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Regulating Menthol Tobacco Products: The Current Policy Landscape
Tobacco Policy Webinar Series February 26, 2016
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Tobacco Control Legal Consortium
A"orneys suppor,ng tobacco control policy change.
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Presenters Mike Freiberg Tobacco Control Legal Consor0um Laura Oliven Minnesota Department of Health Melissa Buenger Chicago Department of Public Health Lara Pra" Minneapolis Dept. of Health & Family Support
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Agenda
• Federal legal and policy developments • State and local policy landscape • State and local examples
– Minnesota Health Department – City of Chicago – Minneapolis Department of Health
• Q & A
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The Problem with Menthol
• Menthol cigare"es are smoked by approximately 19 million Americans – more than a quarter of the U.S. cigare"e market.
• Used dispropor,onately by youth
• Used dispropor,onately in communi,es of color
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The Problem with Menthol
If menthol were prohibited in cigare"es:
• Between 2010 and 2020, more than 2.2 million people would not start smoking.
• By 2050, 9 million fewer people would smoke.
Tobacco Products Scien0fic Advisory CommiDee Report (2011)
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Mentholated Cigarettes . . .
• Increase ini,a,on of smoking
• Increase likelihood of addic,on in youth
• Increase the prevalence of smoking in general popula,on and in minority communi,es
• Enhance the appeal of smoking
• Decrease the likelihood of tobacco cessa,on 2004-‐2009 Na0onal Survey on Drug Use and Health data
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Menthol Timeline • 2009: Congress adopts Family Smoking
Preven,on and Tobacco Control Act, exempts menthol from flavor ban
• March 2011: TPSAC report concludes that “removal of menthol cigare"es from the marketplace would benefit public health in the United States.”
• April 2013: Tobacco Control Legal Consor,um files Ci,zen Pe,,on asking FDA to prohibit menthol as a characterizing flavor in cigare"es
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Menthol Timeline, cont’d • July 23, 2013: Second FDA report concludes
that menthol use is associated with youth smoking ini,a,on and greater addic,on.
• July 23, 2013: FDA issues an Advance No,ce of Proposed Rulemaking (ANPRM) to take public input on menthol in cigare"es.
• November 2013: Docket closes.
• July 2014: D.C. District Court rules three TPSAC members had conflicts of interest.
• January 2016: Court of Appeals for D.C. Circuit reverses D.C. District Court decision.
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State and Local Authority
• Preserva,on Clause
• Preemp,on Clause
• Savings Clause
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State and Local Authority
Preserva,on Clause
Preserves authority of state & local governments to adopt tobacco control measures related to –
• Sale (including prohibi,on of sale) • Distribu,on, adver,sing,
promo,on • Informa,on repor,ng • Taxa,on of tobacco products • Related policies.
21 U.S.C. § 387p(1)
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State and Local Authority
Preemp,on Clause Prohibits state and local governments from adop,ng tobacco product standards and a few related policies.
21 U.S.C. § 387p(2)
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State and Local Authority
Savings Clause
State and local governments can adopt regula,ons rela,ng to -‐ • Sale, distribu,on, possession, informa,on repor,ng, • Exposure to, access to, the adver,sing and promo,on of, or use of,
tobacco products by individuals of any age • Fire safety standards for tobacco products 21 U.S.C. § 387p(2)(B)
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New York City & Providence, RI
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Local Flavor Regulations
“It shall be unlawful for any person to sell or offer for sale any flavored tobacco product except in a tobacco bar.” New York City Administra0ve Code § 17–715
• “Tobacco product” does not include cigare"es • Eight establishments meet defini,on of “tobacco bar.” • “Flavored” excludes “the taste or aroma of tobacco, menthol, mint or wintergreen”
“It shall be unlawful for any person to sell or offer for sale any flavored tobacco product to a consumer, except in a smoking bar.” Providence, Rhode Island, City Code § 14-‐309
• “Tobacco product” does not include cigare"es • “Smoking bar” requires tobacco revenues > 50% • “Flavored” excludes “the taste or aroma of tobacco, menthol, mint or wintergreen.”
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Court Decisions
“While [the Tobacco Control Act] prohibits the FDA from banning en,re categories of tobacco products throughout the country, … the FSPTCA nowhere extends that prohibi,on to state and local governments. To the contrary, the preserva,on clause … expressly preserves locali,es’ tradi,onal power to adopt any measure rela,ng to or prohibi,ng the sale of tobacco products.’” “As a regula,on limi,ng the businesses at which flavored tobacco may be sold, the city ordinance establishes a ‘requirement[] rela,ng to the sale … of … tobacco products’ within the plain meaning of the saving clause.” “…given Congress’ explicit decision to preserve for states a robust role in regula,ng, even banning, sales of tobacco products, we adopt a broad reading of the saving clause…” U.S. Smokeless Tobacco Mfg. Co. v. City of New York, 708 F.3d 428 (2nd Cir. 2013)
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Court Decisions
“…the FSPTCA’s preemp,on provision relates to tobacco product standards, not the sale and/or distribu,on of tobacco products prohibited by Sec,on 14-‐309 of the Flavor Ordinance.”
Na0onal Associa0on of Tobacco Outlets v. City of Providence, 2012 WL 6128707 (D.R.I. 2012)
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Selected Policies and Legislation
• Chicago, Illinois, buffer zone ordinance • Berkeley, California, buffer zone ordinance (adopted 9/15/15, effec,ve 1/1/17)
• Hawaii legisla,on to prohibit sale of menthol cigare"es, HF 1522 (2014, not adopted)
• Many flavored tobacco ordinances that exempt menthol – Minneapolis (MN) – Santa Clara County (CA) – St. Paul (MN) – Many communi,es in Massachuse"s
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Resources h"p://publichealthlawcenter.org/menthol • Informa,on on Federal Regula,on of Menthol
– Ci,zen Pe,,on – Comments to FDA
• Interna,onal Regula,on of Menthol • Law Review Ar,cle, Menthol Bibliography • Chicago Case Study • Sample Ordinance Language • Model Resolu,on Calling on FDA to Prohibit Menthol • Fact Sheets, Poster • Webinar
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LAURA OLIVEN, MPP Tobacco Control Manager
Minnesota Department of Health
Menthol Tobacco Use and Health Equity
TOBACCO PREVENTION AND CONTROL
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MN has wide menthol use dispari<es
44%
74%
25%
0% 10% 20% 30% 40% 50% 60% 70% 80%
High School Student Smokers*
Adult African American Smokers**
Overall Adult Smokers**
* Minnesota Youth Tobacco Survey, 2014 ** Minnesota Adult Tobacco Survey, 2014
Percent of Minnesota Smokers who use menthol
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Masks irrita,on from smoking
Makes experimenta,on easier
Intensifies addic,on to nico,ne
Menthol a=racts and addicts youth
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A higher nico,ne dependence and smoking urge
A harder ,me quiung
Menthol makes qui?ng harder
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African Americans are a target market
Published in Ebony magazine, June 1977, Vol 32, No. 8 From the collec,on of Stanford Research Into the Impact of Tobacco Adver0sing (tobacco.stanford.edu)
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Menthol is a health equity issue
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Menthol Cigare=e Interven<on Grant
Award Grant to
Community Health Board
(CHB)
MDH Partner with Community-‐
Based Organiza,on
(CBO)
CHB Engage Community CBO
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RegulaEng Flavored Tobacco Products
Melissa Buenger, MPH Tobacco Policy Analyst
February 24, 2016
The Chicago Experience
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Overview
• Chicago’s restric,ons • What products? • Implementa,on ,meline
• Barriers to implementa,on
• Lessons learned
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Chicago’s RestricEons
• Prohibits flavored tobacco sales within 500 feet of schools
• First jurisdic,on to include menthol • Exempts retail tobacco stores—at least 80% of gross revenue from tobacco
• Impacts about 15% of tobacco retailers
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Moving Forward with ImplementaEon and Enforcement • Delayed for lawsuits and rulemaking
• New rules promulgated
• Retailers no,fied
• Objec,ons received
• Hearings scheduled
• Enforcement to start soon
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Legal Challenges • 3 lawsuits filed against the City star,ng in September 2014, arguing:
o Federal preemp,on o Uncons,tu,onally vague under 14th Amendment o Viola,on Due Process Clause of Illinois Cons,tu,on
• 2 were decided in our favor in June 2015, the judge issued one opinion:
• FSPTCA preserves local authority to regulate sale of tobacco products • Not vague or “unforseeable” whether a retailer is 500 feet from a school
what cons,tutes a school • Tobacco licenses are condi,onal, not a vested right • No new legal consequences to events completed before enactment
• 1 was thrown out in August 2015 for plain,ffs’ failure to file appearances
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Refining Flavor DeterminaEon Process It was ini,ally unclear how determina,ons would be made about flavors
• Clarifying language indicates terms that refer to a characterizing flavor other than tobacco it will be considered
o Terms like “sweet” or “spicy” cons,tute a flavor o “Bold” or “mild” will not
• Statements or claims include copy from marke,ng materials, a review of a product, or images on packaging
• Will no longer use sensory testers
• Retailers can email [email protected] for assistance
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Product List
• The first set of rules said this would be an exhaus,ve list, updated quarterly.
• New rules make the list non-‐exclusive and allow us to update the list.
• We added hundreds of new products by searching wholesaler and manufacturer websites and industry newsle"ers.
• Our list is available on Chicago’s open data portal as well as a searchable website www.flavoredtobaccosearchengine.org
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LocaEons • Measuring distance accurately
o GIS so{ware like Esri ArcMap can be useful tool for narrowing the list of impacted retailers, but overes,mates distances
o Google Maps is more effec,ve for accurate measurement from property line to property line and is free, used to verify all measurements
• Verifying schools
o Ordinance language defines schools as elementary, middle, or high school with ac,ve enrollment, excludes pre-‐schools and day cares
o Called all private schools to verify grade levels and enrollment
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Lessons Learned and RecommendaEons
• Need to have reliable school and retailer data
• Strong partnerships
• Be prepared for legal challenges
• Share knowledge and resources with other jurisdic,ons
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CITY OF MINNEAPOLIS
Minneapolis Flavored Tobacco Ordinance
Lara Pra" Minneapolis Health Department
39
February 24, 2016
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Adop<on—Phases and Factors • Incremental approach
• Tobacco presenta,on in 2014, including youth (May ‘14) • Updated tobacco use policy on City property (Oct ‘14) • Updated clean air ordinance to include e-‐cigs (Dec. ‘14) • Passed flavor/price ordinance (July ‘15)
• Youth engagement • Inside-‐outside • approach
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Ordinance details • Limits sales of flavored products to tobacco products shops.
• Prohibits entry of people younger than 18 in tobacco products shops.
• Sets Minimum Price: $2.60 per s,ck up to $10.40 for packs of 4 +
• Exempts menthol and mint flavored products
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Enforcement so far • Before enforcement
• Developed and sent compliance guide • Adopted Chicago’s list of flavored products
• Since enforcement began January 1, 2016 • All new product lines in the stores • Confusion over “sweet” • Calls from manufacturers and distributors • Burdensome for inspectors • Suspended enforcement
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Moving forward
• How we’re addressing • Shrinking list to only ambiguously ,tled products • Revamping inspectors’ protocol
• Lessons learned • Create list before passing ordinance • Accompany ordinance with rules • Keep your “eye on the prize”
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Reasons for excluding menthol • Timing • Youth focus • Insufficient community engagement • Poli,cal readiness Groundwork was laid • Policymaker breakfast • Comments in public tes,mony
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Menthol: What’s Next
• What’s happening in Minneapolis re: menthol • Minnesota Menthol Coali,on mee,ng bi-‐monthly • Summer 2015: 5 community conversa,ons • State menthol grant to Hennepin County for metro area engagement
• Role of Minneapolis Health Department
• Part of coali,on • Community engagement and leadership development with African American and American Indian youth
• Educa,on and surveillance
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Considera<ons for others
• Price + flavored • Incremental approach or all-‐at-‐once • Scope of flavored ordinances • “Ducks in a row” • Burden on enforcement
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CITY OF MINNEAPOLIS
48
February 24, 2016
For more informa<on:
Lara Pra=, MPH Minneapolis Health Department
612.673.3815 [email protected]
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Contact us
[email protected] (651) 290-‐7517
[email protected] (651) 695-‐7603
www.publichealthlawcenter.org