ÿWPCÒ0 ¦½ê†?Ö OÁjFÍÁb"°ºá´98¡*qlóØ`XFÉZž*rɘn"=² ~®L ·øÒ½4ý¯Ö©±$ƒj¿®ø Å›,¡ Àë›7Ñ€E‡ù%9c™Õ„þW4­‡ f–º ì8ô°dŸ´,5$³A ŽjZã²AŒ¦\å.¶ºR‚ì0eÕuMÌz”ü¨ÛwÔ8t*»”P[ÜÚ’›m @½7ÐÜ"œÆ™¡7 ÒgVËQÜîõX5éáÇÉ»N¨K;­V7vÁd~õú3jœ¦VÀäÜÛFàŒ$á¸÷÷GÞž÷ÖÉU-1Æw_vÜò'¹ØÚ›C¸Æ2ó>±L=á ö 0~Øu²ŠÙŸR0hÍx7f¡äÌ®¤Þo¿xÂÀ¶ëI5ïmíÀop•:¼ÿŒ4¬¾„uzΛ™];ö&P¥ÏL öwÜôSêPÔ0+µÚïØ ­‰ÑóÔZf}yÄ2ñe«¬“GÜžwjòŽHмÖMë'Ò±ª>R·ÑGѶèD•ìÖ”§j”µƒ ºÜb/Ê­—‘Î!±—€WÓ/0?£mM,ºÔöJ¼©øè˜»L\/¶ç¢Û—×Ùï–úq6®@¦iõ¨Óc«þUøô38íªt°Çž6U:ô %.4 0C³U@ö 06µn®ÅNs 0(u w@ 4Ý ñ mó 0C n­M ú #!y n­š NG ˆI Ñ ^ Ù 1‡å 1ulÆá 0c§þ  0gPo:¿çù‡à}gÑäýµ ²%lÑ'»=*Sø+ûK- 1‡F/èÍ/Í/Í/Í/Í/Í/Í/Í/Í/Í/ Bµ0<þ6X9`("Courier 10cpiX uÝ ƒI)ÝÝ  ÝÔ_ÔÓ ÿÿ` °œXÓà@88)ìà„Ú  Ú1Ú  Ú„(2I$©©Ý ƒ !ÝÝ  Ý*Ͼ¦ `(CG TimesScalable(<2IÊ$¤¤Ý ƒ !ÝÝ  ÝÓÓòòÓ  ÓÚ  Ú0Ú  Úóó€€#|xh«<þ6X9`("Courier 10cpiXôxþ6X@É“8Ç;X@*Ͼ¦ `(CG TimesScalable\\xϾ¦ P쉊7û\P*Ͼ¦ `(CG TimesScalable„„³Ï¾¦ P쉊7û„P*Ͼ¦ `(CG TimesScalable™Ï¾¦ P쉊7ûP($¡¡ _`UabPc€deEfgEh·ˆa()_R&P51\DOCS´…~:ÿU‹ÿÀÀÀ(ÿÿ$òòÚ  ÚÚ  Úóó«<þ6X9`("Courier 10cpiXôxþ6X@É“8Ç;X@ uÝ ƒI)ÝÝ  ÝÔ_ÔÓ ÿÿ` °œXÓà@88)ìà„Ú  Ú1Ú  Ú„˜HP LaserJet 4,ü,,,,,ü0«<þ6X9`("Courier 10cpiXôxþ6X@É“8Ç;X@ ~Ý ƒI)ÝÝ  ÝÔ_ÔÓ'°X` P ¸ °œX'Óà@88üìà„Ú  Ú7Ú  Ú„†¡ñ(Æ(5hCEKQW]cioAutoList11.1.1.1.1.1.1.1.3#37=CIQYag­­1.a.i.(1)(a)(i)1)a)a, b, c,Level 1Level 2Level 3Level 4Level 5(;3£$´´Ô2#ÔÚ  Ú0Ú  Ú.Ô3  Ôà0  à ôÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú1Ú  Úóó€€Ý  ÝÔ_ÔThe€appellants€in€these€consolidated€appeals€includeÐ ° Ðmanufacturers€of€cigarettes,€smokeless€tobacco€products,€andÏcigars.6#-Î4Quick a. ÚƒÚÚ  Ú.à0 àÛ€Û FÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú3Ú  Úóó€€Ý  ÝÔ_ÔAlthough€the€Ô_ÔFCLAAÔ_Ô€applies€only€to€cigarettes,€the€smokelessÐ ° Ðtobacco€companies€join€the€cigarette€makers'€challenge€because€theyÏcontend€that€the€regulations€may€not€be€severed€to€preserve€theÏsmokeless€tobacco€provisions€if€the€cigarette€provisions€areÏdeclared€invalid.€€We€do€not€reach€this€aspect€of€the€companiesÏargument€because€we€hold€that€the€regulations€are€not€preempted€byÏthe€Ô_ÔFCLAAÔ_Ô. 0Ý ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú4Ú  Úóó€€Ý  ÝÔ_ÔThe€district€court€did€invalidate€one€aspect€of€the€regulationsÐ ° Ðunder€the€First€Amendment,€finding€that€the€Attorney€General€hadÏfailed€to€demonstrate€that€the€point„of„sale€provisions€requiringÏindoor€advertisements€to€be€at€least€five€feet€from€the€floor€wereÏsufficiently€tailored€to€serve€the€government's€interests.€€òòSeeóóÐ Ð  ÐòòÔ_ÔLorillardÔ_Ô€IIóó,€84€F.€Supp.€2d€at€192„93.ò òó ó€€ ÝÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú2Ú  Úóó€€Ý  ÝÔ_ÔThis€aspect€of€the€district€court's€decision€has€not€beenÐ ° Ðappealed€and€therefore€is€not€before€us. }Ý ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú5Ú  Úóó€€Ý  ÝÔ_ÔBoth€the€òòFAIRóó€and€the€òòGiulianióó€courts€found€that€"tombstone"Ð ° Ðprovisions€similar€to€that€invalidated€by€the€district€court€wereÏpreempted€by€ðð€1334(b).€€òòSeeóó€òòFAIRóó,€189€F.3d€at€640;€òòGiulianióó,€195Ð @ ÐF.3d€at€108. sÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú6Ú  Úóó€€Ý  ÝÔ_ÔThe€Fourth€Circuit,€in€òòPenn€Advertisingóó,€63€F.3d€at€1324,€foundÐ ° Ðthat€Baltimore's€restrictions€on€outdoor€cigarette€advertisementsÏwere€not€preempted€by€ðð€1334(b).€€Although€we€do€not€adopt€thatÏcourt's€apparent€conclusion€that€location€restrictions€do€notÏconstitute€a€"'prohibition€based€on€smoking€and€health,'"€òòid.óó,€weÐ Ð  Ðdo€agree€with€the€general€conclusion€that€Congress€did€not€intendÏðð€1334(b)€to€preempt€restrictions€of€the€kind€at€issue€there€and€inÏthis€case. ÇÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú7Ú  Úóó€€Ý  ÝÔ_ÔWe€also€note€that€the€Ninth€Circuit,€in€òòLindseyóó,€195€F.3d€atÐ ° Ð1073,€concluded€that€a€county€ordinance€banning€all€outdoor€tobaccoÏadvertising€was€preempted€by€ðð€1334(b).€€That€court€determined€thatÏ"[Ô_Ôd]espiteÔ_Ô€the€holdings€of€òòPenn€Advertisingóó,€òòFAIRóó,€and€òòGiulianióó,Ð X Ðthe€text€of€the€Ô_ÔFCLAAÔ_Ô's€preemption€provision€clearly€preempts€a€banÏon€outdoor€advertising€because€such€a€ban€constitutes€aÏ'requirement€or€prohibition€based€on€smoking€and€health€.€.€.€withÏrespect€to€the€advertising€or€promotion€of€any€Ô_Ôcigarettes.'"Ô_Ô€€òòId.óóÐ ( x Ð(quoting€15€U.S.C.€ðð€1331).€€With€all€due€respect,€we€conclude€thatÏthe€court's€analysis€fails€to€avoid€the€"uncritical€literalism"Ïthat€the€Supreme€Court€has€cautioned€us€against,€òòTravelers€Ins.óó,Ð € Ð  Ð514€U.S.€at€656,€and€we€disagree€that€"'[t]here€is€no€good€reasonÏto€believe€that€Congress€meant€less€than€what€it€said,'"€òòLindseyóó,Ð `  Ð195€F.3d€at€1073,€in€the€phrase€"with€respect€to€advertising."€€WeÏfind€the€decisions€of€the€Second€and€Seventh€Circuits€more€in€lineÏwith€our€reading€of€Congress's€purpose,€and€more€in€line€with€ourÏunderstanding€of€the€Supreme€Court's€instructions€in€the€area€ofÏfederal€preemption. óÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú8Ú  Úóó€€Ý  ÝÔ_ÔNotwithstanding€the€tobacco€companies'€cries€of€mistreatment,Ð ° Ðthe€context€in€which€the€Massachusetts€regulations€were€promulgatedÏsimply€does€not€compare€to€that€surrounding€the€suppression€ofÏspeech€in€òòAIDS€Action€Committeeóó.€€In€that€case,€the€suppression€wasÐ X Ðdirected€at€a€group€advocating€sexual€health€practices,Ïparticularly€with€regard€to€AIDS€„„€an€issue€that€evokes€deepÏfeelings€and€often€prejudices€in€our€society.€€Furthermore,€theÏsuppression€of€speech€in€òòAIDS€Action€Committeeóó,€which€was€done€withÐ ( x Ðno€contemporaneous€explanation€of€reasons€or€basis,€also€came€afterÏa€previous€ad€campaign€had€provoked€public€complaints€whichÏincluded€a€substantial€display€of€homophobia.€€òòSeeóóòòAIDS€ActionÐ € Ð  ÐCommitteeóó,€42€F.3d€at€3.€€We€found€those€particular€circumstancesÐ H ˜  Ðto€give€rise€to€a€presumption€of€viewpoint€discrimination,€but€weÏdid€not€suggest€that€ordinary€commercial€speech€regulations,€suchÏas€those€at€issue€in€this€case,€would€give€rise€to€a€similarÏpresumption€absent€comparable€circumstances,€which€are€simply€notÏpresent€here. Ý ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú9Ú  Úóó€€Ý  ÝÔ_ÔThe€study€also€sheds€light€on€the€FDA's€decision€to€not€regulateÐ ° Ðcigars€when€it€regulated€cigarettes€and€smokeless€tobacco€in€1996ò òó ó,Ð xÈ Ðabstention€much€touted€by€the€cigar€companies€in€their€briefs.€ÏAccording€to€the€monologue,€data€on€youth€cigar€usage€was€largelyÏunavailable€until€recently.€€òòSeeóó€òòCigars:€Effects€and€Trendsóó,€JointÐ Ð  ÐAppendix€at€2598.ò òó ó bÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú10Ú  Úóó€€Ý  ÝÔ_ÔTo€be€sure,€the€companies€have€presented€studies€in€which€noÐ ° Ðcorrelation€or€causal€relationship€was€found€between€advertisingÏand€tobacco€use.€€They€also€are€critical€of€several€of€the€studiesÏcited€by€the€Attorney€General.€€However,€the€fact€that€there€mayÏexist€differences€of€opinion€on€this€issue€is€insufficient€toÏdeprive€Massachusetts€of€its€ability€to€enact€regulations€based€onÏa€well„founded€conclusion€that€advertising€restrictions€will€reduceÏtobacco€use€among€young€people. ±Ý ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú11Ú  Úóó€€Ý  ÝÔ_ÔWe€are€not€persuaded€that€the€regulations€further€the€state'sÐ ° Ðinterest€in€prohibiting€the€dispersion€of€false€and€misleadingÏinformation€to€consumers.€€However,€because€the€other€interestsÏidentified€by€the€Attorney€General€are€directly€advanced,€thisÏfailure€does€not€require€invalidation€of€the€regulations. IÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú12Ú  Úóó€€Ý  ÝÔ_ÔCongress€prohibited€such€advertising€of€cigarettes€and€littleÐ ° Ðcigars€in€1971,€òòseeóó€15€U.S.C.€ðð€1335,€and€of€smokeless€tobaccoÐ xÈ Ðproducts€in€1986,€òòseeóó€15€U.S.C.€ðð€4402(f). ñÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú13Ú  Úóó€€Ý  ÝÔ_ÔWe€do€note€that,€even€under€the€district€court's€decision,€whichÐ ° Ðwas€premised€on€the€content„based€nature€of€the€tombstoneÏprovision,€the€Commonwealth€remains€able€to€promulgate€a€newÏexception€provision€that€does€not€dictate€the€content€of€a€smallÏinformation€sign€communicating€to€legitimate€customers€theÏavailability€of€tobacco€products,€if€the€Commonwealth€so€desires.(š½CEKQW]cioAutoList2iiiiiiiiiiiiiiii ÞÝ ƒIÊ$ÝÓÓòòÓ  ÓÚ  Ú14Ú  Úóó€€Ý  ÝÔ_ÔOn€their€face,€the€regulations€arguably€impose€liability€on€theÐ ° Ðprint€and€Internet€media,€as€well. dÝ ƒ !ÝÝ  ÝÔ_ÔÓ  ÓÓ ÿÿ` °œXÓÖ€ÿÿÖÑ = ÑÙ*ƒ !ÙÔ€XóXXXÔÔ_Ôà@  ìàÔ€°س°XXóÔUnited€States€Court€of€AppealsˆÐ ° Ðà@ ìàÔ€„îÒ„°°سÔFor€the€First€CircuitˆÐ à ÐÔ€XóX„„îÒÔÔ€XNíXXXóÔÓ ÿÿ` ÿÿXÓà@<< 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ìàTOBACCO€EXPORTERS€INTERNATIONAL€(USA)€LTD.;ˆÌà@ÄÄìàPlaintiffs,€Appellees,ˆÌÌà@tt)ìàv.ˆÌÌà@P P ìàTHOMAS€F.€REILLY,€ATTORNEY€GENERAL€OF€THEˆÌà@ä ä ìàCOMMONWEALTH€OF€MASSACHUSETTS,ˆÌà@ ìàDefendant,€Appellant.ˆÌÌà@<< ìà____________________ˆÌÌà@¤¤#ìàUNITED€STATES,ˆÌà@ðð"ìàInterested€Party.ˆÌÌà@<< ìà____________________ˆÌÌNos.€00„1271Ìà  à00„1272Ìà  à00„1275ÌÌà@Ô Ô ìàÔ_ÔLORILLARDÔ_Ô€TOBACCO€COMPANY;ˆÌà@È È ìàBROWN€&€WILLIAMSON€TOBACCO€CORPORATION;ˆÌà@ä ä ìàÔ_ÔR.J.Ô_Ô€REYNOLDS€TOBACCO€COMPANY;ˆÌà@øøìàPHILIP€MORRIS,€INC.;€UNITED€STATES€TOBACCO€COMPANY;ˆÌà@¨ ¨ ìàCONSOLIDATED€CIGAR€CORPORATION;ˆÌà@P P ìàGENERAL€CIGAR€CO.,€INC.;€à@@  ìàÔ_ÔHAVATAMPAÔ_Ô,€INC.;ˆÌà@` ` ìàJOHN€Ô_ÔMIDDLETONÔ_Ô,€INC.;€Ô_ÔL.J.Ô_Ô€Ô_ÔPERETTIÔ_Ô€CO.,€INC.;ˆÌà@ô ô ìàSWEDISH€MATCH€NORTH€AMERICA,€INC.;ˆÌà@\ \ ìàÔ_ÔSWISHERÔ_Ô€INTERNATIONAL,€INC.;ˆÌà@Ø Ø ìàTOBACCO€EXPORTERS€INTERNATIONAL€(USA)€LTD.;ˆÌà@ÄÄìàPlaintiffs,€Appellees,ˆÌÌà@tt)ìàv.ˆÌÌà@P P ìàTHOMAS€F.€REILLY,€ATTORNEY€GENERAL€OF€THEˆÌà@ä ä ìàCOMMONWEALTH€OF€MASSACHUSETTS,ˆÌà@ ìàDefendant,€Appellant.ˆÌÌà@<< ìà____________________ˆÌÌà@¤¤#ìàUNITED€STATES,ˆÌà@ðð"ìàInterested€Party.ˆÐ ˆ,Ø'3 Їà@<< ìà____________________ˆÌÌNo.€00„1273ÌÌà@Ô Ô ìàÔ_ÔLORILLARDÔ_Ô€TOBACCO€COMPANY;ˆÌà@È È ìàBROWN€&€WILLIAMSON€TOBACCO€CORPORATION;ˆÌà@ä ä ìàÔ_ÔR.J.Ô_Ô€REYNOLDS€TOBACCO€COMPANY;ˆÌà@øøìàPHILIP€MORRIS,€INC.;€UNITED€STATES€TOBACCO€COMPANY;ˆÌà@¨ ¨ ìàCONSOLIDATED€CIGAR€CORPORATION;ˆÌà@  ìàÔ_ÔHAVATAMPAÔ_Ô,€INC.;€JOHN€Ô_ÔMIDDLETONÔ_Ô,€INC.;ˆÌà@TT ìàÔ_ÔL.J.Ô_Ô€Ô_ÔPERETTIÔ_Ô€CO.,€INC.;€SWEDISH€MATCH€NORTH€AMERICA,€INC.;ˆÌà@\ \ ìàÔ_ÔSWISHERÔ_Ô€INTERNATIONAL,€INC.;ˆÌà@Ø Ø ìàTOBACCO€EXPORTERS€INTERNATIONAL€(USA)€LTD.;ˆÌà@<< ìàPHILIP€MORRIS,€INC.;ˆÌà@ÄÄìàPlaintiffs,€Appellees,ˆÌÌà@tt)ìàv.ˆÌÌà@P P ìàTHOMAS€F.€REILLY,€ATTORNEY€GENERAL€OF€THEˆÌà@ä ä ìàCOMMONWEALTH€OF€MASSACHUSETTS,ˆÌà@ ìàDefendant,€Appellant.ˆÌÌà@<< ìà____________________ˆÌÌà@¤¤#ìàUNITED€STATES,ˆÌà@ðð"ìàInterested€Party.ˆÌÌà@<< ìà____________________ˆÌÌNo.€00„1274ÌÌà@ÌÌìàCONSOLIDATED€CIGAR€CORPORATION;€GENERAL€CIGAR€CO.,€INC.;ˆÌà@  ìàÔ_ÔHAVATAMPAÔ_Ô,€INC.;€JOHN€Ô_ÔMIDDLETONÔ_Ô,€INC.;ˆÌà@¼¼ìàÔ_ÔL.J.Ô_Ô€Ô_ÔPERETTIÔ_Ô€CO.,€INC.;€Ô_ÔSWISHERÔ_Ô€INTERNATIONAL,€INC.;ˆÌà@Ø Ø ìàTOBACCO€EXPORTERS€INTERNATIONAL€(USA)€LTD.;ˆÌà@ô ô ìàSWEDISH€MATCH€NORTH€AMERICA,€INC.;ˆÌà@èèìàÔ_ÔLORILLARDÔ_Ô€TOBACCO€COMPANY;€à@@øøìàPHILIP€MORRIS,€INC.;ˆÌà@ä ä ìàÔ_ÔR.J.Ô_Ô€REYNOLDS€TOBACCO€COMPANY;ˆÌà@È È ìàBROWN€&€WILLIAMSON€TOBACCO€CORPORATION;ˆÌà@ä ä ìàUNITED€STATES€TOBACCO€COMPANY;ˆÌà@ÄÄìàPlaintiffs,€Appellees,ˆÌÌà@tt)ìàv.ˆÌÌà@P P ìàTHOMAS€F.€REILLY,€ATTORNEY€GENERAL€OF€THEˆÌà@ä ä ìàCOMMONWEALTH€OF€MASSACHUSETTS,ˆÌà@ ìàDefendant,€Appellant.ˆÌÌà@<< ìà____________________ˆÐ  0*€%0 ÐÔ_Ôà@¤¤#ìàUNITED€STATES,ˆÌà@ðð"ìàInterested€Party.ˆÌÌà@<< ìà____________________ˆÌÌà@` ` ìàAPPEALS€FROM€THE€UNITED€STATES€DISTRICT€COURTˆÌÌà@0 0 ìàFOR€THE€DISTRICT€OF€MASSACHUSETTSˆÌÌà@œ œ ìà[Hon.€William€G.€Young,€òòU.S.€District€Judgeóó]ˆÐ ¸   ÐÌà@<< ìà____________________ˆÌÌà@„„'ìàBeforeˆÌÌà@ˆˆìàTorruella,€òòChief€Judgeóó,ˆÐ h¸  ÐÌà@ ìàBownes,€òòSenior€Circuit€Judgeóó,ˆÐ øH  ÐÌà@ìàand€Lipez,€òòCircuit€Judgeóó.ˆÐ ˆØ ÐÌà@ ìà_____________________ˆÌÌà  àòòJames€V.€Kearneyóó,€with€whom€òòLatham€&€Watkinsóó,€òòPeter€G.€Hermesóó,Ð ¨ø ÐòòPeter€C.€Netburnóó€and€òòHermes,€Netburn,€O'Connor€&€Spearing,€P.C.óóÐ pÀ Ðwere€on€brief,€for€appellants€Consolidated€Cigar€Corp.,€GeneralÏCigar€Co.,€Inc.,€Havatampa,€Inc.,€John€Middleton,€Inc.,€L.J.ÏPeretti€Co.,€Inc.,€Swedish€Match€North€America,€Inc.,€SwisherÏInternational,€Inc.€and€Tobacco€Exporters€International€(USA)€Ltd.Ìà  àòòHenry€C.€Dinger,€P.C.óó,€with€whom€òòCerise€Lim„Epsteinóó,€òòGoodwin,Ð X¨ ÐProcter€&€Hoar,€LLPóó,€òòVerne€W.€Vance,€Jr.óó,€òòJohn€H.€Hennóó,€òòFoley,€HoagÐ  p Ð&€Eliotóó,€òòAndrew€S.€Krulwichóó,€òòThomas€W.€Kirbyóó,€òòDaniel€E.€Troyóó,Ð è8 ÐòòWilliam€A.€McGrathóó,€òòWiley€Rein€&€Fieldingóó,€òòRichard€M.€Zielinskióó,Ð °  ÐòòRobert€D.€Ryanóó,€òòHill€&€Barlowóó,€òòJohn€B.€Connarton,€Jr.€P.C.óó,€òòCarol„Ð xÈ! ÐLynn€M.€Bearóó,€òòConnarton,€Wood€&€Callahanóó.€òòClausen€Elyóó,€òòPatricia€A.Ð @" ÐBaraldóó€and€òòCovington€&€Burlingóó€were€on€brief,€for€appellants€PhilipÐ  X# ÐMorris€Incorporated,€Brown€&€Williamson€Tobacco€Corporation,ÏLorillard€Tobacco€Company€and€R.J.€Reynolds€Tobacco€Co.Ìà  àòòGeorge€J.€Skellyóó,€with€whom€òòMichael€D.€Blanchardóó,€òòEric€S.Ð `"°& ÐSarneróó€and€òòSkadden,€Arps,€Slate,€Meagher€&€Flom€LLPóó€were€on€brief,Ð (#x' Ðfor€appellant€United€States€Tobacco€Company.Ìà  àòòSteven€G.€Brodyóó,€òòCadwalader,€Wickersham€&€Taftóó€and€òòGilbert€H.Ð ¸$ ) ÐWeilóó€on€brief,€for€Association€of€National€Advertisers,€Inc.,Ð €%Ð * Ðamicus€curiae.Ìà  àòòDaniel€J.€Popeoóó,€òòRichard€A.€Sampóó€and€òòWashington€LegalÐ '`", ÐFoundationóó€on€brief,€for€Washington€Legal€Foundation,€amicusÐ Ø'(#- Ðcuriae.Ìà  àòòWilliam€W.€Porter,€CAóó,€Assistant€Attorney€General,€with€whomÐ h)¸$/ ÐòòSusan€Paulson,€CAóó,€Assistant€Attorney€General,€was€on€brief,€forÐ 0*€%0 ÐÔ_Ôappellee.Ð  ø*H&1 Ðà  àòòDouglas€N.€Letteróó,€Appellate€Litigation€Counsel,€CivilÐ ° ÐDivision,€U.S.€Department€of€Justice,€with€whom€òòDavid€W.€Ogdenóó,Ð xÈ ÐActing€Assistant€Attorney€General,€and€òòDonald€K.€Sternóó,€UnitedÐ @ ÐStates€Attorney,€were€on€brief,€for€the€United€States,€amicusÏcuriae.Ìà  àòòBrian€Wolfmanóó,€òòDavid€C.€Ô_ÔVladeckÔ_Ôóó,€òòRichard€J.€Whitneyóó,€òòÔ_ÔSpeirÔ_Ô€&Ð ˜è ÐWhitneyóó,€òòGeorge€A.€Hackeróó,€òòDonald€W.€Garneróó,€òòMichael€L.€Ileóó,Ð ` ° ÐòòAnneM.€Murphyóó€and€òòLeonard€A.€Nelsonóó€on€brief,€for€American€MedicalÐ ( x ÐAssociation,€American€Heart€Association,€American€Lung€Association,ÏAmerican€Cancer€Society,€Center€for€Science€in€the€Public€Interest,ÏPublic€Citizen,€Inc.€and€the€Massachusetts€Medical€Society,€amiciÏcuriae.Ìà@<< ìà____________________ˆÌÌñcñà@àà$ìàñcññdñJuly€1ñdññgññdñ4,€ñdññgññhñ7,€Ô_Ô2000ñhññgññdñ2ñdññgññeññdñ3ñdññeññgññfñ000ñfññgñÔ_ÔˆÌà@<< ìà____________________ˆÐ  h¸  ÐÔ_ÔÑ  ÑÓÓÖ€ÈÖÙ* !ÙÓ*°,X°` P „XÿÿX*Óà ` àò òTORRUELLA,€òòChief€Judgeóó.ó ó€€Before€the€Court€is€a€challengeÐ ° Ðto€regulations€promulgated€by€the€Attorney€General€of€MassachusettsÏwhich€restrict€the€sale,€promotion,€and€labeling€of€tobaccoÏproducts€in€an€effort€to€reduce€the€use€of€such€products€by€minors.€ÏThree€groups€of€tobacco€companies׃×Ý ƒÿÿÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€have€sued€the€Attorney€General,Ð @  Ðclaiming€that€the€Massachusetts€regulations€are€partially€preemptedÏby€federal€law,€that€the€regulations€violate€their€First€AmendmentÏright€to€free€speech,€and€that€the€regulations€violate€the€CommerceÏClause€of€the€Constitution.€€After€due€consideration€of€theÏarguments€pressed€by€all€parties€and€by€amici€curiae,€and€with€fullÏappreciation€of€the€importance€of€the€public€health€issueÏunderlying€this€case,€we€conclude€(1)€that€the€regulations€are€notÏpreempted€by€federal€law,€(2)€that€the€regulations€do€not€violateÏthe€First€Amendment,€and€(3)€that€parts€of€the€regulationsÏunconstitutionally€burden€interstate€commerce.€€Accordingly,€weÏaffirm€in€part€and€reverse€in€part€the€decision€of€the€districtÏcourt.Ìò òI.€€Factual€and€Procedural€Backgroundó óÐ à" Ðà ` àOn€January€22,€1999,€the€Attorney€General€ofÏMassachusetts€promulgated€regulations€now€codified€at€title€940,Ïsections21.00€through€21.07€(cigarettes€and€smokeless€tobacco)€andÏtitle€940,€sections€22.00€through€22.09€(cigars)€of€theÏMassachusetts€Code€of€Regulations.€€The€regulations€declare€certainÐ °'#, Ðtypes€of€conduct€by€manufacturers,€distributors,€and€sellers€ofÏtobacco€products€to€be€òòper€seóó"unfair€or€deceptive€acts€orÐ @ Ðpractices"€prohibited€under€chapter€93A,€ðð€2(a)€of€theÏMassachusetts€General€Laws.€€For€example,€the€regulations€prohibitÏa€number€of€retail€practices€including€promotional€give„aways€andÏmail€ordering€without€age€verification,€òòseeóó€940€C.M.R.€ðððð€21.04(1),Ð € Ð  Ð22.06(1),€as€well€as€measures€aimed€specifically€at€outlet€salesÏpractices,€òòseeóó€òòid.óó€ðððð€21.04(2)„(3),€22.06(2)„(3).€€Of€particularÐ  ð  Ðconcern€to€the€tobacco€companies,€the€Massachusetts€regulationsÏalso€prohibit€the€following€advertising€practices:ÌÓÓà8 ` à(a)€Outdoor€advertising,€including€advertisingÏin€enclosed€stadiums€and€advertising€fromÏwithin€a€retail€establishment€that€is€directedÏtoward€or€visible€from€the€outside€of€theÏestablishment,€in€any€location€that€is€withinÏa€1,000€foot€radius€of€any€public€playground,Ïplayground€area€in€a€public€park,€elementaryÏschool€or€secondary€school;Ð ` x` x ÐÌà8 ` à(b)€Point„of„sale€advertising€.€.€.€anyÏportion€of€which€is€placed€lower€than€fiveÏfeet€from€the€floor€of€any€retailÏestablishment€accessible€to€persons€youngerÏthan€18€years€old,€which€is€located€within€aÏ1,000€foot€radius€of€any€public€playground,Ïplayground€area€in€a€public€park,€elementaryÏschool€or€secondary€school.Ð ` x` x ÐÌÓÓòòId.óó€ðððð€21.04(5),€22.06(5).€€A€single€exception€to€the€advertisingÐ `"°& Ðban€permitted€the€display€of€a€so„called€"tombstone"€sign€statingÏ"Tobacco€products€sold€here,"€òòseeóó€òòid.óó€ðððð€21.04(6),€22.06(6),€butÐ €%Ð * Ðthis€provision€was€struck€down€by€the€district€court€on€preemptionÏgrounds.׃ ×Ý ƒÿÿÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×€€Finally,€the€regulations€also€prescribe€mandatoryÐ  (ð#. Ðwarning€statements€to€be€included€on€all€cigar€labeling€andÏadvertising.€€òòSeeóó€òòid.óó€ðððð€22.04,€22.05.Ð @ Ðà ` àIn€response€to€the€promulgation€of€the€regulations,€threeÏseparate€suits€were€filed€in€federal€district€court€by€theÏappellants€in€this€consolidated€appeal,€who€are€makers€and€sellersÏof€cigarettes,€smokeless€tobacco€products,€and€cigars.€€TheÏcigarette€and€smokeless€tobacco€companies€claimed€that€theÏMassachusetts€regulations€were€preempted€by€the€Federal€CigaretteÏLabeling€and€Advertising€Act€(FCLAA),€codified€as€amended€at€15ÏU.S.C.€ðððð€1331„41,€and€that€the€regulations€violated€theirÏcommercial€speech€rights€under€the€First€Amendment.׃×Ý ƒÿÿÝòòÚ  Ú3Ú  ÚóóÝ  Ý×  ×€€The€cigarÐ P  Ðcompanies€also€challenged€the€regulations€on€First€AmendmentÏgrounds,€as€well€as€claiming€that€the€regulations€imposed€an€undueÏburden€on€interstate€commerce€in€violation€of€the€Commerce€Clause.€ÏIn€an€opinion€issued€December2,€1999,€the€district€court€rejectedÏthe€preemption€arguments€of€the€cigarette€and€smokeless€tobaccoÏproducers.€€òòSeeóó€òòLorillard€Tobacco€Co.óó€v.€òòReillyóó,€76€F.€Supp.€2d€124Ð °  Ð(D.€Mass.€1999)€(òòLorillard€Ióó).€€In€a€January€24,€2000€opinion,€theÐ @" Ðdistrict€court€likewise€rejected€the€tobacco€companies'€FirstÏAmendment€claims,€as€well€as€the€cigar€makers'€Commerce€ClauseÏâ âchallenge.€€òòSeeóó€òòLorillard€Tobacco€Co.óó€v.€òòReillyóó,€84€F.€Supp.€2d€180Ð ð#@( Ð(D.€Mass.€2000)€(òòLorillard€IIóó).׃×Ý ƒÿÿÝòòÚ  Ú4Ú  ÚóóÝ  Ý×  ×€€Judgment€was€entered€onÐ ° Ðâ âJanuary25,€2000€in€favor€of€the€Attorney€General,€and€this€appealÏfollowed.Ìà ` àOn€appeal,€the€tobacco€companies€raise€the€followingÏissues:€(1)€whether€the€Massachusetts€regulations€are€preempted€byÏfederal€law,€(2)€whether€the€regulations'€advertising€restrictionsÏviolate€the€First€Amendment,€(3)€whether€certain€restrictionsÏimposed€on€retail€practices€violate€the€First€Amendment,€(4)€and€Ïwhether€the€regulations'€cigar€warnings€requirements€violate€theÏFirst€Amendment€and€the€Commerce€Clause.€€The€Attorney€GeneralÏcross„appeals€one€issue€„„€whether€the€regulations'€indoorÏadvertising€restrictions€violate€the€First€Amendment.Ìò òII.€€Law€and€Applicationó óÐ pÀ Ðò òà ` àA.€€Preemptionó óÐ P  Ðà ` àà P àò ò1.€€òòIntroductionó óóóÐ 0€ Ðà ` àThe€Supreme€Court€has€explained€the€analysis€forÏdetermining€when€a€state€regulation€is€preempted€by€a€federal€lawÏthat€contains€specific€preemption€language.€€In€òòMedtronic,€Inc.óó€v.Ð 0 €" ÐòòLohróó,€518€U.S.€470,€484„86€(1996),€the€Court€stated€that,€toÐ À!$ Ðidentify€the€domain€expressly€preempted€by€the€federal€statute,€twoÏpresumptions€about€the€nature€of€preemption€must€be€considered.€Ð à$0 ( ÐFirst,€particularly€when€Congress€has€"'legislated€.€.€.€in€a€fieldÏwhich€the€States€have€traditionally€occupied,'€we€'start€with€theÏassumption€that€the€historic€police€powers€of€the€States€were€notÏto€be€superseded€by€the€Federal€Act€unless€that€was€the€clear€andÏmanifest€purpose€of€Congress.'"€€òòId.óó€at€485.€€Second,€inÐ ð @ Ðdetermining€the€scope€of€the€federal€preemption,€the€"ultimateÏtouchstone"€is€Congress's€purpose€as€"discerned€from€the€languageÏof€the€pre„emption€statute€and€the€'statutory€framework'Ïsurrounding€it."€€òòId.óó€at€486.€€In€this€respect,€it€is€relevant€toÐ 0€  Ðconsider€the€"'structure€and€purpose€of€the€statute€as€a€whole,'€asÏrevealed€not€only€in€the€text,€but€through€the€reviewing€court'sÏreasoned€understanding€of€the€way€in€which€Congress€intended€theÏstatute€and€its€surrounding€regulatory€scheme€to€affect€business,Ïconsumers,€and€the€law."€€òòId.óóÐ P Ðà ` àThe€tobacco€companies€argue,€rather€weakly€we€might€say,Ïthat€the€"presumption€against€preemption"€should€not€be€applied€inÏthis€case€because€the€presumption€"is€not€triggered€when€the€StateÏregulates€in€an€area€where€there€has€been€a€history€of€significantÏfederal€presence."€€òòUnited€Statesóó€v.€òòLockeóó,€120€S.€Ct.€1135,€1147Ð Ð $ Ð(2000).€€However,€as€the€Court€noted€in€òòLockeóó,€the€area€at€issueÐ `"°& Ðthere€„„€maritime€commerce€„„€is€one€in€which€"Congress€hasÏlegislated€from€the€earliest€days€of€the€Republic,€creating€anÏextensive€federal€statutory€and€regulatory€scheme."€€òòId.óó€at€1148.€Ð '`", ÐWe€have€little€difficulty€distinguishing€the€historically€pervasiveÏfederal€regulation€of€fields€such€as€maritime€commerce,€òòseeóó,€òòe.g.óó,Ð 0*€%0 ÐòòKellyóó€v.€òòWashingtonóó,€302€U.S.€1,€4€(1937)€("The€federal€acts€andÐ À+'2 Ðregulations€with€respect€to€vessels€on€the€navigable€waters€of€theÏUnited€States€are€elaborate.€€They€were€well€described€in€theÏargument€of€the€Assistant€Solicitor€General€as€a€maze€ofÏregulation."),€from€Congress's€relatively€recent€entry€into€theÏregulation€of€the€tobacco€industry.€€The€thirty„five€years€thatÏhave€passed€since€passage€of€the€FCLAA,€with€its€limited€scope€whenÏcompared€to€federal€regulation€of€fields€such€as€maritime€commerce,Ïcan€hardly€serve€as€a€basis€for€supplanting€the€traditional€stateÏauthority€in€matters€of€public€health,€particularly€that€of€minors.€ÏòòSeeóóòòMedtronicóó,€518€U.S.€at€475€("Throughout€our€history€the€severalÐ À ÐStates€have€exercised€their€police€powers€to€protect€the€health€andÏsafety€of€their€citizens.€€Because€these€are€'primarily,€andÏhistorically,€.€.€.€matters€of€local€concern,'€the€'StatesÏtraditionally€have€had€great€latitude€under€their€police€powers€toÏlegislate€as€to€the€protection€of€the€lives,€limbs,€health,Ïcomfort,€and€quiet€of€all€persons.'"€(citations€omitted)).€€TheÏ"presumption€against€preemption"€applies€with€full€force€to€thisÏcase.Ìà ` àWe€turn,€therefore,€to€our€task€of€identifying€"theÏdomain€expressly€preempted"€by€ðð€1334(b),€òòid.óó€at€484,€keeping€inÐ `"°& Ðmind€(1)€the€presumption€that€Congress€does€not€intend€to€supplantÏstate€regulation€in€the€area€of€public€health€and€the€health€ofÏminors€without€a€clear€and€manifest€indication€of€such€preemptoryÏpurpose,€òòseeóó€òòid.óó€at€485ò òó ó,€and€(2)€that€our€decision€must€"restÐ  (ð#. Ðâ âprimarily€on€a€'fair€understanding€of€congressional€purpose,'"€asÐ 0*€%0 Ðinformed€by€the€text,€€the€statutory€framework,€and€the€purpose€ofÏthe€FCLAA€as€a€whole,€òòid.óó€at€486.Ð @ Ðâ âà ` àà P àò ò2.€€òòThe€Preemptive€Scope€of€ðð€1334(b)ó óóóÐ Ð  Ðà ` àSection€1334(b)€of€the€FCLAA€states€that€"No€requirementÏor€prohibition€based€on€smoking€and€health€shall€be€imposed€underÏState€law€with€respect€to€the€advertising€or€promotion€of€anyÏcigarettes€the€packages€of€which€are€labeled€in€conformity€with€theÏprovisions€of€this€chapter."€€15€U.S.C.€ðð€1334(b).€€To€date,€fourÏother€federal€courts€of€appeals€have€addressed€the€preemptive€scopeÏof€this€provision.€€òòSeeóó€òòLindseyóó€v.€òòTacoma„Pierce€County€HealthÐ ` ÐDep'tóó,€195€F.3d€1065€(9th€Cir.€1999);€òòGreater€New€York€Metro.€FoodÐ  ð ÐCouncilóó€v.€òòGiulianióó,€195€F.3d€100€(2d€Cir.€1999);€òòFederation€ofÐ 0€ ÐAdvertising€Indus.€Representatives,€Inc.óó€v.€òòCity€of€Chicagoóó,€189Ð À ÐF.3d€633€(7th€Cir.€1999)€("òòFAIRóó");€òòPenn€Advertising€of€Baltimore,Ð P  ÐInc.óó€v.€òòMayor€&€City€Council€of€Baltimoreóó,€63€F.3d€1318€(4th€Cir.Ð à0 Ð1995).€€We€find€the€Second€and€Seventh€Circuits'€decisions€inÏòòGiulianióó€and€òòFAIRóó€to€be€particularly€helpful.Ð P  Ðà ` àIn€òòGiulianióó,€the€United€States€Court€of€Appeals€for€theÐ à" ÐSecond€Circuit€focused€on€the€ambiguity€in€the€phrase€"with€respectÏto"€advertising€and€promotion.€€òòSeeóó€òòGiulianióó,€195€F.3d€at€105.€€AsÐ °"& Ðthe€court€noted,€a€"hyper„literal"€reading€of€that€phrase€wouldÏpreempt€a€range€of€state€regulation€which€Congress€surely€did€notÏintend€to€affect.€€òòId.óó€€For€example,€"it€could€divest€states€andÐ `'°", Ðmunicipalities€of€authority€to€prevent€tobacco€advertisers€fromÏposting€their€ads€in€public€buildings€even€though€smoking€isÏlegally€prohibited€there.€€Or€.€.€.€it€could€lead€to€the€conclusionÐ ,`'2 Ðthat€'states€[are]€without€power€to€prohibit€a€cigarette€companyÏfrom€handing€out€free€cigarettes€in€an€elementary€school€yard.'"ÏòòId.óó€(citing€òòFAIRóó,€189€F.3d€at€633).Ð Ð  Ðà ` àGiven€the€ambiguity€of€the€preemption€provision,€theÏSecond€Circuit€endeavored€to€discern€Congress's€intent€in€enactingÏðð€1334(b).€€Relying€on€the€FCLAA's€statement€of€purpose€at€15ÏU.S.C.€ðð€1331,€the€court€reached€two€conclusions€regarding€theÏintended€scope€of€ðð€1334(b):€€first,€that€Congress€sought€to€informÏthe€public€of€the€health€risks€associated€with€smoking,€and€second,Ïthat€while€so€informing€the€public€Congress€also€sought€to€protectÏthe€national€economy€from€the€burdens€that€would€result€from€aÏmultitude€of€"'diverse,€nonuniform,€and€confusing'€advertisingÏstandards."€€òòSeeóó€òòGiulianióó,€195€F.3d€at€106.€€The€court€logicallyÐ pÀ Ðconcluded€that€ðð€1334(b)'s€preemption€provision€was€intended€toÏfurther€that€congressional€balance€by€preempting€state€regulationsÏthat€would€frustrate€federal€law€by€creating€a€"'multiplicity€ofÏconflicting€regulations.'"€€òòId.óóÐ °  Ðà ` àApplying€this€reading€of€ðð€1334(b)€to€a€1000„foot€ruleÏessentially€identical€to€that€imposed€by€the€MassachusettsÏregulations,€the€court€found€that€the€regulation€was€not€preemptedÏby€the€FCLAA€because€it€"[did]€not€impose€obligations€'with€respectÏto'€advertising€as€that€phrase€is€used€in€ðð€1334(b)."€€òòId.óó€at€109.€Ð €%Ð * ÐThe€court€found€that€the€1000„foot€restriction€"do[es]€not€touchÏupon€Congress's€'comprehensive€Federal€program'€to€controlÏcigarette€advertising€information.€€The€restrictions€do€not,€forÏexample,€burden€advertisers€with€a€duty€to€warn.€€Nor€do€theyÐ À+'2 Ðimpose€content€and€format€requirements€on€advertising€information."€ÏòòId.óó€€Although€the€court€did€recognize€that€different€states€andÐ @ Ðmunicipalities€might€impose€differing€regulations€with€regard€toÏthe€location€of€tobacco€advertising,€"[d]ivergent€local€zoningÏrestrictions€on€the€location€of€sign€advertising€are€a€commonplaceÏfeature€of€the€national€landscape€and€cigarette€advertisers€haveÏalways€been€bound€to€observe€them."€€òòId.óóÐ `  Ðà ` àFinally,€the€court€in€òòGiulianióó€also€emphasized€that€"theÐ  ð  Ðpresumption€against€preemption€is€particularly€strong€here,€asÏthese€provisions€are€the€sort€thought€to€lie€within€the€heartlandÏof€the€states'€historic€powers."€€òòId.óó€(citing€òòMedtronicóó,€518€U.S.Ð P  Ðat€485).€€Both€zoning€regulations€and€regulations€directed€at€theÏsafety€and€welfare€of€minors,€the€court€said,€"lie€peculiarlyÏwithin€the€states'€historic€police€powers."€€òòId.óó€(citing€òòPackerÐ P ÐCorp.óó€v.€òòUtahóó,€285€U.S.€105,€111€(1932)€(zoning€restrictions€onÐ à Ðcigarette€advertising),€and€òòToy€Mfrs.€of€America,€Inc.óó€v.Ð  p ÐòòBlumenthalóó,€986€F.2d€615,€620€(2d€Cir.€1992)).€€Far€from€the€clearÐ °  Ðand€manifest€intent€required€to€preempt€state€regulation€in€suchÏareas,€the€court€noted€that€the€legislative€history€of€ðð€1334(b)Ïsuggests€that€Congress€specifically€intended€to€give€suchÏtraditional€state€laws€"wide€berth."€€òòId.óó€at€10€(citing€S.€Rep.€No.Ð ð#@( Ð91„566,€òòreprinted€inóó1970€U.S.C.C.A.N.€at€2663).€€Based€on€theÐ €%Ð * Ðforegoing,€the€Second€Circuit€held€that€the€1000„foot€restrictionÏwas€not€preempted€by€the€FCLAA.Ìà ` àThe€United€States€Court€of€Appeals€for€the€SeventhÏCircuit€used€a€similar€analysis€to€find€that€ðð€1334(b)€did€notÐ À+'2 Ðpreempt€Chicago€regulations€restricting€the€advertising€ofÏcigarettes€and€alcoholic€beverages.€€Relying€largely€on€the€SupremeÏCourt's€decision€in€òòNew€York€State€Conference€of€Blue€Cross€&€BlueÐ Ð  ÐShield€Plansóó€v.€òòTravelers€Insuranceóó,€514€U.S.€645€(1995),€in€whichÐ ` ° Ðthe€court€considered€the€similar€preemption€provision€of€theÏEmployee€Retirement€Income€Security€Act€(ERISA),€the€SeventhÏCircuit€concluded€that€"[i]f€the€FCLAA€language€('with€respect€toÏadvertising€and€promotion')€were€viewed€with€an€'uncriticalÏliteralism,'€the€effect€would€be€to€'read€Congress's€words€ofÏlimitation€as€mere€sham,€and€to€read€the€presumption€against€pre„¼emption€out€of€the€law€whenever€Congress€speaks€to€the€matter€withÏgenerality.'"€€òòFAIRóó,€189€F.3d€at€637€(quoting€òòTravelers€Ins.óó,€514Ð à0 ÐU.S.€at€656).Ìà ` àAs€in€òòGiulianióó,€the€òòFAIRóó€court€then€turned€to€anÐ P Ðexamination€of€the€legislative€history€and€overall€scheme€of€theÏFCLAA€and€ðð€1334(b)€to€discern€the€intended€scope€of€the€preemptionÏprovision.€€òòSeeóó€òòid.óó€(relying€on€òòCipolloneóó€v.€òòLiggett€Group,€Inc.óó,Ð °  Ð505€U.S.€504€(1992),€and€òòMedtronicóó,€518€U.S.€at€484„85).€€AfterÐ @" Ðexamining€the€statement€of€purpose€found€in€ðð€1331€and€theÏlegislative€history€of€ðð€1334(b),€the€court€concluded:ÌÓÓà8 ` àWe€therefore€must€read€the€language€of€theÏFCLAA€preemption€provision€in€light€ofÏCongress's€desire€not€only€to€ensureÏuniformity€of€regulation€with€respect€toÏmatters€of€labeling€and€advertising,€but€alsoÏin€light€of€the€manifest€congressional€concernÏin€preserving€for€the€states€the€remainder€ofÏtheir€traditional€police€powers.Ð ` x` x ÐÌÓ