Krause-Pettai v. Unilever United States, Inc.

District Court, S.D. California·Decided September 30, 2023·No. 3:20-cv-01672·Unknown

Opinion

Nicole KRAUSE-PETTAI, et al., Case No.: 20-cv-1672-AGS-BLM individually and on behalf of ORDER GRANTING DEFENDANT’S all others similarly situated, MOTIONS FOR SUMMARY Plaintiffs, JUDGMENT (ECF 70) AND TO v. EXCLUDE EXPERT TESTIMONY (ECF 71 & 72), AND DENYING PLAINTIFF’S CLASS- et al., CERTIFICATION MOTION (ECF 57) Defendants.

This case is about useless empty space, known as “nonfunctional slack fill,” inside underarm-deodorant sticks. Defendant argues, among other defenses, that federal law preempts slack-fill suits regarding drugs and cosmetics, a matter of first impression in this Circuit. In this putative class action, four plaintiffs claim they were duped into buying defendant Unilever’s deodorant and antiperspirant. They say the oversized containers create the illusion of holding more than competitors’ same-weight items. (ECF 52, at 3, 10–12.) According to plaintiffs, much of Unilever’s products’ volume is nonfunctional slack fill. (Id. at 11–12.) They seek class certification, alleging various unfair and deceptive trade practices under state law. Unilever opposes certification and insists the case should be thrown out on summary-judgment and federal-preemption grounds. A. Preemption As a threshold matter, Unilever contends that federal regulations preempt plaintiffs’ state-law claims. “[S]tate laws that conflict with federal law are without effect.” Altria Group, Inc. v. Good, 555 U.S. 70, 76 (2008) (cleaned up); see also U.S. Const., art. VI, cl. 2 (Supremacy Clause). “Federal preemption can be either express or implied.” Chicanos Por La Causa, Inc. v. Napolitano, 558 F.3d 856, 863 (9th Cir. 2009). Unilever relies only on the express variety. 1. Express Preemption: The FDCA To assure national uniformity, the Food, Drug, and Cosmetic Act expressly preempts any state “requirement” for labeling or packaging cosmetics and nonprescription drugs— including deodorants and antiperspirants—that is “different from or in addition to, or that is otherwise not identical with,” federal rules. See 21 U.S.C. § 379r(a)(2) (nonprescription drugs); id. § 379s(a) (cosmetics). The question is: Do the challenged state laws mandate “requirements” that are (a) “identical with” federal standards or (b) “different from or in addition to” them? As relevant here, both the FDCA and California’s Sherman Food, Drug, and Cosmetic Law set the same baseline requirements for drugs and cosmetics. They deem such an item “misbranded” if “its labeling is false or misleading in any particular” or if its “container” is “filled as to be misleading.” See 21 U.S.C. § 352(a)(1) (drugs; label); id. § 352(i)(1) (drugs; container); id. § 362(a) (cosmetics; label); id. § 362(d) (cosmetics; container); Cal. Health & Safety Code § 111330 (drugs; label); id. § 111390 (drugs; container); id. § 111730 (cosmetics; label); id. § 111750 (cosmetics; container). Because the Sherman Law’s standard “is identical to” the FDCA’s, it is not preempted. See Ebner v. Fresh, Inc., 838 F.3d 958, 965 (9th Cir. 2016). But California did not stop at that baseline. It added to it. The FDCA and Sherman Law both generally forbid “misleading” labeling and packaging, but neither addresses slack-fill limits on drugs or cosmetics. Yet the California Fair Packaging and Labeling Act (CFPLA) goes one step farther, condemning any opaque container as “misleading” if “it contains nonfunctional slack fill,” with some exceptions. See Cal. Bus. & Prof. Code § 12606(b). The Ninth Circuit concluded that this exact regulatory scenario mandated preemption in Del Real, LLC v. Harris, 636 F. App’x 956 (9th Cir. 2016). In the context of “meat and poultry products,” it held that the CFPLA’s “nonfunctional slack fill provisions” were “in addition to, or different than” the relevant federal statutes’ “general prohibitions against containers ‘filled as to be misleading.’” Id. at 957. Plaintiffs protest that slack-fill regulations may only be preempted by “an overt decision,” not federal “silence” on the issue. (See ECF 77, at 15.) But Congress was not silent here; it spoke clearly about what is preempted. In the FDCA, Congress meant to preclude all state requirements that are “different from or in addition to,” or “otherwise not identical with,” the federal regulatory regime for labeling and packaging drugs and cosmetics. In National Meat Association v. Harris, 565 U.S. 452 (2012), the Supreme Court held that a nearly identical preemption provision “sweeps widely” and blocks states from imposing on the federal plan “any additional or different—even if non-conflicting— requirements.” Id. at 459. Even assuming California’s slack-fill regulation doesn’t conflict with the federal design, it “plainly adds to the regulatory burden faced by a manufacturer” subject to the FDCA’s packaging and labeling constraints. See Del Real, LLC v. Harris, 966 F. Supp. 2d 1047, 1064 (E.D. Cal. 2013), aff’d, 636 F. App’x 956 (9th Cir. 2016). Thus, the CPFLA’s slack-fill ban for drugs and cosmetics is preempted. 2. Preemptive Scope The foregoing robs plaintiffs of a powerful arrow in their quiver: a per se rule that nonfunctional slack fill is misleading. But it does not necessarily foreclose their claims entirely, as Unilever urges. The FDCA “does not preempt state laws that allow consumers to sue . . . manufacturers that label or package their products in violation of federal standards.” See Ebner, 838 F.3d at 964 (discussing cosmetics). Plaintiffs argue that their state-law claims enforce federal prohibitions on “misleading” packaging. But Unilever insists that, according to the relevant federal agency, slack fill in drugs and cosmetics is never misleading. For support, Unilever points to two cases that held the Food and Drug Administration’s failure to set explicit restrictions on slack fill in drugs and cosmetics is “tantamount to a conscious decision by the agency to permit” it. See O’Connor v. Henkel Corp., No. 14-CV-5547 (ARR)(MDG), 2015 WL 5922183, at *6 (E.D.N.Y. Sept. 22, 2015); Bimont v. Unilever U.S., Inc., No. 14-CV-7749 (JPO), 2015 WL 5256988, at *6 (S.D.N.Y. Sept. 9, 2015). Both opinions quote Astiana v. Hain Celestial Group, Inc., 783 F.3d 753 (9th Cir. 2015). But Astiana made the opposite point. The defense there supposed that “the FDA’s failure to issue specific regulations” about the word “‘natural’ on cosmetics labels” was “tantamount to a conscious decision by the agency to permit any use of this term a manufacturer sees fit.” Id. at 758. The Ninth Circuit disagreed. It noted that this “argument proves too much,” as it would allow a manufacturer to “make any claim—wild, untruthful, or otherwise—about a product whose contents are not addressed by a specific regulation.” Id. Even without precise federal guidelines, Astiana allowed plaintiffs’ state-law suit alleging deceptive use of the word “natural” to proceed, as it promoted the general federal prohibition on “false or misleading” labeling. Id. at 758–59. Like Astiana, the FDA’s failure “to issue specific regulations” about nonfunctional slack fill does not mean manufacturers may make cosmetics with “any” amount of it, even refrigerator-sized deodorant sticks that are 99% empty. Federal statutes, after all, proscribe labeling and container-filling that is “misleading.” See 21 U.S.C. § 352(a)(1), (i)(1); id. § 362(a), (d). So,

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Krause-Pettai v. Unilever United States, Inc., (S.D. Cal. 2023).

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