Opinion ID: 1125034
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Heading Rank: 4

Heading: Does the FADEA preempt the State's Compulsory Retirement Law?

Text: The FADEA obviously conflicts with the state's compulsory retirement law, because the state law requires compulsory retirement of bar pilots at age 68; the FADEA sets the mandatory retirement at age 70; therefore, the dispositive question is whether the federal law preempts state law. We now address that dispositive issue. The United States Supreme Court in Ray of Atlantic Richfield Co., 435 U.S. 151, 98 S.Ct. 988, 994, 55 L.Ed.2d 179 (1977), stated: Even if Congress has not completely foreclosed state legislation in a particular area, a state statute is void to the extent that it actually conflicts with a valid federal statute. A conflict will be found where compliance with both federal and state regulations is a physical impossibility..., Florida Lime & Avocado Growers, Inc. v. Paul, 373 U.S. 132, 142-143 [83 S.Ct. 1210, 1217, 10 L.Ed.2d 248] (1963), or where the state law stands as an obstacle to the accomplishment and execution of the full purposes and objectives of Congress. (Citations omitted.) The United States Supreme Court has also stated: In determining whether state regulation has been preempted by federal action, the intent to supersede the exercise by the State of its police power as to matters not covered by the Federal legislation is not to be inferred from the mere fact that Congress has seen fit to circumscribe its regulation and to occupy a limited field. In other words, such intent is not to be implied unless the act of Congress fairly interpreted is in actual conflict with the law of the State. Savage v. Jones, 225 U.S. 501, 533 [32 S.Ct. 715, 725, 56 L.Ed. 1182]. See also Reid v. Colorado, 187 U.S. 137 [23 S.Ct. 92, 47 L.Ed. 108], Asbell v. Kansas, 209 U.S. 251 [28 S.Ct. 485, 52 L.Ed. 778], Welch v. New Hampshire, 306 U.S. 79 [59 S.Ct. 438, 83 L.Ed. 500], Maurer v. Hamilton, 309 U.S. 598 [60 S.Ct. 726, 84 L.Ed. 969]. Huron Portland Cement Co. v. City of Detroit, 362 U.S. 440, 443, 80 S.Ct. 813, 815, 4 L.Ed.2d 852 (1960). Further, the United States Supreme Court has said: This Court has repeatedly refused to void state statutory programs, absent congressional intent to pre-empt them. If Congress is authorized to act in a field, it should manifest its intention clearly. It will not be presumed that a federal statute was intended to supersede the exercise of the power of the state unless there is a clear manifestation of intention to do so. The exercise of federal supremacy is not lightly to be presumed. Schwartz v. Texas, 344 U.S. 199, 202-203 [73 S.Ct. 232, 234-235, 97 L.Ed. 231] (1952). New York Department of Social Services v. Dublino, 413 U.S. 405, 413, 93 S.Ct. 2507, 2513, 37 L.Ed.2d 688 (1972). And in a more recent opinion that Court has stated: As we stated in Florida Lime & Avocado Growers v. Paul, 373 U.S. 132, 142, 83 S.Ct. 1210, 1217, 10 L.Ed.2d 248 (1963): [F]ederal regulation ... should not be deemed preemptive of state regulatory power in the absence of persuasive reasons-either that the nature of the regulated subject matter permits no other conclusion, or that the Congress has unmistakably so ordained. DeCana v. Bica, 424 U.S. 351, 356, 96 S.Ct. 933, 937, 47 L.Ed.2d 43 (1976). The Federal District Court for Alaska in Simpson v. Alaska Commission for Human Rights, 423 F.Supp. 552 (D.C.Alaska 1976), stated: ... Preemption occurs when compliance with both federal and state regulations is physically impossible, the nature of the subject matter requires federal supremacy and uniformity, or Congress intended to displace state legislation. Florida Lime and Avocado Growers, Inc. v. Paul, 373 U.S. 132, 142-48, 83 S.Ct. 1210, 10 L.Ed.2d 248 (1963). Applying the foregoing principles of preemption, we find no express intent by Congress to supersede and preempt this area of state regulation of bar pilots. The Pilotage Commission points out that in Senate Report No. 493, 95th Cong., 1st Sess. 5 reprinted in (1978), 3 U.S. Code Cong. & Admin. News, pp. 504, 508, it was stated, that [a]s this language makes clear, the ADEA does not preempt State laws; but that statement is not concerned with the entire Act, only with § 14(a), now 29 U.S.C.A. § 633(a), which deals with the federal-state interaction in enforcement of age discrimination laws. As stated in Dorgan v. State, 29 Ala.App. 362, 196 So. 160 (1940): State pilotage laws, though regulations of commerce, are within power of state until such power is abrogated by Congress. Robins Dry Dock & Repair Co. v. Navigazione Libera Triestina S.A. (Sup.1931) [154 Misc. 788] 279 N.Y.S. 257, aff. (1932) 257 N.Y.S. 908, 235 App.Div. 841, aff. (1933) 185 N.E. 698, 261 N.Y. 455; Moran Towing & Transp. Co. v. Robins Dry Dock [& Repair] Co. (1933) 290 U.S. 656, 54 S.Ct. 72, 78 L.Ed. [568], 569, rearg. den. Robins Dry Dock & Repair Co. v. Navigazione Libera Triestina, S.A. (1933) 262 N.Y. 521, 188 N.E. 47. 46 U.S.C.A. (1939-40 Sup.) § 215, p. 80. 29 Ala.App. at 364, 196 So. at 162. In an early case, the United States Supreme Court in Cooley v. The Board of Wardens of the Port of Philadelphia, 12 How. 299, 13 L.Ed. 996 (1851), citing 1 Stat. at Large 53, stated: It may be said that Congress has consented, by the Act of 7th August, 1789, section 4: That all pilots in the bays, inlets, rivers, harbors, and ports of the United States, shall continue to be regulated in conformity with the existing laws of the State, respectively, wherein such pilots may be, or with such laws as the states may respectively hereafter enact for the purpose, until further legislative provision shall be made by Congress. The Act of Congress 2d March, 1837, 5 Stat. at Large, 153, is a repeal of the part of the Act of 1803, now in question. We hold that the regulation of bar pilots is a matter to be decided by the states, absent congressional intent to preempt that state regulation. For example, in Ray v. Atlantic Richfield Co., 435 U.S. 151, 98 S.Ct. 988, 55 L.Ed.2d 179 (1977), the Supreme Court of the United States decided that federal law had preempted the regulation of pilots of enrolled vessels. [1] The Court opined: ... [A]s it is clear that States may not regulate the pilots of enrolled vessels, it is equally clear that they are free to impose pilotage requirements on registered vessels entering and leaving their ports. Not only does 46 U.S.C. § 215 so provide, as was noted above, but so also does § 101(5) of the PWSA, 33 U.S.C. § 1221(5) (1970 ed., Supp. V), which authorizes the Secretary of Transportation to require pilots on self-propelled vessels engaged in the foreign trades in areas and under circumstances where a pilot is not otherwise required by State law to be on board until the State having jurisdiction of an area involved establishes a requirement for a pilot in that area or under the circumstances involved. ... While a state regulation of bar pilots of enrolled vessels which conflicted with a federal regulation would be preempted, we do not believe that Congress, by virtue of the FADEA has preempted the field even as to pilots working on enrolled vessels. Assuming, however, that the FADEA did preempt the field as to bar pilots, regardless of the type vessels on which they were working, that does not end the inquiry. The FADEA provides for bona fide occupational qualifications, 29 U.S. C.A. § 623(f)(1). Bona fide occupational qualifications are defined in 29 C.F.R. § 860.102(d), as: (d) Federal statutory and regulatory requirements which provide compulsory age limitations for hiring or compulsory retirement, without reference to the individual's actual physical condition at the terminal age, when such conditions are clearly imposed for the safety and convenience of the public. After defining bona fide occupational qualifications, § 860.102(d) continues by giving an example: This exception would apply, for example, to airline pilots within the jurisdiction of the Federal Aviation Agency. Federal Aviation Agency regulations do not permit airline pilots to engage in carrier operations, as pilots, after they reach age 60. Thus, airline pilots may be required to retire at age 60 by their employers. There is a close analogy between bar pilots and airline pilots, although we realize that the two are not the same. We cannot ignore the fact that the State's interest in promoting the public safety in its harbors and on its waterways is sufficiently broad to permit the State to require the retirement of bar pilots at age 68; in short, the state law which sets a mandatory retirement age for bar pilots would be a bona fide occupational qualification, and the FADEA, even if preemptive, would not apply, because of the bona fide occupational qualification exemption, [2] but in this case, we give force to the legislative determination that bar pilots should retire at age 68 and hold that this legislative determination meets the requirements of the act which place the burden on the employer to show a factual basis for believing that all or substantially all persons within the class (in this case, persons over 68 years of age) would be unable to perform safely and efficiently the duties of a bar pilot. AFFIRMED. TORBERT, C. J., and JONES, SHORES, EMBRY and BEATTY, JJ., concur.