Document: 505 U.S. 88 112 S.Ct. 2374 120 L.Ed.2d 73 Mary GADE, Director, Illinois Environmental Protection Agency, Petitioner,v.NATIONAL SOLID WASTES MANAGEMENT ASSOCIATION. No. 90-1676. Argued March 23, 1992. Decided June 18, Syllabus Pursuant to authority contained in the Occupational Safety and Health Act of 1970 (OSH or Act), Administration (OSHA) promulgated regulations implementing a requirement Superfund Amendments Reauthorization 1986 (SARA) that standards be set for initial routine training workers who handle hazardous wastes. Subsequently, enacted two acts requiring licensing at certain waste facilities. Each state act has dual purpose protecting general public requires meet specified examination requirements. Claiming, among other things, were pre-empted by OSH OSHA regulations, respondent, an association businesses involved in, inter alia, management, sought injunctive relief against petitioner Gade's predecessor as director environmental protection agency prevent enforcement acts. The District Court held not because they protected safety addition promoting job safety, but it invalidated some provisions Appeals affirmed part reversed part, holding pre-empts all law "constitutes, direct, clear substantial way, regulation worker health safety," unless Secretary Labor explicitly approved pursuant § 18 Act. In remanding, court did consider which, if any, would pre-empted. Held: judgment is affirmed. 918 F.2d 671, (CA7 1990), Justice O'CONNOR delivered opinion with respect Parts I, III, IV, concluding that: 1 1. A directly, substantially, specifically regulates occupational standard within meaning regardless whether another, nonoccupational purpose. assessing law's impact on federal scheme, this refused rely solely legislature's professed looked well effects. See, e.g., Perez v. Campbell, 402 637, 651-652, 91 1704, 1712-1713, 29 233. State laws applicability, such traffic fire laws, generally pre-empted, regulate simply members public. Pp. 104-108. 2 2. are extent establish those work Act's saving implicated does have plan. Illinois' interest establishing various occupations, cf., Goldfarb Virginia Bar, 421 773, 792, 95 2004, 2015, 44 572, cannot save from pre-emption directly substantially affect workplace since any law, however clearly State's acknowledged power, must yield interferes contrary Felder Casey, 487 131, 138, 108 2302, 2306, 101 123. Nor can saved argument "pre-condition" employment rather than health, SARA makes employees engaged operations issue certification requirements before employee may engage standards. This which acts' will under foregoing analysis. 108-109. 3 O'CONNOR, joined THE CHIEF JUSTICE, WHITE, SCALIA, concluded Part II impliedly been established, plan submitted 18(b) whole demonstrates Congress intended promote while avoiding subjecting employers duplicative regulation. Thus, established system uniform standards, gave States option pre-empting entirely displaces intent indicated principally 18(b)'s statement "shall" submit wishes "assume responsibility" developing enforcing interpretation 18(b)—that Secretary's approval required only replace, merely supplement, inconsistent scheme untenable light surrounding provisions. language purposes §§ 18(a), (c), (f), (h) confirm view assume role without approval, no effect. Also unacceptable pre-empt nonconflicting like Act, designed safety. Even where share common goal, methods statute was reach goal. International Paper Co. Ouellette, 479 481, 494, 107 805, 812, 93 883. Here, foreclose enacting its own restrict ways do so. 96-104. 4 KENNEDY, agreeing result mandated express terms scope also defined statutory text. Such finding longstanding rule infer States' historic police powers absent Congress. Unartful though be, structure language, conjunction subsections (a), leave little doubt supplementary exists. 109, 111-113. 5 J., announced REHNQUIST, C.J., JJ., joined, II, WHITE joined. filed concurring judgment. SOUTER, dissenting opinion, BLACKMUN, STEVENS, THOMAS, 6 John A. Simon, Chicago, Ill., petitioner. 7 Donald T. Bliss, Washington, D.C., respondent. 8 William K. Kelley, pro hac vice, amicus curiae special Court. 9 IV represent views Court, SCALIA. 10 1988, General Assembly Hazardous Waste Crane Hoisting Equipment Operators Licensing Ill.Rev.Stat., ch. 111, &Par; 7701-7717 (1989), Laborers 7801-7815 (1989) (together, acts). stated both "to safety" protect life, limb property." 7702, 7802. case, we these "dual impact" statutes, public, 1970, 84 Stat. 1590, U.S.C. 651 et seq. thereunder (OSHA). 11 * authorizes promulgate 655. (SARA), directed "promulgate operations" her SARA, Pub.L. 99-499, Title 126, 100 1690-1692, codified note following relevant 12 response congressional directive, OSHA, delegated responsibilities, see Martin OSHRC, 499 ----, ---- n. 1, 111 1171, 1174 113 117 (1991), "Hazardous Operations Emergency Response," including detailed 51 Fed.Reg. 45654, 45665-45666 (1986) (interim regulations); 54 9294, 9320-9321 (final regulations), CFR 1910.120 (1991). require, activity expose them wastes receive minimum 40 hours instruction off site, three days actual field experience supervision trained supervisor. 1910.120(e)(3)(i). Workers site occasionally working areas determined permissible exposure limits complete least 24 off-site one day experience. 1910.120(e)(3)(ii) (iii). On-site managers supervisors responsible same employees, plus eight additional specialized programs. 1910.120(e)(4). Employees refresher annually. 1910.120(e)(8). Those satisfied written certification; uncertified prohibited engaging operations. 1910.120(e)(6). 13 OSHA's interim effect, here. designated "in relation protection," their aim equipment operators laborers Both require license applicant provide certified record program conducted Illinois, pass examination, annual course instruction. 7705(c) (e), 7706(c) (d), 7707(b), 7805(c) 7806(b). addition, applicants crane operator's "a showing operation used handling 4,000 hours." ¶ 7705(d). proper license, knowingly permit unlicensed work, subject escalating fines each offense. 7715, 7716, 7814. 14 respondent National Solid Management Association (the Association), national trade remove, transport, dispose, material, waste. Association's therefore train, qualify, certify remediation workers. For employed obtain licenses example, ensure 500 (4,000 hours) statutes. 15 Shortly due go into brought declaratory action United Bernard Killian, former Director Agency (IEPA); Gade Killian's successor office substituted party Court's Rule 35.3. enjoin IEPA acts, claiming violated Commerce Clause Constitution. attempt when "legitimate apart safety." App. Pet. Cert. 54. Applying standard, Id., 56-57. uphold 4000-hour requirement, long conflict reasonable conclude satisfy "will better skilled not; means fewer accidents, equals less risk environment." 59. At time, "within Illinois" ground provision contribute Illinois's 57-58. declined challenge lack ripeness. 61-62. 16 On appeal, Seventh Circuit part. Wastes Assn. 671 (1990). law. 679. Because many had yet reached final form, remanded case considering 684. made clear, however, "cannot guise regulation," rejected conclusion could survive might enhance Ibid. Writing separately, Judge Easterbrook expressed laws. 685-688. He concluded, majority appropriate test determining superseded. 688. 17 We granted certiorari, 502 1012, 656, 116 748 resolve between decision below decisions Courts found much narrower pre-emptive effect regulations. See Associated Industries Massachusetts Snow, 898 274, 279 (CA1 1990); Encapsulating Corp. New York City, 855 48, 57 (CA2 1988); Manufacturers Tri-County Knepper, 801 130, 138 (CA3 1986), cert. denied, 484 815, 66, 98 30 (1987); Jersey Chamber Hughey, 774 587, 593 1985). Before addressing petitioner's threshold argument, drawn Easterbrook's separate below, all. "[T]he question intent. ' "The ultimate touchstone." " Allis-Chalmers Lueck, 471 202, 208, 105 1904, 1910, 85 206 (1985) (quoting Malone White Motor Corp., 435 497, 504, 1185, 1190, 55 443 (1978)). "To discern Congress' examine explicit statute." Ingersoll-Rand McClendon, 498 478, 482, 474 (1990); FMC Holliday, 403, 406-407, 356 19 endeavored assure so far possible every man woman Nation safe healthful conditions." 651(b). To end, authorized mandatory applicable affecting interstate commerce, 651(b)(3), thereby Federal Government traditionally occupied States. all-encompassing, however. First, expressly pre-emption. Section 4(b)(4) states "supersede manner workmen's compensation . enlarge diminish rights, duties, liabilities injuries, diseases, death arising out of, employment." 653(b)(4). 18(a) provides "prevent asserting jurisdiction over [federal] effect." 667(a). 20 reserved regulation, also, entirely. That section provides: 21 "Submission development preempt 22 "Any desires responsibility therein relating [by Act] shall enforcement." 667(b). 23 About half received plans described provision. pts. 1952, 1956 them. "unquestionably" establishes already obtained F.2d, 677. Every confronted conclusion,1 we. 25 Pre-emption either implied, "is compelled command statute's implicitly purpose." Jones Rath Packing Co., 430 519, 525, 97 1305, 1309, 604 (1977); Shaw Delta Air Lines, Inc., 463 85, 95, 103 2890, 2899, 77 490 (1983); Fidelity Savings & Loan De la Cuesta, 458 141, 152-153, 102 3014, 3022, 664 (1982). Absent recognized types implied pre-emption: pre-emption, 'so pervasive make inference left room supplement it,' id., 153, S.Ct., 3022 Rice Santa Fe Elevator 331 218, 230, 67 1146, 1152, L.Ed. 1447 (1947)), "compliance physical impossibility," Florida Lime Avocado Growers, Inc. Paul, 373 132, 142-143, 83 1210, 1217-1218, 248 (1963), "stands obstacle accomplishment execution full objectives Congress." Hines Davidowitz, 312 52, 67, 61 399, 404, 581 (1941); 123 (1988); 649, 1711, 233 (1971). 26 Our task determine consistent whole. Looking "the object policy," Pilot Life Ins. Dedeaux, 481 41, 51, 1549, 1555, 39 (1987) (internal quotation marks citations omitted), hold nonapproved issues supra. design persuades us state, way OSHA-regulated 27 principal indication "development promulgated." unavoidable implication enforce obtaining concedes wanted State. Petitioner contends, necessary completely replace She argues correct posited below: i.e., "oust" submitting "add to" seeking approval. 685 (Easterbrook, dubitante ). 28 Petitioner's plausible interpret isolation, tenable "[W]e guided single sentence member sentence, look law." supra, 1555 omitted). evidences avoid regulation; develop tailored needs, willing displace Cutting saves regulating Although clause, natural saved, even standard. Moreover, reading correct, free enact then superfluous: there possibility "[i]t our duty 'to give possible, clause word statute,' Menasche, 348 528, 538-539, 75 513, 519-520, 99 615 (1955) Montclair Ramsdell, 147, 152, 391, 395, 431 (1883)), 18(a)'s preservation absence presupposes background whenever governing understanding implications likewise bolstered 18(c) 667(c), sets forth conditions approve subsection (b). commerce "are compelling local conditions" "do unduly burden commerce." 667(c)(2). If undergoing process, protections offers easily undercut. It sense impose condition programs supplant it: remains same. 31 18(f) confirms permitted gives withdraw 667(f). Once withdrawn, "cease[s] effect" assert cases "commenced withdrawal plan." Under 18(b), should continued exercise purely "supplemental" Instead, assumes loses power once withdrawn. 32 assumption exclusive apparent transitional 18(h) 667(h). Labor, during first years after passage enter agreement continue until taken whichever earlier. Significantly, say fully Indeed, original Senate version allowed wished "not standards," category included "any more stringent standards." S. 2193, 17(h), reprinted Cong.Rec. 37637 (1970). eliminated draft bill, allowing agreements temporary indicative stricter contemporaneous expresses understanding. 1901.2 (1972) ("Section permits alternative [over] issue[s]. considered step toward permanent provided sections (c) submission standards") (emphases added). 33 whole, precludes 18(b). review time duplicative, possibly counterproductive, thus offered grant monies assist 672(a), (b), (f) (for enactment, award up 90% costs plan); 672(g) (States funding 50% operating programs). allow selectively "supplement" ostensibly hand, encouraging programs, other. 34 accept obstacle" implementation U.S., "it enough goal law" 813, 883 (1987). "A th[at] goal." Ibid.; Michigan Canners Freezers Assn., Agricultural Marketing Bargaining Bd., 467 461, 477, 104 2518, 2527, 81 399 (1984) (state agricultural producers Fair Practices "share augmenting producer's bargaining power"); Wisconsin Dept. Industry Gould 475 282, 286-287, 106 1057, 1060-1061, 89 223 preventing three-time violators Relations doing business reinforce Act). advance prior Act.2 III 35 next that, extended address concerns. As explained understand mean "occupational now standard" 36 defines conditions, adoption use practices, means, methods, operations, processes, reasonably places 652(8). Any falls neatly definition standard." Clearly, definition, declares legislative would, plan, matter. But asserts legislature articulates (or to) force. disagree. 37 "part reference question, another English Electric 496 72, 84, 110 2270, 2278, 65 (1990) (citing Pacific Gas Energy Resources Conservation Development Comm'n, 461 190, 212-213, 1713, 1726-1727, 752 (1983)). effects decades ago: 38 "We longer adhere aberrational doctrine frustrate passing mind frustration. Apart fact odds approach nearly Supremacy cases, enable legislatures nullify unwanted legislation publishing committee report articulating policy—other frustration objective—that tangentially furthered proposed [A]ny frustrates effectiveness rendered invalid Clause." 1712-1713. 141-142, 1216-1217 (focus "whether parallel divergent" tends "obscure aid" law) (emphasis deleted); Hughes Oklahoma, 441 322, 336, 1727, 1736, 60 250 (1979) ("[W]hen challenged statute, bound '[t]he name, description characterization given courts State,' itself practical law") Lacoste Louisiana Conservation, 263 545, 550, 186, 188, 68 437 (1924)); Napier Atlantic Coast Line R. 272 605, 612, 47 207, 210, 71 432 (1926) (pre-emption analysis turns aimed distinct different evils" "operate upon object"). precedents serves several one. observed, defeat measures largely accomplished through non-occupational legislation." Whatever ignore field. key what point sufficiently deemed 41 tort claim nuclear-fuels production facility employer whistle-blower "direct scheme. 2278. relied Secretary, agree applicability (such regarding safety) conduct non-workers alike substantial" fairly characterized "occupational" demonstrate outside workplace. 42 sum, render Secretary. 43 recognize practice professions boundaries, valid interests broad practitioners professions." 2016, 572 (1975); Ferguson Skrupa, 372 726, 731, 1028, 1031, (1963); Dent West Virginia, 129 114, 122, 231, 233, 623 (1889). Clause, derived, yield." 2307 Free Bland, 369 663, 666, 82 1089, 1092, 180 (1962)); Canas Bica, 424 351, 357, 96 933, 937, (1976) ("even vital paramount legislation"). reject occupations all, instead employment. By reasoning, themselves issue, 92, ibid. neither implicated, Like Appeals, stand fall above. 45 hereby 46 Affirmed. 48 Though I concur find statute. denominate plurality based undue expansion jurisprudence my view, wise nor necessary. 49 dissent acknowledge, identified circumstances law: adopt defining existence Second, creates And third, "state actually conflicts 78-79, 2274-2275, ante, 98; post, 115. third form so-called occurs "where impossible private comply 'stands Congress.' Eng lish, 79, 2275 (1941)). today exists "subject regulations." Ante, 99. application conclusory jurisdiction. how mode advances consideration case. 50 high met conflicting "irreconcilable. hypothetical potential insufficient warrant Norman Williams 654, 659, 3294, 3299, 1042 (1982); English, 90, 2281 ("The 'teaching enjoin[s] none exists.' Huron Portland Cement Detroit, 362 440, 446, 80 817, 852 (1960)); Elec. 222-223, 1731-1732, (1983). type limited prohibitions obligations direct contradiction primary objectives, conveyed clarity legislation. believe said create sort decisions. health. tension concurrent, not, rise level "actual conflict" cases. (OSH), 667, "interferes [its] (1987)). 52 plurality's basic principles jurisprudence. begin "with [are] superseded manifest Congress," (1947); 96. 'the touchstone' (1978) Retail Clerks Schermerhorn, 375 96, 103, 219, 223, 179 (1963)). free-wheeling judicial inquiry undercut principle 53 Nonetheless, 'occupational promulgated.' 667(b)). believe, follows When evident text, end framework itself. 1152; 2275. most statutes creating contain admittedly lacking never particular magic words "clear 1152. held, divined structure, interpreted, follows. amply demonstrates, 98-103, addressed dissent's position becomes implausible 18. follows: 56 ." 667(b) clear: Government, secure area. disappears (b) (f). 100-101. reiterate persuasive discussion point. 58 regard disagree dissent, p. unconvincing concurrent issues. States, decide exist regulatory theory choose regulating; plan; adopting rules, undermines respects. 18(c)(2) allows disapprove "unduly eviscerate important administrative mechanism sidestep 118-119. Furthermore, interfere situation compliance schemes impossibility, Post, 121; Brief Respondent 32-33. attribute hodge-podge authority. My confirmed matter, enactment viewed providing (1991); 7006 (1971); Amicus Curiae 12-21. Therefore, theoretical matter reconciled jurisdiction, sound 59 alone, fitting reason 107. Act," ibid., So-called serve, have, Acts operate join whom THOMAS join, dissenting. holds (Act), preclude With respect, dissent. exercises traditional powers, text fails support conclusion. 62 variants: Express "explicit language." 203, 1722, (1983), citing (1977). Field wrought manifestation occupy entire field, leaving untouched 204, 1722. Finally, senses. impossible, second (1941). 63 finds last sort, discerning reading, commentator kind purpose-conflict "undermin[e] favor uniformity presents similar occupation field." L. Tribe, American Constitutional Law 486 (2d ed. 1988). Still, narrow promulgated, objective or, KENNEDY describes it, (opinion judgment), intent, way. 64 Analysis begins presumption "Congress intend Maryland Louisiana, 451 725, 746, 2114, 2129, 576 (1981). "Where, here, see, Const., Art. 10; Patapsco Guano North Carolina, 171 345, 358 [18 862, 867, 191] (1898), 'we start 230 [67 1447] (1947). assurance 'federal-state balance,' Bass, 404 349 [92 515, 523, 488] (1971), disturbed unintentionally unnecessarily courts. 'unmistakably ordained,' 142 [83 1217, 248] enactments alone aspect fall." Jones, 1309. Subject principle, enquiry construction. read sensibly controls inferred. blush, respondent's strongest seem rest 667(a), this: 66 "(a) Assertion "Nothing chapter 655 title." say, reasons else superfluous "there regulation." 100. 69 errs doubly. premise incorrect. uses term, "conflict" mere amount ignores rules otherwise compatible occur renders impossible. meant deals (a) very inept trying sphere necessarily regulated, Unlike occurs, tells us, leaves issue. Beyond this, anything, perfectly physically Growers enforceable. If, indeed, just 70 relies 667(b): "(b) Submission 72 title enforced place incorporating 74 (plurality opinion); 112-113 judgment). approved, promulgation tugs (that is, law), anything adopted Its heading, properly canons construction whatever shed, Strathearn S.S. Dillon, 252 348, 354, 350, 607 (1920); FTC Mandel Brothers, 359 385, 79 818, 893 (1959), speaks own. again, nothing provision's whether, coexist. perfect shoulder mandate gain setting indicate federally enforceable incorporated approved. Subsection (c)(2) judgment, argues, concludes, somehow suggest acting independently unduly. 17; follow. puts limit burdens capping discretion delegation plans. From restriction applying non sequitur equally objectionable independent impose. Quite contrary; dormant take care need 76 arguably suggests 18(h), 667(h): "(h) Temporary 78 section, December 29, earlier." expired 1972, something about understood Since, agreed, file place, refers authorizing addresses implies agreement, barred permissive imply unenforceable. All true conflicted still well. wishing transition, pre-Act post-Act Read reads subjected issue; then, standard; new regime. One readjustment two, accordingly.1 clear. Rice, words, contention oral "logical" wrong. consistently others 685-688 1990) dubitante). They overlapping guarantee Restriction regime precluding supplemental desirable. expression pre-empt, obedience Clause. respectfully E.g., 278 Steelworkers America Auchter, 763 728, 736 1985); Farmworker Fund, Brock, 258 U.S.App.D.C. 271, 283-284, 811 613, 625-626, vacated grounds, 260 167, 817 890 (en banc); Ohio Mfrs. City Akron, 824, 828 (CA6 appeal dism'd 801, 44, Five Migrant Farmworkers Hoffman, 136 N.J.Super. 242, 247-248, 345 A.2d 378, 381 Columbus Coated Fabrics Industrial Comm'n Ohio, OSHC 1361, 1362 (SD 1973); cf. Citrus Packers California, 545 F.Supp. 216, 219-220 (ND Cal.1982) (State modification pending Secretary). Bokat H. Thompson, 686, (1988) effective vehicle plan"). implied. (KENNEDY, previous observation categories "rigidly distinct," 5, (1990), proved We, too, persuaded rises relying negative "inference" governs 112. although ultimately dispositive analysis, prefer Supra, 98-99. chosen term "pre-empts field" 79-80 2275-2276 ("[F]ield species (either plainly implied) exclude regulation"); (SOUTER, dissenting). Frequently, "label" carry substantive not. disagreement labelled "express" "implied" evince 18(f), 667(f), 101. retain commenced order relate mistaken "assumes withdrawn." capacity (except cases). says remain books plan's authority,

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