UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

UNITED STATES OF AMERICA, 

950 Pennsylvania Avenue, N.W.

Washington, D.C. 20530,

Plaintiff,

v.

J. C. PENNEY COMPANY, INC., a 

corporation, 6501 Legacy Drive, Plano, 

Texas 75024,

Defendant.

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Civil Action No. 1:15-cv-2128

COMPLAINT FOR CIVIL PENALTIES, INJUNCTIVE, AND OTHER RELIEF

Plaintiff, the United States of America, acting upon the notification and authorization to 

the Attorney General by the Federal Trade Commission (“FTC” or “Commission”), for its 

complaint alleges that:

1. Plaintiff brings this action under Sections 5(a)(1), 5(m)(1)(B), 13(b), and 16(a) of 

the Federal Trade Commission Act as amended (“FTC Act”), 15 U.S.C. §§ 45(a)(1), 

45(m)(1)(B), 53(b), and 56(a), to obtain monetary civil penalties, injunctive, and other relief for 

Defendant’s violations of the Textile Fiber Products Identification Act (“Textile Act”), 15 U.S.C. 

§ 70 et seq., the Rules and Regulations Under the Textile Fiber Products Identification Act, 16

C.F.R. Part 303 (“Textile Rules”), and injunctive relief for violations of Section 5(a)(1) of the 

FTC Act, 15 U.S.C. § 45(a)(1).

JURISDICTION AND VENUE

2. This Court has jurisdiction over this matter pursuant to 28 U.S.C. §§ 1331, 

1337(a), 1345, and 1355, and 15 U.S.C. §§ 45(m)(1)(B), 53(b), and 56(a). This action arises 

under 15 U.S.C. § 45(a).

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3. Venue in this District is proper under 15 U.S.C. § 53(b) and 28 U.S.C. §§ 1391(b) 

and (c) and 1395(a).

DEFENDANT

4. Defendant J. C. Penney Company, Inc. is a Delaware corporation with its 

principal place of business at 6501 Legacy Drive, Plano, Texas 75024. At all times material to 

this complaint, Defendant has participated in the acts and practices described in this complaint. 

Defendant transacts business in this district and throughout the United States, including through 

its website, www.jcpenney.com. 

COMMERCE

5. At all times material to this complaint, Defendant has maintained a substantial 

course of trade in or affecting commerce, as “commerce” is defined in Section 4 of the FTC Act,

15 U.S.C. § 44.

DEFENDANT’S BUSINESS PRACTICES

6. Defendant markets and sells textile fiber products throughout the United States on 

its website and through brick-and-mortar stores.

7. Defendant manufactures, markets, and sells textile fiber products under its own 

private labels, including Stafford. Defendant also markets and sells retail textile products, which 

it purchases from a vendor and then resells. 

8. In advertisements for textile products marketed and sold on its website,

www.jcpenney.com, Defendant makes or has made various claims concerning the fiber content 

of those textile products. 

9. On the www.jcpenney.com website, Defendant has claimed, without 

qualification, that the textile fiber in retail products it markets and sells is “bamboo.” For 

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example, Defendant markets and sells a 4-pack of Muk Luks brand “Men’s Bamboo Socks,”

describes the socks as “[m]ade of pure bamboo fibers,” and lists the fiber content as “100% 

bamboo:”

10. Defendant also has made “bamboo” claims for textile products it markets and 

sells with contradictory fiber content information. In these advertisements, Defendant makes 

large, prominent “bamboo” claims – often in the product title – and repeats those claims near the 

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product image. Elsewhere in the advertisement, Defendant contradicts those “bamboo” claims 

by admitting that the product actually is rayon. But, as a result of its size and location, 

consumers are not likely to notice and understand that contradictory admission. 

a. For example, Defendant markets and sells a “300tc Bamboo Set of 2 Pillow 

Shams” and describes them as “pillow shams made of irresistibly soft 

bamboo.” Yet, at the bottom of the product advertisement, Defendant lists the 

fiber content as “Viscose bamboo,” which, as discussed below, is rayon:

b. Defendant also markets and sells “Gold Toe 3-pk. Dress Bamboo Crew 

Socks” and describes them as “bamboo-rich men’s dress socks.” Yet, 

Defendant lists the fiber content as “rayon fiber from soft bamboo” in the 

fiber information disclosed at the bottom of the advertisement:

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11. In addition, on its website, Defendant has marketed and sold textile fiber products 

labeled as “bamboo.” For example, on February 24, 2015, the Commission purchased a “Park B. 

Smith Luster Bamboo Bath Rug” from www.jcpenney.com. 

a. The label affixed to the bath rug states that the rug is comprised of 48% 

Bamboo and 52% Cotton:

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b. Similarly, the product hangtag affixed to the product states that the product 

consists of 52% Cotton and 48% Bamboo, describes the product in several 

places as “bamboo,” and states: “Bamboo and cotton fibers are naturally antimicrobial[,] very absorbent, eco-friendly. Four times more absorbent with 

bamboo and cotton blend:”

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12. In addition to marketing and selling textile products as bamboo, Defendant also 

has claimed that these “bamboo” products possess enhanced features, such as antimicrobial 

properties, because they are bamboo. For example, in the product description for the “Gold Toe 

3-pk. Dress Bamboo Crew Socks,” described above, Defendant claims the “bamboo-rich socks” 

have “natural antimicrobial sock protection for odor control.” 

13. As defined by the Textile Act and Rules, textile fiber products marketed and sold 

by Defendant as bamboo, including those described in paragraphs 9 through 12 above, are rayon 

and not actual bamboo fiber woven into fabric.

14. Rayon is the generic name for a type of regenerated or manufactured fiber made 

from cellulose. Rayon is manufactured by taking purified cellulose from a plant source, also 

called a cellulose precursor, and converting it into a viscous solution by dissolving it in one or 

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more chemicals, such as sodium hydroxide. The chemical solution is then forced through 

spinnerets and into an acidic bath where it solidifies into fibers.

15. Many plant sources may be used as cellulose precursors for rayon fabric, 

including cotton linters (short cotton fibers), wood pulp, and bamboo. Regardless of the source 

of the cellulose, the manufacturing process involves the use of hazardous chemicals, and the 

resulting fiber is rayon and not cotton, wood, or bamboo fiber. See 40 C.F.R. Part 63 (“National 

Emission Standards for Hazardous Air Pollutants for Cellulose Products Manufacturing”).

16. “[H]azardous air pollutants (HAP) emitted from cellulose products manufacturing 

operations” include carbon disulfide, carbonyl sulfide, ethylene oxide, methanol, methyl 

chloride, propylene oxide, and toluene. 40 C.F.R. § 63.5480.

17. Moreover, as a result of the chemical processing used in manufacturing rayon, no 

inherent antimicrobial properties of bamboo are retained in rayon textile fiber made from 

bamboo cellulose.

18. Pursuant to the Textile Act and Rules, textile products must be labeled and 

advertised using the proper generic fiber names recognized or established by the Commission. 

Manufactured textile products composed, in whole or in part, of regenerated cellulose fiber must 

be labeled and advertised using a generic fiber name such as rayon.

PRIOR COMMISSION PROCEEDINGS CONCERNING

TEXTILE FIBER PRODUCT MISREPRESENTATIONS

19. In August 2009, the Commission announced three settlements and one 

administrative action against marketers that improperly labeled and advertised rayon textile 

products as “bamboo.” In addition to publicly announcing these cases, the Commission issued a 

Business Alert to remind marketers of the need to label and advertise textile products properly 

and to clarify that “bamboo” is not a proper generic fiber name for manufactured rayon textile 

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fibers. The Commission disseminated the press release announcing the four cases and the 

Business Alert widely throughout the marketplace.

20. On January 27, 2010, the Commission sent Defendant a letter (“Warning Letter”), 

by express mail, informing Defendant that certain acts or practices in connection with the 

advertising and labeling of textile fiber products may violate the Textile Act and the Textile 

Rules and are unfair or deceptive under Section 5 of the FTC Act, 15 U.S.C. § 45(a)(1).

21. Defendant received the Warning Letter in February 2010.

22. Enclosed with the Warning Letter was a synopsis of previous litigated decisions 

issued by the Commission, as well as instructions to contact Commission staff or to visit the 

Commission’s website at http://www.ftc.gov/bamboo to obtain complete copies of the Textile

Act, Textile Rules, and the Commission’s Final Orders and Opinions in the proceedings 

described in the synopsis.

23. As detailed in the synopsis enclosed in the Warning Letter, in a series of litigated 

decisions, the Commission determined, among other things, that:

a. both manufacturers and sellers of textile fiber products must comply with 

the Textile Act and the Textile Rules, see H. Myerson Sons, et al., 78 F.T.C. 464 (1971); 

Taylor- Friedsam Co., et al., 69 F.T.C. 483 (1966); Transair, Inc., et al., 60 F.T.C. 694 

(1962); and

b. it is an unfair or deceptive act or practice to falsely or deceptively stamp, 

tag, label, invoice, advertise, or otherwise identify any textile fiber product regarding the 

name or amount of constituent fibers contained therein, see Verrazzano Trading Corp., et 

al., 91 F.T.C. 888 (1978); H. Myerson Sons, et al., 78 F.T.C. 464 (1971); TaylorFriedsam Co., et al., 69 F.T.C. 483 (1966); Transair, Inc., et al., 60 F.T.C. 694 (1962).

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24. The Warning Letter also notified Defendant of its potential liability for civil 

penalties under Section 5(m)(1)(B) of the FTC Act, 15 U.S.C. § 45(m)(1)(B), for knowingly 

engaging in acts or practices determined by the Commission to be unfair or deceptive and 

unlawful, as described in Paragraph 23 of this Complaint.

25. After receiving the Warning Letter, Defendant contacted FTC staff to discuss how 

to correct the deceptive advertising and labeling of “bamboo” textile products. 

26. Despite the Commission’s public announcements and the Warning Letter, 

Defendant has marketed and sold rayon textile fiber products advertised and labeled as 

“bamboo,” including by engaging in practices such as those described in Paragraphs 9 through 

12 above. 

27. The practices described in Paragraphs 9 through 12 above are violations of the 

Textile Act and the Textile Rules, and are deceptive acts or practices in violation of Section 

5(a)(1) of the FTC Act, 15 U.S.C. § 45(a)(1).

28. In January 2013, the Commission announced four settlements with large, national 

marketers that received the January 2010 Warning Letter and thereafter allegedly engaged in 

improperly labeling and advertising of rayon textile products as “bamboo.” In those settlements, 

the defendants agreed to pay a total of $1,026,000.00 in civil penalties and agreed to injunctive 

relief relating to labeling and advertising of “bamboo” textile products. In addition to publicly 

announcing these cases, the Commission reminded marketers of the Business Alert it previously 

issued regarding the need to label and advertise textile products, and specifically “bamboo”

products, properly. The press release announcing the four cases was disseminated widely 

throughout the marketplace. 

 

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VIOLATIONS OF THE TEXTILE ACT AND THE TEXTILE RULES

29. The Textile Act governs, inter alia, the labeling and advertising of textile fiber 

products manufactured, sold, advertised, or offered for sale in commerce. See 15 U.S.C. § 70a.

30. Under the Textile Act, a textile fiber product is “misbranded if it is falsely or 

deceptively stamped, tagged, labeled, invoiced, advertised, or otherwise identified as to the name 

or amount of constituent fibers contained therein.” 15 U.S.C. § 70b(a).

31. Pursuant to section 70e(c) of the Textile Act, 15 U.S.C. § 70e(c), the Commission 

promulgated the Textile Rules, which state:

a. all textile fiber products must carry affixed labels stating the recognized 

generic names of the constituent fibers, 16 C.F.R. §§ 303.15; 303.16(a)(1);

b. no generic name for a manufactured fiber may be used until such generic 

name has been “established or otherwise recognized by the Commission,” 16 C.F.R. 

§ 303.8;

c. “[w]ords, coined words, symbols or depictions, (a) which constitute or 

imply the name or designation of a fiber which is not present in the product . . . [may] not 

be used in such a manner as to represent or imply that such fiber is present in the 

product.” 16 C.F.R. § 303.18. Any term used in advertising, including internet 

advertising, that constitutes or connotes the name or presence of a textile fiber is deemed 

to be an implication of fiber content, 16 C.F.R. § 303.40; and

d. any information or representation included in advertising or labeling of a 

textile fiber product that is not required under the Textile Act or the Textile Rules “shall 

in no way be false, deceptive, or misleading as to fiber content and shall not include any 

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names, terms, or representations prohibited by the [Textile] Act and regulations.” 16 

C.F.R. § 303.42(b); 16 C.F.R. § 303.41(d); see also 16 C.F.R. § 303.17.

32. A violation either of the Textile Act or of the Textile Rules constitutes an unfair 

or deceptive act or practice in violation of the FTC Act. See 15 U.S.C. §§ 70a and 70e.

COUNT I: MISREPRESENTED OR MISLABELED TEXTILE PRODUCTS

33. As set forth in Paragraphs 9 through 12, Defendant

a. markets and sells or has marketed and sold textile fiber products labeled as 

“bamboo;” and

b. advertises or has advertised the fiber content of textile fiber products using 

the terms “bamboo” and “bamboo fiber.”

34. In truth and in fact, as set forth in Paragraph 13, in numerous instances these 

textile fiber products are not bamboo fiber but instead rayon, a regenerated cellulose fiber.

35. Therefore, through the means described in Paragraphs 9 through 12, Defendant 

has introduced, advertised, offered for sale, or sold retail textile fiber products that are 

mislabeled or falsely or deceptively advertised, in violation of Sections 70a and 70b of the 

Textile Act, 15 U.S.C. §§ 70a and 70b, and Sections 303.6, 303.8, 303.16, 303.17, 303.18, 

303.33, 303.34, 303.40, 303.41, and 303.42 of the Textile Rules, 16 C.F.R. Part 303.

36. Defendant’s violations of the Textile Act and of the Textile Rules constitute 

deceptive acts or practices, in or affecting commerce, in violation of Section 5(a) of the FTC Act. 

See 15 U.S.C. §§ 70a and 70e.

VIOLATIONS OF PRIOR COMMISSION DETERMINATIONS CONCERNING 

UNFAIR OR DECEPTIVE ACTS OR PRACTICES IN COMMERCE

37. Pursuant to Section 5(m)(1)(B) of the FTC Act, 15 U.S.C. § 45(m)(1)(B), if the 

Commission has determined in a proceeding under section 5(b) of the FTC Act, 15 U.S.C. 

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§ 45(b), that an act or practice is unfair or deceptive by issuing a final cease and desist order 

other than a consent order, then a person, partnership, or corporation which engages in such act 

or practice with actual knowledge that such act or practice is unfair or deceptive shall be liable 

for a civil penalty of not more than $16,000 for each violation.

38. In prior litigated decisions, the Commission has determined that it is an unfair or 

deceptive act or practice to offer for sale or sell textile fiber products that are falsely or 

deceptively labeled as to the name or amount of constituent fiber contained therein. The 

Commission also has determined that it is an unfair or deceptive act or practice to falsely or 

deceptively advertise textile fiber products including, but not limited to, falsely or deceptively 

advertising the name or amount of constituent fiber contained within a textile fiber product. See

Paragraph 23.

COUNT II: VIOLATIONS OF SECTION 5(m)(1)(B)

39. As set forth in Paragraphs 20 through 24, at least since receiving the Warning 

Letter in February 2010, Defendant has had actual knowledge that offering for sale or selling 

falsely or deceptively labeled textile products and that falsely or deceptively advertising textile 

fiber products are unfair or deceptive acts or practices subject to civil penalties.

40. As set forth in Paragraphs 9 through 12, Defendant has offered for sale and sold 

textile products labeled as “bamboo” and has represented, directly or indirectly, expressly or by 

implication, that certain textile fiber products it advertises and sells are “bamboo.”

41. In truth and in fact, as set forth in Paragraph 13, in numerous instances these

textile fiber products are not bamboo fiber but instead rayon, a regenerated cellulose fiber.

42. Defendant has engaged in the acts and practices described in Paragraphs 40 and 

41 with the actual knowledge, as set forth in Paragraph 39, that such acts and practices have been 

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determined by the Commission in a final cease and desist order, other than a consent order, to be 

unfair and deceptive under Section 5(a) of the FTC Act. Defendant, therefore, has violated 

Section 5(m)(1)(B) of the FTC Act. 15 U.S.C.§ 45(m)(1)(B).

CONSUMER INJURY

43. Consumers have suffered and will continue to suffer substantial injury as a result 

of Defendant’s violations of the FTC Act and the Textile Act and Rules. In addition, Defendant 

has been unjustly enriched as a result of its unlawful acts or practices. Absent injunctive relief 

by this Court, Defendant is likely to continue to injure consumers, reap unjust enrichment, and 

harm the public interest.

CIVIL PENALTIES AND INJUNCTIVE RELIEF

44. Violations of the Textile Act constitute deceptive acts or practices, in or affecting 

commerce, in violation of Section 5(a) of the FTC Act. See 15 U.S.C. §§ 70a and 70e. The FTC 

“is authorized and directed to prevent any person from violating the provisions of [the Textile 

Act] in the same manner, by the same means, and with the same jurisdiction, powers, and duties 

as though all applicable terms and provisions of the [FTC Act] were incorporated” therein, and 

any “person violating the [Textile Act] shall be subject to the penalties” provided in the FTC 

Act. 15 U.S.C. § 70e(b).

45. Under Section 13(b) of the FTC Act, 15 U.S.C. § 53(b), this Court is authorized to 

issue a permanent injunction to restrain violations of the FTC Act, as well as such ancillary relief 

as is necessary.

46. Section 5(m)(1)(B) of the FTC Act, 15 U.S.C. § 45(m)(1)(B), authorizes the 

Court to award monetary civil penalties of not more than $16,000 for each violation of prior 

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Commission determinations concerning unfair and deceptive acts or practices in commerce, as 

described in Paragraphs 19-27 and 39-42.

47. Pursuant to Section 5(m)(1)(B) of the FTC Act, for the purpose of computing civil 

penalties, each and every instance that Defendant has introduced, advertised, offered for sale, or 

sold a misbranded retail textile fiber product, since February 2010, constitutes an act or practice 

that the Commission has determined in a prior proceeding to be unfair or deceptive.

PRAYER FOR RELIEF

WHEREFORE, Plaintiff, pursuant to 15 U.S.C. §§ 45(a)(1), 45(m)(1)(B), and 53(b) and 

the Court’s own equitable powers, requests that the Court:

1. Enter judgment against Defendant and in favor of Plaintiff for each violation of

the Textile Act and the Textile Rules alleged in this complaint;

2. Award Plaintiff monetary civil penalties pursuant to 15 U.S.C. § 45(m)(1)(B);

3. Enter a permanent injunction to prevent future violations of the Textile Act and 

the Textile Rules; and

4. Award Plaintiff the costs of bringing this action, as well as such other and 

additional relief as the Court may determine to be just and proper.

DATED:

Of Counsel:

JAMES A. KOHM

Associate Director for Enforcement

DOUGLAS V. WOLFE

Assistant Director for Enforcement

KORIN EWING FELIX

AMANDA B. KOSTNER

Attorneys

Federal Trade Commission

600 Pennsylvania Avenue, N.W.

Respectfully submitted,

BENJAMIN C. MIZER

Principal Deputy Assistant Attorney General

JONATHAN F. OLIN

Deputy Assistant Attorney General

MICHAEL S. BLUME

Director

Consumer Protection Branch

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Mail Drop M-8102B

Washington, D.C. 20580

(202) 326-3556; kfelix@ftc.gov

(202) 326-2880; akostner@ftc.gov

ANDREW E. CLARK

Assistant Director

/s/ RAQUEL TOLEDO

Trial Attorney

Consumer Protection Branch

U.S. Department of Justice

P.O. Box 386

Washington, DC 20044

Tel: (202) 532-4719

Fax: (202) 514-8742

Raquel.Toledo@usdoj.gov

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