
Department of Public Health, as the case may be, within the
time limited in the order, and shall be given an opportunity to
be heard and to show why such order or instructions should not
be obeyed. The hearing shall be under such rules and
regulations as may be prescribed by the Department of
Agriculture or the Department of Public Health, as the case may
be. If after such hearing it appears that this Act has not been
violated, the order shall be rescinded. If it appears that this
Act is being violated, and that the person, firm or corporation
notified is responsible therefor, the previous order shall be
confirmed or amended, as the facts shall warrant, and shall
thereupon be final, but such additional time as is necessary
may be granted within which to comply with the final order. If
such person, firm or corporation is not present or represented
when such final order is made, notice thereof shall be given as
above provided. On failure of the party or parties to comply
with the first order of the Department of Agriculture or the
Department of Public Health, as the case may be, within the
time prescribed, when no hearing is demanded, or upon failure
to comply with the final order within the time specified, the
Department shall certify the facts to the State's Attorney of
the county in which such violation occurred, and such State's
Attorney shall proceed against the party or parties for the
fines and penalties provided by this Act, and also for the
abatement of the nuisance: Provided, that the proceedings
herein prescribed for the abatement of nuisances as defined in
this Act shall not in any manner relieve the violator from
prosecution in the first instance for every such violation, nor
from the penalties for such violation prescribed by Section 13.
(Source: P.A. 97-393, eff. 1-1-12; 97-394, eff. 8-16-11;
97-813, eff. 7-13-12.)
 
    Section 99. Effective date. This Act takes effect upon
becoming law.