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Tobacco Industry Strategy inLatin American Courts

A Litigation Guide

PrePared byONeill iNstitute fOr NatiONal aNd GlObal HealtH law

suPPorted byCampaiGN fOr tObaCCO-free Kids


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Tobacco Industry Strategy inLatin American Courts

A Litigation Guide

PP byONell Nue fOr NONl Nd GlObl HelH lw

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washington, dC

fay 2012


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ONeill Institute for National and Global Health Law

General Framework 11

A. Introduction 11B. Background 12C.PotentialUsesandConstraintsoftheGuide 14D.GeneralDoctrine:TheBalancingofRightsandthe

PublicHealthHazardPosedbyTobacco 16

Tobacco Industry Arguments and

Effective Counter-Arguments 18

A. CommercialSpeech 181. MainResponse:CommercialSpeechisnotPartofthe RighttoFreeSpeechbutRatherItisanElementof CommercialFreedom 192. SubsidiaryResponsesConnectedtotheSo-CalledFreedom ofExpressionfortheTobaccoIndustry 243. OtherRightsOutweighAnyLimitedProtectionfor

CommercialSpeech. 27 3.1RighttoHealth 27 3.2RighttoLife 28 3.3RightsoftheChild 29

B. RighttoEconomicFreedom 30C. RighttoProperty 33D. RighttoNon-DiscriminationEqualityBeforetheLaw 39E. RighttoWork 42

Conclusion 44


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Tobacco Industry Strategy in Latin American Courts:

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Table of Authorities

Books

Alexy,Robert,TeoradelosDerechosFundamentales(Madrid:CentrodeEstudiosPolticosyConstitucionales,ErnestoGarznValdstrans.,2001).

Gostin,Lawrence,PublicHealthLaw,Power,Duty,Restraint(Berkeley:UniversityofCaliforniaPress,2nded.2008).

Taylor,Peter,SmokeRing:ThePoliticsofTobacco(London:BodleyHead,1984).

Briefs

ONeillInstituteforNationalandGlobalHealthLawandotherinstitutions,briefasAmicusCuriaeSupportingRespondentsProvinciadeSantaFe,NoblezaPiccardoS.A.I.C.YF.v.Provin-ciadeSantaFe,188/2006,ArgentineanSupremeCourt.

ComplaintforCmaradeComerciodeGuatemala,PartialGeneralUnconsitutionality,2158-2009,ConstitutionalCourtofGuatemala.

ComplaintforClnicadeIntersPblicodelCentrodeInvestigacinyDesarrollodelaEdu-cacin,ClnicadeIntersPblicodelCentrodeInvestigacinyDesarrollodelaEducacinv.CmaradeSenadoresdelCongresodelaUnin,AdministrativeTrialCourtoftheFederalDistrict,Mexico,2008.

IDECInstitutoBrasileirodeDefensadoConsumidor,briefasAmicusCuriaeSupportingRe-spondents,ConfederaoNacionaldaIndstriav.PresidentedaRepblica,ADI/3311,BrazilianSupremeCourt.

UnconstitutionalityClaimBriefforNoblezaPiccardoS.A.I.C.YF.,NoblezaPiccardoS.A.I.C.YF.v.ProvinciadeSantaFe,188/2006,ArgentineanSupremeCourt.

UniversidaddeSanCarlosdeGuatemala,briefasAmicusCuriaeOpposingClaimantCmaradeComerciodeGuatemala,PartialGeneralUnconsitutionality,2158-2009,ConstitutionalCourtofGuatemala.


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Cases

44LiquorMart,Inc.v.RhodeIsland,517U.S.484,501(1996).

AsociacinNacionaldeExServidoresdelInstitutoPeruanodeSeguridadSocialv.Per,Case12.670,Inter-Am.C.H.R.,ReportNo.38/09(2009).

Batesv.StateBarofArizona,433U.S.350,383-84(1977).

Breardv.CityofAlexandria,341U.S.622(1951).

Campodnicov.MinisteriodeSaludyAccinSocial,823/1999,ArgentineanSupremeCourt.

CapitalBroadcastingCo.v.Mitchell,333F.Supp.582(D.D.C.1971).

CentralHudsonGas&ElectricCorp.v.PublicServiceCommn,447U.S.557,561(1980).

Cincinnativ.DiscoveryNetwork,Inc.,507U.S.410,426,123L.Ed.2d99,113S.Ct.1505(1993).

ColombianConstitutionalCourt.DecisionC-176,1996.

ColombianConstitutionalCourt.DecisionC-265,1994.

ColombianConstitutionalCourt,ExpedienteD-8096-SentenciaC-830/10,2010.

FloridaBarv.WentForIt,Inc.,115S.Ct.2371,2379(1995).

GreaterNewOrleansBroadcastingAssn.,Inc.v.UnitedStates,527US173(1999).

GuatemalaChamberofCommercev.GovernmentofGuatemala,ConstitutionalCourtofGuate-mala,Docket2158-2009(2010).

MexicanSupremeCourtofJustice,JorgeFranciscoBalderasWoolrich,revisedamparo315/2010against1791/2008,28/03/2011.

Nearv.Minnesota,283U.S.697(1931).

Ohralikv.OhioStateBarAssn,436U.S.447,456(1978).

PeruvianConstitutionalTribunal.JaimeBarcoRodascontraelArtculo3delaleyN.28705Leygeneralparalaprevencinycontroldelosriesgosdelconsumodetabaco,unconstitutional-ityproceeding,July2011.


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Randothersv.TheSecretaryofStateforHealth[2004]EWHC2493.RicoAssociatesv.TourismCo.ofPuertoRico,478U.S.328(1986).

SalvadorChiribogav.Ecuador,2008Inter-Am.Ct.H.R.(ser.C)No.179(2008).

TheQueenv.SecretaryofStateforHealth,exparteBritishAmericanTobacco(Investments)LtdandImperialTobaccoLtd,C-491/01(2002).

UnitedStatesv.EdgeBroadcastingCo.,509U.S.418(1993).

Valentinev.Chrestensen,316U.S.52(1942).

Vicecontiv.MinistryofHealthandSocialWelfarePoderJudicialdelaNacin.Causano.31.777/96(1998).

Zaudererv.OfceofDisciplinaryCounsel,471U.S.626,651&n.14(1985).

Constitutions

NationalConstitutionofArgentina,Arts14,14bis,17,32,75.

NationalConstitutionofBelize,Section16.3.

NationalConstitutionofBrazil,Art6.

NationalConstitutionofCostaRica,Section33.

NationalConstitutionofGuatemala,Arts40,43,44.

NationalConstitutionofMexico,Arts4para.6and27.

Journal Articles

TheWorldCigarettePandemic-PartII,85N.Y.StateJ.Med.391(1985).

Blecher,Evan,Theimpactoftobaccoadvertisingbansonconsumptionindevelopingcountries,27J.HealthEcon.930(2008).

Bloch,Micheleetal.,Tobaccouseandsecondhandsmokeexposureduringpregnancy:aninves-tigativesurveyofwomenin9developingnations,98Am.J.ofPub.Health1833(2008).


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Bollyky,ThomasandLawrenceGostin,TheUnitedStatesEngagementinGlobalTobaccoControl:ProposalsforComprehensiveFundingandStrategies,301(23)J.Am.Med.Ass'n2637-38(2010).CarlosSanchezMejorada,TheWritofAmparo,243EssentialHumanRights107(1946).

Cabrera,OscarandAlejandroMadrazo,HumanRightsasaToolforTobaccoControlinLatinAmerica.52SaludPublicadeMexico288-97(2010).

DiFranza,Joseph,etal.,Tobaccopromotionandtheinitiationoftobaccouse:assessingtheevi-denceforcausality.117Pediatrics1237-48(2006).Availableat:http://pediatrics.aappublications.

org/cgi/content/full/117/6/e1237.

Gostin,Lawrence,GlobalRegulatoryStrategiesforTobaccoControl,298J.Am.Med.Assn2057(2007).

Greenwood,Daniel,EssentialSpeech:WhyCorporateSpeechisNotFree,83IowaL.Rev.995(1998).

Krugman,Dean,etal.,Understandingtheroleofcigarettepromotionandyouthsmokinginachangingmarketingenvironment.10J.HealthCommun.261-78(2005).Availableat:http://www.informaworld.com/smpp/ftinterface~content=a714034939~fulltext=713240928.

Levy,David,etal.,Theeffectsoftobaccocontrolpoliciesonsmokingrates:atobaccocontrolscorecard.10J.PublicHealthManag.Pract.338-53(2004).

Lopez,Allen,etal.,Adescriptivemodelofthecigaretteepidemicindevelopedcountries.3TobControl24247(1994).Availableat:http://www.ncbi.nlm.nih.gov/pmc/articles/PMC1759359/pdf/v003p00242.pdf.

Lovato,Chris,etal.,Impactoftobaccoadvertisingandpromotiononincreasingadolescentsmokingbehaviours.CochraneDatabaseofSystematicReviews2003:CD003439.Availableat:http://www.mrw.interscience.wiley.com/cochrane/clsysrev/articles/CD003439/pdf_fs.html.

Menezes,Ana,etal.,PrevalenceofsmokingandincidenceofinitiationintheLatinAmericanadultpopulation:thePLATINOstudy,9BMCPublicHealth151(2009).Availableat:http://www.biomedcentral.com/1471-2458/9/151.

Muller,FernandoandLuisWehbe,SmokingandSmokingCessationinLatinAmerica:areviewofthecurrentsituationandavailabletreatments,3IntlJ.COPD285(2008).

Nogueira,Humberto,ElDerechoalaInformacinenelmbitodelDerechoConstitucionalComparadoenIberoamricayEstadosUnidos,48Elderechoalainformacinyderechoshuma-


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nosUNAM(2000).

Siegel,Michael,InvoluntarySmokingintheRestaurantWorkplace,270J.Am.Med.Assn490,490(1993).

Tye,Joe,etal.,TobaccoAdvertisingandConsumption:EvidenceofaCausalRelationship,8J.PublicHealthPol.492,494(1987).

Wellman,Robert,etal.,Theextenttowhichtobaccomarketingandtobaccouseinlmscontrib-utetochildrensuseoftobacco:ameta-analysis.160Arch.Pediat.Adol.Med.1285-96(2006).Availableat:http://archpedi.ama-assn.org/cgi/content/full/160/12/1285.

Reports

Amparoinreview91/2004.CrditoAanzador,S.A.deC.V.,CompaaMexicanadeGarantas.October20,2004.Unanimityofvotes.Speaker:JosRamnCossoDaz.Secretary:RalM.MejaGarza.

FoodandAgricultureOrganizationoftheUnitedNations,Higherworldtobaccouseexpectedby2010growthrateslowingdown.Availableat:http://www.fao.org/english/newsroom/

news/2003/26919-en.html(lastvisitedJan.20,2010).

Levy,Robert,BloombergSmokesOutPropertyRights.Availableathttp://www.cato.org/research/articles/levy-021009.html.

PanAmericanHealthOrganization,CD50.R8,62sessionoftheRegionalCommittee,October2010.

U.N.CommitteeontheRightsoftheChild,GeneralCommentNo.4(2003),AdolescenthealthanddevelopmentinthecontextoftheConventionontheRightsoftheChild,U.N.Doc.CRC/GC/2003/4(July1,2003).

U.N.Econ.&Soc.Council,CommitteeonEconomic,SocialandCulturalRights,GeneralCommentNo.14(2000),TheRighttotheHighestAttainableStandardofHealth,p.33,U.N.Doc.E/C.12/2000/4(Aug.11,2000).

Uprimny,RodrigoandCamiloCastillo,Constitucin,democraciaytabacoenColombia,CentrodeEstudiosdeDerecho,JusticiaySociedad(DeJuSticia),Bogot,2009.

U.S.DeptofHealth&HumanServices,OfceoftheSurgeonGeneral,TheHealthConse-quencesofSmoking:AReportoftheSurgeonGeneral,May27,2004.Availableat:http://www.


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surgeongeneral.gov/library/smokingconsequences/.

U.S.NationalCancerInstitute2009Monograph19,TheRoleoftheMediainPromotingandReducingTobaccoUse.Availableathttp://cancercontrol.cancer.gov/tcrb/monographs/19/index.html.

U.S.SurgeonGeneral.Reducingtobaccouse:AreportoftheSurgeonGeneral.Chapter5Regu-latoryefforts.2000.Availableat:http://www.cdc.gov/tobacco/data_statistics/sgr/sgr_2000/00_pdfs/chapter5.pdf.

Treaties and International Instruments

AdditionalProtocoltotheAmericanConventiononHumanRightsintheAreaofEconomic,SocialandCulturalRightsProtocolofSanSalvador.

ConventionontheRightsoftheChildArt.17(e),1577U.N.T.S.3.

GuidelinesforimplementationofArticle5.3oftheWHOFCTCProtectionofpublichealthpolicieswithrespecttotobaccocontrolfromcommercialandothervestedinterestsoftheto-baccoindustry(decisionFCTC/COP3(7)).

GuidelinesforimplementationofArticle8oftheWHOFCTCProtectionfromexposuretotobaccosmoke(decisionFCTC/COP2(7)).

PartialguidelinesforimplementationofArticles9and10oftheWHOFCTCRegulationofthecontentsoftobaccoproductsandregulationoftobaccoproductdisclosures(FCTC/COP4(10)).

GuidelinesforimplementationofArticle11oftheWHOFCTCPackagingandlabellingoftobaccoproducts(decisionFCTC/COP3(10)).

GuidelinesforimplementationofArticle13oftheWHOFCTCTobaccoadvertising,promotion

andsponsorship(decisionFCTC/COP3(12)).

InternationalCovenantonCivilandPoliticalRights.

InternationalCovenantonEconomic,SocialandCulturalRights.

OrganizationofAmericanStates,AmericanConventiononHumanRights.

WHOFrameworkConventiononTobaccoControl.


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General Framework

A. Introduction

TheraticationoftheWHOFrameworkConventiononTobaccoControl(FCTC)by15countriesinLatinAmericahasplayedacentralroleingeneratingmomentumforstrongtobaccocontrollawsatthemunicipal,provincialandnationallevelseveninthefewcountriesthathavenotyet

ratiedthetreaty.1

Thetobaccoindustryhascorrespondinglysteppeduptworelatedefforts.First,itisspendingsubstantialresourcestoswaylawmakersagainstpassingeffectivetobaccocontrollaws.Second,whereitseffortstodiluteorweakentobaccocontrollawsfail,itturnstothecourts,oftendeployingthesameorsimilarargumentsbasedoncertainpurportedrights.Theserightsrelatetotheadvertisingand marketing of its products, the rightsof citizens to consume those productsinpublicoroccupationalspaces,andtherightsofproprietorsandemployerstopermitsuchconsumption.

Thisguideprovidesaframeworkwithwhichtoanalyzetheseassertedrightsandmounteffective

responsestothem.Whileourfocusisontobaccocontrollitigators,webelieveitwillbeausefulguideforlawyerswithinministriesofhealthandprivatepracticeattorneysseekingcompensationforclientsinjuredbytobaccoproducts.Inthisguide,thereisafocusonanalyzingargumentsconnected tofreedomofexpression,aswefound that itis themostcommon strategyforthetobaccoindustryintheregion.Inaddition,otherargumentsanalyzedincludeonesrelatedtoprivateproperty,economicfreedom,therighttoworkandanti-discrimination.Afterthatanalysis,wesuggestpossibleanswersbasedonconstitutionalandhumanrightsarguments.

Asweexplainbelow,thereareimportantlimitationstoconsiderwhenusingageneralguidesuchasthisone.Constitutionalandstatutorydifferenceswill requirethattheargumentsbetailoredtospeciccultural,economic,legalandpoliticalcircumstances.However,webelievethatBrazil

and the countries of Spanish-speakingCentral and SouthAmerica share sufcient legal andconstitutionalcharacteristicstowarrantthedevelopmentofa commonlitigationguide.Indeed,thetobaccoindustryhasnothesitatedtoreplicateargumentsandstrategiesinasimilarfashion,oftencitinginsupportofitsargumentsdecisionsfromtheInter-AmericanCommissiononHumanRightsandtheInter-AmericanCourtofHumanRights.

1 he countries in Latin merica that have ratifed the FCC are: bolivia, brazil, Chile, Colomia, Costa ica, cua-

dor, Guatemala, Honduras, Mexico, Nicaragua, Panama, Paragua, Peru, rugua, and Venezuela.


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B. BackgroundTobaccoconsumptionposesamajorpublichealththreatworldwide,althoughthetobaccoindustryisincreasinglyfocusingondevelopingcountriesasaresultofstrongtobaccocontrollawsandhighertaxesimposedinthewealthiercountriesofNorthAmericaandEurope. 2Therearemorethan120millionsmokersintheLatinAmericanregion,overhalfofwhomwilldiefromatobacco-relateddisease.3LatinAmericahasbeenbroadly4classiedatStage2ofthetobaccoepidemic,astagemarkedbyincreasingsmokingprevalenceinmen,abeginningincreaseinprevalenceamongwomen,andasmoking-attributablemortalityrateformenthathasnotyetpeaked.56

Inarecentstudyofsmokingindevelopingcountries,womeninLatinAmericawereprojectedtohavehigherlevelsoftobaccousethanmen.InveLatinAmericancountries,atleastathirdofwomenhadtriedsmoking,includingthree-quartersofwomeninArgentinaandUruguay,and

2 bollk, homas and Lawrence Gostin, he nited tates ngagement in Gloal oacco Control: Proposals orComprehensive Funding and trategies, 301(23) J. m. Med. ss'n. 2637-38 (2010).

3 Fernando Muller and Luis Wehe, moking and moking Cessation in Latin merica: a review o the current

situation and availale treatments, 3 Intl J. CP 285 (2008).

4 lthough some countries are considered to e at stage 3, overall Latin merica as a whole can e considered to

e at stage 2.

5 Menezes, na, et. al., Prevalence o smoking and incidence o initiation in the Latin merican adult popula-

tion: the PLIN stud, 9 bMC Pulic Health 151 (2009). vailale at http://www.iomedcentral.com/1471-

2458/9/151.

6 Lopez, llen, et al., descriptive model o the cigarette epidemic in developed countries. 3 o. Control 242-47

(1994). vailale at http://www.nci.nlm.nih.gov/pmc/articles/PMC1759359/pd/v003p00242.pd.

ource: Lopez, llen, et al., descriptive model o the cigarette epidemic in developed countries. 3 o. Control 242-47 (1994).


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three-fthsofthoseinEcuador.7

Demandintheregionisexpectedtoincreasemodestly,withmostoftheincreaseoccurringinBrazil. 8Aglobalefforttominimizethepublichealththreatposedbytobaccoconsumptionandexposuretotobaccosmokeisrequired.

TheWHOFrameworkConventiononTobaccoControl(FCTC)andtheaccompanyingguidelines,whichsetforthminimumactionsthatgovernmentsmusttaketoreducetobaccouseandprotectpopulationsfromexposuretotobaccosmoke,nowplaythemajorroleinthatglobaleffort.9TheprocessleadingtoimplementationoftheFCTCitselfhascausedmanygovernmentsandpublichealthgroupstobecomemoreknowledgeableaboutusinglawtoprotectpublichealth.RaticationhasbeenfollowedbymanynationallawsthatmeetorevenexceedtheFCTCsrequirements.

Thetobaccoindustry,however,alsocontinuestofocusonthelegislativeprocess.Asaresult,manycountrieshavefailedtoenactadequatelegislation.Forthosethathavepassedtobaccocontrollawsstrongorweaktheindustryhasturnedtothecourtsinanefforttorollbacklegislativeprogress.Somecountries,likeUruguay,haveputinplacehighlyeffectivetobaccocontrol lawsandhaveeffectivelydefendedtheirlawsfromindustryattack.Others,likeBrazil,havefacednumerouslegalchallengesfromtheindustryintheirattempttoprotecttheircitizensfromthehazardsoftobaccouseandexposuretotobaccosmoke.

Thisguidecontributestotheglobalefforttoreducetobaccousethroughlawbyprovidingaroadmaptodefendtobaccocontrollawsfromindustryattack.FromJune11-13,2009,tobaccocontroladvocatesfromArgentina,Bolivia,Brazil,Chile,Colombia,Ecuador,Panama,Peru,Uruguayand

VenezuelagatheredinSantiago,Chile,todiscussthelegalenvironmentfortobaccocontrolintheirrespectivecountries,toidentifycommonproblemsandtodevelopopportunitiesforcooperationandcollaborationinthefuture.Theideaspresentedheretracetheiroriginstothismeeting,whichshowedthetremendouspotentialofregionalandglobalcooperation.

7 bloch, Michele, et al., oacco use and secondhand smoke exposure during pregnanc: an investigative surve

o women in 9 developing nations, 98 m. J. o Pu. Health 1833 (2008).8 Food and griculture rganization o the nited Nations, Higher world toacco use expected 2010 - growth

rate slowing down. vailale at: http://www.ao.org/english/newsroom/news/2003/26919-en.html.

9 he Conerence o the Parties, the governing od o the World Health rganizations Framework Convention

on oacco Control, has adopted guidelines or rticles 5.3, 8, 9, 10, 11, 12, 13 and 14 dealing with, respectivel,

protection o pulic health polic rom toacco industr intererence; protection rom exposure to toacco smoke;

regulation o the contents o toacco products and regulation o toacco product disclosures; packaging and

laeling o toacco products; education, communication, training and pulic awareness; comprehensive ans o

toacco advertising, promotion and sponsorship and demand reduction measures concerning toacco depen-

dence and cessation.


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C. Potential Uses and Constraints of the GuideThis guide is primarily intended to assist attorneys in defending against arguments commonly

deployedbythetobaccoindustry.Thefactthatitisdefensiveinnatureshouldnotdeterlawyersfrom

thinkingcreativelyabouthowtousetheresponsestothetobaccoindustrysargumentsafrmatively,

to seek stronger tobaccocontrollegislationand even toseek judicial remedies to safeguard the

publicshealth.Advocates inMexico, forexample,challengedtheirnational tobaccocontrol law

forinadequatelyprotectingthe rightsto health,informationandlifeguaranteedby theMexican

ConstitutionandrequiredbytheFCTC.10Moreover,theyarguedthatthenewnationaltobacco

controllawamendedprevioushealthlawsinawaythatstrippedawayimportantpowersthatthe

MinistryofHealthhadpreviouslyusedtoregulatetobaccoproducts.AlthoughtheCourtultimately

dismissedthecaseduetoproceduralargumentsbeforediscussingthesubstantiveissues,thecaseis

signicantbecause,bygrantingthepetitionerstandingtobringthecasebeforetheCourt,itafrmed

theexistenceofpositiveobligations,onthepartoftheState,thatariseasaresultofeconomic,social,

andculturalrights.11Attorneysshouldcarefullyanalyzetheirconstitutions,nationallawsandthe

FCTCandaccompanyingguidelineswhendevelopinglitigationstrategies.

Differentcountries judicial systems followdifferentprocedural andsubstantive requirements.Termsmaydiffer.AnamparoinMexicois roughlyequivalenttoatutelainColombia,althoughtheremediesavailablemayvarysignicantly.12Theprovisionsandterminologycontainedinthisguide,therefore,willneedtobeadaptedtofollowthepleadingandprocedurerequirementsfor

anygivencountry.

Thisguideaddressesargumentsprimarilymadeatthenationallevel.Inmanycountries,however,municipalities and provinces have also enacted effective tobacco control laws. In supporting

10 Complaint rom Clnica de Inters Plico del Centro de Investigacin esarrollo de la ducacin, Clnica de

Inters Plico del Centro de Investigacin esarrollo de la ducacin v. Cmara de enadores del Congreso

de la nin, Juzgado Primero de istrito en Materia dministrativa en el istrito Federal [dministrative rial Court]

(Mex.) (2008).

11 Mexican upreme Court o Justice,Jorge Francisco Balderas Woolrich, revised amparo 315/2010 against

1791/2008, decided 28/03/2011, rapporteur Jos amn Cossio iaz, pg. 8.

12 Carlos anchez Mejorada, The Writ of Amparo, 243 ssential Human ights 107 (1946). n amparo is an indi-vidual action in a court or the protection o a constitutional right. mparos also protect the constitution ensuring

that its principles are not violated statutes or actions o the state. In general, an amparo action is intended to

protect rights other than phsical liert. It ma thereore e invoked an person who elieves that an o his or

her rights implicitl or explicitl protected the constitution (or applicale international treaties) is eing violated,

although the scope o the writ varies in the jurisdictions where it is availale: rgentina, brazil, bolivia, Chile, Costa

ica, cuador, l alvador, Guatemala, Hondura, Nicaragua, Panama, Paragua and Peru. Instead o the amparo

writ, Colomia uses a sstem namedAccion de Tutela. he legal procedure resemles the amparo ut it also unc-

tions as a preliminar injunction or an individual at imminent risk o loss due to a state action.


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developmentofthesemunicipalandprovinciallaws,advocatesshouldkeepinmindthattheFCTCencouragesStatestoadoptstrongermeasuresthanthosesetforthinthetreaty.Argumentsshouldbemadethatleavemunicipalitiesandprovincesfreetoadoptstrongerlawsthanthenationallawprovides,asisthecaseforArgentina,BrazilandMexico. 13Similarly,advocatesshouldbepreparedtodefendmunicipalandprovincial,notjustnational,lawsfromindustryattack.Insomecountries,thetobaccoindustryhassuccessfullylobbiedtoincludeprovisionsthatpreemptlocalorprovinciallaws,particularlyfor advertising,tobaccoproductlabeling,and smoke-freepublicplaces.Whilethisguidedoesnotspecicallyaddresspreemption,someargumentsmaybefoundinthepleadingscomplementingthisdocument.

Beforelingordefendingatobaccoindustrysuit,itiscrucialtoevaluateallapplicabledomestic

andinternationallaw.Someissues,liketherighttohealthortherighttowork,willbeembeddedinvariousstatutes,courtdecisionsandregulationswhichmayprovidesupportfortheargumentsoutlinedhere;or,theywillprovidechallengesthatmustbeconsidered.Forexample,provisionsforprotectionfromexposuretotobaccosmokeintheworkplacemightbecoveredinworkplacesafetyregulations.Similarly,consumer,environmental,publichealth,orotherlawsmayregulatetobaccoproductsandtheiruse.Theseissuesmayalsoberegulatedbyinternationaltreatiesratiedbyaspeciccountry,forexample,Article12oftheInternationalCovenantonEconomic,SocialandCulturalRights(ICESCR)containstherightofeveryonetotheenjoymentofthehighestattainablestandardofphysicalandmentalhealth.

Becausethisguidecannotbettedtoeverycountryspleadingandproceduralsystemsoraccount

forcertainlegalidiosyncrasies,anypleadingsorargumentsdevelopedusingthisguideshouldbereviewedbyin-countrylawyerstoensurethatallapplicablelegalrequirementsaremet.Forthepurposesofsupplementingthisguide,courtdocumentsrelatedtothemostimportanttobaccocontrolcasesintheregionwillbemadeavailableattheONeillInstituteforNationalandGlobalHealthLaw'swebsite.ThesuitbroughtforthbythetobaccoindustryinArgentinaagainsttheSantaFeProvincecanbefoundthere,ascantheamparocallingforstrongerprotectionsfortherighttohealthintheMexicantobaccocontrollaw.AmicuscuriaepresentedbytheONeillInstituteandotherinstitutionsincasesinBrazil,MexicoandPeru,andcourtdecisionsinvolvingtobaccocontrolcasesinGuatemala,Colombia,MexicoandPeruwillalsobefoundonthewebsite.ThissectionoftheONeillInstituteswebsitewillbeupdatedonanongoingbasisinordertogenerate,inconjunctionwiththislitigationstrategyguide,usefultoolsforrespondingtotobaccoindustry

suitsandforadvancingthelegalframeworkfortobaccoregulationandprotectionofhealth.Thisguideisnotintendedtoprovidelegaladvice.

13 rticle 2.1 o the FCC provides that In order to etter protect human health, Parties are encouraged to imple-

ment measures eond those required this Convention and its protocols, and nothing in these instruments shall

prevent a Part rom imposing stricter requirements that are consistent with their provisions and are in accordance

with international law.


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D. General Doctrine: The Balancing of Rightsand the Public Health Hazard Posed by Tobacco

Inthecourtdocumentswehaveanalyzed,eventheindustryconcedesthatsmokingisabehaviorthatcarriesrisksthatthestateshouldregulate;14itjustarguesthattheregulationshouldbeminimal.15Thatconcessionopensthedoortowinningargumentsbasedonaproportionalresponsetothemajorthreatoftobaccouse.Specically,completebansonsmokinginallindoorpublicplaces,workplaces,andonpublictransport,ataminimum,arenotonlyproportionatetotheharmscausedbyexposuretotobaccosmoke,butalsonecessarytoprovideeffectiveprotectionagainstaleadingpublichealthhazard.Publichealthsafeguards,moreover,arerequiredbyArticle8oftheFCTC

andguaranteedundermanystatesconstitutionalrightstohealth,life,asafeenvironment,orotherfundamentalinterests.16

Thisguidefocusesonfundamentalrights(humanrights)arguments.Tobaccocontrolpolicies,aspublichealthpolicies,shouldtakeintoaccountinternationalhumanrightsobligations.Integratingahumanrightsapproachintobaccocontrolhasmanyadvantages.Humanrightslawisoneofthemostpowerfullegaltoolsthatcanbeusedbothdomestically(in-country)andinternationally.Moreover,humanrightsarealsowidelyusedinpoliticaldiscourseandtheyusuallyinuencepolicydebates.17InarecentcasebeforetheConstitutionalTribunalofPeru,forinstance,inafrming the constitutionality of a progressive tobacco control law approvedby the PeruvianCongress,theCourtlinkedhumanrightsobligationstotheFrameworkConventiononTobacco

Control,presentingtheFCTCasa legalstandardforinterpretingtheseobligations.18Alongthesamelines,arecentresolutionfromthePanAmericanHealthOrganization(PAHO)urgesStatestostrengthenthetechnicalcapacityofthehealthauthoritytoprovidesupportfortheformulationofhealthpoliciesandplansconsistentwiththeapplicableinternationalhumanrightsinstrumentsrelatedtohealth.19Tobaccoindustryclaimsofillegal/unreasonablerestrictionsonitscorporateinterestsshouldbeanalyzedfromthisperspective.

14 nconstitutionalit Claim brie or Noleza Piccardo ..I.C. y F. p. V., Noleza Piccardo ..I.C. y F. v. Provin-

cia de anta Fe, 188/2006, upreme Court o rgentina.15 Id.

16 he Guideline on Protection rom xposure to oacco moke rticle 6, rticle 23, and rticle 4 (a) & () (deci-

sion FCC/CP2(7)).

17 Carera, scar and lejandro Madrazo. Human ights as a ool or oacco Control in Latin merica. 52

alud Pulica de Mexico 288 (2010).

18 Peruvian Constitutional riunal. Jaime barco odas contra el rtculo 3 de la le N. 28705 Le general para

la prevencin control de los riesgos del consumo de taaco, unconstitutionalit proceeding, Jul 2011. ection 6,

paragraph 65.

19 Pan merican Health rganization, C50.8, 62nd session o the egional Committee, ctoer 2010, p. 1-.


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The evidence regarding tobacco smokes toxic and carcinogenic effects onsmokers and non-smokersisincontrovertibleandwidelyaccepted.20Thisextensivebodyofevidenceitselfisoflegalsignicanceinsomejurisdictions.Brazil,forexample,recognizesthetoxicandcarcinogeniceffectsoftobaccosmokeunderthedoctrineoffato notrio,thatis,afactthatdoesnotneedtobeprovedincourt.Moreover,thereislittleornoredeemingsocialvaluefortobaccoconsumption.Therefore,anybalancingorproportionalitytestsappliedtotobaccoregulationarelikelytoweighheavilyinfavorofmorefarreachingrestrictions,moreregulationandlessmisleadinginformationthanisnowdisseminatedbytheindustry. 21

Many LatinAmerican constitutions explicitly embrace a social rather than an individualisticapproachtoprotectingrights.Forexample,Article44oftheGuatemalanConstitutionstatesthat

[s]ocialinterestsprevailoverindividualinterests.22

Inthecontextoftobaccocontrol,provisionslikethesecanbeinterpretedasplacingahigherstateinterestintheprotectionofthepublicshealthratherthancompetingindividualrights(rightsthataccordingtoGuatemalanlegislationandjudicialdecisionmaybelimited).

This guide isdivided into sectionsdescribing themajorarguments that the tobacco industrycommonlyassertswhenchallenginglawsrequiringprotectionfromtobaccosmoke;restrictingadvertising,sponsorships,andotherformsofpromotion;deningrequirementsfortobaccoproductlabelingandpackaging;and,otherproductregulation.Insomecases,itmaybeappropriatetousethisguideasaroadmapinconstructingopposingbriefsorassistinginthesearchforapplicablelaw.Ultimately,weadvocatetheuseoftheindustrysstrategyagainstit:underanyreasonable

understandingofproportionality,theinterestsofthepublicinbeingprotectedfromtheinherentdangersoftobaccosmokeinindoorpublicplacesandworkplacesandonpublictransport,ataminimum, outweighwhatever interests the industry has inmarketing and encouraging theconsumptionofalethalproduct.23

20 ee e.g. .. ept o Health & Human ervices, fce o the urgeon General, he Health Consequences o

moking: eport o the urgeon General, Ma 27, 2004. vailale at: http://www.surgeongeneral.gov/lirar/

smokingconsequences/.

21 Complaint rom Clnica de Inters Plico del Centro de Investigacin esarrollo de la ducacin, p. VII.

22 Constitution o Guatemala, rt. 44: ights Inherent in the Human Person. he rights and guarantees granted

the Constitution do not exclude others which, even though the are not expressl mentioned in it, inhere in the

human person. ocial interest prevails over individual interest.

23 brie rom IC Instituto brasileiro de eensa do Consumidor as micus Curiae supporting respondents p.

3., Conederao Nacional da Indstria v. Presidente da eplica, I/3311, upremo riunal Federal [upreme

Court] (braz.).


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Tobacco Industry Arguments andEffective Counter-Arguments

A. Commercial Speech

TheFrameworkConvention onTobaccoControl calls for packaging and labeling restrictions

accompaniedbyrequirementsforhealthwarningsandothermessages,aswellasacomprehensivebanontobaccoadvertising,promotionandsponsorship. 24Thetobaccoindustryhasmadeextensiveuseofargumentsbasedonconstitutionalandinternationalhumanrightssourcestoassertthesubstantialprotectionofsocialandpoliticalspeech.Whiletheseprotectionsareordinarilyintendedtoapplytoexpressionnecessaryforthefunctioningofademocraticsociety,thetobaccoindustryhasusedtheseargumentstoasserttherightofbusinessestoencouragetheconsumptionoftheir(legal)productsortodistinguishtheirbrandfromrivalsproducts.Indeed,theindustryrecentlyassertedvirtuallyidenticalargumentstothiseffectinbothArgentineandBraziliancourts.25

Asageneralanswertosuchanargument,advocatesshouldtakeintoaccountthatcommercialspeech isnot protected byfreedomofexpression (which fallsunder the categoryofpolitical

rightsandhasaspecialprotectioninmanyjurisdictions).Commercialspeechisanelementofcommercialfreedom,aprivaterightthatcanbelimitedbytheStatebasedontheinherentpowersofthestatetoprotectthepublicshealthandsafety.Below,weoutlinetheargumentsusedbythetobaccoindustryandtheappropriateresponsesbasedonthestatesafrmativeobligationtoprotecthealth,whichoutweighsthelesserprotectionsthatcommercialspeechenjoys.Therstpartofthissectionfocusesonthemainargumentthatcommercialspeechisnotpartoffreedomofexpression.Thesecondpartanalyzessubsidiaryargumentsconnectedtotherighttofreespeech.Finally,the lastpartofthissectionreferencesotherrightsthatoutweighthelimitedprotectionaffordedtocommercialspeech.

24 WH (FCC), rts. 11, 13, WH es. 56.1, WH ocument 56/8, nnex (Ma 21, 2003). Moreover, rticles

11 and 13 are the onl articles which set deadlines or compliance. rticle 11 requires Parties within a period o

three ears ater entr into orce o this Convention or that Part, adopt and implement, in accordance with its

national law, eective measures to ensure that the requirements or compliance with rticle 11 are met. For rticle

13, the period is 5 ears.

25 nconstitutionalit Claim brie rom Noleza Piccardo ..I.C. y F., p. 8.2.4; brie rom IC Instituto

brasileiro de eensa do Consumidor as micus Curiae supporting respondents, p. 2.


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I. Main Response: Commercial Speech is Not Part of the Right toFree Speech but Rather It is An Element of Commercial Freedom.

1. nsty gnt: vtisnt an akting a otct os o

sch. he toacco industr argues that reedom o speech also extends to its right to advertise

its products through the mass media.26 ccording to the industr, a given advertising strateg is

a maniestation o reedom o speech and is, thereore, entitled to constitutional protection.27 his

protection, the argument goes, includes speech through roadcasts, regardless o their content or

purpose to otain a proft.28

rsons: Cocia sch is ss otct than oitica o socia sch.Theadvertisementofcommercialproductsfornancialgain,ifprotectedatall,deservessignicantlylessprotectionthantheexpressionofideasoropinions.29Freedomofexpressionisintendedtoprotecttheassertionofconcerns,opinions,orideas(e.g.,political,cultural,artistic,orsocial)inordertoensurethatthegovernmentdoesnotdirectlyorindirectlyrestrictpersonalorcommunityexpression.30Thisrightisgroundedontheimperativethatgovernmenthastheresponsibilitytocultivatebothafullrangeofideasandthefreeowofinformation.Thisdisseminationof ideasandinformationallowsindividualstomakeinformeddecisionsabouttheirpersonallives,thusensuringself-governmentforandbythepeople.

The publication of commercial advertisements, although it allows individuals to meettheirneedsbygatheringinformationaboutgoodsandservices,isnotcomparabletoeitherthe exchange of ideas, information or communications betweenmore and less informedindividuals, or to the communication of social, political orartisticdiscourse.31Moreover,large corporations, such as those in the tobacco industry, have large sums ofmoney attheirdisposalthatcanbeusedtooverwhelmthemarketplacewithdistortedideas.Forthis

26 nconstitutionalit Claim brie or Noleza Piccardo ..I.C. y F., p. 8.2.4.

27 Id.

28 Id.

29 Central Hudson Gas & lectric Corp. v. Pulic ervice Commn, 447 .. 557, 561 (1980); Valentine v.

Chrestensen, 316 .. 52 (1942), breard v. Cit o lexandria, 341 .. 622 (1951) and Capital broadcasting Co.

v. Mitchell, 333 F. upp. 582 (..C. 1971). In this latest case, the idea that expression proposing a commercial

transaction is a dierent order o speech was one o the ases upon which the anning o all commercials or ciga-

rettes rom radio and television was upheld. Virginia tate bd. o Pharmac v. Virginia Citizens Consumer Council,

425 .. 748, 771 (1976).

30 New york imes Co. v. ullivan, 376 .. 254 (1964).

31 Gostin, Lawrence, Pulic Health Law, Power, ut, estraint, p. 379 (niversit o Caliornia Press, 2nd ed.

2008).


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reason,commercialspeechisentitledtomuchlower-levelprotectionthanpolitical,socialorartisticexpression.Theprotectionofcommercialspeech,ratherthanarisingfromfreedomofexpression,isderivedmorefromeconomicfreedom,arightthatcanberestrictedtoagreaterdegreeifitisinthepublicsinterestandforthecommongood.Inthecaseoftobacco,consideringtheproductsaddictivenature,ratherthancontributingtotherealizationoftherepublicanidealofself-government,itspublicadvertisementmayactuallyfrustratethisgoalbydiminishingtheautonomyofaddictedindividuals.ActivitiesthatposeasocialriskshouldbeparticularlyregulatedbytheState32andthisiscertainlythecasefortobaccoconsumption.Mostimportantly,theStatehastheundisputedpoweranddutytosafeguardthepopulationshealthandsafety.Thus,theStatemayundoubtedlyregulatecommercialspeechwhichisdesignedtoincreasetheuseofaproductthatisknowntocausesuffering,illness,andearly

death.

Thepurpose of social andpolitical speech is toenrich thedemocraticdebateand enableindividualstoexpressthemselvesartistically,culturallyandsocially;commercialspeech,ontheotherhand,servesasinglepurpose(tosatisfybusiness-relatedinterests)inconsistentwiththisprinciple.Theonlygoaloftheindustrysspeechistoobtainaprot,andthusitdoesnotenrichthedemocraticdebate.

gntina:Commercialspeechhasbeendenedasexpressionofideasrelatingtoonlytheissuerseconomicinterestandaudience,whichisrelatedsimplytoacommercial contractproposal.33Thethreeelementsthatcomprisethisformof

expressionare:1) identifyingaparticularproduct;2)advertisingthatproduct;and3)aimingfornancialgainasaresultoftheadvertisement.Commercialspeechisamanifestationoftheunderlyingeconomicactivity,andthereforemayberegulatedtothesameextentasthatactivity.34

mxico: Commercial speech is a combinationofmessages that proposes to itsrecipientstheperformanceofacommercialtransactionandthereforeitsproductionmayberegulatedwithinmuchbroaderlimitsthanifitdealtwithacaseofexercising

32 primn, odrigo and Camilo Castillo, Constitucin, democracia taaco en Colomia, Centro de studios de

erecho, Justicia ociedad (eJuticia), bogot, 2009, p. 10.

33 SeeR. R., A. c. Diario Clarn S.A. y otros, Civil National Chamer o ppeal, Chamer L (buenos ires,

rgentina, 2003) and National General ttorne opinion (.C. . N 1312, L XL), accepting a lawsuit to avoid the

pulication o explicit sexual advertisements in newspapers accesile to children.

34 brie as micus Curiae supporting respondents Provincia de anta Fe p. 4.1.b., Noleza Piccardo ..I.C. y F.

v. Provincia de anta Fe, 188/2006, upreme Court o rgentina.


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the freedom of expression on political matters. Under most circumstances,commercialspeechisoutsidethesphereofprotectionoffreedomofexpressionsinceitonlycomplementsthefreeexerciseofabusinessactivity.35

unit tats: TheUSSupremeCourtclearlydistinguishedtheprotectiongiventotheexpressionofpoliticalandsocialideasfromtheprotectiongiventocommercialspeechinthecaseCentral Hudson Gas & Electric Corp. v. Public Service Comm'n.36TheCourtestablishedadifferenttesttodeterminewhetherrestrictionstocommercialspeecharelawful;underthistest,thegovernmentstillbearstheburdenofproof,butthestatehasmuchgreaterlatitudetoimposerestrictionsoncommercialspeech:

Forcommercialspeechtocomewithinthatprovision,itatleastmustconcernlawfulactivityand not bemisleading.Next,weask whether the assertedgovernmentalinterestis substantial.Ifbothinquiriesyieldpositiveanswers,wemustdeterminewhethertheregulationdirectlyadvancesthegovernmentalinterestasserted,andwhetheritisnotmoreextensivethanisnecessarytoservethatinterest 37()TheGovernmentisnotrequiredtoemploytheleastrestrictivemeansconceivable,butitmustdemonstratenarrowtailoringofthechallengedregulationtotheassertedinterestatthatisnotnecessarilyperfect,butreasonable;thatrepresentsnotnecessarilythesinglebestdispositionbutonewhosescopeisinproportionto theinterestserved.38

2. nsty gnt: bcas o th iotanc o o o sch, th tat

st not ao to assa priori jgnt on th va o any sch. he

toacco industr urther asserts that reedom o speech is asic to a well-unctioning democrac.

oust protection o speech expands the amount o inormation availale to consumers, protects

democratic institutions permitting criticism and enriches the cultural practices o all people.

because o its importance, the tate must not e permitted, according to the industr, to prohiita

priorithe contents o advertising or pulications.39 peech ma onl e limited or prohiited i it can

e shown that the speech injures a ver narrow class o tate interests.40 he industr asserts that

its speech does not harm these tate interests.

35 mparo in review 91/2004. Crdito fanzador, .. de C.V., Compaa Mexicana de Garantas, ctoer 20,

2004. nanimit o votes. peaker: Jos amn Cosso az. ecretar: al M. Meja Garza.

36 Central Hudson Gas & lectric Corp. v. Pulic ervice Commn, 447 .. 557, 561 (1980).

37 Near v. Minnesota, 283 .. 697 (1931).

38 Greater New rleans broadcasting ssn., Inc. v. nited tates, 527 .. 173, 188 (1999).

39 Id.

40 brie as micus Curiae upporting espondents Provincia de anta Fe p. 4.1.b., Noleza Piccardo ..I.C. y

F. v. Provincia de anta Fe, 188/2006, upreme Court o rgentina.


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rsons: bcas cocia sch is ss otct than oitica, cta,

o socia sch, noa stictions on a priori sch staint a notaica.Normally,principlesoffreedomofexpressionrequirethatStatesrefrainfromrestrictingcultural,socialandpoliticalspeecha prioripassingjudgmentonthevalueorinterestinspeechbeforethepublisherorspeakerhashadtheopportunitytopresenttheview.41Ifit issufcientlythreatening,theStatemayimposecivilorcriminalliabilityonthepublisherorspeakerratherthanpreventingthespeech.Becauseadvertisingandcommercialspeecharenotasprotectedasotherformsofspeech,theymayberestricteda priori.42Thestatesgoal,moreover,istotargetcommercialadvertisingandpromotionspecicallydesignedtosellaproductknowntobehighlydangerous.

3. nsty gnt: h ight to sch is nshin in th ican

Convntion on Han rights an Nationa Constittions. rticle 13 o the merican

Convention on Human ights imposes a prohiition against censorship o speech, regardless o

how commendale the purposes sought such measures ma e.43 verone has the right

to reedom o thought and expression. his right includes reedom to seek, receive, and impart

inormation and ideas o all kinds, regardless o rontiers, either orall, in writing, in print, in the orm

o art, or through an other medium o ones choice.44 Most national constitutions in Latin merica

also provide protections or reedom o speech. For example, in rgentina, the right is protected

under rticles 14 and 32 o the Constitution.45

41 .. v. oert J. tevens, 130 . Ct. 1577, 78 LW 4267, 38 Media L. ep. 1577, 10 Cal. ail p. erv.

4819 (2010); imon & chuster, Inc. v. Memers o New york tate Crime Victims bd. 502 .. 105, 112 .Ct.

501 (1991). s a general matter, the First mendment means that government has no power to restrict expression

ecause o its message, ideas, suject matter or its content. tilp v. Contino, 629 F.upp.2d 449 (2009). Govern-

ment restrictions on speech ased on its content are presumptivel invalid and suject to strict scrutin.

42 ico ssociates v. ourism Co. o Puerto ico, 478 .. 328 (1986) (Puerto icos ``sustantial interest in

discouraging casino gamling residents justifes an on ads aimed at residents even though residents ma

legall engage in casino gamling, and even though ads aimed at tourists are permitted); nited tates v. dge

broadcasting Co., 509 .. 418 (1993), fnding a sustantial ederal interest in acilitating state restrictions on lot-

teries; bates v. tate bar o rizona, 433 .. 350, 383-84 (1977); hralik v. hio tate bar ssn, 436 .. 447,

456 (1978) (holding that requirements that advertisers disclose more inormation than the otherwise choose to

are upheld ``as long as [the] are reasonal related to the tates interest in preventing deception o consumers);

Zauderer v. fce o isciplinar Counsel, 471 .. 626, 651 & n.14 (1985) (upholding requirement that attornes

contingent ees ad mention that unsuccessul plaintis might still e liale or court costs); Florida bar v. Went For

It, Inc., 115 . Ct. 2371, 2379 (1995) (upholding a 30-da an on targeted, direct-mail solicitation o accident vic-

tims attornes);see he World Cigarette Pandemic-Part II, 85 N.y. tate J. Med. 391 (1985); and alor, Peter,

moke ing: he Politics o oacco (London: bodle Head, 1984), pp. 277-79.

43 nconstitutionalit Claim brie rom Noleza Piccardo ..I.C. y F., p. 8.2.4.

44 rganization o merican tates, merican Convention on Human ights rt. 13, Nov. 22, 1969, .....

No. 36, 1144 .N... 123.

45 Constitution o rgentina rt. 14 ll the inhaitants o the Nation are entitled to the ollowing rights, in accor-

dance with the laws that regulate their exercise, namel: to work and perorm an lawul industr; to navigate and

trade; to petition the authorities; to enter, remain in, travel through, and leave the rgentine territor; to pulish their

ideas through the press without previous censorship; to make use and dispose o their propert; to associate or


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rsons: s stat aov, cocia sch sho not consi

otct y o o xssion. This should be themain argumentdevelopedin responseto industry argumentsbased on freedomof expression.Asmentionedabove,commercialrightscanbelimitedandregulatedbytheStateandascommercialspeechispartofcommercialfreedom(andnotpartoftherighttofreedomofexpression)itcanbelimitedandregulatedbytheState.

Asa subsidiaryargument,to beusedonlyin cases/countrieswherecommercial speech isconsideredcovered/protectedbythefreedomofexpressionperspective,therighttofreedomofexpression can be limited undercertain circumstances.TheAmericanConvention onHumanRights, the InternationalCovenantonCivil and PoliticalRights aswell asmostnationalconstitutionsallowforlimitationsontherighttofreespeechwhereitendangers

thepublicshealthandsafety.ForthehighestformsofspeechideasandopinionstheAmericanConventiononHumanRightsexplicitlypermitstheimpositionofliabilitytoensureprotectionof(...)publichealthormorals.(art.13).UndertheInternationalCovenantonCivilandPoliticalRights(ICCPR),freedomofexpressionissubjecttonecessaryrestrictionsbasedongroundssuchaspublichealth(art19). 46Manynationalconstitutionsacknowledgetheimportantlimitationstofreespeechbasedonpublichealth.47

bazi: Article 220 of the Citizens Constitution preserves Brazilians thought,creation and expression but in paragraph 4 limits commercial advertising of

useul purposes; to proess reel their religion; to teach and to learn."; rt. 32 he Federal Congress shall not

enact laws restricting the reedom o the press or estalishing ederal jurisdiction over it.

46 International Covenant on Civil and Political ights, rt. 19, 999 .N... 171 (1966) 1. verone shall have the

right to hold opinions without intererence. 2. verone shall have the right to reedom o expression; this right shall

include reedom to seek, receive and impart inormation and ideas o all k inds, regardless o rontiers, either orall,

in writing or in print, in the orm o art, or through an other media o his choice. 3. he exercise o the rights pro-

vided or in paragraph 2 o this article carries with it special duties and responsiilities. It ma thereore e suject

to certain restrictions, ut these shall onl e such as are provided law and are necessar: (a) For respect o the

rights or reputations o others; () For the protection o national securit or o pulic order (ordre pulic), or o pulic

health or morals.

47 uthorit rom merican, british and Canadian courts supports exceptions to commercial ree speech or

protection o pulic health. Given the enormous health risks and economic costs to societ caused smokingtoacco and a sustantial weight o expert opinion as to the eects o advertising, I elieve [britains 2002 oacco

dvertising and Promotion ct] to have een a responsile and proportionate step. and others v he ecretar

o tate or Health [2004] WHC 2493. Moreover, the evidence estalishes that toacco advertising leads to an

increase in toacco consumption. ven merican law, which is more ocused on preserving the marketplace o

ideas permits the state to regulate commercial messages to protect consumers rom misleading, deceptive, or

aggressive sales practices, or require the disclosure o enefcial consumer inormation. 44 Liquor Mart, Inc. v.

hode Island, 517 .. 484, 501 (1996). It is the tates interest in protecting consumers rom commercial harms

that provides the tpical reason wh commercial speech can e suject to greater governmental regulation than

noncommercial speech. Cincinnati v. iscover Network, Inc., 507 .. 410, 426, 123 L. d. 2d 99, 113 . Ct.

1505 (1993).


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tobacco...becauseitconstitutespublicityofproducts,practicesandservices

whichmaybeharmfultohealthortotheenvironment.

Gataa:Articles 43and 44of the GuatemalanConstitution limit industry,commerce and labor to the extent that their activities impinge on other socialinterests.Article44specicallystatesthat[s]ocialinterestsprevailoverindividualinterests.48Anyindividualrightlikethatofacorporationadvertisingitsproductmustbebalancedagainstothercollectiveandconstitutionallyenshrinedrights,suchastherighttohealth(Articles93-95).

2. Subsidiary Responses Connected to the So-Called Freedom of

Expression for the Tobacco Industry

1. nsty gnt: Conss hav a ight to inoation. Consumers have the

right to suitale and accurate inormation and to the protection o their reedom o choice including

inormation provided manuacturers and retailers.49 because toacco products are legal, the

industr asserts that the are thereore authorized to provide truthul inormation aout the legal

products the sell.

rsons: Conss hav th ight to accat inoation, sch as th ican contnts o a oct.Tobaccoadvertisinggoeswellbeyondobjectiveinformation

suchasprocessandingredients,butisdesignedtomarketahazardousproductthroughthedisseminationofinaccurateanddistortedinformation.Thereisnouseoftobaccothatdoesnotharmtheuserandthoseexposedtotheirtobaccosmoke.Advertisingwhichemphasizestheassociationbetweentobaccoandsocialsuccess,personalorsexualsatisfactionnecessarilyobscurestherisks,includingofaddictionanddeath,oftobaccouse.Consumersrighttotruthfulinformation,therefore,requiresacomprehensivebanonadvertising,promotionandsponsorshipaswellaspackagingandlabelingrestrictions.Inmanycountries,consumersrighttoaccurateinformationisconstitutionallyenshrined.Thisrighttoinformationshouldbelimitedtoobjectivetruthfulinformationsuchaspriceandfulldisclosureofingredientsaswellashealthrisks.

gntina:Section42oftheArgentineConstitutionprovidesthatconsumersandusersofgoodsandserviceshavetherighttotheprotectionoftheirhealth,safety,andeconomicinterests;toadequateandtruthfulinformation;tofreedomofchoiceandequitableandreliabletreatment.




49 brief from IC Instituto brasileiro de efensa do Consumidor as micus Curiae supporting respondents, p. 2.


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mxico:Thelegalchallengeledagainstthenationaltobaccocontrollawincluded

aclaimontherighttoaccurateinformation.TherighttoinformationisfoundinArticle6oftheConstitution:therighttoinformationshallbeguaranteedbytheState.Article28oftheConstitutionrequiresthat:thelawshallprotectconsumers.Readtogether,thesearticlesplaceupontheStatethedutytoprotectcitizensthroughthedisclosureoffull,truthfulandtimelyinformationontheharmfulhealtheffectsofsmokingandexposuretosecondhandsmoke.Asaresult,inorderfortheStatetofulllitsobligationofprotectingsmokersandnon-smokershealth,itisnotenoughtoadoptmeasuresthatprotectnon-smokersfromtobaccosmokeexposure.TherighttoaccessofinformationrequiresthattheStateensureguaranteethatpeopleareproperlyinformedaboutsmokingseffects.50ThisrequirementwasclearlyspelledoutinarecentcasebeforetheConstitutionalCourtofMexico.InitsdecisionregardingtheBalderas Woolrichcase,theCourtstated,theprotectionofhealthistiedtothesatisfactionoftherighttoinformationandconsumerprotection.Itisnotenoughtoadoptmeasuresthatprotectnon-smokersfromexposureto smoke:rathertheremustbeappropriateinformationabouttheeffectsoftobaccoconsumption.Thus,theStatehasatriplemandate:toprotectindividualsfromadvertising,toensurethatthesesameindividualsreceiveadequateinformation,andtothusavoidpromotingtheexpansionoftheepidemic.51

2. nsty gnt: vtising an akting o not incas constion. he

toacco industr consistentl argues that toacco products are mature products, as opposed to

new or nontraditional products, so the unction o advertising does not include making the productsknown or increasing their overall consumption.52 ather, the argument goes, the importance o

advertising this tpe o product stems rom distinguishing a rand rom that o the competitor. 53

he purpose o such distinction is to attract clients that alread consume the products o the

competition, while at the same time maintaining the clients that use their own products. 54 his

argument is oten comined with the argument that the right to commercial ree speech should e

permitted ecause usinesses have a right to distinguish themselves rom their competitors.

50 Mexican upreme Court o Justice,Jorge Francisco Balderas Woolrich, revisedamparo 315/2010 against


51 Mexican upreme Court o Justice,Jorge Francisco Balderas Woolrich, revisedamparo 315/2010 against


52 nconstitutionalit Claim brie rom Noleza Piccardo ..I.C. y F., p. 7.1; brie rom IC Instituto brasileiro

de eensa do Consumidor as micus Curiae supporting respondents, p. 2.

53 nconstitutionalit Claim brie rom Noleza Piccardo ..I.C. y F., p. 7.1.

54 Id.


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rsons: oacco avtising incass constion an ais to von soks.Thepurposeoftobaccoadvertising,promotionandsponsorshipistoincreaseconsumptionandattractnewsmokers.55Tobaccoadvertisementsaredesignedtoassociatetobaccowithsexualandsocialsuccess,athleticism,courageandindependence,attributesthateasilyfascinateadolescents.56Scienticstudieshaveprovidedunambiguousevidencethatthemoreexposedtotobaccoadvertisingyoungpeopleare,themorelikelytheyaretousetobacco.57Peoplewhostartsmokinginyoutharemorelikelytobecomeaddictedtonicotineveryearlyinlife.58Unabletoquit,theybecomeheavyusersandcontinueusingtobaccothroughouttheirlives.59Lawsthatrestricttobaccoadvertisinghaveprovenaneffectivemeanstoreduceconsumption.Jurisdictionswithcomprehensiveadvertising,promotion,andsponsorshipbanswitnessdeclinesinconsumption.60

Alongwiththenatureofadvertising,whichdemonstratesitsgoalofattractingnewsmokers,and the success of advertising in increasing tobacco consumption, the scale of tobaccoadvertisingdemonstratesthemainintentoftheindustrysmarketingefforts.Evenifeffortstocapturethesmallsegmentofsmokerswhoareopentobrand-switchingrepresentapartofindustryexpenditures,thesheersizeofitstotalexpendituresbeliestheindustrysargumentthatthepurposeofitsadvertisingistoencouragetobaccouserstoswitchbrands.

55 urgeon General. educing toacco use: report o the urgeon General. Chapter 5 egulator eorts.

2000. vailale at: http://www.cdc.gov/toacco/data_statistics/sgr/sgr_2000/00_pds/chapter5.pd; e, Joe, et

al., oacco dvertising and Consumption: vidence o a Causal elationship, 8 J. Pulic Health Pol. 492, 494

(1987).

56 Lev, avid, et al., he eects o toacco control policies on smoking rates: a toacco control scorecard. 10 J.

Pulic Health Manag. Pract. 338-53 (2004).

57 iFranza, Joseph, et al., oacco promotion and the initiation o toacco use: assessing the evidence or

causalit. 117 Pediatrics 1237-48 (2006). vailale at: http://pediatrics.aappulications.org/cgi/content/ull/117/6/

e1237; Lovato, Chris, et al., Impact o toacco advertising and promotion on increasing adolescent smoking

ehaviours. Cochrane ataase o stematic eviews 2003:C003439. vailale at: http://www.mrw.inter-science.wile.com/cochrane/clssrev/articles/C003439/pd_s.html.

58 Krugman, ean, et al., nderstanding the role o cigarette promotion and outh smoking in a changing market-

ing environment. 10 J. Health Commun. 261-78 (2005). vailale at: http://www.inormaworld.com/smpp/tinterac

e~content=a714034939~ulltext=713240928.

59 Wellman, oert, et al., he extent to which toacco marketing and toacco use in flms contriute to chil-

drens use o toacco: a meta-analsis. 160 rch. Pediat. dol. Med. 1285-96 (2006). vailale at: http://archpedi.

ama-assn.org/cgi/content/ull/160/12/1285.

60 blecher, van, he impact o toacco advertising ans on consumption in developing countries, 27 J. Health

con. 930 (2008).


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3. Other Rights Outweigh Any Limited Protection for CommercialSpeech

Individualrightsmutuallyrestrictoneanother.Wheninconicttheyoughttobeharmonizedinawaythatmaximizesprotectionofallrights. 61Underthisanalysis,freedomofcommercialspeechshouldbesignicantlyrestrictedinordertomaximizetherightstohealth,lifeandacleanenvironment.62

1. right to Hath

a. Positive Right to Health.Manycountriesconstitutions(e.g.Brazil,GuatemalaandMexico) establish a positive right tohealth whichmust bebalancedagainst the

limitedprotectionprovidedtobusinessestoadvertisetheirproducts.Othercountriesconstitutionshavebeenfoundtoincludearighttohealththroughcourtinterpretation,forexamplebecausetheconstitutionincorporateshumanrightstreaties,providingconstitutionallevelstatustotherightsandguaranteesinthesetreaties. 63Becausethetobaccoepidemicisspreadthroughmisinformation,bansontobaccoadvertising(orrestrictionsinthelimitednumberofjurisdictionswhereacompletebanmaynotbeconstitutionallypermissible),promotion,andsponsorshiparewellwithinthestatesobligationstoprotecttherighttohealth.64Thepublichealththreatposedbytobaccoconsumptionandexposuretotobaccosmokeis soconclusivelyestablishedbytheevidencethatadvertisingbansarejustiedbythestatesdutytoprotectthepublichealth.65

b. The Right to Health is Fundamental to the Exercise of Speech .Goodhealthhasagreatimpactonpeoplesabilitytoexerciseinformedpoliticalandsocialspeechtheintendedtargetsoffreedomofexpression.66

c. Duty to Protect Health from Infringement or Interference by Third Parties . TheInternationalCovenantonEconomic,SocialandCulturalRights(ICESCR)imposesadutyonStatepartiestotakeallnecessarymeasurestoprotectthepublichealth(art.12).67AccordingtotheU.N.CommitteeonEconomic,SocialandCulturalRights,

61 Nogueira, Humerto, l erecho a la Inormacin en el mito del erecho Constitucional Comparado en

Ieroamrica stados nidos, 48 l erecho a la Inormacin erechos Humanos NM (2000).

62 Id.

63 rgentinean National Chamer, Viceconti, Mariela yestado Nacional s/ccin de amparo, 02/05/1998.

64 brief from IC Instituto brasileiro de efensa do Consumidor as micus Curiae upporting espondents, p. 6.

65 brie as micus Curiae supporting respondents Provincia de anta Fe. p. 4.1.b., Noleza Piccardo ..I.C. y F.

v. Provincia de anta Fe, 188/2006, upreme Court o rgentina.

66 Id.

67 International Covenant on conomic, ocial and Cultural ights rt. 12, 993 .N... 3 (1966) 1. he tates

Parties to the present Covenant recognize the right o everone to the enjoment o the highest attainale standard

o phsical and mental health. 2. he steps to e taken the tates Parties to the present Covenant to achieve


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GeneralCommentNo.14,Therighttothehighestattainablestandardofhealth(Art.

12oftheICESCR),therighttohealth,likeallhumanrights,imposesthreetypesorlevelsofobligationsonStatesparties:theobligationstorespect,protectandfulll(...)TheobligationtoprotectrequiresStatestotakemeasuresthatpreventthirdpartiesfrom interferingwithArticle 12 guarantees (para 33).68 The General CommentfurtherstatethatviolationsoftherighttohealthcanoccurthroughthedirectactionofStatesorotherentitiesinsufcientlyregulatedbyStates.69Inaddition,violationsoftheobligationtoprotectfollowfromthefailureofaStatetotakeallnecessarymeasurestosafeguardpersonswithintheirjurisdictionfrominfringementsoftherighttohealthbythirdparties.Thiscategoryincludessuchomissionsas(.. .)thefailuretoprotectconsumersandworkersfrompracticesdetrimentaltohealth,e.g.by(...) the failure to discourage production, marketing and consumption of tobacco,narcoticsandotherharmfulsubstances.70

2. right to li

The Right to Life is Fundamental to the Exercise of Speech.TherighttolifeisarequirementfortheexerciseandenjoinmentofallotherrightsguaranteedbytheConstitutionandinternationaltreaties. 71Preservationofhealthispartoftherighttolife,thustheStateisundertheobligationtoundertakepositiveactionstosecureindividualandcommunityhealthinordertosecuretherighttolife. 72Giventhetremendousharmthattobaccocausestohealthandtolife,regulatingtobaccoisanecessaryaspectofprotectingtherighttolifeand,consequently,tomakingpossible

peoplesenjoymentofallotherrightsaswell.

the ull realization o this right shall include those necessar or: (a) he provision or the reduction o the stillirth-

rate and o inant mortalit and or the health development o the child; () he improvement o all aspects o

environmental and industrial hgiene; (c) he prevention, treatment and control o epidemic, endemic, occupational

and other diseases; (d) he creation o conditions which would assure to all medical service and medical attention

in the event o sickness.

68 Committee on conomic, ocial and Cultural ights, General Comment No. 14 (2000), The Right to the High-est Attainable Standard of Health, p. 33, .N. oc. /C.12/2000/4 (ug. 11, 2000) he oligation to protect

requires tates to take measures that prevent third parties rom interering with article 12 guarantees.

69 Id. p. 48.

70 Id. p. 51 (emphasis added).

71 Campodnico v. Ministerio de alud ccin ocial p. 15, 823/1999, upreme Court o rgentina.

72 CC, Finall, the oligation to ulfl requires tates to adopt appropriate legislative, administrative, udget-

ar, judicial, promotional and other measures towards the ull realization o the right to health. In rgentina, the

right to lie is the frst right o human eings, which is recognized and guaranteed the Constitution . . .the preser-

vation o health includes the right to lie ... so that there is an urgent requirement or pulic authorities to guarantee

it perorming positive actions. micus brie in upport o the ttorne General o anta Fe.


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3. rights o th Chi

a. Becauseoftheevidenceshowingthatchildrenandadolescentsareparticulartargetsofthetobaccoindustry,73andbecausetheyareparticularlysusceptibletoitsadvertisingandmarketingpractices,internationalanddomesticlawofferingspecialprotectionforchildrenprovidesanadditionalargumentinsupportofacomprehensivebanontobaccoadvertising,promotion,andsponsorship.

b. The Convention on the Rights of the Child:AllcountriesinLatinAmericahaveratiedtheConventionontheRightsoftheChild.Article17(e)oftheConventionontheRightsoftheChildestablishesthatStatesPartiesrecognizetheimportantfunctionperformedbythemassmediaandshallensurethatthechildhasaccesstoinformationandmaterialfromadiversityofnationalandinternationalsources,

especially thoseaimedat the promotion ofhis orher social, spiritual andmoralwell-beingandphysicalandmentalhealth.Tothisend,StatesPartiesshall:(...)(e)Encouragethedevelopmentofappropriateguidelinesfortheprotectionofthechildfrominformationandmaterialinjurioustohisorherwell-being,bearinginmindtheprovisionsofarticles13and18. 74TheConventionscommitteehasrecognizedthenecessitytocontroltheinformationthatchildrenandadolescentsreceiveondangerousproductsliketobacco. 75TheCommitteehasalsostatedthattheStatesPartiesshouldprotectadolescentsagainstinformationthatmightbehurtfultotheirhealth,recommendingtoregulateortoprohibitinformationontobacco. 76Tobaccopublicityisprimarilyaimedatadolescentsbecausethatisthegroupinwhichtobaccoconsumptionbegins.77Moreover,tobaccoadvertisementdoesnotinformconsumers

73 biener, Lois, and Michael iegel, oacco Marketing and dolescent moking: More upport or a Causal

Inerence, 90 m J Pulic Health 410 (2000), we do not attriute the eect o toacco marketing to merel seeing

cigarette advertisementut the images the have come to represent through advertising campaign are particu-

larl attractive to adolescents who are looking or an identit the images are careull designed to oer." beguinot,

mannuella, et al., oacco advertising through French V in 2005: requent illicit roadcasting; its impact on

teenagers and oung adults, 32 J. Pulic Health184-90 (2009) ecruiting new smokers is the main ojective o

toacco advertising and sponsorship, creating a spontaneous positive association etween cigarette smoking

and perceived image in oung peoples mind.

74 Convention on the ights o the Child rt. 17 (e), 1577 .N... 3 (1989).

75 .N. Committee on the ights o the Child, General Comment No. 4 (2003), Adolescent health and develop-

ment in the context of the Convention on the Rights of the Child, p. 10, .N. oc. CC/GC/2003/4 (Jul 1, 2003)he right o adolescents to access appropriate inormation is crucial i tates parties are to promote cost-eective

measures, including through laws, policies and programmes, with regard to numerous health-related situations,

including those covered in articles 24 and 33 such as amil planning, prevention o accidents, protection rom

harmul traditional practices, including earl marriages and emale genital mutilation, and the ause o alcohol,

toacco and other harmul sustances.

76 Id. at 25 tates parties are thereore urged to regulate or prohiit inormation on and marketing o sustances

such as alcohol and toacco, particularl when it targets children and adolescents.

77 Gostin, Lawrence, Gloal egulator trategies or oacco Control, 298 J. m. Med. ssn 2057 (2007)

dvertising, Promotion, and ponsorship. For toacco companies to remain proftale, the must recruit new

smokers to replace those who quit or die. because most longterm smokers egin eore 18 ears o age, the

outh market is most valuale. he industr spends inordinatel on advertising, promotion, and sponsorship, and


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on the product itself and the harmful effects; rather, it induces an action thatthreatenshealth,theenvironmentandlife.78

Fromaconstitutionalperspectiveitispossibletopresentthefollowingprovisions:

i. Brazil:TheBrazilianConstitution,enactedonOctober5,1988,determinesthathealthisasocialright79andthatitisthedutyofthefamily,thesocietyandtheStatetoensuretochildrenandadolescents,withabsolutepriority,the right to life, health, nourishment, education, leisure, professionaltraining,culture,dignity, respect, freedom,andfamily andcommunitylife,aswellastoguardthemfromallformsofnegligence,discrimination,exploitation,violence,cruelty,andoppression.80

ii. Mexico:TheMexicanConstitutionspecicallyguaranteestochildrenthesatisfactionoftheirneedsforhealthandeducationforacomprehensivedevelopment.81

B. Right to Economic Freedom

Manyconstitutionsprovideforlibertyofindustry,commerce,andworkwhileestablishingthatsuchfreedomscanbelimitedbylawsforreasonsofsocialandnationalinterest.82Thetobaccoindustryhasinvokedtheseprovisionstoargue,forexample,thatadvertisingrestrictionsandbans,and

restrictionsandbansonsmokinginpublicplacesandworkplaces,decreasecompetitionandharmtheexerciseoflawfuleconomicactivity. 83Aswithargumentsbasedoncommercialfreespeech,theseprotectionsfailanytestofproportionalityduetotheoverwhelminginterestinprotectingthepublichealthfromtobaccouseandexposuretosmoke.84

the nited tates alone spent $13.11 illion in 2005. In developing countries, multinational companies advertise to

induce experimentation among nonsmokers and stimulate consumer demand or international rands instead o

local products. imultaneousl, companies promote outh smoking prevention campaigns as part o corporate

social responsiilit, although the are ineective and undermine eective toacco control. While aggressivel

courting outh culture, the industr takes credit or outh prevention.

78 brie rom IC Instituto brasileiro de eensa do Consumidor as micus Curiae upporting espondents,

p. 6.

79 Constitution o brazil o 1988, rt. 6.

80 Id., rt. 227

81 Constitution o Mexico, article 4, para. 6.

82 Constitution o Guatemala, rt. 43: Freedom o Industr, rade, and Work. he reedom o industr, trade, and

work is recognized, except or limitations which or social mot ives or national interest are imposed law.

83 nconstitutionalit Claim brie or Noleza Piccardo ..I.C. y F., p. 8.2.5.

84 niversidad de an Carlos de Guatemala rie as micus Curiae opposing claimant Guatemala Chamer o

Commerce p. III, Partial General nconsitutionalit, 2158-2009, Constitutional Court o Guatemala No article

o the Law ans or even restricts the manuacture, production, distriution and marketing o toacco products,

ecause its aim is not to regulate those activities, ut rather to regulate where the consumption o toacco prod-


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1. nsty gnt: vtising stictions vioat th o o coc.ccording to the toacco industr, legislation that regulates or orids the advertisement o

toacco thwarts the economic initiative, restricting legal activities, the ree circulation o goods and

generating, overall, an environment in which economic development cannot e naturall pursued.85

It does so violating commercial rights like the right to contract, the right to not contract, the right

to exercise commerce and industr, the right to advertise and sponsor events, etc.86

rsons: right to coc is not sstantiay act y toacco conto

as.Thelegislatureisfreetoregulaterightsandfreedoms,aslongasthoserightsandfreedomsmostessentialfeaturesarenot infringed.87Advertisinglawsandsmokefreelawsdonotinterferewiththeeconomicactivityitself,thatis,theactivitiesofbuying,producing,selling,importingandexportingtobacco,cigarettes,cigarsandotherproducts. 88Individualsand corporations are free to manufacture, sell and consume tobacco products subjectonlytotheStatesreasonableauthoritytoprotectthepublichealthasdescribedbelow. 89Firearms,prescriptionmedications,andevenconsumerproducts(e.g.,toys)arealsosubjecttosubstantialregulationduetothehazardstheypose.

This reasoningwas embraced by theColombianConstitutionalCourt in arecent case inwhichtheCourtratiedtheconstitutionalityofalawestablishingatotalbanontobaccopromotionandsponsorship.AccordingtotheCourt,suchameasurelieswithinthelimitsoftheStatescapacitytointerveneintheeconomybyimposingprohibitionsonactivitiestopromotetheconsumptionofacertaingroupofgoods,withoutaffectingtobaccoproductsmanufactureordistribution.Thus,theCourtconcludesthatthe lawdoesnotper seaffecteconomicfreedom.90

2. nsty gnt: rsticting constion vioats th o o coc.

ven i legal measures do not prohiit the manuacturing, production, distriution or commercialization

o toacco products, prohiiting consumption is a limitation or restriction on economic reedom.91

ucts is allowed in order to protect the right to lie and health o non-smokers, as well as the smoker himsel.

85 nconstitutionalit Claim brie or Noleza Piccardo ..I.C. y F., p. 8.2.5 (citing the Constitution o rgentina

articles 14 and 33).

86 Id.

87 brie as micus Curiae upporting espondents Provincia de anta Fe, p. 4.2.

88 Id.

89 Id.

90 Colomian Constitutional Court, xpediente -8096 - entencia C-830/10, ctoer 20, 2010.

91 Complaint rom Guatemalan Chamer o Commerce p. V.-) ), Partial General nconsitutionalit, 2158-2009,

Constitutional Court o Guatemala.


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rsons: h o o coc is iit y th tats oigation tootct oth ights.Tobaccocontrollawsdonotprohibitthemanufacture,production,distributionorcommercialization(withtheexceptionofadvertisingandmarketingrestrictions)oftobaccoproducts,becausetheirobjectiveisnottoregulatethoseactivities.92Theobjectiveistoregulatetobaccoconsumptiontoprotecttherighttohealthandlifeofconsumersandnon-smokers.93

a. The right to commerce is not an absolute right.Therighttocommerceandeconomicfreedom must be balanced with citizens right to health, life, information andsecurity.94Giventheoverwhelmingevidencethattobaccoconsumptionjeopardizestheserights,therighttocommerceinthissectoriscorrespondinglylimited.95

b. Colombia:TheConstitutionalCourthasstatedthat()theConstitutiondoes

notguaranteethesamelevelofprotectionforprivateinitiativesasforotherkindsofeconomicactivity.Thustheessentialnatureofthecommercialfreedomvariesconsidering the typeof activity.96 This tribunalhas decided a case that directlyaddressestherighttocommerceissue,clearlyestablishingthatcommercialfreedomisaninstanceinwhichpublicinterestsoutweighprivateinterests.TheCourtstated:

i. () it is undeniable that individual freedom in the economic eld,althoughprotectedbytheConstitution,isalsolimitedbytheprevalenceofthegeneral interest(Article1,ColombianPoliticalConstitution),bytheStatesinterventionandregulationcapacity(Articles333,334and335 CPC) and by the reasonableness and proportionality principlesdeveloped by thisCourt. Inaddition, the Courtemphasizes that it ispreciselywithintheeconomiceldinwhichthegeneralinterestclearlyoutweighstheprivateinterest(Articles1and58,CPC),consideringthatitisonlybylimitingeconomicfreedomsinareasonableandproportionatefashion,thattheStatewillbeabletocontributetotheachievementofafaireconomic,politicalandsocialorder(preamble)andtofullltheso-calledsecondgenerationHumanRightsorwelfareHumanRights97

c. Peru: The Constitutional Tribunal recently held that limitations on the rights

to commerce and economic freedomsmay be permissible if the limitations areproportionate to the right being protected (i.e. the right to public health, in

this particular instance). Consequently, the Court rejected a challenge to the

92 niversidad de an Carlos de Guatemala, rie as micus Curiae opposing claimant Guatemalan Chamer o

Commerce, Partial General nconsitutionalit, 2158-2009, Constitutional Court o Guatemala, p. III.

93 Id.

94 Constitutional Court o Guatemala, Cmara de comercio de Guatemala v. Goierno de Guatemala ocket

2158-2009 (2010).

95 brie as micus Curiae supporting respondents Provincia de anta Fe, p. 4.2.

96 Colomian Constitutional Court. ecision C-176, 1996. nofcial translation or this guide.

97 Colomian Constitutional Court. ecision C-265,1994. nofcial translation or this guide.


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constitutionalityofthecountrysreformedLaw28705,theLawforthePreventionandControl ofTobaccoConsumptionRisks,which imposesan absolutebanonsmoking in all health andeducational establishments,public institutions, indoorworkspaces,enclosedpublicspacesandanymeansofpublictransport.AlthoughtheCourtfoundthatthe100%smokefreelawdoesinfringeupontherightstocommerceandeconomicfreedom,itdeemedthemeasuretobepermissiblebecausethelimitedrightsarenotabsolute,andthelawitselfpassestheproportionalityprincipletest.TheCourtheldthatthemeasuresimposedbyLaw28705areproportionalbecausetheyhaveaconstitutionallyvalidgoal,aretheidealmeanstoreachthatgoal,arenecessary,andnally,arestrictlyproportional. 98

d. Guatemala: Articles 43 and 44 of the Guatemalan Constitution limit industry,

commerceandlabortotheextenttheiractivitiesimpingeonothersocialinterests.Article44specicallystatesthat[s]ocialinterestsprevailoverindividualinterests.99Restrictionsonindustry,commerceandlaborarejustiedbytheinterestintherighttohealth(Articles93-95).

C. Right to Property

TherighttoprivatepropertyisenshrinedintheAmericanConventiononHumanRightsaswell

asnationalconstitutions.100

Thetobaccoindustryarguesthattobaccocontrollawsthatrestrictadvertisingorprohibitindoorsmokingareunconstitutionalbecausetheylimitorprohibitsmokinginprivatepropertylikeworkplaces,restaurants,barsandhotels. 101Intheirview,privatecitizensarefreetodowhatevertheywantintheirownproperty.102

Althoughconstitutionallyprotected,therighttopropertyisnotanabsoluteright.Theconductof

98 Peruvian Constitutional riunal.Jaime Barco Rodas contra el Artculo 3 de la ley N. 28705 Ley general para

la prevencin y control de los riesgos del consumo de tabaco, unconstitutionalit proceeding, Jul 2011. section 3,

paragraph 28.




100 rganization o merican tates, merican Convention on Human ights, rt. 21 rticle 21. ight to Prop-

ert 1.verone has the right to the use and enjoment o his propert. he law ma suordinate such use and

enjoment to the interest o societ. 2.No one shall e deprived o his propert except upon pament o just com-

pensation, or reasons o pulic utilit or social interest, and in the cases and according to the orms estalished

law. 3.sur and an other orm o exploitation o man man shall e prohiited law.

101 Man toacco control laws provide exemptions or these industries, however. Complaint rom the Guatemalan

Chamer o Commerce, p. V.-) ).

102 Id.


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illegalactivitieswithinprivatepropertyhasalwaysbeensubjecttostateregulation.103

Moreover,thestateregulateslegalactivitieswithintheworkplaceandimposesrequirementsonemployers.Forexample,emergencyexitsandsafetyregulationsrequirementsareimposedonprivatelyownedworkplaces.Additionally,whenapplyingthebalancingtesttosolvethepossibleconictbetweentherighttoprivatepropertyandtherighttohealth,itiseasytoconcludethatthelargerinterestofprotectingthehealthofworkersandthepublicshouldprevailoverthesmallerinterestofavoidinglimitationsontherighttoproperty.104

1. ndusty gument: he right to poety is enshined in the meican Convention

on Human rights and National Constitutions. rticle 21 of the merican Convention

on Human ights and most national constitutions guarantee the right to property.105

hetoacco industry relies on the following constitutional provisions, for example:

gntina:Section14:AlltheinhabitantsoftheNationareentitledtothefollowingrights,inaccordancewiththelawsthatregulatetheirexercise,namely:toworkandperformanylawfulindustry;tonavigateandtrade;topetitiontheauthorities;toenter,remainin,travelthrough,andleavetheArgentineterritory;topublishtheirideasthroughthepresswithoutpreviouscensorship;to make use and dispose of their property;toassociateforusefulpurposes;toprofessfreelytheirreligion;toteachandtolearn.106

Section17:Propertymaynotbeviolated,andnoinhabitantoftheNationcanbedeprivedofitexceptbyvirtueofasentencebasedonlaw.Expropriationforreasonsofpublicinterestmustbeauthorizedbylawandpreviouslycompensated()107

bazi: The Constitution ofBrazil guarantees the right ofproperty but subjects it toaprocedureforexpropriationforpublicnecessityoruse,or forsocialinterest,withfairand

103 Constitution o Guatemala, rt. 40: xpropriation. In specifc cases, private propert can e expropriated or

reasons o dul proven collective utilit, social eneft, or pulic interest. xpropriation will have to e suject to the

proceedings indicated the law, and the aected propert will e appraised experts taking its actual value into

account. Compensation will have to e made in anticipation [ser previa] and in legal tender, unless another orm o

compensation is agreed upon with the interested part. nl in cases o war, pulic disaster, or serious disruption

o peace can there e occupation or intererence with propert or expropriation without prior compensation, ut

the latter will have to e done immediatel ollowing the end o the emergenc. he law will estalish the norms to

e ollowed with enem propert. he orm o pament o compensation or the expropriation o idle land will e

determined law. In no case will the deadline to make such pament eective exceed 10 ears.

104 See e.g. iegel, Michael,Involuntar moking in the estaurant Workplace, 270 J. m. Med. ssn 490, 490

(1993).

105 rganization o merican tates, merican Convention on Human ights, rt. 21.

106 Constitution o rgentina, rticle 14 (emphasis added).

107 Constitution o rgentina, rticle 17.


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previouspecuniarycompensation,exceptforthecasesprovidedinthisConstitution.Article5,XXIIandXXIII,andArticle170,IIandIII,alsosubjecttherightofpropertytoitssocialfunction(funo social da propriedade).

Gataa: Article 39 of the Guatemala Constitution provides that private property isguaranteedasarightinherenttothehumanperson.Everypersonmayfreelydisposeoftheirpropertyinaccordancewiththelaw.TheGuatemalanConstitution(art.40)providesforanexpropriation(i.e.,takings)procedure,whichmeansthatthepropertyrightisnotunderstoodtobeabsolute.

rsons: h ican Convntion on Han rights an nationa constittions

iit th ight to oty in th intsts o socity. Ingeneral,privatepropertyinterestsaresubordinatetolargersocialinterestsincludingthepreservationofthepublichealth.

TheInter-AmericanCommissiononHumanRightsrecognizesnumerousexceptionstotherighttoproperty:

Limitation of property rights is permissible to guarantee other rights.Article21oftheAmericanConventiononHumanRightsexplicitlysubjectstherighttopropertytopotentiallimitationsinprotectionoftheinterestofsociety,bysayingthatthelawmaysubordinatetheuseandenjoymentoftherighttopropertytotheinterestofsociety.108TheInter-AmericanCourtofHumanRightshasrecognizedthat[t]hesocialroleofthepropertyisafundamentalelementforitsfunctioningandforthisreason,theState,inordertoguaranteeotherfundamental

rightsofvitalrelevanceinaspecicsociety,canlimitorrestricttherighttoproperty,alwaysrespectingthecasescontainedinArticle21oftheConventionandthegeneralprinciplesofinternationallaw.109

Limitation of property rights is permissible where the act is lawful, related to a legitimate state

interest and proportional to the aim of the state interest. The Inter-AmericanCommissiononHumanRightshassaidthatitcanbedeterminedifastatuteconstitute[s]anarbitraryinterferenceintherighttopropertyoftheallegedvictims,fromthefollowingtest:i)Iftherestrictionwasimposedthroughalaw;ii)Iftherestrictionrespondedtoalegitimateaimtoraiseasocialinterestortopreservethegeneralwell-beinginademocraticsociety;andiii)Iftherestrictionwereproportionalinthesenseofbeingreasonabletoobtainthisaimand,in

anycase,ofnotsacricingtheessenceoftheright(). 110Astatutethatmeetsthistestisapermissiblerestrictionontherighttoproperty.Anapplicationofthistestisprovidedbelow,anddemonstrateshowtobaccocontrollawsmeetthistest.111

108 rganization o merican tates, merican Convention on Human ights, rt. 21

109 alvador Chirioga v. cuador, 2008 Inter-m. Ct. H.. (ser. C) No. 179 (2008), p. 60.

110 sociacin Nacional de x ervidores del Instituto Peruano de eguridad ocial v. Per, Case 12.670, Inter-

m. C.H.., eport No. 38/09 (2009), p. 112.

111 See sociacin Nacional de x ervidores del Instituto Peruano de eguridad ocial v. Per, (Carozza con-


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ThetestundertheAmericanConventiononHumanRights:lanss

Aslongasthestatutehasbeenpassedaccordingtotheregularprocessestablishedintheinternallawofeachcountry,ashasconsistentlybeenthecasewithtobaccocontrols,thisrequirementisdeemedfullled.112

lgitiat i

Constitutionsandinternationallawestablishlegitimateaims.

The right to life is essential to the exercise and enjoyment of any other rightguaranteedintheConstitutionandinternationaltreaties.113

Thepreservationofhealthispartoftherighttolife;thus,thereisanimmediateobligationforpublicauthoritiestoguaranteeitthroughpositiveactions.114

Article3oftheWHOFCTCestablishesthattheobjectiveofthisConventionanditsprotocolsistoprotectpresentandfuturegenerationsfromthedevastatinghealth,social, environmental and economic consequences of tobacco consumption andexposuretotobaccosmokebyprovidingaframeworkfortobaccocontrolmeasurestobeimplementedbythePartiesatthenational,regionalandinternationallevelsinordertoreducecontinuallyandsubstantiallytheprevalenceoftobaccouseandexposuretotobaccosmoke.115

Thus,anyefforttolimitexposuretotobaccoenvironmentsbycreatingsmokefreeplaces,banningpublicity,andothereffortsinorder

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