wyeth levine argued november decided march petitioner wyeth manufactures antinausea drug phenergan clinician injected respondent levine phenergan method whereby drug injected directly patient vein drug entered levine artery developed gangrene doctors amputated forearm levine brought damages action alleging inter alia wyeth failed provide adequate warning significant risks administering phenergan method vermont jury determined levine injury occurred phenergan label included adequate warning awarded damages pain suffering substantial medical expenses loss livelihood professional musician declining overturn verdict trial rejected wyeth argument levine claims federal law phenergan labeling approved federal food drug administration fda vermont affirmed held federal law levine claim phenergan label contain adequate warning method administration pp argument levine claims impossible wyeth comply duties underlying claims federal labeling duties rejected although manufacturer generally may change drug label fda approves supplemental application agency changes effected cbe regulation permits certain preapproval labeling changes add strengthen warning improve drug safety pursuant cbe regulation wyeth unilaterally added stronger warning administration evidence fda ultimately rejected labeling change wyeth cramped reading cbe regulation broad assertion unilaterally changing phenergan label violated federal law governing unauthorized distribution misbranding drugs based fundamental misunderstanding fda rather manufacturer bears primary responsibility drug labeling central premise food drug cosmetic act fdca fda regulations manufacturer bears responsibility content label times pp wyeth argument requiring comply duty provide stronger warning interfere congress purpose entrusting expert agency drug labeling decisions meritless relies untenable interpretation congressional intent overbroad view agency power state law history fdca shows congress intend actions advancing argument fda must presumed established specific labeling standard leaves room different judgments wyeth relies statement congress preamble fda regulation declaring claims threaten fda statutorily prescribed role although agency regulation force law conflicting state requirements case involves regulation merely agency assertion state law obstacle achieving statutory objectives congress authorized federal agency state law directly weight accords agency explanation state law impact federal scheme depends thoroughness consistency persuasiveness skidmore swift standard fda preamble merit deference inherently suspect light fda failure offer interested parties notice opportunity comment question odds available evidence congress purposes reverses fda longstanding position state law complementary form drug regulation without providing reasoned explanation geier american honda motor distinguished pp affirmed stevens delivered opinion kennedy souter ginsburg breyer joined breyer filed concurring opinion thomas filed opinion concurring judgment alito filed dissenting opinion roberts scalia joined wyeth petitioner diana levine writ certiorari vermont march justice stevens delivered opinion directly injecting drug phenergan patient vein creates significant risk catastrophic consequences vermont jury found petitioner wyeth manufacturer drug failed provide adequate warning risk awarded damages respondent diana levine compensate amputation arm warnings phenergan label deemed sufficient federal food drug administration fda approved wyeth new drug application later approved changes drug labeling question must decide whether fda approvals provide wyeth complete defense levine tort claims conclude phenergan wyeth brand name promethazine hydrochloride antihistamine used treat nausea injectable form phenergan administered intramuscularly intravenously administered intravenously either method whereby drug injected directly patient vein method whereby drug introduced saline solution hanging intravenous bag slowly descends catheter inserted patient vein drug corrosive causes irreversible gangrene enters patient artery levine injury resulted injection phenergan april previous visits local clinic treatment migraine headache received intramuscular injection demerol headache phenergan nausea combination provide relief returned later day received second injection drugs time physician assistant administered drugs method phenergan entered levine artery either needle penetrated artery directly drug escaped vein surrounding tissue phenomenon called perivascular extravasation came contact arterial blood result levine developed gangrene doctors amputated first right hand entire forearm addition pain suffering levine incurred substantial medical expenses loss livelihood professional musician settling claims health center clinician levine brought action damages wyeth relying negligence theories although phenergan labeling warned danger gangrene amputation following inadvertent levine alleged labeling defective failed instruct clinicians use method intravenous administration instead higher risk method broadly alleged phenergan reasonably safe intravenous administration foreseeable risks gangrene loss limb great relation drug therapeutic benefits app wyeth filed motion summary judgment arguing levine claims federal law found merit either wyeth field argument since abandoned conflict argument respect contention actual conflict specific fda order levine action reviewed sparse correspondence wyeth fda phenergan labeling found evidence wyeth earnestly attempted strengthen injection warning fda specifically disallowed stronger language record developed lack ed evidence fda set ceiling matter ibid evidence presented jury trial showed risk injection perivascular extravasation almost entirely eliminated use rather administration iv drip started saline flow properly catheter vein fluid entering artery surrounding tissue see contrast even careful experienced clinician using method occasionally expose artery phenergan see phenergan labeling warned injection perivascular extravasation advised hen administering irritant drug intravenously usually preferable inject tubing intravenous infusion set known functioning satisfactorily labeling contain specific warning risks administration trial record also contains correspondence wyeth fda discussing phenergan label fda first approved injectable phenergan wyeth submitted supplemental new drug applications agency approved proposing labeling changes wyeth submitted third supplemental application response new fda rule governing drug labels next years wyeth fda intermittently corresponded phenergan label notable activity occurred fda suggested different warnings risk arterial exposure wyeth submitted revised labeling incorporating proposed changes fda respond instead requested wyeth labeling use without addressing wyeth submission instructed etain verbiage current label regarding injection changes labeling related injection fda approved wyeth application instructing phenergan final printed label must identical approved package insert based regulatory history trial judge instructed jury consider evidence wyeth compliance fda requirements compliance establish warnings adequate also instructed without objection wyeth fda regulations permit drug manufacturer change product label add strengthen warning product without prior fda approval long later submits revised warning review approval answering questions special verdict form jury found wyeth negligent phenergan defective product result inadequate warnings instructions intervening cause broken causal connection product defects plaintiff injury awarded total damages reduced account levine earlier settlement health center clinician august trial filed comprehensive opinion denying wyeth motion judgment matter law making findings fact based trial record supplemented one letter wyeth found trial rejected wyeth arguments determined direct conflict fda regulations levine claims regulations permit strengthened warnings without fda approval interim basis record contained evidence least reports amputations similar levine since also found state tort liability case obstruct fda work agency paid passing attention question whether warn administration phenergan addition noted state law serves compensatory function distinct federal regulation vermont affirmed held jury verdict conflict fda labeling requirements phenergan wyeth warned administration without prior fda approval federal labeling requirements create floor ceiling state regulation dissent chief justice reiber argued jury verdict conflicted federal law inconsistent fda conclusion intravenous administration phenergan safe effective importance issue coupled fact fda changed position state tort law endorses views expressed chief justice reiber dissent persuaded us grant wyeth petition certiorari question presented petition whether fda drug labeling judgments preempt state law product liability claims premised theory different labeling judgments necessary make drugs reasonably safe use pet cert ii wyeth makes two separate arguments first impossible comply duty modify phenergan labeling without violating federal law see fidelity fed sav loan assn de la cuesta second recognition levine state tort action creates unacceptable obstacle accomplishment execution full purposes objectives congress hines davidowitz substitutes lay jury decision drug labeling expert judgment fda preface evaluation arguments identify two factual propositions decided trial proceedings emphasize two legal principles guide analysis review history controlling federal statute trial proceedings established levine injury occurred phenergan label included adequate warning risks method administering drug record contains evidence physician assistant administered greater dose label prescribed may inadvertently injected drug artery rather vein continued inject drug levine complained pain nevertheless jury rejected wyeth argument clinician conduct intervening cause absolved liability see app jury verdict finding wyeth negligent well strictly liable jury also determined levine injury foreseeable inadequate label proximate cause levine injury supported record longer challenged trial proceedings established critical defect phenergan label lack adequate warning risks administration levine also offered evidence method contraindicated phenergan never administered intravenously even method perhaps reason dissent incorrectly assumes duty issue duty contraindicate method see post vermont explained jury verdict established phenergan warning insufficient mandate particular replacement warning require contraindicating administration may number ways wyeth strengthen phenergan warning without completely eliminating administration therefore need decide whether state rule proscribing intravenous administration narrower question presented whether federal law levine claim phenergan label contain adequate warning using method administration answer question must guided two cornerstones jurisprudence first purpose congress ultimate touchstone every case medtronic lohr internal quotation marks omitted see retail clerks schermerhorn second cases particularly congress field traditionally occupied assumption historic police powers superseded federal act unless clear manifest purpose congress lohr quoting rice santa fe elevator order identify purpose congress appropriate briefly review history federal regulation drugs drug labeling congress enacted first significant public health law federal food drugs act ch stat act prohibited manufacture interstate shipment adulterated misbranded drugs supplemented protection consumers already provided state regulation liability congress became increasingly concerned unsafe drugs fraudulent marketing enacted federal food drug cosmetic act fdca ch stat amended et seq act substantial innovation provision premarket approval new drugs required every manufacturer submit new drug application including reports investigations specimens proposed labeling fda review application became effective manufacturer prohibited distributing drug fda reject application determined drug safe use labeled though agency failed act application became effective days filing fdca stat congress amended fdca shifted burden proof fda manufacturer agency prove harm keep drug market amendments required manufacturer demonstrate drug safe use conditions prescribed recommended suggested proposed labeling distribute drug stat addition amendments required manufacturer prove drug effectiveness introducing substantial evidence drug effect purports represented conditions use prescribed recommended suggested proposed labeling enlarged fda powers protect public health assure safety effectiveness reliability drugs congress took care preserve state law amendments added saving clause indicating provision state law invalidated upon direct positive conflict fdca consistent provision state suits continued unabated despite fda regulation riegel medtronic slip ginsburg dissenting see collecting state cases congress enacted express provision medical devices see stat codified declined enact provision prescription drugs levine injury lawsuit congress amended fdca stat first time granted fda statutory authority require manufacturer change drug label based safety information becomes available drug initial approval however congress enact provision senate bill required fda preapprove changes drug labels see pp passed proposing new instead adopted rule construction make clear manufacturers remain responsible updating labels see stat iii wyeth first argues levine claims impossible comply duties underlying claims federal labeling duties see de la cuesta fda premarket approval new drug application includes approval exact text proposed label see cfr generally speaking manufacturer may change drug label fda approves supplemental application however fda regulation permits manufacturer make certain changes label receiving agency approval among things changes effected cbe regulation provides manufacturer changing label add strengthen contraindication warning precaution adverse reaction add strengthen instruction dosage administration intended increase safe use drug product may make labeling change upon filing supplemental application fda need wait fda approval iii wyeth argues cbe regulation implicated case amendment provides manufacturer may change label reflect newly acquired information fed reg resting language wyeth argues simply reaffirmed interpretation regulation effect case tried wyeth contends changed phenergan label response new information fda considered maintains levine pointed information concerning risks administration thus wyeth insists impossible discharge obligation provide stronger warning administration without violating federal law wyeth argument misapprehends federal drug regulatory scheme burden establishing defense need decide whether cbe regulation consistent fdca previous version regulation wyeth urge wyeth revised phenergan label even accordance amended regulation fda explained notice final rule acquired limited new data also encompasses new analyses previously submitted data rule accounts fact risk information accumulates time data may take different meaning light subsequent developments sponsor submits adverse event information fda later conducts new analysis data showing risks different type greater severity frequency reports previously submitted fda sponsor meets requirement acquired information see also record limited concerning newly acquired information wyeth risks administration phenergan wyeth argue trial information required cbe labeling change levine however present evidence least incidents prior injury phenergan injection resulted gangrene amputation see app first incident came wyeth attention notified fda worked agency change phenergan label later years amputations continued occur wyeth analyzed accumulating data added stronger warning administration drug wyeth argues unilaterally added warning violated federal law governing unauthorized distribution misbranding argument change phenergan labeling subjected liability unauthorized distribution rests assumption labeling change rendered phenergan new drug lacking effective application strengthening warning administration made phenergan new drug see defining new drug cfr warning rendered phenergan misbranded fdca provide drug misbranded simply manufacturer altered label instead misbranding provision focuses substance label among things proscribes labels fail include adequate warnings moreover statute contemplates federal juries resolve misbranding claims fda belief drug misbranded conclusive see idea fda bring enforcement action manufacturer strengthening warning pursuant cbe regulation difficult accept neither wyeth identified case fda done wyeth cramped reading cbe regulation broad reading fdca misbranding unauthorized distribution provisions premised fundamental misunderstanding wyeth suggests fda rather manufacturer bears primary responsibility drug labeling yet many amendments fdca fda regulations remained central premise federal drug regulation manufacturer bears responsibility content label times charged crafting adequate label ensuring warnings remain adequate long drug market see cfr requiring manufacturer revise label include warning soon reasonable evidence association serious hazard drug placing responsibility postmarketing surveillance manufacturer fed reg manufacturers continue responsibility federal law maintain labeling update labeling new safety information indeed prior fda lacked authority order manufacturers revise labels see stat congress granted fda authority reaffirmed manufacturer obligations referred specifically cbe regulation reflects manufacturer ultimate responsibility label provides mechanism adding safety information label prior fda approval see stating manufacturer retains responsibility maintain label accordance existing requirements including subpart part sections title code federal regulations successor regulations emphasis added thus risk gangrene injection phenergan became apparent wyeth duty provide warning adequately described risk cbe regulation permitted provide warning receiving fda approval course fda retains authority reject labeling changes made pursuant cbe regulation review manufacturer supplemental application retains authority reviewing supplemental applications absent clear evidence fda approved change phenergan label conclude impossible wyeth comply federal state requirements wyeth offered evidence argue attempted give kind warning required vermont jury prohibited see tr oral arg see also brief amicus curiae suggest fda intended prohibit strengthening warning administration agency deemed warning inappropriate reviewing phenergan drug applications trial vermont rejected account matter fact decision wyeth motion judgment matter law trial found evidence record either fda manufacturer gave passing attention issue versus administration app vermont likewise concluded fda made affirmative decision preserve method intended prohibit wyeth strengthening warning administration moreover wyeth argue supplied fda evaluation analysis concerning specific dangers posed method accordingly credit wyeth contention fda prevented adding stronger warning method intravenous impossibility demanding defense record us wyeth failed demonstrate impossible comply federal state requirements cbe regulation permitted wyeth unilaterally strengthen warning mere fact fda approved phenergan label establish prohibited change iv wyeth also argues requiring comply duty provide stronger warning administration obstruct purposes objectives federal drug labeling regulation levine tort claims maintains interfere congress purpose entrust expert agency make drug labeling decisions strike balance competing objectives brief petitioner find merit argument relies untenable interpretation congressional intent overbroad view agency power state law wyeth contends fdca establishes floor ceiling drug regulation fda approved drug label verdict may deem label inadequate regardless whether evidence fda considered stronger warning issue glaring problem argument evidence congress purposes contrary building act congress enacted fdca bolster consumer protection harmful products see kordel sullivan congress provide federal remedy consumers harmed unsafe ineffective drugs statute subsequent amendment evidently determined widely available state rights action provided appropriate relief injured may also recognized remedies consumer protection motivating manufacturers produce safe effective drugs give adequate warnings congress thought suits posed obstacle objectives surely enacted express provision point fdca history despite enactment express provision medical devices see stat codified congress enacted provision prescription drugs see riegel slip congress applied clause entire fdca instead wrote clause applies medical devices silence issue coupled certain awareness prevalence state tort litigation powerful evidence congress intend fda oversight exclusive means ensuring drug safety effectiveness justice explained opinion unanimous case federal particularly weak congress indicated awareness operation state law field federal interest nonetheless decided stand concepts tolerate whatever tension bonito boats thunder craft boats internal quotation marks omitted see also supra discussing presumption despite evidence congress regard state tort litigation obstacle achieving purposes wyeth nonetheless maintains fdca requires fda determine drug safe effective conditions set forth labeling agency must presumed performed precise balancing risks benefits established specific labeling standard leaves room different judgments advancing argument wyeth relies statement congress instead preamble fda regulation governing content format prescription drug labels see brief petitioner citing fed reg preamble fda declared fdca establishes fda approval labeling preempts conflicting contrary state law stated certain actions involving claims threaten fda statutorily prescribed role expert federal agency responsible evaluating regulating drugs recognized agency regulation force law conflicting state requirements see geier american honda motor hillsborough county automated medical laboratories cases performed conflict determination relying substance state federal law agency proclamations faced regulation case rather agency mere assertion state law obstacle achieving statutory objectives congress authorized fda state law directly cf authorizing fda determine scope medical devices amendments clause question weight accord fda opinion prior cases given weight agency views impact tort law federal objectives subject matter technica relevant history background complex extensive geier even cases however deferred agency conclusion state law rather attended agency explanation state law affects regulatory scheme agencies special authority pronounce absent delegation congress unique understanding statutes administer attendant ability make informed determinations state requirements may pose obstacle accomplishment execution full purposes objectives congress hines see geier lohr weight accord agency explanation state law impact federal scheme depends thoroughness consistency persuasiveness cf mead skidmore swift standard fda preamble merit deference fda issued notice proposed rulemaking december explained rule contain policies federalism implications preempt state law fed reg see also noting proposed rule propose preempt state law agency finalized rule without offering interested parties notice opportunity comment articulated sweeping position fdca effect regulatory preamble agency views state law inherently suspect light procedural failure preamble odds evidence congress purposes reverses fda longstanding position without providing reasoned explanation including discussion state law interfered fda regulation drug labeling decades coexistence fda position plainly reflect agency view times relevant litigation prior levine injury fda suggest state tort law stood obstacle statutory mission contrary cast federal labeling standards floor upon build repeatedly disclaimed attempt claims instance fda stated believe evolution state tort law cause development standards odds agency regulations noted establishing minimal standards drug labels intend preclude imposing additional labeling requirements keeping congress decision tort suits appears fda traditionally regarded state law complementary form drug regulation fda limited resources monitor drugs manufacturers superior access information drugs especially postmarketing phase new risks emerge state tort suits uncover unknown drug hazards provide incentives drug manufacturers disclose safety risks promptly also serve distinct compensatory function may motivate injured persons come forward information actions particular lend force fdca premise manufacturers fda bear primary responsibility drug labeling times thus fda long maintained state law offers additional important layer consumer protection complements fda agency preamble represents dramatic change position largely based fda new position wyeth argues case presents conflict state federal law analogous one issue geier held state tort claims premised honda failure install airbags conflicted federal regulation require airbags cars department transportation dot promulgated rule provided car manufacturers range choices among passive restraint devices geier rejecting standard agency called gradual mix passive restraints order spur technological development win consumer acceptance plaintiff claim car manufacturers duty install airbags presented obstacle achieving variety mix devices federal regulation sought wyeth dissent contend regulatory scheme case nearly identical described quite different geier dot conducted formal rulemaking adopted plan phase mix passive restraint devices examining rule dot contemporaneous record revealed factors agency weighed balance struck determined state tort suits presented obstacle federal scheme conducting analysis considered agency explanation state law interfered regulation regarding support independent conclusion plaintiff tort claim obstructed federal regime contrast occasion case consider effect specific agency regulation bearing force law fda newfound opinion expressed preamble state law frustrate agency implementation statutory mandate fed reg merit deference reasons indeed complex extensive regulatory history background relevant case geier undercut fda recent pronouncements reveal longstanding coexistence state federal law fda traditional recognition remedies recognition place time agency reviewed wyeth phenergan short wyeth persuaded us claims like levine obstruct federal regulation drug labeling congress repeatedly declined state law fda recently adopted position state tort suits interfere statutory mandate entitled weight although recognize claims might well frustrate achievement congressional objectives case conclude impossible wyeth comply state federal law obligations levine claims stand obstacle accomplishment congress purposes fdca accordingly judgment vermont affirmed ordered wyeth petitioner diana levine writ certiorari vermont march justice breyer concurring write separately emphasize statement occasion case consider effect specific agency regulation bearing force law ante state tort law sometimes help food drug administration fda uncover unknown drug hazards encourage drug manufacturers disclose safety risks ante also possible state tort law sometimes interfere fda desire create drug label containing specific set cautions instructions also note argued state tort law sometimes raise prices point sick unable obtain drugs need see lasagna chilling effect product liability new drug development liability maze huber litan eds fda may seek determine whether state tort law acts help hindrance achieving safe medical care congress sought medtronic lohr breyer concurring part concurring judgment cf bates dow agrosciences llc breyer concurring may seek embody determinations lawful specific regulations describing example labeling requirements serve ceiling well floor possible determinations effect see lohr supra opinion breyer citing hillsborough county automated medical laboratories agree however regulation issue case wyeth petitioner diana levine writ certiorari vermont march justice thomas concurring judgment agree fact food drug administration fda approved label petitioner wyeth drug phenergan judgment judgment based jury finding label adequately warn risk involved administering phenergan injection method federal law without prior approval fda wyeth add ed strengthen ed information label contraindication warning precaution adverse reaction cfr iii dosage administration intended increase safe use drug product iii order reflect newly acquired information including new analyses previously submitted data dangers administration phenergan fed reg thus possible wyeth label market phenergan compliance federal law also providing additional warning information label beyond previously approved fda addition federal law give drug manufacturers unconditional right market federally approved drug times precise label initially approved fda vermont judgment case therefore directly conflict federal law write separately however join majority implicit endorsement implied doctrines particular become increasingly skeptical purposes objectives jurisprudence approach routinely invalidates state laws based perceived conflicts broad federal policy objectives legislative history generalized notions congressional purposes embodied within text federal law implied doctrines wander far statutory text inconsistent constitution concur judgment order ensure protection fundamental liberties atascadero state hospital scanlon internal quotation marks omitted constitution establishes system dual sovereignty federal government gregory ashcroft framers adopted mandated balance power atascadero state hospital supra reduce risk tyranny abuse either front federalist structure joint sovereigns preserves people numerous advantages decentralized government sensitive diverse needs heterogeneous society increase opportunity citizen involvement democratic processes gregory supra furthermore framers observed compound republic america provides double security rights people power surrendered people first divided two distinct governments portion allotted subdivided among distinct separate departments federalist beloff ed federalist system possess sovereignty concurrent federal government subject limitations imposed supremacy clause tafflin levitt way supremacy clause gives federal government decided advantage delicate balance federal state sovereigns gregory long acting within powers granted constitution congress may impose ibid extraordinary power federalist system ibid nonetheless retain substantial sovereign authority amdt powers delegated constitution prohibited reserved respectively people see also alden maine printz new york gregory supra tafflin supra accordance text structure constitution powers delegated proposed constitution federal government defined hose remain state governments numerous indefinite federalist indeed protecting constitutional government preservation maintenance governments much within design care constitution preservation union maintenance national government texas white wall quoted new york supra result order protect delicate balance power mandated constitution supremacy clause must operate accordance terms clause provides constitution laws shall made pursuance thereof treaties made shall made authority shall law land judges every state shall bound thereby thing constitution laws state contrary notwithstanding art vi cl respect federal laws supremacy clause gives status made pursuance constitution ibid see story commentaries constitution hereinafter story observed supremacy laws attached made pursuance constitution federal laws made pursuance constitution must comply two key structural limitations constitution ensure federal government amass much power expense first structural limitation parties raised case constitution conferral upon congress governmental powers discrete enumerated ones printz supra see also morrison new york supra mcculloch maryland wheat government acknowledged one enumerated powers second structural limitation complex set procedures congress president must follow enact laws see ins chadha setting forth constitution bicameral presentment clauses art cls prescribe define respective functions congress executive legislative process framers acutely conscious bicameral requirement presentment clauses serve essential constitutional functions chadha allowing passage legislation proceeded deliberate deliberative process finely wrought exhaustively considered framers supremacy clause thus requires effect given federal standards policies set forth necessarily follow statutory text produced constitutionally required bicameral presentment procedures see story actions federal government pursuant constitutional powers invasions residuary authorities smaller societies law land merely acts usurpation deserve treated light constitutional principles become increasing ly reluctan expand federal statutes beyond terms doctrines implied bates dow agrosciences llc thomas concurring judgment part dissenting part review broad implied precedents particularly purposes objectives jurisprudence increased concerns implied doctrines always constitutionally applied vague potentially boundless doctrine purposes objectives geier american honda motor stevens dissenting example state law based interpretation broad federal policy objectives legislative history generalized notions congressional purposes contained within text federal law see pharmaceutical research mfrs america walsh thomas concurring judgment referring concomitant danger invoking obstacle based arbitrary selection one purpose exclusion others crosby national foreign trade council scalia concurring judgment criticizing majority reliance legislative history discern statutory intent intent perfectly obvious face th statute geier supra relying regulatory history agency comments government litigating position determine federal law state law congressional agency musings however satisfy art requirements enactment federal law therefore state law supremacy clause analyzing effect federal statutes regulations validly promulgated thereunder vidence purpose must sought text structure provision issue comply constitution csx easterwood see also new york ferc federal agency may state law acting within scope congressional delegated authority agency literally power act let alone validly enacted legislation sovereign state unless congress confers power upon internal quotation marks omitted second alteration original camps town harrison thomas dissenting noting treating unenacted congressional intent law constitutionally dubious analysis freewheeling judicial inquiry whether state statute tension federal objectives inquiry whether ordinary meanings state federal law conflict bates supra thomas concurring judgment part dissenting part internal quotation marks citation omitted see also geier supra dissenting analysis least matter precise statutory regulatory construction rather exercise judicial policymaking internal quotation marks omitted must turn whether state law conflicts text relevant federal statute federal regulations authorized text see foster love finding conflict question turn ed entirely meaning state federal statutes issue see also new york ferc supra ii determined two categories conflict wyeth contends issue case first found compliance federal state regulations physical impossibility one engaged interstate commerce florida lime avocado growers paul second determined federal law state law circumstances particular case state law stands obstacle accomplishment execution full purposes objectives congress hines davidowitz wyeth first contends impossible comply duty modify phenergan labeling without violating federal law ante opinion stevens majority explains text relevant federal statutory provisions corresponding regulations directly conflict judgment us used different formulations standard used deciding whether state federal law conflict thus lead impossibility doctrine see geier supra case state law penalizes federal law requires american telephone telegraph central office telephone claims directly conflict federal law cited geier supra describing cas involving impossibility florida lime avocado growers supra compliance federal state regulations physical impossibility generally articulated narrow impossibility standard see crosby citing florida lime avocado growers supra see also sprietsma mercury marine locke part overly broad sweep purposes objectives approach see infra rendered unnecessary rely impossibility fact explained narrow physical impossibility standard best proxy determining state federal laws directly conflict purposes supremacy clause instances physically impossible comply state federal law even state federal laws give directly conflicting commands see nelson preemption rev example federal law gives individual right engage certain behavior state law prohibits laws give contradictory commands notwithstanding fact individual comply electing refrain covered behavior ibid therefore physical impossibility may appropriate standard determining whether text state federal laws directly conflict see ibid concluding supremacy clause limit direct conflicts cases physically impossible conflicts arguing evidence founding supports standard see also supra requiring claims directly conflict federal law story suggesting instead state law supremacy clause repugnant constitution emphasis added nonetheless whatever precise constitutional contours implied may satisfied operate respondent judgment text federal laws issue require judgment issue either narrow physical impossibility standard florida lime avocado growers supra general direc conflict standard supra fda changes effected regulation cfr iii promulgated pursuant fda statutory authority physically possible wyeth market phenergan compliance federal vermont law majority explains wyeth changed warning label regarding without violating federal law see ante changes effected regulation allows drug manufacturers change labels without fda preapproval changes add strengthen contraindication warning precaution adverse reaction iii add strengthen instruction dosage administration intended increase safe use drug product iii order reflect newly acquired information including new analyses previously submitted data fed reg terms regulations learning new incidences amputation resulting administration phenergan see ante federal law gave wyeth authority change phenergan label strengthen warning strengthen precaution iii strengthen instruction administration method increase safe use drug product iii thus physically possible wyeth comply requirement provide stronger warnings phenergan risks administration method continuing market phenergan compliance federal law addition text statutory provisions governing fda drug labeling regulations promulgated thereunder give drug manufacturers unconditional right market federally approved drug times precise label initially approved fda thus direct conflict federal labeling law judgment statute prohibits interstate marketing drug except federally approved see person shall introduce deliver introduction interstate commerce new drug unless approval application filed pursuant subsection section effective respect drug emphasis added say statute wyeth may market drug without federal approval without label say federal approval gives wyeth unfettered right time market drug specific label federally approved initial approval label amounts finding fda label safe purposes gaining federal approval market drug represent finding drug labeled never deemed unsafe later federal action case application state law instead fda regulations require drug manufacturer initial federal approval drug label revise federally approved label include warning soon reasonable evidence association serious hazard drug cfr drug manufacturers also required establish maintain records make reports fda ny adverse event associated use drug humans whether considered drug related received federal approval addition manufacturer must make periodic reports adverse drug experience associated drug include history actions taken since last report adverse drug experiences example labeling changes studies initiated ii records reports made fda withdraw approval drug see also secretary may withdraw approval application secretary finds applicant failed establish system maintaining required records repeatedly deliberately failed maintain records make required reports fda may also determine drug longer safe use based clinical experience tests scientific data ibid approval may withdrawn secretary finds clinical experience tests scientific data show drug unsafe use conditions use upon basis application approved text statutory provisions accompanying regulatory scheme governing fda drug approval process therefore establish fda initial approval drug guarantee drug label never need changed nothing text statutory regulatory scheme necessarily insulates wyeth liability state law simply fda approved particular label sum relevant federal law give wyeth right judgment took away possible wyeth comply federal law judgment issue federal statute regulations neither prohibited stronger warning label required state judgment insulated wyeth risk liability direct conflict federal state law judgment cf finding federal law forbade common carriers extending communications privileges requested claims foster finding federal statute required congressional elections particular date different provided state statute wyeth also contends state federal law conflict recognition state tort action creates unacceptable accomplishment execution full purposes objectives congress hines davidowitz substitutes lay jury decision drug labeling expert judgment fda ante entire body purposes objectives jurisprudence inherently flawed cases improperly rely legislative history broad atextual notions congressional purpose even congressional inaction order state law see supra therefore join majority analysis claim see ante reaffirmation purposes objectives jurisprudence ante analyzing congressional purposes ante quoting standard hines davidowitz geier ante nn analyzing case light geier first formulated current purposes objectives standard hines considered whether federal alien registration act alien registration act adopted commonwealth pennsylvania find two statutes terms directly conflicted see hines supra citing stat tit purdon supp citing act june stat analyzing numerous extratextual sources finding without concluding terms federal state laws directly conflict see also noting conceded federal act operation point conflict state statute stone dissenting nonetheless determined confined considering merely terms relevant federal law conducting analysis rather went ask whether state law stands obstacle accomplishment execution full purposes objectives congress looked far beyond relevant federal statutory text instead embarked freeranging speculation purposes federal law must see addition meaning relevant federal text attempted discern nature power exerted congress object sought attained character obligations imposed law looked part public sentiment noting pposition laws singling aliens particularly dangerous undesirable groups country ibid also relied statements particular members congress congressional inaction finding pertinent numerous bills requirements similar pennsylvania law failed garner enough votes congress become law nn concluding sources revealed federal purpose protect personal liberties aliens one uniform national registration system held pennsylvania law justice stone dissent questioned majority decision read exclusive registration system aliens statute specifically provide exclusivity see noted concern state power improperly diminished doctrine driven conceptions policy congress ha expressed plainly inferred legislation ha enacted ibid view nothing congress enacted denie practicable means identifying alien residents recording whereabouts yet hines majority employed override numerous state laws even though enacted federal law point conflict ed state legislation harmonious consequences broad approach purposes objectives exemplified decision geier majority dissent incorporate analysis today see ante nn post opinion alito geier pursuant national traffic motor vehicle safety act safety act stat et seq ed department transportation dot promulgated federal motor vehicle safety standard required auto manufacturers equip vehicles passive restraints case required decide whether safety act state tort action plaintiff claimed auto manufacturer though compliance federal standard nonetheless equipped automobile airbags first concluded safety act express provision saving clause read together expressly state claims see proceeded consider whether state action nonetheless obstacle purposes federal law held state tort claim relying large part comments dot made promulgating regulation statements government made brief regulatory history related federal regulation passive restraints see particular majority found dot intended deliberately provid manufacturer range choices among different passive restraint devices bring mix different devices introduced gradually time based comments dot made promulgating regulation rather safety act text majority also embarked judicial inquiry dot sought objectives considering regulatory history government brief described dot safety standard ying secretary policy judgment safety best promoted manufacturers installed alternative protection systems fleets rather one particular system every car quoting brief amicus curiae geier american honda motor see also based ex post administrative litigating position inferences regulatory history final commentary dissenting found state action required manufacturers cars similar plaintiff injured install airbags rather passive restraint systems therefore presented obstacle variety mix devices federal regulation sought phase gradually decision geier apply purposes objectives based agency comments regulatory history agency litigating positions especially flawed given conflicted plain statutory text saving clause within safety act explicitly preserved state actions providing ompliance federal motor vehicle safety standard issued subchapter exempt person liability common law ed see engine mfrs assn south coast air quality management statutory construction must begin language employed congress assumption ordinary meaning language accurately expresses legislative purpose internal quotation marks omitted west virginia univ hospitals casey best evidence th purpose statute statutory text adopted houses congress submitted president addition reliance divined purpose federal law gradually phase mix passive restraint systems order invalidate state imposition greater safety standard contrary general express statutory goal safety act reduce traffic accidents deaths injuries persons resulting traffic accidents repeatedly stated statutory language plain must enforced according terms see jimenez quarterman see also dodd lamie trustee hartford underwriters ins union planters bank text geier directly addressed precise question issue end matter well agency must give effect unambiguously expressed intent congress national assn home builders defenders wildlife slip internal quotation marks omitted text allowed state actions like one issue geier authority comb agency commentaries find basis alternative conclusion applying purposes objectives geier case allowed vacate judgment issued another sovereign based nothing assumptions goals untethered constitutionally enacted federal law authorizing federal regulatory standard see watters wachovia bank stevens dissenting noting affects allocation powers among sovereigns agency literally power act let alone law sovereign state unless congress confers power upon new york ferc quoting louisiana pub serv fcc thus agency individual member congress state judgment merely musing goals intentions found within authorized statutory text see supra purposes objectives jurisprudence also problematic encourages overly expansive reading statutory text desire divine broader purposes statute inevitably leads assume congress wanted pursue policies costs even text reflects different balance see geier supra stevens dissenting finding evidence support notion dot secretary intended advance purposes safety standard costs nelson repeatedly noted frustrates rather effectuates legislative intent simplistically assume whatever furthers statute primary objective must law norfolk southern sorrell quoting rodriguez per curiam federal legislation often result compromise legislators groups marked divergent interests see ragsdale wolverine world wide thus statute text might reflect compromise parties wanted pursue particular goal different extents see ibid noting family medical leave act provision workweeks yearly leave result compromise must given effect courts silkwood finding state law though allegedly frustrated primary purpose atomic energy act act provided purpose furthered extent consistent health safety quoting ed see also manning divides textualists purposivists colum rev legislators may compromise statute fully address perceived mischief accepting half loaf facilitate law enactment therefore factual basis assumption underlying purposes objectives jurisprudence every policy seemingly consistent federal statutory text necessarily authorized congress warrants effect instead federal system general supremacy clause particular accords effect policies actually authorized effectuated statutory text majority reaching right conclusion case demonstrates application purposes objectives requires inquiry matters beyond scope proper judicial review example majority relies heavily congress failure history federal food drug cosmetic act enact express provision addresses approval drug label fda ante silence issue coupled congress certain awareness prevalence state tort litigation majority reasons evidence congress intend federal approval drug labels state tort judgments ibid see also ante construing inaction congress vidently determined widely available state rights action provided appropriate relief certainly absence statutory provision state tort suits related approved federal drug labels pertinent finding lawsuits relevance fact statute explicitly lawsuits inferences may draw congressional silence motivations policies underlying congress failure act see brown gardner ongressional silence lacks persuasive significance internal quotation marks omitted myers fdic atters left unaddressed comprehensive detailed federal scheme presumably left subject disposition provided state law camps newfound ur jurisprudence explicitly rejects notion mere congressional silence particular issue may read state law case majority concluded silence congress believed state lawsuits pose obstacle federal objectives see ante required conclusion compelled text relevant statutory regulatory provisions judicial suppositions congress unstated goals fact reaches proper conclusion justify speculation reasons congressional inaction case relied perceived congressional policies underlying inaction find state law shows willingness guess intent underlying congressional inaction easily rely perceptions regarding congressional inaction give unduly broad effect federal law see american ins assn garamendi finding congress failure pass legislation indicating disagreed president executive agreement supported least part determination agreement state law either approach illegitimate supremacy clause state law federal law made pursuance constitution art vi cl extratextual considerations purposes underlying congressional inaction see hoffman connecticut dept income maintenance plurality opinion finding policy arguments based text statute helpful tva hill individual appraisal wisdom unwisdom particular course consciously selected congress put aside process interpreting statute role merely interpret language statute enacted congress barnhart sigmon coal iii origins purposes objectives jurisprudence hines broad application cases like geier illustrate brand jurisprudence facilitates freewheeling extratextual broad evaluations purposes objectives embodied within federal law turn leads decisions giving improperly broad effect judicially manufactured policies rather statutory text enacted congress pursuant constitution agency actions authorized thereby sweeping approach leads illegitimate thus unconstitutional invalidation state laws longer assent doctrine state laws merely stan obstacle accomplishment execution full purposes objectives federal law hines perceived therefore respectfully concur judgment wyeth petitioner diana levine writ certiorari vermont march justice alito chief justice justice scalia join dissenting case illustrates tragic facts make bad law holds state tort jury rather food drug administration fda ultimately responsible regulating warning labels prescription drugs result reconciled geier american honda motor general principles conflict respectfully dissent frames question presented narro one namely whether wyeth duty provide adequate warning using method administer phenergan ante ignores antecedent question fda jury vermont authority responsibility determining adequacy phenergan warnings moreover unclear stronger warning helped respondent see ante physician assistant treated disregarded least six separate warnings already phenergan labeling respondent hard pressed prove seventh made point question presented case narrow one concern whether phenergan label bear stronger warning rather real issue whether state tort jury countermand fda considered judgment phenergan warning label renders intravenous iv use safe indeed respondent amended complaint alleged phenergan reasonably safe intravenous administration app respondent attorney told jury phenergan label say use drug intravenously respondent expert told jury think drug labeled iv use closing argument respondent attorney told jury thank god rely fda make safe ty decision make decision fda make decision federal law however rely fda make safety determinations like one made fda long known risks associated iv push general use administer phenergan particular whether wisely fda concluded course extensive regulatory proceedings drug safe effective used accordance labeling unfortunate fact respondent healthcare providers ignored phenergan labeling may make ideal turning tort suit frontal assault fda regulatory regime drug labeling upsets meaning supremacy clause conflict jurisprudence brief amicus curiae ii extent purpose congress ultimate touchstone every case medtronic lohr internal quotation marks omitted congress made purpose plain authorizing fda state tort juries determine circumstances drug safe process approving new drugs least rigorous premarket approval process medical devices riegel medtronic slip ginsburg dissenting held latter tort suit conflicted fda determination medical device safe slip opinion federal food drug cosmetic act fdca drug manufacturer may market new drug first submitting new drug application nda fda receiving agency approval see nda must contain among things labeling proposed used drug full reports investigations made show whether drug safe use whether drug effective use discussion benefits exceed risks drug conditions stated labeling cfr viii fda approve nda agency finds among things drug safe use conditions prescribed recommended suggested proposed labeling thereof substantial evidence drug effect purports represented conditions use prescribed recommended suggested proposed labeling thereof proposed labeling false misleading particular fda approves drug manufacturer remains obligation investigate report adverse events associated drug see cfr must periodically submit new information may affect fda previous conclusions safety effectiveness labeling drug fda finds drug safe used accordance labeling agency shall withdraw approval drug fda also shall deem drug misbranded dangerous health used dosage manner frequency duration prescribed recommended suggested labeling thereof thus drug warning label serves standard fda determines whether product safe effective fed reg labeling centerpiece risk management communicates health care practitioners agency formal authoritative conclusions regarding conditions product used safely effectively fed reg fda underscored importance places drug labels promulgating comprehensive regulations spanning entire part code federal regulations see cfr pt seven subparts separate sections set forth drug manufacturers labeling obligations regulations fda must satisfied drug warning label contains among things summary essential scientific information needed safe effective use drug including description clinically significant adverse reactions potential safety hazards limitations use imposed steps taken occur neither fdca implementing regulations suggest juries may fda labeling decisions fda determines accordance statutory mandate drug balance safe conflict cases prohibit state countermanding determination see buckman plaintiffs legal fda struck somewhat delicate balance statutory objectives determined petitioner submitted valid application manufacture medical device state may use common law negate international paper ouellette epa struck balance public private interests carefully addressed federal permitting regime water pollution state may use nuisance law upse chicago north western transp kalo brick tile interstate commerce commission struck balance competing interests permitting abandonment railroad line state may use statutory common law negate thus recognizes irrelevant conflict cases whether congress enacted express provision point fdca history ante see also geier holding absence express clause bar ordinary working conflict principles rather ordinary principles conflict turn solely whether state upset regulatory balance struck federal agency see also chicago north western transp supra describing conflict process first ascertaining construction federal state laws determining constitutional question whether actually conflict internal quotation marks omitted faithful application conflict cases compels conclusion fda effort regulate safety efficacy phenergan respondent tort suit indeed result follows directly conclusion geier geier arose national traffic motor safety vehicle act directs secretary department transportation dot establish order motor vehicle safety standards ed defined minimum standard motor vehicle performance motor vehicle equipment performance acting pursuant statutory mandate secretary transportation promulgated federal motor vehicle safety standard required car manufacturers include passive restraint systems devices work automatically protect occupants injury collision certain percentage cars built see cfr standard require installation particular type passive restraint instead gave manufacturers option install automatic seatbelts airbags suitable technology might develop provided restraint met performance requirements specified rule ibid alexis geier drove honda accord tree although wearing seatbelt nonetheless suffered serious injuries sued honda state tort law alleging car negligently defectively designed lacked airbag argued congress empowered secretary set minimum standard vehicle safety also emphasized national traffic motor safety vehicle act contains saving clause provides ompliance federal motor vehicle safety standard issued subchapter exempt person liability common law notwithstanding statute saving clause notwithstanding fact congress gave secretary authority set minimum safety standards held geier state tort suit reaching result relied heavily view secretary transportation expressed amicus brief standard secretary policy judgment safety best promoted manufacturers installed alternative protection systems fleets rather one particular system every car quoting brief amicus curiae secretary determined menu alternative technologies safe doctrine conflict barred geier efforts deem federally approved alternatives unsafe state tort law rationale applies phenergan label fda offered medical professionals menu federally approved safe effective alternatives including iv push administering drug state tort suit respondent attempted deem iv push unsafe ineffective sure federal law prohibit wyeth contraindicating iv push federal law prohibit honda installing airbags cars held may compel latter precluded compelling former see also fidelity fed sav loan assn de la cuesta conflict evaporate agency regulation simply permits compel action forbidden state law anything finding even appropriate fdca unlike national traffic motor safety vehicle act contains evidence congress intended fda set minimum standards fdca contain saving see also ante conceding congress silence issue iii attempt evade geier applicability case commits factual legal errors first factual matter demonstrably untrue fda failed consider strike balance specific costs benefits associated iv push second legal matter geier stand legal propositions espoused dissenters specifically rejected majority case third drug labeling jury verdict undermines broader jurisprudence broader workability federal regime phenergan warning label subject fda strict regulatory oversight since least last years fda focused specifically whether administration phenergan safe effective performed accordance phenergan label agency ultimate decision retain iv push one means administering phenergan albeit subject stringent warnings reflected plain text phenergan label sometimes boldfaced font letters record contains ample evidence fda specifically considered reconsidered strength phenergan warnings light new scientific medical data majority factual assertions contrary mistaken fda focus iv push means administering phenergan dates back least august year several representatives fda wyeth met discuss phenergan warning label meeting fda specifically proposed phenergan injection used record plaintiff trial exh internal correspondence langeland file hereinafter memo tubex syringe system used exclusively iv push see app fda official explained agency concerns arose lawsuits involving iv push drug see memo fda aware cases involving amputation drug administered tubex together several additional cases involving necrosis rather contraindicating phenergan iv push however agency wyeth agreed need better instruction regarding problems intraarterial injection next year fda convened advisory committee study among things risks associated tubex system iv push app conclusion study committee recommended additional warning phenergan label see recommend eliminating iv push drug label altogether response committee recommendations fda instructed wyeth make several changes strengthen phenergan label including addition upper case warnings related iv push see fda directed wyeth amend label include following text used intravenously phenergan given concentration greater rate exceed injection properly running intravenous infusion may enhance possibility detecting arterial placement first two quoted sentences refers specifically iv push respondent medical expert testified trial label recommended rate administration exceed mg per minute refers iv push opposed say bag dripped couple hours second two quoted sentences refers iv drip see emphasizing running iv thing iv drip labeling order fda cited voluminous materials suppor new stronger warnings related iv push preferability iv one articles specifically discussed relative advantages disadvantages iv drip compared iv push well costs benefits administering phenergan via iv fda also cited published case reports gangrene caused injection fda instructed wyeth amend phenergan label accordance latest medical fda also studied drugs similar phenergan cited numerous cautionary articles one urged agency consider contraindicating drugs iv use support labeling order fda also cited numerous articles singled inner crook elbow known antecubital fossa medical community commonly used injection site see noting respondent injection pushed antecubital space universally recognized area inadvertent injections one articles explained numerous superficial positions ulnar artery might occupy often entered attempted venipuncture antecubital fossa however brachial radial arteries might also quite superficial elbow region arterial variations arm especially cubital fossa common numerous venipuncture must performed area higher index suspicion must maintained forestall misdirected injections stone donnelly accidental injection thiopental anesthesiology omitted cited app based research fda ordered wyeth include specific warning related use antecubital space iv respondent injured phenergan label specifically addressed iv push several passages sometimes lieu sometimes addition discussed example label warned risks injection associated aspiration technique used conjunction iv label also cautioned use syringes rigid plungers app used administer drug via iv push respondent medical expert testified trial talking plungers rigid needles way push plunger testimony john matthew moreover phenergan label devoted almost full page discussing tubex system see noted used administer drug via iv push phenergan label clearly authorized use iv push also made clear iv push delivery method last resort label specified preferred parenteral route administration deep intramuscular injection intramuscular injection ineffective usually preferable inject phenergan tubing intravenous infusion set known functioning satisfactorily ibid see also testimony respondent medical expert john matthew conceding best way determine iv set functioning satisfactorily use iv drip finally whatever reason medical professional chooses use iv push notice inadvertent injection result gangrene affected extremity see also circumstances phenergan injection given injection due likelihood severe arteriospasm possibility resultant gangrene phenergan label also directs medical practitioners choose veins wisely using iv push due close proximity arteries veins areas commonly used intravenous injection extreme care exercised avoid perivascular extravasation inadvertent injection reports compatible inadvertent injection phenergan injection usually conjunction drugs intended intravenous use suggest pain severe chemical irritation severe spasm distal vessels resultant gangrene requiring amputation likely circumstances ibid thus demonstrably untrue phenergan labeling contain specific warning risks administration ante whatever else might said extensive medical authorities case reports fda cited support approval administration phenergan said fda paid passing attention iv push ante said fda failed weigh costs benefits brief respondent part respondent dispute fda conclusion iv push certain benefits trial medical practitioners testified used iv push order help swift timely way showed hospital second time one day complaining intractable migraines terrible pain inability bear light sound sleeplessness spasms retching vomiting every possible alternative treatment failed app testimony john matthew testimony physician assistant jessica fisch rather disputing benefits iv push respondent complains fda wyeth underestimated costs hence provide sufficient warnings regarding risks fda mandated phenergan label read inadvertent injection result gangrene affected extremity fda required wyeth warn nder circumstances phenergan injection given injection agency reasonably assume medical professionals take care inject phenergan see also fed reg noting drug warning label communicates health care practitioners agency formal authoritative conclusions regarding conditions product used safely effectively unfortunately physician assistant treated respondent case disregarded phenergan label pushed drug single spot arm likely cause inadvertent injection noted fda approved phenergan label textbook medical knowledge antecubital fossa creates high risk inadvertent injection given close proximity veins arteries see supra see also lippincott manual nursing practice ed noting nursing alert antecubital fossa recommended administering dangerous drugs due potential extravasation according physician assistant injured respondent however never crossed mind antecubital injection phenergan hit artery app see also ibid something aware time oblivious risks emphasized phenergan warnings physician assistant pushed double dose drug antecubital artery course robably three four minutes notwithstanding respondent complaints ing sensation subsequently described extreme pains ever felt asked ignored phenergan label failed stop pushing drug respondent complained burning pains physician assistant explained crazy worr injection circumstances fda however think risks associated iv push especially antecubital space crazy phenergan label clearly warns given balance fda struck costs benefits administering phenergan via iv push geier compels tort suits like one upset balance contrary conclusion requires turning yesterday dissent today majority opinion first denies existence conflict case vermont merely countermanded fda determination iv push safe performed accordance phenergan warning label concludes conflict vermont mandate particular label replacement one jury nullified state stopped short altogether contraindicating administration ante emphasized geier dissent assertions contrary degree state intrusion upon federal law irrelevant supremacy clause applies equal force state tort law merely countermands federal safety determination state law altogether prohibits car manufacturers selling cars without airbags compare stevens dissenting indeed recently last term held supremacy clause tate tort law requires manufacturer catheters safer hence less effective model fda approved riegel slip matter state stopped short altogether prohibiting use catheters matter vermont stopped short altogether prohibiting method administering phenergan see also lohr breyer concurring part concurring judgment noting anomalous result applied differently state tort suit premised inadequacy fda safety regulations state law specifically prohibited design second today distinguishes geier fda articulated intent without offering interested parties notice opportunity comment ante see also ante geier specifically rejected argument made dissenters case conflict appropriate agency expresses intent rulemaking compare insist specific expression agency intent made rulemaking certain cases tolerate conflicts agency therefore congress unlikely intended dissent said apparently welcomes result stevens dissenting emphasizing generally expect administrative regulation declare intention state law specificity expectation serves ensure able dialog agencies regarding decisions ex ante normal procedures administrative procedure act internal quotation marks omitted indeed arguably appropriate geier fda unlike dot declared intent federal register see fed reg yet majority dismisses fda published preamble inherently suspect ante afterthought entitled weight ante compare lohr supra opinion breyer emphasizing fda special understanding likely impact state federal requirements well understanding whether extent state requirements may interfere federal objectives fda translate understandings particularized intentions statements preambles interpretive statements responses third distinguishes geier dot regulation bear force law whereas fda preamble ante see also ante irrelevant fda preamble bear force law fda labeling decisions surely see well within fda discretion make labeling decisions administrative adjudications rather rulemaking proceedings see sec chenery never previously held analysis turns agency choice latter former moreover said geier outcome hinged agency choice promulgate rule see ante geier relied dissenters protestations materials secretary regulation explain conflict state federal law compare stevens dissenting ante breyer concurring fourth sandwiches discussion geier presumption ante heavy emphasis longstanding coexistence state federal law fda traditional recognition remedies ante geier specifically rejected argument made dissenters case presumption relevant conflict analysis see stevens dissenting simply ignores presumption rather invoking presumption emphasized applying ordinary longstanding principles conflict principles sole question whether actual conflict state federal law follows automatically operation supremacy clause see also buckman etitioner dealings fda prompted federal law subject matter petitioner statements fda dictated federal law accordingly contrast situations implicating concerns historic primacy state regulation matters health safety presumption obtains case citation omitted finally geier went way emphasize yet dissenters objections placed weight dot amicus brief explained agency regulatory objectives effects state tort suits federal regulatory regime compare stevens dissenting criticizing majority uph olding regulatory claim implied conflict based nothing ex post administrative litigating position inferences regulatory history final commentary see also lohr recognizing fda uniquely qualified explain whether state law conflicts fda objectives yet today fda explanation conflict state tort suits federal labeling regime set forth agency amicus brief even mentioned opinion instead relying fda explanation regulatory purposes relies statement majority finds preferable see ante cf riegel slip noting agency earlier position dissent describes length finds preferable compromised indeed deprived claim deference fact longer agency position citation omitted altria group good slip rejecting petitioners reliance effect agency longstanding policy inconsistent agency current one justice breyer suggests state tort suits may help fda ante concurring opinion notwithstanding fda insistence state tort suits disrupt agency balancing health risks benefits brief amicus curiae geier countenance use state tort suits fda labeling decisions contrary conclusion potentially consequences nature juries perform fda function explained riegel juries tend focus risk particular product design warning label arguably contributed particular plaintiff injury overall benefits design label patients reaped benefits represented slip indeed patients like respondent ones tort juries ever see patient like respondent already suffered tragic accident phenergan risks longer matter probabilities potentialities contrast fda benefit long view determinations consider interests potential users drug including suffer without new medical products juries free contradict fda expert determinations slip fda conveys warnings one voice rather whipsawing medical community potentially conflicting ones today ruling however parochialism may prevail problem well illustrated labels borne vesicant drugs many used chemotherapy class vesicants much dangerous drugs like vast majority vesicant labels like phenergan either allow disallow iv push see appendix infra vesicant extravasation devastating consequences potentially lifesaving benefits drugs offer hollow solace victim tragedy jury analysis particular case may well differ fda example consider mustargen mechlorethamine hcl injectable form mustard gas used anticancer drug mustargen label warns several places drug highly toxic indeed drug highly toxic accidental eye contact occur copious irrigation least minutes water normal saline balanced salt ophthalmic irrigating solution instituted immediately followed prompt ophthalmologic consultation accidental skin contact occur affected part must irrigated immediately copious amounts water least minutes removing contaminated clothing shoes followed sodium thiosulfate solution medical attention sought immediately contaminated clothing destroyed yet comes administering highly toxic drug label provides drug may injected directly suitable vein injected preferably rubber plastic tubing flowing intravenous infusion set reduces possibility severe local reactions due extravasation high concentration drug emphasis added similarly labels powerful chemotherapeutic vesicants including dactinomycin oxaliplatin vinblastine vincristine specifically allow iv push notwithstanding devastating effects extravasated fact labels drugs allow iv push striking vesicants much dangerous phenergan also frequently extravasated see boyle engelking vesicant extravasation myths realities oncology nursing forum arguing rate extravasation considerably higher vesicant administrations regardless fda reasons contraindicating iv push drugs odd say least jury vermont order phenergan fda chosen order mustard sure state tort suits peacefully coexist fda labeling regime done decades ante case far peaceful coexistence fda told wyeth phenergan label renders use safe state vermont tort law said rule issue squarely therefore reverse judgment vermont appendix opinion alito iv dactinomycin specifically allowed mechlorethamine mustargen specifically allowed oxaliplatin specifically allowed vinblastine specifically allowed vincristine specifically allowed bleomycin neither mentioned prohibited carboplatin neither mentioned prohibited dacarbazine neither mentioned prohibited mitomycin neither mentioned prohibited carmustine prohibited iv drip recommended cisplatin prohibited iv drip recommended epirubicin prohibited iv drip recommended etoposide prohibited iv drip recommended ifosfamide prohibited iv drip recommended mitoxantrone prohibited iv drip recommended paclitaxel prohibited iv drip recommended teniposide prohibited iv drip recommended vinorelbine prohibited iv drip recommended daunorubicin prohibited doxorubicin prohibited wilkes oncology nursing drug handbook table information derived dosage administration sections individual drug labels available clerk case file footnotes warning inadvertent injection stated due close proximity arteries veins areas commonly used intravenous injection extreme care exercised avoid perivascular extravasation inadvertent injection reports compatible inadvertent injection phenergan injection usually conjunction drugs intended intravenous use suggest pain severe chemical irritation severe spasm distal vessels resultant gangrene requiring amputation likely circumstances intravenous injection intended cases reported perivascular extravasation arterial placement needle suspect proven successful management condition occurs aspiration dark blood preclude needle placement blood discolored upon contact phenergan injection use syringes rigid plungers small bore needles might obscure typical arterial backflow relied upon alone used intravenously phenergan injection given concentration greater mg per ml rate exceed mg per minute administering irritant drug intravenously usually preferable inject tubing intravenous infusion set known functioning satisfactorily event patient complains pain intended intravenous injection phenergan injection injection stopped immediately provide evaluation possible arterial placement perivascular extravasation app dissent nonetheless suggests physician malpractice exclusive cause levine injury see post opinion alito unclear warning helped respondent post suggesting physician assistant conduct sole cause injury dissent frustration jury verdict put merits levine tort claim us change question must decide whether federal law levine claims wyeth argues presumption apply case federal government regulated drug labeling century argument misunderstands principle rely presumption respect independent sovereigns federal system leads us assume congress cavalierly causes action medtronic lohr presumption thus accounts historic presence state law rely absence federal regulation part dissent argues presumption apply claims implied conflict post long held contrary see california arc america hillsborough county automated medical laboratories see also rush prudential hmo moran dissent reliance buckman plaintiffs legal see post especially curious case involved claims distinguished state regulation health safety matters presumption apply see levine also introduced evidence pfizer withdrawn vistaril another antinausea drug intravenous use several decades earlier intravenous injection resulted gangrene amputations see app record event support argument wyeth propose different language phenergan warning injection adapted revisions fda proposed see app fda approved wyeth application instructed wyeth retain wording current label trial proceedings levine indicated language proposed strongly warned administration trial vermont found warning differ material respect warning see simply stated proposed warning different stronger also longer prominent original warning app indeed concedes fda regard proposed warning substantively different appears fda viewed change rejected formatting reasons brief amicus curiae see also dissent suggestion fda intended prohibit wyeth strengthening warning fairly reflect record dissent creatively paraphrases fda orders instance conflating warnings administration injection see post suggest greater agency attention question undertakes study phenergan labeling elaborate fda order even dissent account support conclusion fda prohibited wyeth adding stronger warning pursuant cbe regulation although first version bill became fdca provided federal cause action damages injured consumers see introduced witnesses testified right action unnecessary claims already available state law see hearings subcommittee senate committee commerce statement hines see statement ladds act attempt modify restate common law respect personal injuries congress certain state requirements concerning medications cosmetics expressly preserved product liability actions see nothing section shall construed modify otherwise affect action liability person product liability law state similar examples see ed authorizing federal communications commission state statute regulation legal requirement may prohibit effect prohibiting ability entity provide interstate intrastate telecommunications service ed statute conflicts purposes requirements chapter permitting secretary interior set forth state law regulation preempted superseded ed supp authorizing secretary transportation decide whether state local statute conflicts regulation hazardous waste transportation see also fed reg intent fda influence civil tort liability manufacturer fed reg roduct liability plays important role consumer protection porter lohr decision fda perspective position food drug former chief counsel fda stating fda regarded state law complementing agency mission consumer protection year agency approved wyeth phenergan application fda advisory committee issued report finding conclusively budget staff food drug administration inadequate permit discharge existing responsibilities protection american public citizens advisory committee fda report secretary health education welfare doc three recent studies reached similar conclusions see fda science board report subcommittee science technology fda science mission risk online http ence internet materials visited available clerk case file agency suffers serious scientific deficiencies positioned meet current emerging regulatory responsibilities national academies institute medicine future drug safety promoting protecting health public fda lacks resources needed accomplish large complex mission widespread agreement resources postmarketing drug safety work especially inadequate resource limitations hobbled agency ability improve expand essential component mission gao drug safety improvement needed fda postmarket oversight process http fda lacks clear effective process making decisions providing management oversight postmarket safety issues see also house committee oversight government reform majority staff report fda career staff objected agency preemption policies office chief counsel ignored warnings fda scientists career officials preemption language preamble based erroneous assertions ability drug approval process ensure accurate drug labels see generally brief former fda commissioners drs donald kennedy david kessler amici curiae see also kessler vladeck critical examination fda efforts preempt claims geo bates dow agrosciences llc noting state tort suits serve catalyst aiding exposure new dangers prompting manufacturer federal agency decide revised label required amicus brief similarly undeserving deference unlike government brief geier american honda motor explained effects state law dot regulation manner consistent agency prior accounts see government explanation federal drug regulation departs markedly fda understanding times relevant case wyeth specific contention case resembles geier fda determined additional warning administration needed thereby setting ceiling phenergan label belied record discussed fda consider reject stronger warning injection phenergan see also app tort case unlikely obstruct regulatory process record shows fda paid little attention issues raised parties trial footnotes structural limitation may implicated case federal law issue beyond scope congress enumerated powers expansion congressional power increasingly generous interpretation commerce power congress example creates real risk congress gradually erase diffusion power state nation framers based faith efficiency vitality republic garcia san antonio metropolitan transit authority dissenting see also marbury madison cranch powers legislature defined limited limits may mistaken forgotten constitution written majority analysis relies part presumption ante opinion stevens evident text relevant federal statutes regulations judgment necessary decide whether extent presumption apply case one congress enacted clause cf altria group good thomas dissenting rejecting use presumption express cases according pennsylvania act required every alien years certain exceptions register year provide information required statute plus information details department labor industry may direct pay annual registration fee receive alien identification card carry times show card whenever may demanded police officer agent department labor industry exhibit card condition precedent registering motor vehicle name obtaining license operate one nonexempt aliens fail register subject fine imprisonment failure carry identification card failure show upon proper demand punishment fine imprisonment hines omitted explained federal alien registration act required single registration aliens years age detailed information specified act plus additional matters may prescribed commissioner approval attorney general registrants secrecy federal files requirement aliens carry registration card exhibited police others embodied law wilful failure register made criminal offense according justice stone hines majority analysis resembled inquiry whether federal act field rather application simple conflict principles dissenting opinion regardless whether hines involved field conflict dissent accurately observed assessing boundaries federal law scope effect look federal statute rather speculate congress unstated intentions see also camps town harrison thomas dissenting noting field suspect least applied absence congressional command particular field safety act express provision stated part whenever federal motor vehicle safety standard established subchapter effect state shall authority either establish continue effect respect motor vehicle item motor vehicle equipment safety standard applicable aspect performance vehicle item equipment identical federal standard safety act also included saving clause stated compliance federal motor vehicle safety standard issued subchapter exempt person liability common law majority dissent geier agreed import express provision saving clause read together terms safety act expressly state actions see geier stevens dissenting addition impropriety looking beyond plain text saving clause regulatory history dot comments administrative litigating position evaluate safety act effect unclear geier accurately assessed federal objectives relevant federal law dissent geier pointed purpose safety act stated congress generally reduce traffic accidents deaths injuries persons resulting traffic accidents opinion stevens quoting face goal course consistent judgment particular vehicle needed passive restraint system better protect persons death injury traffic accidents furthermore dissent observed definition standards established safety act impose minimum rather fixed maximum requirements citing thus dissent view requirements dot regulation ceilings obvious secretary favored rapid increase required regulations goal also consistent judgment finding manufacturer acted negligently failed include airbag particular car see footnotes indeed respondent conceded wyeth propose adequate warning phenergan risks see plaintiff diana levine memorandum opposition wyeth motion summary judgment levine american home products wyeth wncv super washington specifically respondent noted wyeth proposed language prevented accident requiring running iv explaining running iv address reduce risk injection ibid see also although strong enough improved labeling instruction followed prevented inadvertent administration phenergan artery fda rejected wyeth proposal see app moreover trial judge final charge told jury critical factual issue must decide whether phenergan label reflects proper balance risks benefits intravenous administration potential injury patients see also recognizing respondent argument phenergan label allowed iv push means administration respondent sued physician physician assistant hospital malpractice parties settled suit undisclosed sum respondent physician sent letter admitted responsibility injury expressed profoun regre remors actions tr mar testimony john matthew see also app testimony physician assistant jessica fisch noting sense grief great gladly cut arm given respondent thereafter physician physician assistant agreed testify respondent behalf suit wyeth sure congress recognized principles conflict fdca see drug amendments stat nothing amendments made act federal food drug cosmetic act shall construed invalidating provision state law unless direct positive conflict amendments provision state law provision simply recognizes background principles conflict traditional saving clause even displace analysis see geier american honda motor saving clause bar ordinary working conflict principles refused read general provisions tolerate actual conflict cases involving impossibility cases emphasis deleted citation omitted fda cited numerous articles generally discuss costs benefits associated iv push see nahrwold phelps inadvertent injection mephenteramine rocky mountain medical cited app albo cheung ruth snyder beemtsma effect injections barbituates surgery cited app corser masey jacob kernoff browne ischaemia following injection methylphenidate diamorphine anesthesiology cited app correspondence regarding thiopental thiamylal letters anesthesiology cited app miller arthur stratigos injection barbituate anesthesia progress cited app see webb lampert accidental arterial injections obstetrics gynecology cited app see hager wilson gangrene hand following injection archives surgery cited app enloe sylvester morris hazards injection hydroxyzine canadian anaesthetists society hereinafter enloe noting recent reports occurrence severe necrosis gangrene following administration promethazine cited app see also mostafavi samimi accidental injection promethazine hcl general anesthesia anesthesiology reporting case gangrene required partial amputation three fingers phenergan inadvertently pushed artery antecubital area promethazine clinical pharmacology gold standard multimedia version noting nadvertent injection phenergan result arteriospasm development gangrene hager wilson noted common reactions injections drugs like phenergan include mmediate severe burning pain well blanching archives surgery fda required wyeth include hager wilson observations phenergan label see app requiring label warn first sign injection may patient reaction sensation fiery pain see enloe discussing hydroxyzine antihistamine chemical properties similar phenergan suggesting temporary benefits never outweigh risks injection see also goldsmith trieger accidental injection medical emergency anesthesia progress noting risks administration hydroxyzine cited app klatte brooks rhamy toxicity barbituates tranquilizing drugs radiology cited app full knowledge risks fda retained iv push phenergan although agency required wyeth incorporate observations enloe article phenergan label compare enloe arguing every precaution taken avoid inadvertent injection including use obviously venoclysis app fda changes phenergan label contrast time around fda prohibited intravenous use hydroxyzine see testimony harold green fda decision regulate two drugs differently notwithstanding agency knowledge risks associated drugs agency recognition relevance articles case reports regulation phenergan demonstrates fda intentionally preserved administration phenergan see also haas correspondence anesthesia progress hydroxyzine restriction lie medicine practice malpractice intravenous techniques unfortunately practitioner knows treat injection technique problems usually practitioner intravenous technique problems see also engler freeman kanavage ogden moretz production gangrenous extremities injections surgeon accidental arterial injection often occurs antecubital region favorite site venopuncture area ulnar brachial arteries superficial easily entered cited app engler gangrenous extremities resulting injections archives surgery similar cited app lynas bisset thiopentone anaesthesia anesthesiologists agree injections medial aspect antecubital fossa best avoided cited app waters thiopentone anesthesia risk producing gangrene forearm accidental injection sodium thiopentone artery elbow recognised many years cited app see also hager wilson archives surgery emphasizing one best ways prevent inadvertent injections aware aberrant superficial arteries antecubital forearm wrist hand level mostafavi samimi supra warning antecubital injections see app requiring phenergan label warn practitioners eware close proximity arteries veins commonly used injection sites consider possibility aberrant aspiration refers drawing small amount blood back needle determine whether needle artery vein ordinarily arterial blood brighter venous blood contact phenergan causes discoloration makes aspiration unreliable method protecting injection see therefore label warned using iv push medical professional beware spiration dark blood preclude needle placement blood discolored upon contact phenergan injection addition respondent medical expert testified trial principle basic anatomy antecubital fossa contains aberrant arteries see tr mar testimony daniel see also ibid noting gray anatomy bible anatomy also warns arteries antecubital space thus true long applied presumption conflict cases ante majority opinion long ago gibbons ogden wheat inquired whether state law interfer ed contrary collision federal law without ever invoking presumption see also davis unmasking presumption favor preemption rev noting many early cases resulted almost automatic preemption concurrent state regulation subsequent years sometimes acknowledged limited presumption nonetheless remained open question today whether presumption applied conflict cases see crosby national foreign trade council leave another day consideration context presumption preemption moreover never held presumption applies area drug labeling long reserved federal regulation locke see also buckman plaintiffs legal vesicants may cause blistering severe tissue injury tissue necrosis upon extravasation even drug injected artery see schulmeister administering vesicants clinical oncology nursing see also ante majority opinion noting phenergan labeled irritant cf brief anju budhwani et al amici curiae suggesting phenergan considered vesicant fda oncology tools product label details online http visited mar available clerk case file ibid true fda regulation hydroxyzine see supra