Court Opinion

ID: 9735292
Source: CourtListenerOpinion
Date Created: 2023-08-26 18:08:18.297361+00
Date Added: 2024-06-11T18:26:56.911726
License: Public Domain

ROBB, Judge,
concurring and concurring in result as to Issue I with separate opinion.
Although I agree with most of the issues decided by the majority, I disagree with the majority’s holding that the dissemination of the Environmental Protection Agency (the “EPA”) approved written information accompanying a pesticide consti*912tutes “labeling” under Section 136v(b) of FIFRA. I believe that the dissemination of the EPA approved written information accompanying a pesticide comprises “packaging” under Section 136v(b) of FIFRA. However, I agree with the majority’s conclusion that the Eblings’ state common law claim of failure to warn is preempted by Section 136v(b) of FIFRA under the Supremacy Clause of the United States Constitution.
In 1972, Congress amended the United State Insecticide Fungicide and Rodenti-cide Act (“FIFRA”), adding Section 136v(b), which originally stated that “[s]uch State shall not impose or continue in effect any requirements for labeling and packaging in addition to or different from those required under this subchapter.” In 1978, Congress amended Section 136v(b) of FIFRA, replacing the “labeling and packaging” language of the statute with “labeling or packaging.” I believe that the 1978 amendment to Section 136v(b) of FIFRA is significant because the “or” amended into the statute connotes Congress’ intention that the term “labeling” should be viewed as a separate and distinct entity from the term “packaging.” Thus, the two terms connote different meanings and this court must view “labeling” and “packaging” independently from each other.
With regard to “labeling,” prior to registering a pesticide, the EPA must determine if the pesticide’s “labeling and other material” meet FIFRA’s detailed requirements. 7 U.S.C.A. § 136(a)(e)(5)(B). Congress has defined the term “label” as “the written, printed or graphic matter on, or attached to, the pesticide ... or any of its containers or wrappers.” 7 U.S.C. § 136(p). Moreover, Congress has defined the term “labeling” as “all labels and all other written, printed, or graphic matter — (A) accompanying the pesticide or device at any time; or (B) to which reference is made on the label or in literature accompanying the pesticide or device.... ” 7 U.S.C. § 136(p)(2). Regulations promulgated pursuant to FIFRA specifically control the form and content of labels, including precautionary statements about the risks to humans and directions for safe use. 40 C.F.R. § 156.10(h)(2)(i)(A), 156.10(j). Final labeling is approved by the EPA only if it is “adequate to protect the public from fraud and from personal injury and to prevent unreasonable adverse effects on the environment.” 40 C.F.R. § 156.10(i)(l)(i). Thus, the term “labeling” as defined by Section 136v(b) of FIFRA encompasses all EPA approved written information that accompanies a pesticide as it is placed in the “stream of commerce.” Therefore; state common law claims of inadequate labeling are expressly preempted by FIFRA under the Supremacy Clause of the United States Constitution.
However, neither the text nor the legislative history of FIFRA provides a definition of the term “packaging.” I believe that the term “packaging” refers to the dissemination of the written information that accompanies a pesticide. Therefore, “packaging” entails the dissemination of the EPA approved written information that accompanies a pesticide, referred to as “labeling” under Section 136v(b) of FI-FRA. For example, if a consumer purchased a pesticide, the EPA approved written information printed on the container or included in an accompanying written insert, placard, or leaflet would constitute “labeling” under Section 136v(b) of FI-FRA. In contrast, the dissemination of that EPA approved written information to the general public who was not the original purchaser of the pesticide would comprise “packaging” under Section 136v(b) of FIFRA.
The cases cited by the majority generally address the adequacy of the form and content of the pesticide “label” as purchased by the initial consumer, whereas here we are confronted with the issue of the dissemination of the written information accompanying a pesticide: who ultimately receives the information contained *913on the “label.”16 See Taylor AG Industries v. Pure-Gro, 54 F.3d 555, 561 (9th Cir.1995) (“Appellants’ claim for inadequate point-of-sale warnings is preempted because their claim is premised ultimately upon the inadequacy of the product label.”); Papas v. Upjohn Co., 985 F.2d 516, 519 (11th Cir.1993) (“[A]ny claims that point-of-sale signs, consumer notices, or other informational materials failed adequately to warn the plaintiff necessarily challenge the adequacy of the warnings provided on the product’s labeling or packaging.”); Pitts v. Dow Chemical Co., 859 F.Supp. 543, 545 (M.D.Ala.1994) (“[p]lain-tiffs complaint ... challenges the adequacy of warning labels under which the defendants produced and sold Dusban TC.”); Goodwin v. Bacon, 127 Wash.2d 50, 896 P.2d 673, 681 (1995) (“[A]n examination of Plaintiffs failure to warn claim leads back to his reliance on a showing of inadequate labeling.”); Jenkins v. Amchem Products, Inc., 256 Kan. 602, 886 P.2d 869, 882 (1994) (“[n]egligenee claim or strict liability failure to warn claim based on a claim that communication by means other than labeling was inadequate necessarily challenges the label and is preempted by § 136v(b) of FIFRA.”). However, regardless of whether the Eblings’ state common law failure to warn claim is characterized as falling under the term “labeling” or “packaging” under Section 136v(b) of FIFRA, the Eblings’ claim is preempted by FIFRA under the Supremacy Clause of the United States Constitution, and I concur in the result reached by the majority.

. The Eblings specifically state that they "are not challenging the adequacy of the label's form or content....” Brief of Appellees at 6. Instead, the Eblings argue that "the approved labeling information should have been provided to them.” Id.