Putting a Gag on Farm Whistleblowers: the Right to Lie and the Right to Reamin Silent Confront State Agricultural Protectionism
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Journal of Food Law & Policy Volume 11 Number 1 Article 6 2015 Putting a Gag on Farm Whistleblowers: The Right to Lie and the Right to Reamin Silent Confront State Agricultural Protectionism Rita-Marie Cain Reid University of Missouri, Kansas City Amber L. Kingery Texas A&M University-Central Texas, Killeen Follow this and additional works at: https://scholarworks.uark.edu/jflp Part of the Administrative Law Commons, Agriculture Law Commons, Animal Law Commons, Constitutional Law Commons, Consumer Protection Law Commons, First Amendment Commons, Food and Drug Law Commons, Jurisprudence Commons, Law and Economics Commons, Law and Society Commons, Legislation Commons, Litigation Commons, and the Public Law and Legal Theory Commons Recommended Citation Reid, R. C., & Kingery, A. L. (2021). Putting a Gag on Farm Whistleblowers: The Right to Lie and the Right to Reamin Silent Confront State Agricultural Protectionism. Journal of Food Law & Policy, 11(1). Retrieved from https://scholarworks.uark.edu/jflp/vol11/iss1/6 This Article is brought to you for free and open access by ScholarWorks@UARK. It has been accepted for inclusion in Journal of Food Law & Policy by an authorized editor of ScholarWorks@UARK. For more information, please contact [email protected]. PUTTING A GAG ON FARM WHISTLEBLOWERS: THE RIGHT TO LIE AND THE RIGHT TO REMAIN SILENT CONFRONT STATE AGRICULTURAL PROTECTIONISM Rita-Marie Cain Reid* & Amber L. Kingery** I. INTRODUCTION.................................................32 II. AGRICULTURE PROTECTIONIST LEGISLATION. ..................... 33 A. First GenerationProtections......................34 B. CategoriesofState Ag-Gag Laws.... .................... 37 C. The Evolution ofAg-Gag Enactments........... .............. 38 D. Ag-Gag Litigation...................................40 E. Continuing ProtectionistLegislative Agenda........... .....43 F. Other Related Statutes and Torts........................47 III. FOOD SAFETY SYSTEM....................................49 A. USDA Safety Approach...............................50 B. FDA FoodSafety Under the FSMA........................52 IV. PROTECTIONISM OR PREEMPTION? UNCERTAIN FEDERAL POLICY.......54 V. FIRST AMENDMENT ISSUES IN AGRICULTURAL PROTECTIONISM...........58 A. The Constitutional "Right to Lie.........................59 B. Free Speech Issues in MandatoryDisclosure Laws.......................69 1. Compelled Speech...................................70 2. Content-Based Restriction on Speech.........................72 3. Restriction on Association.............................73 4. Restriction on Newsgathering.......................74 5. Application of Strict and Intermediate Scrutiny... ............. 76 VI. RECOMMENDATIONS AND FUTURE RESEARCH........ .................. 78 VII. CONCLUSION ................................. .............. 81 ABSTRACT Whistleblowers play an important role in filling gaps in government food safety systems. Unfortunately, several dominant food-producing states have pursued legislative initiatives that punish farm whistleblowers and silence investigative tactics. First, this research describes various state legislative initiatives that curb criticism ofagriculture. The work analyzes the federalfood safety system and how these protections limiting agriculturalcriticism contravene thatfood safety net. Further, the research analyzes the free 31 32 JOURNAL OF FOOD LAW & POLICY [VOL. 11I speech concerns in the newest protectionist laws. The analysis recommends strategies and future research to improve agriculture safety and protect free speech in an evolvingfood safety landscape. I. INTRODUCTION According to the U.S. Centers for Disease Control and Prevention, in the United States each year forty-eight million people will be sickened from food borne illness.' Of those, 128,000 will be hospitalized and three thousand will die.2 Although the government provides food safety standards and inspectors, there are gaps in the system.3 Whistleblowers play an important role in filling those gaps to improve food safety.' In 2008, a whistleblower report of animal abuse and food safety violations led to the *Professor of Business Law, Henry W. Bloch School of Management, University of Missouri-Kansas City. Professor Reid gratefully acknowledges financial support for this research from the Bloch Summer Research Grant Program. ** Adjunct Instructor of Business Law, Texas A&M University-Central Texas; Business Law Attorney, U.S. Army. The views expressed in this article are solely those of the authors and do not necessarily reflect the views or policies of the U.S. Army, Department of Defense, or the United States. The authors dedicate this article to their late friend and colleague, Megan Mowrey, J.D., Ph.D., who contributed research in the early stages of the project and moral support and enthusiasm thereafter. She is greatly missed. 1. CDC Estimates of Foodborne Illness in the United States, CNTRS. FOR DISEASE CONTROL & PREVENTION, http://www.cdc.gov/foodborneburden/2011-foodbome- estimates.html (last updated Jan. 8, 2014). 2. Id. 3. See Brief for Reporters Committee for Freedom of the Press et al. as Amici Curiae Supporting Plaintiffs at 4, Animal Legal Def. Fund v. Herbert, No. 2:13-cv-00679-RJS (D. Utah Jan. 15, 2014) (No. 49), availableat http://www.rcfp.org/sites/default/files/RCFPAmicusALDF.pdf (citing Continuing Problems in USDA's Enforcement of the Humane Methods of Slaughter Act: Hearing Before the Subcomm. on Domestic Policy of the H. Comm. on Oversight & Gov't Reform, 11Ith Cong. (2010)). 4. Id. at 2-3. 2015] PUTTING A GAG ON FARM WHISTLEBLOWERS 33 largest beef recall in history.' Moreover, despite improved technology and evolving best practices, incidence of foodborne illness is still pervasive.6 Food producers play a major role in self-identifying food contamination hazards in the U.S. food safety system.' Such a system would seem to require individuals on farms and in food production facilities be free to investigate and report potential concerns about animal treatment or crop handling. Unfortunately, several dominant food-producing states have pursued legislative initiatives that in effect would punish farm whistleblowers and silence investigative tactics. These protectionist measures are the subject of this research. Part II of this analysis describes various state legislative initiatives that curb criticism of agriculture. These laws take different forms and are broadly characterized as agricultural protectionism herein. Part III explains the federal food safety system and how protections limiting agricultural criticism contravene that food safety net. Part IV points out inconsistencies and recent events that make it unclear whether current federal policy favors agricultural protectionism or food safty. Part V analyzes the free speech concerns that agriculture protectionism spawns. This constitutional discussion focuses on the newest protectionist laws that criminalize lying to get a farm job and whether they violate a whistleblower's "right to lie." Additionally, it evaluates First Amendment concerns with new measures mandating employee prompt disclosure of farm animal safety violations. Finally, the analysis recommends strategies and future research to improve agriculture safety and protect free speech in an evolving legal landscape. II. AGRICULTURE PROTECTIONIST LEGISLATION Agriculture protectionism has taken various forms in the last quarter century. Legislative initiatives have changed over time in response to public criticism, especially about infringed free speech rights, but also in response to food safety concerns that can get suppressed when unhealthy farm practices are protected from scrutiny. This Part highlights various protectionist legislation to reveal an ever-changing legal landscape. 5. David Brown, USDA Orders Largest Meat Recall in U.S. History, WASH. POST (Feb. 18,2008), http://www.washingtonpost.com/wpdyn/content/article/2008/02/17/AR2008021701530 .html. 6. See Trends in Foodborne Illness in the United States, 2012, CTRS. FOR DISEASE CONTROL & PREVENTION, http://www.cdc.gov/features/dsfoodnet2012/reportcard.html (last updated Apr. 18, 2013). 7. See infra notes 121-25 and accompanying text. 34 JOURNAL OF FOOD LAW & POLICY [VOL. 11I A. First Generation Protections Statutory rights to farm have been around for decades in all fifty states.' Historically, these laws have been used to shield farmers from neighbors' nuisance suits.9 In some instances, these protections were so expansive that courts struck them down as unconstitutional takings of plaintiffs' properties.' 0 Another example of state protectionist legislation emerged during the 1990s. After Washington apple growers failed in a common law product disparagement case against CBS over a critical segment on 60 Minutes," twelve states passed civil food libel laws to address perceived shortcomings in the common law when public criticism about food safety stems public demand for the product.' 2 These laws have been widely criticized as unconstitutional infringements on free speech." Nevertheless, they remain on the books in 8. Neil D. Hamilton, Right-to-Farm Laws Reconsidered: Ten Reasons Why Legislative Efforts to Resolve Agricultural Nuisances May Be Ineffective, 3 DRAKE J. AGRIC. L. 103, 103 (1998). 9. Id at 104. 10. See, e.g., Gacke v. Pork Xtra, L.L.C., 684 N.W.2d 168, 171 (Iowa June 16, 2004); see also Emily A. Kolbe, Note, "Won't You Be My Neighbor? " Living with Concentrated AnimalFeeding Operations,99 IOWA L. REV. 415,429 n.90 (2013) (citing Carrie Hribar,