Opinion ID: 2687578
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Heading: Analysis of Iowa Code Chapter 455B Preemption.

Text: The precise question here is whether Iowa Code chapter 455B impliedly conflicts with and thus preempts a statutory claim for nuisance under Iowa Code chapter 657 and common law claims of nuisance, trespass, and negligence. With respect to one statute impliedly preempting another, we have understandingly been quite demanding. The legislature is presumed to know the existing state of the law when the new statute is enacted. Jahnke v. Incorporated City of Des Moines, 191 N.W.2d 780, 787 (Iowa 1971). In the absence of any express repeal, the new provision is presumed to accord with the legislative policy embodied in prior statutes. See Ruth Fisher Elementary Sch. Dist. v. Buckeye Union High Sch. Dist., 41 P.3d 645, 648 (Ariz. Ct. App. 2002). When prior and later statutes deal with the same subject matter, although in apparent conflict, they should as far as reasonably possible be construed in harmony with each other to allow both to stand and be given force and effect. See Polk Cnty. Drainage Dist. Four v. Iowa Natural Res. Council, 377 N.W.2d 236, 241 (Iowa 1985). While we recognize the possibility of an implied repeal, such action is permitted only where the statutes “cover the same subject matter,” are “irreconcilably repugnant,” and implied repeal is “absolutely necessary.” Rauhauser, 272 N.W.2d at 434. While the issue in this case does not require a complete repeal of Iowa Code chapter 657, we think the Rauhauser test remains applicable where a party seeks to nullify application of a preexisting statute to a specific circumstance. With respect to whether a statute abrogates common law, the test is somewhat similar. We have declared that absent express statutory 52 language, a party seeking to demonstrate that a statute impliedly overrides common law must show that this result is “imperatively required.” See, e.g., Rieff v. Evans, 630 N.W.2d 278, 286 (Iowa 2001); Collins v. King, 545 N.W.2d 310, 312 (Iowa 1996). While the question of whether the CAA preempts state common law is a question of federal law, whether chapter 455B impliedly repeals or overrides common law is a question of state law. There is no definitive Iowa case dealing with the question of whether nuisance or common law claims may go forward in light of the provisions of Iowa Code chapter 455B. In Gerst, a plaintiff raised parallel common law claims along with a citizen-action claim under Iowa Code chapter 455B. 549 N.W.2d at 813. We were not asked, however, to decide whether the nuisance and common law claims were extinguished by Iowa Code chapter 455B. Nonetheless, we do have instructive caselaw. We have made clear that a lawful business, properly conducted, may still be a nuisance. For instance, in Simpson we noted in the context of the proposed construction of a hog-confinement facility that compliance with DNR regulations was not a defense to a nuisance action. 749 N.W.2d at 672, 674. We noted that “ ‘a lawful business, properly conducted, may still constitute a nuisance if the business interferes with another’s use of his own property.’ ” Id. at 674 (quoting Weinhold v. Wolff, 555 N.W.2d 454, 461 (Iowa 1996)). Our approach is consistent with the law in other jurisdictions. See, e.g., Flo-Sun, Inc. v. Kirk, 783 So. 2d 1029, 1036 (Fla. 2001) (holding “something may legally constitute a public nuisance . . . although it may technically comply with existing pollution laws”); Biddix v. Henredon Furniture Indus., Inc., 331 S.E. 2d 717, 724 (N.C. Ct. App. 1985) (noting that the North Carolina Clean Water Act does not preempt 53 common law claims); Gonzalez v. Whitaker, 643 P.2d 274, 278 (N.M. Ct. App. 1982) (holding state environmental statutes do not preempt common law claims). See generally, Selmi § 10:26, at 10-56, 57. We do not see enforcement of nuisance and other common law torts in this case as inconsistent with the regulatory framework established by chapter 455B. As indicated above, the nuisance and common law actions in this case are based on specific harms to the use and enjoyment of real property that are different from the public interest generally in controlling air pollution. We thus think the principles articulated in Van Baale v. City of Des Moines, 550 N.W.2d 153, 156 (Iowa 1996) (“Where the legislature has provided a comprehensive scheme for dealing with a specified kind of dispute, the statutory remedy provided is generally exclusive.” (quoting IA C.J.S. Actions § 14 n.55 (1985))), and Northrup, 372 N.W.2d at 197 (holding remedy provided under Iowa Civil Rights Act “is exclusive”), are inapplicable. In short, we think Iowa Code chapter 455B did not impliedly repeal application of Iowa Code chapter 657 to air pollution claims or preempt Iowa common law. With respect to remedies, GPC speculates that the district court could enter a remedy that conflicts with Iowa Code chapter 455B. As a result, GPC argues that the nuisance and common law claims should not be allowed to go forward. Any consideration of this possibility at this stage of the litigation, however, is premature. GPC has not demonstrated that the district court sitting in equity cannot fashion equitable relief that is consistent with Iowa Code chapter 445B. Specifically, to the extent the district court orders equitable relief, any such relief may be conditioned upon obtaining regulatory approvals required under Iowa Code chapter 455B. Or, equitable relief may require development of a 54 common fund to promote clean up that does not impact the requirements of Iowa Code chapter 455B at all. In any event, we decline to speculate at this stage about the possible legal issues that may be raised by the granting of any injunctive relief in this case.