Document: 507 U.S. 658 113 S.Ct. 1732 123 L.Ed.2d 387 CSX TRANSPORTATION, INC., Petitioner,v.Lizzie Beatrice EASTERWOOD. Lizzie EASTERWOOD, Petitioner, v. INC. Nos. 91-790, 91-1206. Argued Jan. 12, 1993. Decided April 21, Syllabus * After her husband was killed when a train owned and operated by Transportation collided with his truck at Georgia crossing, Easterwood brought this diversity wrongful death action, alleging, inter alia, that negligent under law for failing to maintain adequate warning devices the crossing operating an excessive speed. The District Court granted summary judgment on ground both claims were pre-empted Federal Railroad Safety Act of 1970 (FRSA). Appeals affirmed in part reversed part, holding allegation based train's speed but claim absence proper not. Held: Under FRSA, federal regulations adopted Secretary pre-empt Easterwood's negligence action only insofar as it asserts CSX's traveling Pp. ____. (a) FRSA permits States "to adopt or continue force any law, rule, regulation, order, standard relating railroad safety until such time has . regulation covering subject matter State requirement," and, even thereafter, standards more stringent than requirements "when necessary eliminate reduce essentially local hazard," if those are compatible do not unduly burden interstate commerce. 45 U.S.C. § 434. Legal duties imposed railroads State's common fall within scope 434's broad phrases describing matters "relating safety." section's term "covering" indicates pre-emption will lie substantially subsume relevant state law. (b) Secretary's grade "cove[r] matter" claim. In light relatively set language presumption against pre-emption, 23 CFR pt. 924 cannot be said support pre-emption. They merely establish general terms which may use aid highway hazards, including crossings, provide no explicit indication their effect often assigned joint responsibility maintaining safe crossings States. Likewise, is established 646.214(b)(1)'s requirement comply Manual Uniform Traffic Control Devices Streets Highways Manual's declaration determine need for, type of, installed crossing. It implausible would implicitly displaced elliptical reference Government otherwise devoted benefit employees size, color, shape traffic signs signals. Moreover, itself disavows cover tort crossings. Finally, although §§ 646.214(b)(3) (4) displace decisionmaking authority requiring particular certain federally-funded projects, inapplicable here because plan install issue shelved funds allocated project diverted elsewhere. (c) stand adoption 49 213.9(a). Although, face, 213.9(a)'s provisions address maximum speeds trains permitted travel given nature track they operate, overall structure demonstrates these limits concerns mind should understood "covering question. irrelevant primary purpose enacting have been prevent derailments, since 434 does call inquiry into purpose. common-law restrictions relied concerned hazards sense application depends each case's facts, preserved second saving clause. 933 F.2d 1548, affirmed. WHITE, J., delivered opinion unanimous respect Parts I II, III IV, REHNQUIST, C.J., BLACKMUN, STEVENS, O'CONNOR, SCALIA, KENNEDY, JJ., joined. THOMAS, filed concurring dissenting SOUTER, Howard J. Trienens, Chicago, IL, petitioner No. 91-790 respondent Maureen E. Mahoney, Washington, DC, amicus curiae special leave Court. Tambra P. Colston, pro hac vice, Court, Justice WHITE 1 Thomas February 24, 1988 cross-respondent he driving Cook Street Cartersville, Georgia. His widow, cross-petitioner Easterwood, alleges, before extent (FRSA), 84 Stat. 971, amended, 421-447 (1988 ed. Supp. II), pre-empts claims. 2 Northern pre-empted. 742 F.Supp. 676, 678 (1990). Eleventh Circuit respondent's 1553-1556 (1991). Because Courts differed over pre-emptive suits railroads, we petitions parties. 505 ----, 112 3024, 120 896 (1992).1 We now affirm. 3 enacted promote all areas operations railroad-related accidents, deaths injuries persons. ." 421. To achievement goals, specifically directs study develop solutions problems posed 433. addition, powers "prescribe, necessary, appropriate rules, regulations, orders, safety. 431(a). governed 434, contains express clauses.2 Thus, "adopt requirement." Even after promulgated, "not incompatible with" laws undue 4 1971, Secretary, acting through Administration (FRA), promulgated setting different classes track. See 213.9 (1992). Also again 1972, duly reported Congress problem possible solutions.3 responded Highway 1973, Title II Aug. 13, 87 282, note following 130. This makes available improve return must "conduct systematically survey highways identify require separation, relocation, protective devices, implement schedule projects purpose." 130(d). Further conditions States' out (FHWA) Act. pts. 646, 655, 924, 1204 petitioner's contention therefore pre-empt, relies.4 5 Where statute conflicts frustrates former give way. Const., Art. VI, cl. 2; Maryland Louisiana, 451 725, 746, 101 2114, 2128, 68 576 (1981). interest avoiding unintended encroachment States, however, court interpreting pertaining traditionally reluctant find unless "the clear manifest Congress." Rice Santa Fe Elevator Corp., 331 218, 230, 67 1146, 1152, 91 L.Ed. 1447 (1947). Evidence sought text issue. Shaw Delta Air Lines, Inc., 463 85, 95, 103 2890, 2898, 77 490 (1983). If clause, task statutory construction first instance focus plain wording necessarily best evidence Congress' intent. 6 According applicable "law, phrases. Cf. Cipollone Liggett Group, 2608, 2620, 407 (1992) (federal barring additional "requirement[s] 'imposed law' " claims); id., ---- - 2634 (SCALIA, part) (same). whether issued same maintenance operation at, prevail effect, "touch upon" "relate to" matter, cf. Morales Trans World Airlines, 504 2031, 2037, 119 157 (statute's confers effect), restrictive Webster's Third New International Dictionary 524 (1961) (in phrase "policy clauses situation," means comprise, include, embrace effective treatment operation"). turn employed provision displays considerable solicitude its clause prefaced succeeded clauses. supra, 7 filing answer denying allegations speed, moved As case comes us, assert complaint fails sole two allegations, assume states valid cause action.5 8 indicated above, addressed series regulations. Each receiving required "highway improvement program" establishes priorities addressing manner guides implementation evaluation remedial measures. (1992).6 priorities, directed consider rank dangers 924.9(a)(4). Having developed program, evaluate effectiveness costs, 924.13, file yearly reports FHWA. 924.15. 9 further governing devices. For employ conform FHWA's (MUTCD Manual).7 646.214(b)(1), 655.603 involve "located near terminus Federal-aid new [an] existing roadway," see 646.214(b)(2), "Federal-aid participate installation [warning] devices," specify installed. (4). automatic gates flashing signals features, multiple tracks, high limited visibility, heavy vehicle traffic, diagnostic team made up "representatives parties [the crossing]" recommends them.8 federally funded installations present specified 646.214(b)(3), device installed, determination agency, and/or railroad, approval FHWA." 646.214(b)(4). 10 themselves These bargain between governments: obtain take steps ensure efficiently spent. On effort encourage rationalize decision-making little say about because, safety, responsibilities are, been, quite distinct. Before enactment example, Georgia's improvements did excuse railroad's liability n. 5, just jury finding bore significance efforts beyond wished it. Certainly there Government's modification regime separate spheres responsibility. And, contrary view Tenth Circuit, follow "[t]he hit-or-miss method runs counter scheme planned prioritization." Hatfield Burlington R. Co., 958 320, 324 fact, could easily complement encouraging railroads—the entities arguably most familiar conditions—to current complete information agency responsible determining accordance 924.9. affirmative prepared solely strength mandates 924. 11 MUTCD Petitioner's reading rests primarily appears Part VIII Manual, entitled "Traffic Systems Railroad-Highway Grade Crossings": 12 company jointly occupy right-of-way conduct duties. requires control function public railroad. selection jurisdictional authority. Subject selection, design, shall national contained herein." 8A-1.9 petitioner, third sentence paragraph, combined directive 646.214(b)(1) amounts governmental bodies bear exclusive 13 argument suffers from initial implausibility: manual Not surprisingly, pretensions: "It intent installation, legal installation." 1A-4. relies undermines rather supports acknowledging approve "joint responsibility" Administration's guide provides description prescription allocation Governments railroads: 14 "8A-6 Grade-Crossing Responsibility 15 "Jurisdiction 16 railroad-highway resides almost exclusively Within some frequently divided among several agencies railroad." Dept. Transportation, Administration, Handbook 8A-6 17 Rather establishing alternative body 18 remaining potential sources (4), which, unlike foregoing provisions, Examination that, applicable, However, failed apply case, hence 19 discussed ____, either include gate receive FHWA "participate devices."10 private federal-law obtained. Indeed, effectively section envisions involvement participation teams recommend nonuse gates. 646.214(b)(3)(i)(F) (3)(ii). 646.214(b)(4), covers feature like, explicitly notes installed" approval. determined pay portion costs. 646.210(b)(1) short, selection. like relies, seeks impose independent duty repair dangerous 20 question preconditions met. A review record reveals Petitioner affidavit engineer Department (DOT) submitted motion judgment. 1979-1980, DOT decided West Avenue Cartersville. That without placing motion-detection four adjacent Street. App. 16. circuitry subsequently except Although also aside project, other street's width island, city When declined island concern flow vehicular another project. 21 facts "participate[d] devices" equipment circuitry. Such meet definition provided 646.204(i) (j) (1992).11 nevertheless contends single five Cartersville participated Reply Brief p. 20. Neither party identifies regulatory defining "project," usages cast doubt view. See, e.g., 646.210(c)(3) (describing elimination "a crossing" project"). construed individual treated distinct projects. Respondent's own affiant cost detector "was included estimated costs proposal improvements. 17. found scotched plans gate, earmarked transferred decision arms placed list considered later time." F.Supp., 678. inapplicability conclude pre-empted.12 22 pursuant codified 213.9(a) allowable freight passenger class travel. defined by, gage, alignment, curvature, surface uniformity, number crossties per length 213.51-213.143. four, 60 miles hour. concedes less hour,13 she breached operate moderate rate Central Co. Markert, 200 Ga.App. 851, 852, 410 S.E.2d 437, 438 (1991), cert. denied (Oct. 18, 1991). operate. Nevertheless, related reveal taken account. Understood context read ceiling, precluding sort petitioner. 24 automobile driver major variable offer far fewer opportunities control, concentrate providing accurate warnings approach oncoming drivers.14 Accordingly, variations MUTCD, signaling uniform periods advance notice regardless 8C-7. affecting speeds. 646.214(b)(3)(C)-(D). already 213.9(c). section, petition permission Administrator excess limit 110 hour, upon submission signals, protections, allow operation. 25 Read background, conditions, Respondent maintains inappropriate derailments. Section not, purposes, instead courts fact argues hazard, standard. turns case. rule caused lack due care, owing unique conditions. completely deprive power clearly conferred At least, renders reliance "incompatible thus 213.9.15 IV 26 hold Act, 27 Affirmed. 28 whom SOUTER joins, part. 29 believe Transportation's implementing neither respondent/cross-petitioner state-law concur Court's dissent remainder. 30 opinion, holds "maximum trains" "breached speed" below Ante, ____ (citing (1992)). concedes, (emphasis added). characterize obligation precise "subject "cover[ed]" regulation. admits shoulders measures "attempt stop slow avoid collision."1 3. agrees, evident refusal violation failure specific hazard. ante, 15. me, concessions dictate conclusion escapes Speed characteristics, 213.51-213.143 (1992), fairly described "substantially subsum[ing] law" regulating factor 31 explanation confirms my ensuring conjunction standards, "variable factors population density track" fell "beyond proposed making." 36 Fed.Reg. 20336 (1971). 11974 (notice rulemaking).2 By contrast, supporting "operating [a] greater reasonable safe" "adjacent busily traveled thoroughfare." 4-5. how affects much "adopted [that] matter," remains free "continue 32 Only invoking "background" can "§ conditions." Highways, compliance ____; (permitting "State standards" "supplemen[t]" Manual). goes so rely concededly govern site. Compare ("[A]utomatic projects"), ("These 'participate[d] devices' Street") (quoting 646.214(b)(3)(i) attempt excavate scant natural regulations: chosen regulate nor doing so. regulations' well create gap patrol potentially hazardous limit. 33 Had "cover[ed]." Doubtless true declared "laws, nationally practicable." encompassing unrelated negates desire accorded "considerable solicitude." "historic police States" "be superseded [is] Respect presumptive sanctity occurs administrative fiat congressional edict. Fidelity Fed. Savings & Loan Assn. De la Cuesta, 458 141, 153-154, 102 3014, 3022-3023, 73 664 (1982). 34 uphold right pursue respectfully syllabus constitutes Reporter Decisions convenience reader. United Detroit Lumber 321, 337, 287, 50 499. Karl 880 68, 75-76 (CA8 1989); Marshall Northern, 720 1149, 1154 (CA9 1983); 321 (CA10 1992). reads: National uniformity laws, safety; "The declares practicable. requirement. standard, creating commerce." Safety, I: Comprehensive Statement Problem (1971); II: Recommendations Resolving (1972). (rather FRSA), 1555 (CA11 notes, distinction 646 1204, statutes. 36. event, FRSA. Instead, "adopted" enabling legislation. very Appeals' 130, latter direct outgrowth us posture, dealing Code Ann. 32-6-190 (1991) "in condition permit convenient passage traffic." While final long rested governments, see, 40-6-25, apparently relieve precautions Southern Kraft 188 623, 624, 373 774, 776 (1988), including, identifying bringing attention authorities Parallel programs program hazards." 1204.4 Program Guideline 12(G). (1988). incorporated Secretary. 655.601-655.603 646.214(a)(3) "(3)(i) Adequate 646.214(b)(2) where one exist: "(A) Multiple main line tracks. "(B) tracks vicinity occupied locomotive obscure movement approaching "(C) High sight distance "(D) combination moderately volumes traffic. "(E) Either volume movements, substantial numbers schoolbuses trucks carrying materials, unusually restricted distance, continuing accident occurrences, "(F) them. "(ii) cases justifies appropriate, above applicable." "diagnostic team," 646.204(g) similar 8D-1: having locations. ". modified system State." suggested located in, federal-aid us. definitions state: "(i) Passive types signs, markings indicate presence change aspect train. "(j) Active activated train, manually watchmen, display motorists positive train." (emphases reject implied "conflict" preemption, pp. 40-43, basis preceding analysis. Of course suit come decisions Affidavits moving iv (1971) ("Nearly accidents attributable degree 'driver error.' improving [crossing] oriented around needs approaching, traversing, leaving site safely possible"); Rail-Highway Crossings Study 8-1 (1989) ("the influential predictors train-vehicle rail-highway volumes, volumes. Less influential, sometimes significant ."). concede bar breach duties, specific, alleges too quickly "time place," 4, present, address, FRSA's generally Ga.Code 46-8-190(b) (requiring "engineer locomotive" "exercise care order injury person property crossing"); Banking Cook, 94 650, 651-652, 95 703, 706-707 (1956); Atlantic Coast Line Bradshaw, 360, 129 S.E. 304 (1925). Solicitor General's concluded reduced represent preventing accidents." Amicus Curiae 29. source cited proposition "[i]f collision [at crossing] seems unavoidable," "must decide slowed put emergency mode." Study, Report 5-10 (April 1989). original stands uncontradicted.

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