Preemption and the obesity epidemic: State and local menu labeling laws and the nutrition labeling and education act

Journal of Law, Medicine and Ethics

Volumn 36, Issue 4, 2008, Pages 772-789

  Rutkow, Lainie ^c   Vernick, Jon S ^a,b   Hodge Jr , James G ^a,b   Teret, Stephen P ^a,b  

^a Johns Hopkins Center for Public Health Law

^b JOHNS HOPKINS BLOOMBERG SCHOOL OF PUBLIC HEALTH   (United States)

^c Johns Hopkins Berman Institute of Bioethics ^*

Author keywords

[No Author keywords available]

Indexed keywords

ADOLESCENT; ADULT; ARTICLE; CATERING SERVICE; CHILD; FOOD PACKAGING; HEALTH EDUCATION; HEALTH SERVICE; HUMAN; LEGAL ASPECT; METHODOLOGY; OBESITY; STANDARD; UNITED STATES;

ADOLESCENT; ADULT; CHILD; FOOD LABELING; HEALTH EDUCATION; HUMANS; MENU PLANNING; OBESITY; RESTAURANTS; UNITED STATES; YOUNG ADULT;

EID: 57349152206     PISSN: 10731105     EISSN: 1748720X     Source Type: Journal    
DOI: 10.1111/j.1748-720X.2008.00337.x     Document Type: Article

References (160)

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3. Id. (U.S. Department of Health and Human Services), at 10.
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9. Center for Science in the Public Interest, Nutrition Labeling at Fast-Food and Other Chain Restaurants, available at http://www.cspinet.org/ nutritionpolicy/Nutrition-Labeling-Fast-Food.pdf (last visited October 3, 2008) K. D. Brownell Fast Food and Obesity in Children Pediatrics 113, no. 1 (2004 132.
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11. U.S. Food and Drug Administration Calories Count: Report of the Working Group on Obesity March 12, 2004, available at http://www.cfsan.fda.gov/∼dms/ owg-toc.html (last visited October 3, 2008).
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13. See U.S. Department of Health and Human Services, supra note 1, at 17; U.S. Food and Drug Administration, supra note 11; Koplan, Liverman, and Kraak, supra note 2, at 166.
14. U.S. Constitution, art. VI.
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24. Rudd Center for Food Policy and Obesity, Yale University Menu Labeling Laws available at http://www.yaleruddcenter.org/what/law/topics-food-menu.html (last visited October 3, 2008); see U.S. Food and Drug Administration, supra note 11; Koplan, Liverman, and Kraak, supra note 2.
25. M. G. Wootan and M. Osborn Availability of Nutrition Information from Chain Restaurants in the United States American Journal of Preventive Medicine 30, no. 3 (2006 266 268 at 267.
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27. M. G. Wootan, M. Osborn, and C. J. Malloy Availability of Point-of-Purchase Nutrition Information at a Fast-Food Restaurant Preventive Medicine 43, no. 6 (2006 458 459, at 459.
28. See Wootan, Osborn, and Malloy, supra note 26.
29. Center for Science in the Public Interest Subway First to List Calories on Menu Boards in Country July 9, 2007, available at http://www.cspinet.org/new/ 200707091.html (last visited October 3, 2008).
30. Nutrition Labeling and Education Act of 1990, Public Law No. 101-535, 104 Stat. 2353 (1990) (codified in part at 21 U.S.C. §§ 343[i], [q] and [r]).
31. 21 U.S.C. § 343(q) (2008); see generally M. A. McCann Economic Efficiency and Consumer Choice Theory in Nutritional Labeling Wisconsin Law Review 2004, no. 4 (2004 1161 1244, at 1187-1198.
32. 21 U.S.C. § 343(q)(5).
33. 21 U.S.C. § 343(r).
34. 21 C.F.R. § 101.10 (2008) Center for Science in the Public Interest, Anyone's Guess: The Need for Nutrition Labeling at Fast-Food and Other Chain Restaurants, November 2003, at 14, available at http://www.cspinet.org/ restaurantreport.pdf (last visited October 9, 2008).
35. See Wootan and Osborn, supra note 25, at 267.
36. S 2784, 110th Cong. (2008).
37. HR 3895, 110th Cong. (2007).
38. S 2784; HR 3895.
39. Id.
40. Id.
41. S 1342, 110th Cong. (2007).
42. HR 2633, 110th Cong. (2007).
43. S 3484, 109th Cong. (2006); HR 5563, 109th Cong. (2006); S 2108, 108th Cong. (2004); HR 3444, 108th Cong. (2003).
44. The Public Health Law & Policy Program has developed a model menu labeling ordinance that can serve as a reference for states and localities. Public Health Law & Policy, Model California Ordinance Requiring Menu Labeling at Chain Restaurants (with Annotations), November 2007.
45. Center for Science in the Public Interest, Nutrition Labeling in Chain Restaurants: State and Local Bills/Regulations 2007, 2008, available at http://www.cspinet.org/nutritionpolicy/MenuLabelingBills2007-2008.pdf (last visited October 3, 2008); "New York City Brings Back Menu Labeling," The Nation's Health, March 2008, at 10; Menu Labeling at Chain Restaurants, Ord. No. 195-08 (San Francisco 2008).
46. New York State Restaurant Association v. New York City Board of Health, 2008 WL 1752455 (S.D.N.Y. 2008) New York State Restaurant Association v. New York City Board of Health, 509 F.Supp.2d 351 (S.D.N.Y. 2007).
47. E. Allday S.F. Supes Require Posting of Nutrition Info San Francisco Chronicle, March 12, 2008.
48. Public Health, Seattle & King County, Nutrition Menu Labeling in King County, available at http://www.metrokc.gov/health/boh/reg0802.pdf (last visited Oct. 9, 2008).
49. Id.
50. E.g., Menu Education and Labeling Act, B17-0139 (District of Columbia 2007), available at http://www.dccouncil.washington.dc.us/images/00001/ 20070309121159.pdf (last visited October 3, 2008).
51. E.g., Chicago City Council, Nutrition Labeling of Food at Certain Retail Food Establishments, available at http://www.chicityclerk.com/citycouncil/ journals/121306meeting/17NewBusiness/pgs95762-95811.pdf (last visited October 7, 2008).
52. E.g., SB 1436 (Arizona 2007), available at http://www.azleg.gov/legtext/ 48leg/1r/bills/sb1436p.htm (last visited October 7, 2008).
53. E.g., Bill No. 19-07 (Montgomery County, Maryland 2007), available at http://www.montgomerycountymd.gov/content/council/pdf/bill/2007/19-07.pdf (last visited October 7, 2008).
54. See Public Health, Seattle & King County, supra note 48.
55. Bill No. 19-07 (Montgomery County, Maryland 2007), supra note 53.
56. See Public Health, Seattle & King County, supra note 48.
57. E.g., Bill No. 070153 (Philadelphia, PA 2007), available at http://webapps.phila.gov/council/attachments/4243.pdf (last visited October 7, 2008); see J. Barron 5 Restaurants in Manhattan Get Citations Over Calories New York Times, May 6, 2008.
58. U.S. Constitution, art. VI.
59. J. G. Hodge, Jr. The Role of New Federalism and Public Health Law Journal of Law and Health 12, no. 2 (1998 309 357.
60. Medtronic, Inc. v. Lohr, 518 U.S. 470, 485 (1996).
61. L. O. Gostin, Public Health Law: Power, Duty, Restraint (Berkeley : University of California Press, 2000 at 48; U.S. Constitution, amend. X; e.g., Jacobson v. Massachusetts, 197 U.S. 11 (1905).
62. U.S. v. Lopez, 514 U.S. 549 (1995).
63. Rice v. Santa Fe Elevator Corp., 331 U.S. 218, 230 (1947). The U.S. Supreme Court, however, recently explained that a state law's public health purpose is not enough to save the law from being preempted by a federal law when Congress has the power to act and its intent to preempt is clear. Rowe V. New Hampshire Motor Transp. Assn., 128 S.Ct. 989 (2008 P. Yost Court Invalidates Maine Tobacco Law Washington Post, Feb. 20, 2008.
64. 16 C.F.R. §§ 1203.1 to.17,.30 to.34,.40 to.41,.51 to.53 (2008).
65. J. T. O'Reilly, Federal Preemption of State and Local Law (Chicago : American Bar Association, 2006 at 23.
66. See G. B. Pursley Rationalizing Complete Preemption After Beneficial National Bank v. Anderson: A New Rule, A New Justification Drake Law Review 54, no. 2 (2006 371 472, at 385.
67. R. C. Ausness Preemption of State Tort Law by Federal Safety Statutes: Supreme Court Preemption Jurisprudence Kentucky Law Journal 92, no. 4 (2003-2004 913 977, at 969.
68. E. Chemerinsky, Constitutional Law: Principles and Policies, 2nd ed. (New York : Aspen Publishers, Inc., 2d ed. 2002 at 380.
69. See O'Reilly, supra note 65, at 52.
70. Id.
71. Id., at 54.
72. M. J. Davis The Battle Over Implied Preemption: Products Liability and the FDA Boston College Law Review 48, no. 5 (2007 1089 1154, at 1092.
73. See O'Reilly, supra note 65, at 62-63.
74. See Chemerinsky, supra note 68, at 384-385.
75. Rice v. Santa Fe Elevator Corp., 331 U.S. 218, 230 (1947).
76. Riegel v. Medtronic, Inc., 128 S.Ct. 999 (2008).
77. See Chemerinsky, supra note 68, at 390-91.
78. Id., at 391.
79. See O'Reilly, supra note 65, at 72.
80. E.g., Gade v. National Solid Waste Management Association, 505 U.S. 88, 98 (1992).
81. See O'Reilly, supra note 65, at 75.
82. See Chemerinsky, supra note 68, at 398.
83. 529 U.S. 861 (2000).
84. See generally, P. Diller Intrastate Preemption Boston University Law Review 87, no. 5 (2007 1113 1176.
85. Dillon's rule is named for John Dillon, a 19th-century Iowa state court judge. Dillon published several treatises on local government law. His writings explain the theories behind what is now known as Dillon's rule. D. J. Barron Reclaiming Home Rule Harvard Law Review 116, no. 8 (2003 2255 2386 at 2285.
86. R. Briffault Our Localism: Part I - The Structure of Local Government Law Columbia Law Review 90, no. 1 (1990 1 115, at 8.
87. F. S. Bluestein Do North Carolina Local Governments Need Home Rule? North Carolina Law Review 84, no. 6 (2006 1983 2029, at 2011.
88. See Briffault, supra note 86, at 9.
89. D. J. Barron and G. E. Frug Defensive Localism: A View of the Field from the Field Journal of Law and Politics 21, nos. 2-3 (2005 261 291, at 263.
90. See Bluestein, supra note 87, at 1986.
91. Id., at 1994.
92. Illinois Constitution, sec. 6.
93. Washington State Legislature, House Bill Report: ESHB 3160 (February 19, 2008 available at http://apps.leg.wa.gov/documents/billdocs/2007-08/Pdf/ Bill%20Reports/House/3-160-S.HBR.pdf (last visited October 7, 2008).
94. SB 6659; HB 3160 (Washington 2008).
95. The amended King County ordinance is discussed in Part II.B. When King County amended its ordinance, it changed the date of its effect from August 1, 2008 to December 1, 2008. The ordinance now applies to chain restaurants with 15 or more locations. It originally applied to restaurants with 10 or more locations. In addition, the amended ordinance only applies to items that remain on a chain restaurant's menu for more than 90 days. The original ordinance applied to items on a chain restaurant's menu for more than 60 days. The amended ordinance does not require restaurants to provide information about trans fats. See Public Health, Seattle & King County, supra note 48.
96. Ohio Restaurant Association Ohio Blocks Local Menu Labeling Authority ORA News, January 4, 2008.
97. HB 217 (Ohio 2008).
98. HB 1303 (Georgia 2008).
99. A. Jones and E. Lee Bill Opposing Menu Labeling Goes to Governor Atlanta Journal-Constitution, March 27, 2008.
100. Public Law No. 101-535, 104 Stat. 2353 (1990) (codified in part at 21 U.S.C. §§ 343(i), (q) and (r)).
101. HR Rep. No. 101-538 (1990); reprinted in 1990 U.S.C.C.A.N. 3337.
102. Although designed to benefit consumers, the Act provides no mechanism for a private cause of action against entities that sell mislabeled foods. Cohen v. McDonald's Corp., 808 N.E.2d 1, 8 (Ill.App. 2004); see generally E. T. Guarino Nutrient Descriptor and Disease Claims for Foods Under the New FDA and USDA Rules Food & Drug Law Journal 48, no. 4 (1993 665 674.
103. 21 U.S.C. § 343(q) (2008); 21 C.F.R. §§ 101.1-101.9 (2008).
104. 21 U.S.C. § 343(q)(1).
105. 21 U.S.C. § 343(q)(5).
106. 21 U.S.C. § 343-1(a)(4).
107. 21 U.S.C. § 343(r)(5).
108. 21 U.S.C. § 343(r)(1).
109. 21 C.F.R. § 101.13(b).
110. 21 C.F.R. §§ 101.10, 101.13, 101.54-101.65.
111. Public Citizen, Inc. v. Shalala, 932 F. Supp. 13, 18 (D.D.C. 1996).
112. *7 (N.D. Ill. 2006).
113. 21 C.F.R. § 101.10.
114. 21 U.S.C. § 343-1, note on Construction.
115. 21 U.S.C. § 343-1(a)(4).
116. Id.
117. 136 Cong. Rec. S16607, S16608 (Oct. 24, 1990).
118. 21 U.S.C. § 343-1(a)(5).
119. See Institute of Medicine, Food Labeling: Toward National Uniformity (Washington, D.C. : National Academy Press, 1992 at 142-143
120. C. Jordan Preemption and Uniform Enforcement of Food Marketing Regulations Food & Drug Law Journal 49, no. 2 (1994 401 407, at 404.
121. 21 U.S.C. § 343(r)(2)(B).
122. 21 U.S.C. § 343-1(b).
123. Id.
124. 21 C.F.R. §§ 101.69, 101.70 (2008).
125. See generally K. M. Sullivan and G. Gunther, Constitutional Law, 14th ed. (New York : Foundation Press, 2001 at 119-171, 234 305.
126. See notes 114-120 and accompanying text.
127. See U.S. Food and Drug Administration, supra note 11; Koplan, Liverman, and Kraak, supra note 2.
128. 509 F.Supp.2d 351 (S.D.N.Y. 2007). For this case, three groups filed briefs as amici, or friends of the court, in support of the New York City Board of Health. These briefs were filed by the following: (1) U.S. Representative Henry Waxman, Public Citizen, Center for Science in the Public Interest et al.; (2) the Rudd Center for Food Policy and Obesity at Yale University; and (3) a consortium of state and local governments.
129. 509 F.Supp.2d 351, 352-53 (S.D.N.Y. 2007).
130. New York State Restaurant Association v. New York City Board of Health, 2008 WL 1752455 (S.D.N.Y. 2008). For this case, two groups filed briefs as amici, or friends of the court, in support of the New York City Board of Health. These briefs were filed by (1) U.S. Representative Henry Waxman, Public Citizen, Center for Science in the Public Interest et al.; and (2) the Rudd Center for Food Policy and Obesity at Yale University.
131. 509 F.Supp.2d 351, 353 (S.D.N.Y. 2007).
132. Id.
133. Id., at 359.
134. Id., at 360.
135. Id., at 361, n.14 (emphasis added).
136. Id., at 362.
137. Id., at 363.
138. Id.
139. New York City Department of Health and Mental Hygiene, Board of Health Votes to Require Chain Restaurants to Display Calorie Information in New York City, Press Release, January 22, 2008, available at http://www.nyc.gov/html/doh/ html/pr2008/pr008-08.shtml (last visited October 7, 2008).
140. New York State Restaurant Association v. New York City Board of Health, 2008 WL 1752455 (S.D.N.Y. 2008).
141. Brief for Plaintiff at 17, New York State Restaurant Association v. New York City Board of Health (S.D.N.Y. January 31, 2008).
142. Id., at 20.
143. *4.
144. *4.
145. *5.
146. Id.
147. 21 U.S.C. § 343-1(a)(5) (2008).
148. 21 U.S.C. § 343-1(a)(4). In April 2008, the FDA provided updated guidance that reinforces this interpretation of the NLEA. Office of Nutrition, Labeling, and Dietary Supplements, U.S. Food and Drug Administration A Labeling Guide for Restaurants and Other Retail Establishments Selling Away-from-Home Foods April 2008, available at http://www.cfsan.fda.gov/∼dms/labrguid.html (last visited October 7, 2008).
149. New York State Restaurant Association v. New York City Board of Health, 2008 WL 1752455 (S.D.N.Y. 2008) New York State Restaurant Association v. New York City Board of Health, 509 F.Supp.2d 351 (S.D.N.Y. 2007).
150. See notes 114-120 and accompanying text.
151. New York State Restaurant Association v. New York City Board of Health, 509 F.Supp.2d 351, 360-61 (S.D.N.Y. 2007).
152. Brief for Plaintiff at 18, New York State Restaurant Association v. New York City Board of Health (S.D.N.Y. January 31, 2008); 21 C.F.R. § 101.13(c) (2008).
153. 21 U.S.C. § 343-1(a)(4).
154. Washington Market Co. v. Hoffman, 101 U.S. 112, 116 (1879) (emphasis added).
155. 21 U.S.C. § 343-1(a)(4).
156. *5 (S.D.N.Y. 2008); see Mastro Plastics Corp. v. National Labor Relations Bd., 350 U.S. 270, 298 (1956).
157. Brief for Plaintiff at 28-38, New York State Restaurant Association v. New York City Board of Health (S.D.N.Y. Jan. 31, 2008).
158. U.S. Constitution, amend. XIV.
159. 21 U.S.C. § 343-1(a)(4).
160. E.g., see Public Health Law & Policy, supra note 44.