32 THE AMERICAN SOCIETY OF ANIMAL PRODUCTION WHAT SHOULD BE THE ULTIMATE UNITED STATES REGARDING AIM OF THE THE UTILIZATION OF FATS AND OILS? N. R. W H I T N E Y Procter & G a m b l ~ Co. Domestic conditions and international relations are always in such a state of change that it is impossible at any particular time to outline in definite form a program which might be regarded as a final solution of any politico-economic problem. This is particularly true of the fats and oils problem. The best that can be hoped for is that agreement might be reached on what should be the essentials of a sound program characterized (1) b y intelligence, (2) by a spirit of fairness, and (3) by a due sense of proportion. Since we are living in a democracy it is perhaps too much to expect that any problem which presents conflicts between the presumed self-interest of various groups will be settled by an appeal limited strictly to intelligence and reason~ An inventory would show that we produce an excess of edible fats, chiefly in the form of lard, and a deficit of inedible or industrial fats. The excess of lard is disposed of in the export markets and the deficiency in industrial fats is provided for by imports chiefly in the form of coconut, palm, and the paint oils, such as linseed and tung oils. While coconut and palm oil are available also for edible purposes they are imported mainly for industrial uses. In recent years, only 5.5 per cent of the annual domestic edible oil consumption has been imported, and of this quantity only a~ little more than 3 per cent was coconut oil. These imported oils are used in connection with forty different products or processes, the largest usage being in the m a n u facture o3 soap. Our present policy is based on a desire to exclude all imports of oils and fats with the hope that this will result in higher prices for the domestic products. That, in fact, the policy has not resulted in exclusion should not blind us concerning the real aim and purpose. Applying the test of intelligence to this program, suppose we ask ourselves first whether total or partial exclusion of foreign oils will accomplish the results desired, tand second whether our domestic program is one designed to promote national prosperity. The expectation of complete exclusion of foreign oils might as well be dismissed from consideration. We require annually nearly a billion pounds of fats and oils in addition to the quantity we produce. THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 33 To burden these supplies with heavy import duties merely adds to domestic costs of production in various industries and increases the prices which must be paid by consmners. The import duties raise the cost of manufacture in many "lines and raise the cost of living for the nation as a whole. As an offset to these losses, it is contended that the producers of fats and oils profit through higher prices for their products. It is unfortunate that the imposition of, the most recent duties, levied in the form of excise taxes, should have coincided in time with the drought and with the Government program of scarcity which drastically reduced the cotton crop and brought about a tremendous shrinkage in the supply of meat animals. For the increase in the prices of some of the fats and oils is being credited to the restriction of imports, and thus our foreign trade errors will tend to be perpetuated. We are at present using all of the inedible fats produced in this country. Virtually every pound produced is a by-product or joint product and under no conceivable price advance would these fats be produced as primary products. To attempt to expand our production of edible and inedible fats and oils to replace our approximately one billion pounds of annual imports, would call for such an increase in the supplies of live stock, of dairy products, of cotton, of flaxseed, and other major products, as would bring ruinously low prices for producers and reverse completely the present Government agricultural program. But, the proponents of the present tariff policy assert, we will not increase our domestic production. We will merely make foreign oils more costly to import and this will intensify the demand for domestic products, thus raising their prices. Th~ first effect of import restriction is likely to be a weakening in the prices of the foreign oils. This is seen, for~ example, in the fact that since the recent legislation, coconut oiI, palm oil, and other foreigr~ oils have no~ advanced in price at all comparably with the advances in domestic fat prices. I f domestic fat producers were alarmed by the fact that these foreign fats were on a slightly lower price basis than the domestic fats, how much greater risk have they incurred now that the gap is much wider. The natural outcome is being experienced, and the foreign oils and fats in spite of the taxes, are being bought for importation in rapidly increasing quantities. In short, domestic fats are in a much weaker competitive position than they were before the imposition of the excise taxes and their prices have risen to a dangerously unstable level. 34 THE AMERICAN SOCIETY OF ANIMAL PRODUCTION A l r e a d y some of the shrewder persons in the cottonseed oil i n dustry are beginning to question the wisdom of their action in advocating the recent tariff increases. Because of the peculiar n a t u r e of the organization of the cottonseed crushing industry, t h e r e is a tendency constantly to pay prices for seed which are hope that the prices of the products of the seed will be future. This results almost always in the p a y m e n t of than are justified by the current m a r k e t for products. based on the higher in the prices higher The effect of the tariff is to put this speculative buying on a higher and more dangerous level. Not only do the foreign oils necessarily compete now with domestic fats on a lower basis but their lower comparative price makes them more dangerous as competitors with our edible product exports. In other words, insofar as our restrictive policy contributes to a rise in the price level of domestically produced fats and, at the same time, prevents an advance in prices of foreign fats, it tends in the long run to reduce our exports and to intensify the domestic competition, such as, for example, between l a r d and cottonseed oil. It is too easily assumed by many that anything which causes a rise in the prices o~ one fat will cause an equivalent rise in the price of all other fats. This result could be obtained only if the unsatisfied demand for industrial oils could be shifted to a demand for edible fats. Some of the advocates of restriction have indeed a s serted that surplus lard and cottonseed oil could be used in the manufacture of soap. Obviously, soap making material is not likely to sell for any considerable time on as h i g h a level of price a~ such material used for edible purposes. Instead, it is more likely that the lower price of the industrial usage would establish the m a r k e t for the edible usage. There is a fundamental economic principle which is being violated ir~ all this type of restriction. This is the principle of comparative costs. According to this principle, it is to the advantage of a nation to devote its energies to the production of those commodities in which its productive efforts result most favorably and to exchange a n y surplus of such commodities for products which it would be comparatively unprofitable to produce for themselves. Applying this principle to the 'fats and oils, we~ are forced to the conclusion that for some years we have had a very profitable t r a d e in which we produced a surplus of edible fats, chiefly lard, which were sold at a comparatively h i g h price and we relied on the low THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 35 cost tropical regions to supply us with the industrial oils. The Tariff Commission has calculated that over a period of ten years (1923-1932) our total imports of fats and oils averaged about 8c p e r pound while our total exports for the same period averaged n e a r l y 12c per pound. It appears to be just as foolish for us to insist upon using our capital, labor, and managerial skill to produce fats and oils which we can buy on a cheap basis when we could use it to produce fats and oils, or some other commodities, which we could sell on a basis yielding a larger r e t u r n for our efforts as it would be to use our surgeon or skilled mechanic for the lower grades of unskilled work. The United States Tariff Commission in report No. 41, second series, dated, March 23, 1932, has called attention to a n u m b e r of -other adverse effects of the present tariff policy. They point out that a great reduction, or the entire elimination of foreign oils, would necessitate material changes in the character of many domestic products, particularly domestic soaps. The Commission expresses doubt whether the quantity of foreign oil involved in the production of various types of products is to be considered as replacing domestic oils even if we assume that domestic production could be increased sufficiently to meet the needs. The replacement of these foreign oils by domestic oils and f a t s could only be made by changing greatly the character of m a n y of our products. The Commission reports that hard toilet and most white l a u n d r y soap, including flakes, chips, and granules use a considerable proportion of coconut or palm kernel oil to increase the lathering qualities. Such characteristics as h a r d ness, color, odor, lathering quality, solubility, and cleansing quality would be greatly modified by the partial or total exclusion of these oils. The Commission goes on to point out that a m a r k e d reduction in the importation of foreign oils might result in a considerable r e d u c tion in the total consumption of oils and fats in the United States. In the first place, the higher prices necessitated by the tariff would tend to reduce consumption and would bring about the use of non-oil substitutes, and, in the second place, the technical changes in a p pearance and action of the soap from which these products were excluded might reduce aggregate consumption. It has long been customary to m a r k our progress in improving the standard of living by noting the increase in the per capita consumption of soap. Too often it is overlooked, however, that among the most important influences are the improvements made in the quality and attractiveness of soap and the advertising and sales efforts of 36 THE AMERICAN SOCIETY OF ANIMAL PRODUCTION the soap producers. The trend has been toward soaps, whether for toilet or laundry, that are not harsh and irritating to the skin, that yield a quick firm lather even in unheated water, and are attractive in color. White soaps have increased for toilet and laundry uses. The increasing use of silk hosiery and underwear which are usually laundered by hand in lukewarm water has increased the demand for laundry soaps that are quickly soluble. The widespread sale of certain brands of soap flakes, granules, beads, and powders is a response to this demand. This increased use of soap has led to a large growth in the demand for domestic materials. In the fifteen years between 1914 and the last pre-depression year the soap industry increased its use of domestic fats about 240 million pounds or 41 per cent. There was also a sharp increase in the use of foreign oils but it is at least deserving of serious consideration whether the e n t i r e or partial elimination of these foreign oils would not at the same time so change the qualities and characteristics of the products of the soap industry that the ultimate result would be a reduction also in the quantity of domestic fats used. The restrictions on the importation of foreign oils for industrial purposes make it possible for foreign manufacturers of a large range of commodities to bring their products into the United States to the injury of a great variety of domestic industries. This could be offset by high compensatory duties but since these would have to cover the products of forty different industries, it is extremely doubtful if any such relief can be obtained without a general upward tariff revision, which would be extremely undesirable. In addition to the threat of increased imports of fats and oils duty free in the form of the various products mentioned, there is the probability that our domestic manufacturers of products requiring these fats and oils will lose their export markets to foreign competitors who do not have the tariff burden to reckon with. It is not generally realized that we export annually about 100 million pounds of our domestic fats and oils in the form of paints, soaps, lard compounds, and other products. The paint industry would be seriously crippled if the policy of exclusion of foreign industrial oils were carried to its logical conclusion. We obtain about half of our linseed oil requirements from abroad. We import China-wood oil or tung oil which is the only oil that will produce a water-proof varnish. A n y injury to the paint industry in this manner will be reflected immediately in disaster to the naval stores section of the South since the greater portion of the THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 37 domestic turpentine and rosin produced is consumed in the industries which would be thus affected. Another element in the complicated problem that is frequently overlooked is that the production of the vegetable oils results in a considerable supply of feedstuffs i n the form of cake and meal. We are already producing a surplus of these products in normal years and effort is constantly being expended to export some of this surplus. Cottonseed meal, linseed meal, soya bean, copra, and peanut cake and meal are already being sold in large quantities domestically and for export. Since all of these compete with each other and compete also to some extent with the grains and other feedstuffs, any attempt to enlarge the domestic production of vegetable oils and fats which would lead to an increase in the quantities of cake and meal in the domestic market would react unfavorably on various groups of farmers. I should like to quote Secretary H u l l - - " I wish to put before the Committee my judgment that these proposed taxes would not carry substantial benefit to any important branches of American industry or agriculture. On the other hand they would be very likely to lead to such new complications in various branches of domestic industry and in our trade relations with other countries as to accentuate the difficulties now faced by American agriculture. They would be likely to interfere gravely with plans for developing new trade interchanges between ourselves and the rest of the world." When one turns from consideration of our foreign policy to an examination of domestic policy, he may be surprised to find that the interests which have united so firmly against foreign oils are extremely hostile to one another. Dr. George M. Weber of the University of Southern California has recently published an article on "Legislative Weapons in InterIndustry Competition" in which he says "It has long been accepted as a truism that one of the fortunate aspects of American industrial development has been the absence of tariffs and other serious trade barriers throughout a great continental area . . . . There is danger, however, of under-estimating the extent under which the benefits that flow from this conditior~ may be nullified by organized lobbying in Congress, and state legislation for restrictive laws of one kind and another, aimed at embarrassing the operations of competitors." The contest, if one can use such a word to describe a conflict of interest so onesided, which first occurs to one is that between the butter interests and the margarine manufacturers. In recent years 38 THE AMERICAN SOCIETY OF ANIMAL PRODUCTION there has been considerable effort on the part of lard producers to restrict the sale of vegetable oil shortenings. It is interesting to note that the dairy interests have gradually enlisted the aid of the cattle producers and the cotton producers in opposition to the inflow of foreign oils even though an inspection of the record shows that the dairy interests are, wherever possible, just as ready to attack these other two domestic groups. It is interesting also to observe that while these three groups are now united in their opposition to foreign oil, the dairy interests represent the only group that is militantly self-centered domestically. The live stock growers are somewhat less hostile to competing products and the cottonseed oil producers show practically no opposition to competing domestic products. The history of this domestic warfare really dates from the eighties wher~ anti-margarine laws were first adopted by the Federal Government and several states. Originally the claim for singling out this product for legislative restraint was based on the statement that the p r o d u c t was being sold by misrepresentation and fraud. That this was not the real reason can be concluded from the fact that adulteration and misrepresentation prevailed in a very large list of other food commodities and nothing was done about it until the pure food legislation of 1906. There is even now a great deal of butter sold in different sections of the country which is not of standard quality. Yet it was the powerful and well organized dairy and butter producers' group which secured the passage of the original Federal Margarine Act and the various amendments that have since been adopted. That the purpose back of the legislation was to throttle this new industry rather than to protect consumers against fraud can be concluded by reference to legislation prohibiting the coloring of margarine. Fraud could have been prevented by requiring that margarine should be sold only in the original packages and plainly marked but recently legislation has been enacted preventing the use of certair~ oils and fats in their natural state in the making of margarine because these materials gave a natural yellow color to the product. The real purpose back of this legislation is as disclosed in a bill which was introduced in the House of Representatives in J a n u a r y of this year, to absolutely prohibit the manufacture and sale of margarine. At present nearly every state in the Union has some legislation on its books retarding the free movement of margarine into consumption. The attitude toward margarine is further indicated by Dr. Weber when he states that an official of the National Cooperative Milk THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 39 Producers Association said that he and the dairy interests do not intend to cease fighting margarine until they have equalized the cost of producing butter and margarine. He also quoted an official of the National Dairy Union as saying in a speech before the World Dairy Congress in Copenhagen that the butter industry should strive to increase butter consumption by "taking every step that is legally and morally defensible to reduce the consumption of margarine and other vegetable oil products." It is interesting to observe also that in the fight against foreign oils, the opposition of the dairy group was not confined to coconut oil as a competitor of butter. They were unwilling to permit the importation of coconut oil even if denatured in such a manner as to render it useless for food purposes. Besides they were opposed to other foreign oils some of which cannot in practice be used for food purposes in competition with butter. Some state laws vary the rate of taxation basis of the amount of animal fat ingredients. crimination against margarine made from the South. The same sort of opposition against and lard compounds is noticeable. on margarine on the This is clearly a discottonseed oil of the vegetable shortenings This type of legislation is very frankly justified by its proponents on the ground that they must protect their own products against the products of other states. To recognize how ill-founded this argument is, one needs only to ask himself what would happen to Iowa and Illinois if all the other states would discriminate against their corn and hogs, or to Wisconsin if there was discrimination against their dairy products, or to Wyoming if the discrimination was against their beef. There is a contagion about this sort of program which it is dangerous to ignore. In all of the discussions concerning, the fats and oils industry, r u n ning over many years, it is rare indeed to find any one who has taken any account of the interests of consumers. Consideration seems to be given only to the interests of the various producer groups. The attitude, for example, of the dairy interests seems to be if the con, sumer can't afford to eat butter, he cannot have any other form of table spread. Clear thinking on many subjects is prevented because we permit our emotions to get the upper hand. It is for this reason that I urge that we maintain a due sense of proportion in considering and planning a national policy for the fats and oils. When one considers the unremitting efforts of various interested groups to restrict or exclude imports of foreign oils and all the time 40 THE AMERICAN SOCIETY O F ANIMAL PRODUCTION that this has involved both for themselves and for Congress, and when one further reflects upon the tremendous expenditure of time and money not only in the national legislature but, it is safe to say, in the legislatures of every single state in the Union, to devise ways and means to h a m p e r the progress of one or more of these oils and fats domestically, he might be forced to conclude that the production of fats and oils in the United States is one of our outstanding economic activities and one of the main sources of our wealth. It requires only a brief examination of the situation to deflate this notion. The total value of all fats and oils produced in the United States in 1933 was somewhat less than $720,000,000 or a p p r o x i m a t e l y 1.8 p e r cent of the national income. In any period when the national income is more nearly normal than it was in 1933 this ratio would be much smaller. Of the twenty odd fats and oils p r o d u c e d in this country, butter and lard together accounted for nearly 82 per cent of the total value. Thus while a very small percentage of our n a tional income is derived from the whole oils and fats production, the great bulk of that industry is accounted for by only those two fats. To be specific, the renderers who n u m b e r probably not more than one thousand concerns or individuals, are supported and aided most vigorously by the dairy interests in their demand for protection (which they speak of as protection for the farmers). Yet the total value of both edible and inedible tallow production in this country in 1933 was approximately $22,000,000 or only 5 ~ hundredths of 1 per cent of our national income. The value of the edible tallow p r o duced was only about $2,250,000, which is almost an infinitesimal fraction of our national income. The situation becomes even less easy to comprehend when it is realized t h a t the restriction program has largely been p u t over by the b u t t e r interests, which accounted in 1933 for only 1 per cent of our national income, and by the r e n d e r e r s who accounted for 5~/2 hundredths of 1 p e r cent of the national income. The value of the whole product of the fish oil industry in 1933 was less than $3,000,000. How many people realize that the total value of all coconut oil brought into the United States in 1933 both in the form of oil and in the form of copra, was less than $19,000,000? In our endeavor to get a proper perspective, can't we smile a little at the fears of these three groups concerning this product whose total value was only 3.5 p e r cent of the combined value of butter, lard, and cottonseed oil? Actually these commodities compete only to the extent THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 41 that coconut oil enters into edible products. On this basis the value was $6,400,000, or 1 per cent of the combined value of butter, lard and cottonseed oil. The total value of the crude cottonseed oil produced in this country in 1933 was slightly more than one-tenth of 1 per cent of our national income. The cottonseed oil industry, as measured by the value of its product, was only one-twelfth as large as the value of the combined output of butter, lard, and edible tallow. It has always been asserted that higher fat prices for domestic products will be of great value to American farmers. With the possible exception of butter, this claim doe~ not have a leg to stand on. Seventy to seventy-five per cent of all inedible tallow produced in the United States comes from renderers who pick up butcher shop scraps and waste from hotels and restaurants. Cattle growers have previously been paid for these materials as part of the live stock and meat price and cannot benefit from any subsequent rise in the price of the offal. The oil derived from menhaden represents only 9 per cent of the total weight of the fish, of sardines 13 per cent, of herring 16 per cent, and of whales 16 per cent. The value of cottonseed oil ordinarily represents only about 8 per cent of the total value of the cotton crop, and the value of corn oil about half of 1 per cent of the total value of the corn crop. What has been said thus far might be regarded as entirely critical and negativ e . It seems obvious from the brief examination here given to our present'policy that it does not meet any of these r e quirements. On the positive side, then, we may say that our program should be the complete antithesis of t h e present one. Specifically, we should permit the importation, without penalty, of inedible fats and of such edible fats as are going to be used only for industrial purposes, making sure, by a denaturing process, that no transfer to edible use can be made. We should recognize that the supply, the demand, and the price of domestic fats and oils, cannot be much altered, except temporarily, by trade restrictions, for the reason that their production depends on the demand and the production of the respective primary products. The production of cotton will vary up or down without any regard to the price of cottonseed oil. Similarly the supply of beef cattle will change without regard to the price of tallow or grease. 42 THE AMERICAN SOCIETY OF ANIMAL PRODUCTION W h i l e opening o u r m a r k e t s f r e e l y to i n d u s t r i a l fats, w e s h o u l d e x e r t all possible effort to e x t e n d the foreign m a r k e t s for o u r e d i b l e fats. W e should r e p e a l or m o d i f y all legislation w h i c h has t h e p u r p o s e a n d t h e effect of giving a n u n f a i r a d v a n t a g e to one domestie product over others. O n the basis of abstract principle, I think w e should all say that there should be a free field and no favors. The individual should be permitted to engage in any legitimate business activity he desires. F e w would have been willing to say thirty years ago that no person should be permitted to engage in making automobiles because it would interfere with the sales of carriages and bicycles. The silk manufacturers have not sought to legislate rayon out of existence. If it were proposed to this group here assembled that w e should go on record as opposing any further extension of the automobile industry because it interferes with the carriage and wagon industry, or that w e should oppose any extension of bus transportation because it impinges upon the field of the railroads, I doubt whether a single one of us would agree to it. But w e are personally interested in the fats and oils industry, and w e apparently therefore see nothing illogical in striving by legislative means to prevent the producer of one kind of fat and oil from exercising his freedom to sell his product because it happens to interfere somewhat with the sale of our product. Should w e not go farther back and say no one can go into the business of producing and selling the particular commodity w e object to? This indeed has almost been done in the case of margarine. N o industry which is established on such an unsound foundation that it requires restrictive legislation to keep it alive can be in a very secure position. Neither butter, lard, tallow, cottonseed oil, or any of our fats and oils would suffer through the elimination of the present restrictive laws. Fats are an essential element in the diet and everything possible should be done to increase their usage. H o w can this be done? (1) B y keeping prices as low as possible. Efforts to get m a x i m u m prices defeat their o w n end for they discourage consumption. (2) B y free competition. (3) B y educational advertising. The live stock and cottonseed oil producers assert, and I think with a good deal of justification,that if some of the um'easonable restrictions on the manufacture and sale of margarine were removed, there would be a big increase in the consumption of domestic fats and oils with no reduction in the d e m a n d for butter. It is estimated that there are at least 40 million people w h o cannot afford to eat butter and at least 25 million w h o at present have no table spread THE AMERICAN SOCIETY OF ANIMAL PRODUCTION 43 w h a t e v e r . This l a t t e r group w o u l d offer good p r o s p e c t s for a w h o l e some, cheap m a r g a r i n e . It w o u l d s e e m to b e t h e p a r t of w i s d o m to s e e k t a i m p r o v e the m a r k e t for the fats a n d oils b y b r i n g i n g in this large n u m b e r of p r o s p e c t i v e n e w c u s t o m e r s i n s t e a d of t r y i n g b y r e strictive devices to benefit o n l y one or two p r o d u c t s at t h e e x p e n s e of t h e w h o l e country. W o u l d it be too optimistic to suggest t h e d e s i r a b i l i t y of a " d i s a r m a m e n t conference" a m o n g the p r o d u c e r s of fats a n d oils? S u p p o s e we all got t o g e t h e r a n d a g r e e d to s p e n d no m o r e m o n e y , time, o r e n e r g y in t r y i n g to obtain legislation to h a m p e r some o t h e r c o m modity; a n d suppose w e used t h a t m o n e y a n d e n e r g y in a c o m b i n e d effort to i n c r e a s e the domestic fat c o n s u m p t i o n a n d to b r o a d e n t h e foreign m a r k e t s for o u r products. W e could m a k e s u r e t h a t all t h e p r o d u c t s m e a s u r e d up to p r o p e r s t a n d a r d s of w h o l e s o m e n e s s a n d value, a n d t h e n as a c o m b i n e d fat p r o d u c i n g i n d u s t r y w e could t a k e a leaf from the a u t o m o b i l e m a n u f a c t u r e r s ' b o o k a n d offer different fats for different purses. W e could a d v e r t i s e b u t t e r as t h e finest s p r e a d for those who can afford it. F o r those w h o can't, m a r g a r i n e could b e r e c o m m e n d e d as a w h o l e s o m e substitute. W i t h r e s p e c t to the shortenings it could be said t h a t b o t h t h e a n i m a l a n d t h e v e g e table p r o d u c t s a r e satisfactory a n d c o n s u m e r s could choose on the basis of price, quality, and i n d i v i d u a l p r e f e r e n c e . T h e i n t e r - i n d u s t r y w a r f a r e t h a t has gone on for so m a n y y e a r s m u s t s u r e l y h a v e p r o v e d its futility b y this time. C a n ' t w e t r y a c o o p e r a t i v e a t t a c k on the m a r k e t for a c h a n g e ?
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