Little more than a year ago, in our “Texas Mess” post, we critiqued what we called a “bizarre complaint” recently filed by the Texas attorney general (“TAG”) against a major COVID-19 vaccine manufacturer. We described that complaint as a mélange of “various antivax conspiracy theories concerning COVID-19 vaccines, the FDA, emergency use authorizations, and the media.” On the merits, we predicted that the whole kit and kaboodle would be precluded by the PREP Act because: (1) that statute “contains one of the most thoroughgoing express preemption clauses known to the law,” and (2) “pandemic countermeasures – specifically vaccines – are at the heart of” the act’s protections.”
And that’s precisely what happened at the end of 2024. The entire complaint was dismissed for failure to state a claim due to PREP Act preemption. “More specifically, the Court finds that as a matter of law under the circumstances of this case, the Defendant is entitled to immunity under the Public Readiness and Emergency Act (‘PREP Act’).” State of Texas v. Pfizer, Inc., C.A. No. 5:23-CV-3l2-C, slip op. at 1 (N.D. Tex. Dec. 30, 2024). Further, “both the PREP Act and the Food, Drug, and Cosmetic Act (“FDCA”) preempt Plaintiffs claims.” Id. at 1-2. Finally, adding insult to injury, the decision held that the TAG failed to apply the state’s consumer protection statute correctly. Id. at 2 (“the alleged statements by Defendant were not connected to any ‘trade or commerce’ or any ‘consumer transaction’”). Therefore, the complaint (called a “petition” in Texas parlance) was “DISMISSED for essentially the reasons argued in the Motion and Reply.” Id. (online links added).
That’s it. In only two pages, the entire TAG conspiratorial fantasy bit the dust.
The opinion was sufficiently terse that both Lexis and Westlaw missed it – and we didn’t find out about it for nearly a month.
To learn more about the why, how and wherefore of this dismissal, we followed the decision’s reference and took a look at the defendant’s brief and reply brief in support of the motion to dismiss.
The principal brief bluntly state that TAG “has no legal right to insert itself between FDA and the American people.” Brief at 2. Why?
Congress has tasked FDA, not state officials, with deciding whether [defendant’s] vaccine is sufficiently safe and effective, and federal law presents several insurmountable barriers to this lawsuit. Not only does [defendant] have statutory immunity under the PREP Act, but TAG’s claims are preempted twice over.
Id.
Addressing the PREP Act, the principal defense brief pointed out that even TAG “acknowledged [that], federal law provides [defendant] with broad immunity from claims related to the COVID-19 vaccine” – first and foremost the PREP Act. Id. at 10. The first Trump Administration “identified COVID-19 vaccine manufactures as ‘covered persons’ and their vaccines as ‘covered countermeasures’” under the statute. Id. TAG’s allegations also involved a PREP Act “claim for loss,” since the act “defines ‘loss’ broadly, stating ‘the term ‘loss’ means any type of loss.’” Id. at 11.
Under this expansive definition, the statute provides immunity from claims for “any type of loss” related to the administration or use of [defendant’s] vaccine. The claims here fall squarely within this broad definition of “loss.” According to [TAG]’s own complaint, [defendant’s] alleged “unlawful acts or practices” “caused injury, loss, and damage to [the State], as well as caused adverse effects to the lawful conduct of trade and commerce, thereby directly or indirectly affecting the people of this State.” The complaint further requests damages and restitution, which are only recoverable when the State or its citizens have suffered a “loss.”
Id. (citations omitted). Adding up covered persons and countermeasures, as well as covered losses, the brief concluded, as to the PREP Act immunity:
The complaint in this case asserts state-law claims for “losses” “caused by, arising out of, relating to, or resulting from the administration to and use by” individuals of [defendant’s] vaccine, a covered countermeasure. Accordingly, the PREP Act immunizes [defendant] against this lawsuit.
Id. at 12.
Moving from immunity to preemption, the defense principal brief next argued:
Congress enacted the PREP Act to incentivize private companies to assist the federal government in providing potentially lifesaving countermeasures during a public health emergency without fear of later being sued for actions taken in a time of crisis. In offering immunity to the manufacturers of COVID-19 vaccines, HHS emphasized the serious public health emergency caused by the pandemic and the need for “a sustained, coordinated proactive response by the [g]overnment in order to contain and mitigate the spread” of the virus. [Defendant] answered the federal government’s call. Despite this, [TAG] seeks to hold the company liable under state law for actions “relating to,” among other things, the “design,” “development,” “clinical testing,” and “safety and efficacy” of the COVID-19 vaccine. This lawsuit, which is in direct conflict with important federal prerogatives, is tailor made for dismissal under the PREP Act.
Brief at 14 (citations omitted).
The defense brief goes on to argue, persuasively, that the TAG complaint is also preempted directly by the FDCA. Id. at 14-18. But since the court’s decision rests on the PREP Act without mentioning the FDCA, we’ll skip this aspect of the defense preemption argument.
Moving to Texas Deceptive Trade Practices Act (“DTPA”), the defense principal brief points out a rather basic flaw in TAG’s allegations – the state had nothing to do with the transactions at issue.
[T]he federal government was the sole U.S. purchaser of the vaccine during 2020 and 2021 − when [defendant] allegedly overstated the vaccine’s benefits − and until very recently the federal government made the vaccine available, free of charge, to all people living in the United States.
Id. at 19 (citation omitted). Thus, the allegations did not concern any “trade or commerce” subject to state regulation. The feds bought the vaccine, and gave it away free to the public. On one end, Texas can’t regulate the federal government, and on the other, the DTPA is “concerned with ‘business,’ not gratuitous transactions.” Id. at 20 (citation omitted). “Trade,” as used in a deceptive practices statute, “means ‘[t]he business of buying and selling or bartering goods or services.’” Id. at 21 (citation omitted).
[R]ead as an integrated whole, . . . the DTPA applies to private business transactions, not charitable endeavors or large-scale government programs to advance the public health. . . . [Defendant] Pfizer did not make [any] statements in connection with the sale of the vaccine. As previously discussed, the statements in question, which Pfizer allegedly made in 2020 . . ., took place long after [defendant] contracted to provide hundreds of millions of doses to the federal government; the vaccine was not for sale to individual Texans. Because [defendant’s] so-called “misrepresentations” in this case were disseminated to the general public − which received the vaccine for free − and not the federal officials who actually authorized and purchased the product, the alleged misstatements did not occur “in the conduct of any trade or commerce” and the complaint fails to state a DTPA claim.
Id. at 22 (citations omitted).
The defense reply brief, also mentioned in the opinion, mostly reiterated these same points. TAG, the defendant argued, “argues for a narrower reading,” but only by “cherry pick[ing] words from the statute while ignoring the complete statutory language.” That flaw “permeated” TAG’s papers, “which misleadingly cite[d] not just the language of the PREP Act, but also the DTPA and the relevant case law.” Reply br. at 2-3. TAG “violate[d bedrock] canons of construction at every turn.” Id. at 3. First, the PREP Act’s protections are hardly limited to “personal injury.”
Under the PREP Act, “the term ‘loss’ means any type of loss.” This broad language is not limited to personal injuries. In fact, the statute provides “any type of loss” also includes, but is not necessarily limited to, “loss of or damage to property, including business interruption loss.” Read as an integrated whole, the PREP Act’s immunity provision extends far beyond “physical or mental loss.”
Id. at 4 (citations omitted).
Next, TAG argued that the DTPA did not require the state to prove a loss – but that ignored TAG’s own complaint, which repeatedly alleged various losses. Id. The PREP Act further “prohibits claims far beyond those stemming ‘from the administration of’ a covered countermeasure.” Id. The PREP Act’s “broad grant of immunity” reached any allegations that “arise out of” or “relate to” administration of the COVID-19 vaccine, and the “very first page” of TAG’s complaint alleged that the purported “misleading” claims caused “hundreds of millions of Americans” to receive the defendant’s vaccine. Id. at 5 (citations and quotation marks omitted). The reply pointed out that “Courts have rejected as ‘nonsensical’ the argument that consumer protection claims lack a sufficient nexus to the ‘administration’ of a covered countermeasure.” Id. (citation omitted).
Further, while states had no power to enforce vaccine-related claims, the PREP Act included an “explicit carve-out for federal enforcement actions.” Id. at 6 (citation omitted). TAG’s “absurd” argument that a manufacturer “could claim with impunity that the vaccine cures cancer, entirely misse[d] the point.” Id. Cancer was not a within the “the category or categories of diseases” within the government’s PREP Act declarations. Id. (citations and quotation marks omitted).
TAG’s arguments against PREP Act preemption were equally unavailing:
[TAG]’s claims are in direct conflict with [the statute]. The complaint’s entire premise is that [defendant’s] statements about the vaccine misled individuals, thus “harm[ing] Texas and its citizens.” Even [TAG] agrees that such claims, if brought by individuals, would be barred. . . . [TAG] asserts, however, that the state may bring the same claim “on behalf of the public interest of its citizens” acting as “parens patriae.” This cannot be correct; the preemption clause would be meaningless if states could bring the very claims the statute bars individuals from bringing. At a minimum, [TAG]’s interpretation would read the word “enforce” out of the preemption clause entirely. That is something courts must never do.
Id. at 7 (citations omitted). Nor did the inane “mirror” federal requirements argument matter. The PREP Act, as opposed to the FDCA, cannot be misread in this fashion, because the PREP Act does not rely on the FDCA at all. Id.
Nor, as the defense reply pointed out repeatedly, did TAG offer any precedent supporting its position that federal distribution of free vaccines somehow came within the purview of the DTPA. Id. at 8-10. Other than nitpicking the precedent cited in the defendant’s brief, TAG “d[id] not meaningfully address the DTPA’s statutory text.” Id. at 9. Sure, the state did not itself have to be a “consumer,” but it had to be suing over “consumer” transactions, which free federal distribution was not. Id. “[T]he Texas Legislature was concerned with ‘business,’ not gratuitous transactions.” Id. at 10 (citation and quotation marks omitted).
We understand that TAG is taking an appeal. We don’t think that even the Fifth Circuit will find that appeal very appealing.