ftc argued december decided april federal trade commission charged respondents advertiser advertising agency using commercials deceptive within meaning federal trade commission act commercials purported give viewers visual proof advertiser shaving cream soften sandpaper unknown viewers substance appeared sandpaper commercials fact simulated prop made plexiglass sand applied hearing commission issued order respondents interpreted forbid use undisclosed simulations television commercials appeals set aside order broad five months later commission issued revised order prohibiting respondents presenting advertisements depicting test experiment demonstration represented actual proof product claim fact constituting actual proof undisclosed use prop judgment setting aside order commission petitioned certiorari held period allowed filing petition certiorari commenced date second judgment appeals since commission second order attempt incorporate legal principles contained first mandate least second opinion resolved genuine ambiguity first pp material deceptive practice convey television viewers false impression seeing actual test experiment demonstration proves product claim undisclosed use pp ftc judgment constitutes deceptive practice accorded great weight reviewing courts admonition especially true respect allegedly deceptive advertising since finding violation field rests heavily inference pragmatic judgment misrepresentation fact long materially induces purchaser decision buy deception prohibited order issued case well within commission wide discretion determine type order necessary cope unfair practices found pp crucial terms present order specific circumstances permit borderline situations respondents oblige ftc advise whether contemplated commercial complies order since respondents produced three different commercials employed deceptive practice commission sufficient basis believing respondents inclined use similar commercials respect products advertise philip heymann argued cause petitioner briefs solicitor general cox assistant attorney general orrick james mci henderson john sonnett argued cause respondents brief arthur mermin brief ted bates thomas austern william allen briefs amici curiae urging affirmance filed mahlon perkins american association advertising agencies gilbert weil association national advertisers chief justice warren delivered opinion basic question us whether deceptive trade practice prohibited federal trade commission act represent falsely televised test experiment demonstration provides viewer visual proof product claim regardless whether product claim true case arises attempt respondent company prove television public shaving cream rapid shave outshaves respondent ted bates company advertising agency prepared colgate three commercials designed show rapid shave soften even toughness sandpaper commercials contained sandpaper test announcer informed audience prove rapid shave power put right onto tough dry sandpaper apply soak stroke announcer speaking rapid shave applied substance appeared sandpaper immediately thereafter razor shown shaving substance clean federal trade commission issued complaint respondents colgate bates charging commercials false deceptive evidence hearing examiner disclosed sandpaper type depicted commercials shaved immediately following application rapid shave required substantial soaking period approximately minutes evidence also showed substance resembling sandpaper fact simulated prop made plexiglass sand applied however examiner found rapid shave shave sandpaper even though short time represented commercials real sandpaper used commercials inadequacies television transmission made appear viewers nothing plain colored paper examiner dismissed complaint neither misrepresentation concerning actual moistening time identity shaved substance opinion material one mislead public commission opinion dated december reversed hearing examiner found since rapid shave shave sandpaper within time depicted commercials respondents misrepresented product moisturizing power moreover commission found undisclosed use plexiglass substitute sandpaper additional material misrepresentation deceptive act separate distinct misrepresentation concerning rapid shave underlying qualities even sandpaper shaved depicted commercials commission found viewers misled believing seen done eyes result findings commission entered order respondents appeal taken appeals first circuit rendered opinion november sustained commission conclusion respondents misrepresented qualities rapid shave accept commission order forbidding future use undisclosed simulations television commercials set aside commission order directed new order entered may commission protest respondents issued new order narrowing clarifying original order comply mandate appeals found unsatisfactory portion order dealing simulated props refused enforce granted certiorari consider aspect case us question concerning misrepresentation rapid shave shave sandpaper immediately application conceded threshold question presented whether petition certiorari filed within days entry judgment required respondents claim failure commission seek certiorari judgment appeals rendered november barred subsequent order prohibiting use simulated props commercials offer visual proof product claim appeals set aside order commission point law commission may seek certiorari disagrees legal conclusion section federal trade commission act contemplates time filing petition certiorari passed without petition filed commission enter order accordance mandate appeals commission may merely restate former position new order apply certiorari appeals reiterates previous objection said federal power idaho power second judgment restate decided first one days start run first judgment effect see federal trade regulator however also held reviewing finds legal error administrative order agency foreclosed upon remand case enforcing legislative policy act administers provided new order conflict reviewing mandate obviously drafted mandate normally best position determine whether commission subsequent order consistent mandate never foreclosed determining issue resolution issue present case requires detailed analysis various opinions mandates orders issued commission appeals initial opinion dated december commission commented heart commercials visual sandpaper test designed leave viewer impression actually seen experiment performed commission expressed view without visible proof rapid shave moisturizing ability viewers might persuaded buy product commission entered discussion use television relationship truth television salesmanship finally concluded use plexiglass prop deceptive practice commission order inclusive discussion ordered respondents cease desist representing directly implication describing explaining purporting prove quality merits product pictures depictions demonstrations genuine accurate representations prove quality merits product pictures depictions demonstrations fact genuine accurate representations prove quality merits product emphasis added light commission order oral argument concluded commission intention prohibit simulated props television commercials agree position since believed untruth substance viewer sees screen artificial visual appearance otherwise correct accurate representation product injured setting aside commission order gave little specific guidance drafting new one merely criticized commission holding illegal per se indicated commission order may broad respects well following decision appeals commission entered new proposed final order february order accompanied explanatory opinion admitted error original disposition case expressed intention eliminate errors found appeals commission explained new order directed toward broad prohibition undisclosed simulated props commercials merely toward prohibiting respondents misrepresenting public seeing test experiment demonstration purportedly proved product claim according commission television commercial question merely tell viewers experiment performed instead told seeing take seller word mere use prop misrepresentation found deceptive practice vigorous objection respondents commission issued final order may respondents ordered cease desist unfairly deceptively advertising product presenting test experiment demonstration represented public actual proof claim made product material inducing sale fact genuine test experiment demonstration conducted represented fact constitute actual proof claim undisclosed use substitution prop instead product article substance represented used therein hold commission order may disregard appeals first mandate attempt incorporate legal principles contained therein examination commission first order accompanying opinion shows overriding emphasis failure articulate precision actual deceptive practice found result surprising criticized order ambiguous interpreted prohibiting substitution product commercial found rested premise illegal per se true also said viewers interested see means see statement occurred immediately discussed contention oral argument deceptive practice represent person drinking lipsom iced tea fact clear directive mandate commission remove fundamental error permeates order error every use deceptive practice find inconceivable commission successfully sought certiorari judgment done forced argue either every use commercials deceptive practice apparently unintended theory reinstate commission decision theory something said securities exchange chenery support given conclusion refusal appeals declare commission subsequent order inconsistent previous mandate however even first opinion appeals somehow construed hold matter law never deceptive practice use undisclosed props commercial designed convince viewer seeing proof seller claims find commission acted reasonably construing mandate narrowly commission vague first order spawned correspondingly vague opinion appeals meant first opinion say attributed second opinion clearly articulated reasoning therefore least second opinion resolved genuine ambiguity first time within certiorari requested dates second judgment see federal trade regulator ii reviewing substantive issues case well remember respective roles commission courts administration federal trade commission act commission created congress directed prevent nfair methods competition commerce congress amended act extend commission jurisdiction include unfair deceptive acts practices commerce significant amendment showing congress concern consumers well competitors important note generality standards illegality proscriptions flexible defined particularity myriad cases field business federal trade motion picture advertising service statutory scheme necessarily gives commission influential role interpreting applying facts particular cases arising unprecedented situations moreover administrative agency deals continually cases area commission often better position courts determine practice deceptive within meaning act frequently stated commission judgment given great weight reviewing courts admonition especially true respect allegedly deceptive advertising since finding violation field rests heavily inference pragmatic judgment nevertheless informed judicial determination dependent upon enlightenment gained administrative experience last analysis words deceptive practices set forth legal standard must get final meaning judicial construction cf federal trade keppel concerned case clear misrepresentation commercials concerning speed rapid shave shave sandpaper since appeals upheld commission finding matter respondents challenged finding granted certiorari consider commission conclusion even advertiser conducted test experiment demonstration honestly believes prove certain product claim may convey television viewers false impression seeing test experiment demonstration undisclosed use accept commission determination commercials involved case contained three representations public sandpaper shaved rapid shave experiment conducted verified claim viewer seeing experiment respondents admit first two representations made deny third commission however found contrary since matter fact resting inference reasonably drawn commercials commission finding sustained purposes review assume first two representations true focus consideration third clearly false parties agree prohibits intentional misrepresentation fact constitute material factor purchaser decision whether buy differ however conception facts constitute material factor purchaser decision buy respondents submit effect material facts deal substantive qualities product commission hand submits misrepresentation fact long materially induces purchaser decision buy deception prohibited commission interpretation deceptive practice seems line decided cases respondents said federal trade algoma lumber public entitled get chooses though choice may dictated caprice fashion perhaps ignorance long considered deceptive practice state falsely product ordinarily sells inflated price offered special reduced price even offered price represents actual value product purchaser receiving money worth applying respondents arguments cases appear long buyers paid product actually worth product contained qualities advertised misstatement inflated original price immaterial also held violation seller misrepresent public certain line business even though misstatement way affects qualities product said federal trade royal milling consumers dealers prefer purchase given article made particular manufacturer class manufacturers right right satisfied imposing upon exactly similar article one equally good different origin respondents claim cases irrelevant decision involve misrepresentations related product merely manner advertising message communicated distinction misses mark two reasons first place present case concerned mode communication misrepresentation viewers objective proof seller product claim seller word secondly cases like present case deal methods designed get consumer purchase product whether product purchased perform expectations find especially strong similarity present case cases seller induces public purchase arguably good product misrepresenting line business concealing fact product reprocessed misappropriating another trademark seller used misrepresentation break regards annoying irrational habit buying public preference particular manufacturers known brands regardless product actual qualities prejudice reprocessed goods desire verification product claim case seller reasons habit broken buyer satisfied performance product receives yet misrepresentation used break habit stated algoma lumber misrepresentation end permitted need limit cases already mentioned situations also illustrate correctness commission finding present case generally accepted deceptive practice state falsely product received testimonial respected source addition commission consistently acted prevent sellers falsely stating product claims certified find situations indistinguishable present case assume underlying product claim true seller actually conducted experiment sufficient prove truth claim seller told public rely something word concerning truth claim validity experiment find immaterial difference one case viewer told rely word celebrity authority respects another word testing agency present case perception undisclosed simulation respondents insist present case like like case celebrity independent testing agency fact submitted written verification experiment actually observed inability camera transmit accurately impression paper testimonial written seller reproduces another substance seen viewing audience analogy ignores finding commission present case seller misrepresented public given objective proof product claim respondents hypothetical objective proof product claim offered word celebrity agency experiment actually conducted exist case us objective proof offered viewer perception actual experiment exist thus respondents hypothetical unlike present case use undisclosed conflict seller claim objective proof agree commission therefore undisclosed use plexiglass present commercials material deceptive practice independent separate misrepresentation found find unpersuasive respondents objections conclusion respondents claim impractical inform viewing public seeing actual test experiment demonstration think inconceivable ingenious advertising world unable desires conform commission insistence public misinformed however becomes impossible impractical show simulated demonstrations television truthful manner indicates television medium lends type commercial commercial must survive costs similarly unpersuasive respondents objection commission decision discriminates sellers whose product claims verified television without use simulations methods advertising equally favor every seller inherent limitations method permit use way seller desires seller material misrepresentation compensate limitations respondents also claim commission reached decide question properly presented abstract question argue since commercials present case misrepresented time element involved shaving sandpaper consider additional misrepresentation public objective proof seller claim already said misrepresentations separate distinct fail see respondents sheltered order respect one deceptive practice merely also engaged another respondents finally object consider absence adequate record sustain commission finding true initial stages case concerned misrepresentation product underlying qualities misrepresentation objective proof given nevertheless misrepresentations case beginning respondents never prejudicially misled believing second question considered necessary commission conduct survey viewing public determine commercials tendency mislead commission finds deception also authorized within bounds reason infer deception constitute material factor purchaser decision buy see federal trade raladam find record case sufficient support commission findings iii turn attention order issued commission repeatedly held commission wide discretion determining type order necessary cope unfair practices found jacob siegel federal trade congress placed primary responsibility fashioning orders upon commission federal trade national lead reasons courts lightly modify commission orders federal trade cement institute however also warned order prohibitions clear precise order may understood directed federal trade cement institute supra severity possible penalties prescribed violations orders become final underlines necessity fashioning orders outset sufficiently clear precise avoid raising serious questions meaning application federal trade henry broch appeals criticized reference commission order test experiment demonstration capable practical interpretation find difference rapid shave commercial commercial extolled goodness ice cream giving viewers picture scoop mashed potatoes appearing ice cream understand difficulty ice cream case mashed potato prop used additional proof product claim purpose rapid shave commercial give viewer objective proof claims made ice cream hypothetical focus commercial becomes undisclosed potato prop viewer invited explicitly implication see truth claims ice cream rich texture full color perhaps compare rival product commercial become similar one us clearly however commercial depicts happy actors delightedly eating ice cream fact mashed potatoes drinking product appearing coffee fact substance covered present order crucial terms present order test experiment demonstration represented actual proof claim specific circumstances permit respondents subsequent commercials attempt come close line misrepresentation commission order permits may without specifically intending cross area proscribed order however seem unfair require one deliberately goes perilously close area proscribed conduct shall take risk may cross line boyce motor lines commercials emphasis seller word viewer perception respondents need fear undisclosed use props prohibited present order hand commercial makes claim also invites viewer rely perception demonstrative proof claim respondents aware use undisclosed props strategic places might material deception believe respondents difficulty applying commission order vast majority contemplated future commercials however situation arises respondents sincerely unable determine whether proposed course action violate present order complying commission rules oblige commission give definitive advice whether proposed action pursued constitute compliance order finally find defect provision order prohibits respondents engaging similar practices respect product advertise propriety broad order depends upon specific circumstances case courts interfere except remedy selected reasonable relation unlawful practices found exist case respondents produced three different commercials employed deceptive practice believe gave commission sufficient basis believing respondents inclined use similar commercials respect products advertise think reasonable commission frame order broadly enough prevent respondents engaging similarly illegal practices future advertisements said federal trade ruberoid commission limited prohibiting illegal practice precise form found existed past caught violating act respondents must expect fencing federal trade national lead judgment appeals reversed case remanded entry judgment enforcing commission order reversed remanded footnotes stat amended ed order commission modified set aside appeals time allowed filing petition certiorari expired petition duly filed petition certiorari denied decision affirmed order commission rendered accordance mandate appeals shall become final expiration thirty days time order commission rendered unless within thirty days either party instituted proceedings order corrected accord mandate event order commission shall become final corrected securities exchange chenery federal communications pottsville broadcasting see labor board donnelly garment federal communications pottsville broadcasting supra note ibid ftc may additional clause added order benefit respondent bates recognition different positions clients advertising agencies often information product client clause reads provided however shall defense hereunder respondent neither knew reason know product article substance used test experiment demonstration prop stat amended stat see federal trade motion picture advertising service federal trade raladam see universal camera labor board federal trade pacific paper trade brief petitioner brief respondent colgate brief respondent bates brief respondent colgate buyer interested whether actual product buys look perform way appeared television set buyer real concern truth substantive claims promises made means used make commission error confuse substantive claim made product means claim conveyed brief respondent bates pp viewer reader advertisement buys product exactly portrayal advertisement asserts unlawful misrepresentation induces buyer purchase claim product perform represented portrayed test material claim representation way relating product purchase even strained suggestion implied representation realistic representation plainly immaterial federal trade standard education society kalwajtys federal trade cir cert denied kerran federal trade cir cert denied sub nom double eagle ref federal trade mohawk ref federal trade cir cert denied niresk industries federal trade cir cert denied niresk industries federal trade supra note howe federal trade cir cert denied see stipulation stipulation commission rules cfr supp provide respondent subject commission order may request advice commission whether proposed course action pursued constitute compliance order request advice submitted writing secretary commission include full complete information regarding proposed course action basis facts submitted well information available commission commission inform respondent whether proposed course action pursued constitute compliance order commission may time reconsider approval report compliance advice given section public interest requires rescind revoke prior approval advice event respondent given notice commission intent revoke rescind given opportunity submit views commission commission proceed respondent violation order respect action taken good faith reliance upon commission approval advice section relevant facts fully completely accurately presented commission action promptly discontinued upon notification rescission revocation commission approval federal trade national lead federal trade ruberoid jacob siegel federal trade justice harlan justice stewart joins dissenting part limited grant certiorari case must assume advertiser perform experiment question demonstration simple execute appears television question techniques advertiser may use convey essential truth television viewer claim true valid technique projecting claim within broad boundaries falls purely within advertiser art warrant federal trade commission police verity claim agree use television advertiser deceptive trade practice independent deceptive element commercial think record justifies broad remedial order issued commission remand case commission proceedings see commercial said deceptive legally acceptable use term attempts distinguish case celebrity written testimonial endorsing product original testimonial seen television copy shown air manufacturer hypothetical respondents hypothetical objective proof product claim offered word celebrity agency experiment actually conducted exist case us objective proof offered viewer perception actual experiment exist ante cases viewer told see one case celebrity endorsed product product shave sandpaper neither case viewer actually seeing proof cases objective proof exist original testimonial sandpaper test actually conducted manufacturer neither case however material misrepresentation viewer sees accurate image objective proof readily understand accurate portrayal experiment means considered deceptive use mashed potatoes convey glamorous qualities particular ice cream ante pp indeed smile face tiger might come naturally actually served ice cream commonly known television presents certain distortions transmission broadcasting industry must compensate thus white towel look dingy gray television blue towel look sparkling white analysis advertiser must achieve accuracy studio even though results inaccurate image projected home screen led appeals question whether proper advertiser show product television somehow medium looks better screen real life perhaps commonplace example suggests proper respondent colgate advertising laundry detergent demonstrate effectiveness major competitor detergent washing white sheets viewer eyes wash white blue sheet competitor detergent studio test accurately show quality product image screen look though sheet washed ineffective detergent happened converse demonstration altered studio compensate distortions television medium instance order present accurate picture television viewer short seems proper legal test cases kind concerns goes broadcasting studio whether shown television screen accurate representation advertised product claims made ii commission remedy concluding observations called brings support commission broad order suggestion might difficult commission police reliability simulated demonstrations commission might cause concern advertisers demonstrated propensity misrepresentation policing factor certainly permit commission sweep broad brush used since risk inaccurate reproduction inheres commercials involving tests experiments although commission doubtless wide discretion fashioning remedies ante believe order banning use justified merely score policing indication however commission troubles respondents past see commission find pattern misrepresentations respondents creates substantial risk accurately portray experiments permitted continue using commission present order might well justified think commission opportunity make findings unnecessary believe mistaken view case end vacate judgment appeals remand case commission proceedings light said opinion