Document: 430 U.S. 519 97 S.Ct. 1305 51 L.Ed.2d 604 Joseph W. JONES, as Director of the County Riverside, California, Department Weights and Measures, Petitioner,v.The RATH PACKING COMPANY et al. No. 75-1053. Argued Dec. 6-7, 1976. Decided March 29, 1977.* Rehearing Denied May 16, 1977. See 431 925, 2201. Syllabus Section 12211 California Business Professions Code provides that 'the average weight or measure packages containers in a lot any. . commodity sampled shall not be less, at time sale offer for sale, than net stated upon package.' Article 5, § 2930 seq., Title 4 Administrative implementing requires statistical sampling process determining lot, which implicitly allows variations from caused by unavoidable deviations manufacturing but makes no allowance loss resulting moisture during course good distribution practice. Petitioner county pursuant to 12211, ordered removed becon packaged respondent packing company flour millers after he had determined under Art. 5 were contained whose weights less on packages. Respondent company's bacon is also subject inspection Federal Meat Inspection Act (FMIA), amended Wholesome Act, meat product package bear label showing, inter alia, an accurate statement quantity contents terms weight, permits 'reasonable variations'; regulations permit gain practices deviation practice.' The FMIA prohibits labeling packaging requirements 'different than' those imposed statute. federal alw governing net-weight millers' Food, Drug Cosmetic (FDCA) Fair Packaging Labeling (FPLA), impose same standard four FAIM imposes meat. FDCA kind reasonable does its regulations. contains pre-emptive language FPLA 15 U.S.C.A 1461 supersedes any state laws are 'less stringent require information different from' Respondents brought suits District Court, seeking declarations pre-empted injunctions against enforcement provisions. Court granted requested relief, Appeals affirmed. Held: 1. With respect bacon, FMIA. Since practice laws' requirement accurately with implicit only requirement, Pp. 528-532. 2. Although U.S.C. pre-empt implemented since it appears law 'require regulations, nevertheless, regard flour, would prevent accomplishment execution full purposes objectives Congress.' Hines v. Davidowitz, 312 52, 67, 61 399, 404, 85 L.Ed. 581, passing FPLA, impermissible result Constitution, hence must yield federal. goal facilitate value comparisons among similar products cannot accomplished unless indicated fact contain consumer paying. Here meet have can expected amount solids, permitted, whereas application standard, such variations, consumers who attempt compare identically labeled comparing identical amounts solids misled. 532-543. 530 F.2d 1295 1317, Argument commenced Loyal E. Keir, Cal., petitioner continued Allan J. Goodman, Los Angeles, State al., Amici curiae, special leave Court. Mr. Justice MARSHALL delivered opinion 1 Petition Jones Measures Riverside County, Cal.1 In capacity Rath Packing Co. three millers, respondents General Mills, Inc., Pillsbury Co., Seaboard Allied Milling Corp. (hereafter millers). acted determining, means procedures set forth Cal.Admin.Code c. 8, inlots2 was removal orders authorized Cal.Bus. & Prof.Code (West Supp. 1977).3 2 responded filing Central California.4 They sought both preempted regulating netweight prohibiting enforcing relief5 and, insofar relevant here, affirmed.6 We Jones' petition certiorari, 425 933, 96 1663, 48 174 (1976),7 now affirm judgments Appeals. 3 * present posture, this litigation claim Constitution alone denies power enact challenged provisions.8 required decide whether govern respondents' operations preclude 5. Our prior decisions clearly laid out path we follow answer question. first inquiry Congress, regulate commerce, U.S.Const., 1, has prohibited regulation particular aspects commerce involved case. Where, field Congress said been traditionally occupied States, see, e. g., Const., I, 10; Patapsco Guano North Carolina, 171 345, 358, 18 862, 867, 43 191 (1898), 'we start assumption historic police powers States superseded clear manifest purpose Rice Santa Fe Elevator Corp., 331 218, 230, 67 1146, 1152, 91 1447 (1947). This assurance federal-state balance,' United Bass, 404 336, 349, 92 515, 523, 30 488 (1971), will disturbed unintentionally unnecessarily courts. But when 'unmistakably ordained,' Florida Lime Avocado Growers, Inc. Paul, 373 132, 142, 83 1210, 1217, 10 248 (1963), enactments part aspect fall. compelled Congress' command explicitly statute's structure purpose. City Burbank Lockheed Air Terminal 411 624, 633, 93 1854, 1859, 36 547 (1973); supra, 1152. Congressional do exclude all legislation nevertheless override they conflict. VI. criterion so inconsistent give way firmly established our decisions. task 'to determine circumstances case, (the State's) stands obstacle 581 (1941). Accord, De Canas Bica, 424 351, 363, 940, 47 (1976); Perez Campbell, 402 637, 649, 1704, 1711, 29 233 (1971); 141, 1217; id., 165, 1229; (White, J., dissenting). us consider relationship between interpreted applied, merely written. 363-365, 940-941; Swift Wickham, 230 F.Supp. 398, 408 (S.D.N.Y.1964), appeal dismissed, 382 111, 86 258, 194 (1965), aff'd further consideration, 364 241 (C.A.2d 1966), cert. denied, 385 1036, 87 776, 17 683 (1967). II 6 1977) applies Rath's flour. establishes straightforward: '(T)he 7 order violated, local officials procedure 5.9 That inspector identify number lot. He then determines, tables regulation, necessary provide suitable sample smaller used tare.10 After average, weighs each sample, subtracts tare, records difference measured weights. These measurements individual deviate unreasonably weight. Those replaced11 replacements weighed. Finally, totaled algebraically compared indicate magnitude total error conclude lot's weight.12 III 8 A. produced plants (FMIA Act), 81 Stat. 584, 21 601 seq. Among federally inspected plants, enforced Agriculture inspectors,13 standards accuracy labeling. On record before us, may assume complies these standards.14 9 7(b) FMIA, 588, 607(b), commands: 'All food establishment authority title paragraph (n) section Act.' 11 1(n) 601(n), defines term 'misbranded.' As misbranded 12 '(5) if other container bears showing (B) measure, numerical court: Provided, exemptions small established, prescribed Secretary.' 586. 13 Other sections prohibit dealing products, defined 1(n).15 14 Secretary his discretionary variations' quantity: 'The (of contents) shown false misleading express exclusive wrappers substances. Reasonable recognized. Variations large.' CFR 317.2(h)(2) (1976). 16 Thus, statutorily actual results specified causes.16 678, imposition '(m) arking, labeling, packaging, ingredient addition to, than, made under' Act.17 explicit pre-emption provision dictates controversy Rath. California's use process.18 practice.19 law's seeks avoid arguing FMIA's provisions netquantity statements 'labeling requirements' within meaning 408. contends 'labeling' refers format placement information, content.20 Requirements relating accuracy, according Jones, deal problem misbranding, grants concurrent jurisdiction over subject. 19 agree argument 'strained.' F.2d, 1314 n. 25. Nothing suggests restrictive ascribes phrase requirements.' To contrary, see 528-529, 1(p) 601(p),21 material bearing product's It twists beyond breaking point say mandating certain requirement.' 20 therefore law. IV two statutes, Drug, (FDCA), 52 1040, amended, 301 80 1296, §§ 1451-1461. For reasons below, weight-labeling 22 introduction delivery into interstate food22 misbranded. 331. A FDCA, 23 '(i)f form containing count: 343(e). 24 parallel 529, except mandates rather promulgation regulations.23 issued response statutory mandate substantially counterpart FMIA: 25 declaration package. 1.8b(q) 26 manufacture FPLA. 1452, 1459(a). statute states congressional policy '(p)ackages their labels should enable obtain comparisons.' 1451. accomplish goals, bans 27 'Which 28 '(2) (in count) separately uniform location principal display panel required) label.' 1453(a). saving clause specifies nothing 'shall construed repeal, invalidate, supersede' FDCA. 1460. variation contend allow there Appeals, however, held because savings clause, compliance satisfies 1325. respond misinterpreted strict argue, therefore, alter mandated 1453. Brief 39 Curiae 15-21. Alternatively, argue although supersede 'it excuse where applicable.' Id., 28. 31 States' based Court's Shreveport Grain 287 77, 53 42, 77 175 (1932). decided Government criminal case involving shortweighting violation predecessor Food Drugs 34 768, 117, 37 732. trial court dismissed indictment statute, essentially FDCA,24 ground prohibition unreasonable marked too indefinite offense. reversed, holding substantive created 'accurate statement' preceded proviso allowing administrative promulgate permitting 'from hard fast rule act.' U.S., 81-82, S.Ct., 43. re-enacted 675, 403(e), 1047, 'hard rule.' 32 need rationale well remains law.25 (1976), force law26 variations. viewed strict, considered restriction prosecute, itself incorporating flexibility regulation,27 same. Under miller prosecution, civil criminal, arise permitted causes. question raised arguments amici enacting intended eliminate area freedom prosecution regulation. 33 Over 60 years ago, concluded allowed nature foods impossibility developing completely packing. H.R.Rep.No.850, 62d Cong., 2d Sess., (1912); S.Rep.No.1216, 3d 2-3 (1913).28 1914, drug occurring despite commercial 84, 44. If overrule longstanding practice, founded legislative necessity, expect done clearly. Instead, preserved existing law, 'no changes.' 1460; S.Rep.No.1186, 89th (1966). history some indication understood preserve reasonable-variation FDLA perserve FDCA,29 evidence affirmatively regulation.30 manufacturer action B. hand, declares 35 intent political subdvisions thereof hereafter qua(nt)ity covered chapter 1453 promulgated thereto.' 1461.31 recognizing leaves more scope Acts, 1324-1327. basis Appeals' unclear. Its read conclusion inadequate relies averaging procedure. rejected conclusion. 531, 18. found approach takes lots excees label, even excess attributable cause. 38 doubt pre-empting laws, compel expend scarce resources reach question, apparently differs applied. inspectors responsible acts officially informed '(f)ield weighing primarily likelihood short units lots.' Moreover, submit samples headquarters 'if below declared Administration, Operations Manual 448.1, 448.13 instructions undercut interest preventing being overfilled.32 neither concerned overweighting administration measures lack concern 'problem'33 'information provisions, like stringent,' attribute ban requiring broad meaning, minimum demand 31-32. history, expressly pre-empts information' law.34 possible comply without triggering hold 40 not, resolve still 'stands 526. stated, major products. Obviously, significance physical attributes 41 Flour composed moisture. water content wheat kernels make 12.5% range 10% 14.5%. Efficient milling adding raise 15% 16%; wet dry, hindered. During milling, reduced 13% 14%. App. 28-29.35 42 remain constant completed. relative humidity atmosphere stored greater 60%, moisture, lose moisture.36 Packages requirements37 solids.38 Manufacturers produce fixed process.39 manufacturers reason pack significantly underpacking, similarly given size.40 Despite changes distribution, consumer. identity facilitates comparisons. 44 State's refusal produces effect.41 meeting ensure bring Local serve limited area, could adjusting specific conditions region. example, typically higher 60% overpack all. By contrast, national marketing know destination distribution. manufacturer, overpack. 45 Similarly, distributed followed compensating National did nonconforming throughout country attempted solids. Value account calculations misleading. 46 impermissible, ordered. 49 REHNQUIST, whom STEWART joins, concurring dissenting part. 50 I Prof. Cal. Admin. Code, 678. Mills' 1461. am unable agree, finds latter unwarranted speculations hardly rise demonstration conflict exist mere existence operating field. scheme contemplated conjunction determines state-law nor requirements. quite properly remaining inquiry, then, schemes utter conflict.1 noted Kelly Washington, 302 10, 58 87, 92, 82 (1937): principle thoroughly exercise power, valid action, repugnance 'direct positive' 'be reconciled consistently stand together." Cloverleaf Butter Patterson, 315 148, 156, 62 491, 496, 754 (1942); Askew American Waterways Operators, 325, 337, 341, 1590, 1600, 280 (1973). When deal, 'in occupied,' basic preemption 'that (1947); cf. 356, 936-937, simply find met 54 demonstrates physically 'without action,' ante, 540. leads 'state law.' Ibid. lead 'where one engaged commerce.' 142-143, (1963). Pre-emption, operation inexorably conflicts underlying Act. EPLA 'facilitate comparisons' consumers, identifying enough; inevitably frustrates recently noted: 55 'We careful distinguish situations possibly necessarily arise. 'It possibility inconvenience powers, immediate constitutional repugnancy implication alienate extinguish pre-existing right (state) sovereignty.' Federalist 32, p. 243 (B. Wright ed. 1961).' Goldstein 412 546, 554-555, 2303, 2309, 163 (1973) (emphasis original). proper test, 56 act otherwise chosen else frustrated refused natural effect sphere delegated power.' Savage 225 501, 533, 715, 726, 1182 (1912). 57 reliance supposition inference fails respects demonstrate carried burden demonstrating pre-emption. First, own premises, finding told, 526, written,' while 539, is, fact, 'federal overfilled,' 'concerned ..' accept that, comparisons,2 might another For, told deliberately overpack, whatever reason,3 taken him though misleading.' virtually impossible say, does, 'neither weighting,' 542 41, yet state-induced 'value comparison' purpose, while, presumably, not. viewing sufficient very ignored administering agency reverses normal presumption reasoning pre-emption, 540, me implied pre-emption.4 Second, troubling legal inconsistency, unproved factual speculation purported irreconcilable undermining scheme. premises rely many. acknowledges packed nonetheless though, result, quantities 'solids,' 542, 39, economics packers 'will (flour solids) size.' normally true economic supported knowing sources. 59 Similarly defective majority concludes adjust conditions, 'would (their) distribution.' Ante, 543. assumption, too, unsupported record.5 concluding distributors know, through exertion modicum effort, end up. packer incur extra expense systems mean 'purposes accomplished,' .," 10,6 92. assumptions insufficient suggest wholly odds enunciated There, differing maturity avacados grown Florida. test looked similarity purposes, instead complied statutes modifying somewhat, 143, 1217-1218, demonstrated inevitable collision dissimilarity standards,' ibid. equally justified instant today laws.7 Because pre-emtion, absent seriously misapprehends carefully delimited doctrine 554, 2308. dissent Together Director, certiorari (see Rule 23(5)). 'county director measures' alternative sealer.' 12006 1964). office sealer duties 12200-12214 1964 1977). "Lot' single item merchandise size 'sub-lots.' "One location' 'one display' grouping,' items brand kept establishment.' 2931.3 (1970). 'Each shall, time, weigh packages, commodities sold, delivery, represented sold accordance agriculture) hereby directed adopt rules sealers connection measuring containers, including section. 'Any amendment thereof, adopted conformity Chapter 4.5 (commencing 11371), Part Division Code; provided, package, provided further, applicable food, 26450 Health Safety possible, any, Health, Education, Welfare, conforms deemed division measures. 'Whenever contain, herein, represented, writing off placed released writing. seize represented.' filed separate actions M. H. Becker, Angeles County. consolidated decision Becker cross-motions summary judgment suit Jones. 357 531 (C.D.Cal.1973). intervened defendant proceeding. reported supra. reported, reprinted appendix opinion. 1329-1330 (C.A.9 1975). 607(b) limits processing plant F.Supp., 532, contentions deny due 1322-1323. 1975); reversed (1976) void vagueness. 1308-1312; 1323-1324. validity issue here. review 23(5). No Agriculture, 4, Becker. Wallace pending 75-1052. affirmed holding, violate Commerce Clause Fourteenth Amendment. challenge holdings 'procedure determination proven standards.' 533. challenged. 'Tare' contained. removes subtracting gross obtains tare. packed, loses Some absorbed insert placed. wax board absorb approximately 5/16 ounce product, polyethylene 1/16 ounce. 88-90, 94; 1299 addition, lost or, hermetically sealed condensation onto material. 61. include grease it. plant, tace dry. 1299. feasible dry tare method. C. Brickenhamp, S. Hasko, Natrella, Checking Prepackaged Commodities Revision Bureau Standards Handbook (July 1975 Draft). noting difference, stated: tares employed case.' 4. have, suggested divergence techniques 18-19, 37; Tr. Oral Arg. 43-44. significant failure infra, 531-532. errors, plus minus, excluded individually inclusion destroy pattern. instance: ten (10) show nine (9) minus 9. large included, 0. pattern per 2933.3.11 (1961). Enforcement errors. 2933.3.12(c) conclusive, additional drawn. 2933.3.12(a), (b) assuring submitted approval. 1298; approved plan effect, reviews observes assure plan. subgroup least twice week check production once week. Pultry 18.61(b)(1)(i) week, volume low. 18.61(b)(2). 607(d), 610(b). Both sources bacon. Bacon wrapping materials atmosphere. rate typical retail showcase 0.3/16 0.4/16 day. 95. cut discrete slices, guarantee exactly packed. Instead exactitude, target Prior petitioner's activities, activities 3/16 lb. oz. one-pound passed weighed 14/16 8/16 measures, insert, 12/16 boards. 86-89. 408, 600, full: 'Requirements facilities Territory Columbia, recordkeeping 202 consistent therewith, establishment. Marking, Columbia articles prepared may, title; human adulterated outside establishment, imported entry States. making taking matters regulated recognition statistically estimated indicates contents. around packer's cancel out. equal loss. utilizes recognize variation, uses techniques, deviations. Poultry Manual, 13, 18.61(b) (2); Amicus Indeed, difficult imagine practical technique policing 200 billion every year. supra,( 78. simultaneously grant enforce requirements, 17, them tool so. Accordingly, disagree anything opinions weights, laws. Moisture will, obviously, cause left plant. An procedure, above works direction. 40. 56-58. written, printed, graphic matter (1) article wrappers, (2) accompanying article.' 1(p), 587. coverage 321(f). definition 'misbranded' S.Rep.No. 799, 90th 1st (1967); U.S.Code Cong. Admin.News 1967, 2188. 'If form, plainly conspicuously tolerances 81, subsequently cited example impermissibly vague unmistakably line conduct. Jordan George, 341 223, 231 15, 71 703, 708, 95 886 (1951); Gorin 19, 429, 433-434, Mersky, 361 431, 437-438, 459, 463-464, 423 (1960); Atchison, T. F. R. Scarlett, 300 471, 474, 541, 543, 748 (1937). view, contrary analysis Shreveport, strongly originally passed, plain correct. 771. 1913 changed contents, added House Senate committee reports '(u)nder bill (1913). identical: apparent everyone exact undergo slight causes, destructive putting packages.' 2; 2-3. Hearings Committee Interstate Foreign Commerce, 208 reading intend FDCA's FPLA's appear labels. 1453(a)(2). See, H.R.Rep.No.2076, (1966) (chart indicating change effected became requirement). 1453, 1460 promulgation. 'are informationdifferent 1.8b(q). contention, 30, 1454(b), affect 1454. Overweight administrationof 168-174. At oral argument, counsel cite examples overweight 49-50. support forbids overweighting, relied amicus curiae litigation. Government's brief cites generally manuals here text, mention refer. self-interest likely avoidable overpacking. bill. bill, 'differ n1966), 1966, 4069. accepted Hosue conference committee, along committee's explanation 'preemption take place extent 'State legislation." H.R.Rep.No.2286, maximum allowable 'flour' 15%. 15.1 32-35. Weight fluctuations 3% 4% uncommon continental 32-33. Mills market weighed, 0.125% 1.25% 36. airtight content, spoil. 39. undisputed 1320; 36-37. nutritional contains. 35. process, 35, type high permit. 30. incentive close permits, Unavoidable course, differences amount. absence consequence. There contention 'nature national, admit(ting) system .' Colley Board Wardens, How. 299, 319, 113 996 (1852). supervision readying foodstuffs always peculiarly concern.' Growers 144, 1218, 1451 announces 'enable Including, supposed, compulsion. nowhere explains why law,' reflect differential speculative. begin with, 'local' 'national' however defined. Even exist, ship areas comparable levels. Any experience variety shipping areas, relatively contiguous. town, stores air-conditioned elsewhere town. situations, differential, either tracing overpacking sufficiently met. millers. simply, affected. assertions speculations. appears, easily processes insure Acts. adjustment entail minor inconvenience, moderate believed benefits enactment outweigh costs. Unless cost government tolerates And costs vitiate conflict, how just 'may possibly' face, inexorable about which, (to)

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