Document: 529 U.S. 89120 S.Ct. 1135146 L.Ed.2d 69 SyllabusNOTE: Where it is feasible, a syllabus (headnote) will be released, as being done in connection with this case, at the time opinion issued. The constitutes no part of Court but has been prepared by Reporter Decisions for convenience reader. See United States v. Detroit Timber & Lumber Co., 200 321, 337. SUPREME COURT OF THE UNITED STATES STATESv.LOCKE, GOVERNOR WASHINGTON, et al. CERTIORARI TO APPEALS FOR NINTH CIRCUIT No. 98-1701. Argued December 7, 1999Decided March 6, 2000 After supertanker Torrey Canyon spilled crude oil off coast England 1967, both Congress, Port and Waterways Safety Act 1972 (PWSA), State Washington enacted more stringent regulations tankers provided comprehensive remedies event an spill. ensuing question federal pre-emption State's laws was addressed Ray Atlantic Richfield 435 151. In 1989, Exxon Valdez ran aground Alaska, causing largest spill history. Again, Congress responded. Oil Pollution 1990 (OPA). created new agency directed to establish standards provide "best achievable protection" (BAP) from damages. That promulgated tanker design, equipment, reporting, operating requirements. Petitioner International Association Independent Tanker Owners (Intertanko), trade association operators, brought suit seeking declaratory injunctive relief against state local officials responsible enforcing BAP regulations. Upholding regulations, District rejected Intertanko's arguments that invaded area long pre-empted Federal Government. At appeal stage, intervened on behalf, contending Court's ruling failed give sufficient weight substantial foreign affairs interests Ninth Circuit held could enforce its laws, save one requiring vessels install certain navigation towing which "virtually identical to" requirements declared Ray. Held: Washington's regarding general watch procedures, crew English language skills training, maritime casualty reporting are regulatory scheme governing tankers; case remanded so validity other may assessed light considerable interest stake. Pp. 6_25. (a) legislation where manifest since beginning Republic now well established. has, Tank Vessel 1936, series statutes pertaining transports. These include PWSA, Title I authorizes, does not require, Coast Guard enact measures controlling vessel traffic or protecting marine environment, 33 U.S.C. § 1223(a), II which, amended, requires issue addressing construction, alteration, repair, maintenance, operation, equipping, personnel qualification, manning covered vessels, 46 3703(a). later OPA, among things, imposes liability removal costs damages parties spill, 2702 includes two saving clauses preserving States' authority impose additional liability, requirements, penalties, §§2718(a) (c). also ratified international agreements area, including Convention Standards Training Certification Watchkeeping Seafarers (STCW). 6_11. (b) Ray, PWSA under pilotage requirement, limitation size, design construction rules. interpretation correct here. Its basic analytic structure explains why analysis applies challenged allows scope due recognition traditional localities regulate some matters concern. narrowing pre-emptive effect given placed OPA's than they can bear. Like found, limited compensation pollution, do extend rules regulating manning. Thus, affected Ray`s holding survives enactment undiminished. prefatory observation "assumption" historic police powers were superseded law unless clear congressional purpose mean presumption aids An assumption nonpre-emption triggered when regulates there history significant presence. held, I, preserved peculiarities waters, such depth narrowness, if conflict determinations, see U.S., 171_172, 178, further II, mandated uniform subjects specified, id., 168. Ray's provision found 3703(a), only Government tankers. today reaffirms point. left room regulation these matters. Fidelity Fed. Sav. Loan Assn. De la Cuesta, 458 141. Although acknowledged existence overlapping coverage between titles make difficult determine whether controlled principles, applicable generally field rules, declined resolve every greater force II. some, although all, cases. Useful inquiries determining title governs justified conditions unique particular port waterway, supra, 175, extraterritorial effect, modify primary conduct outside specific body water purported justify rule, 159_160, 171. 11_20. (c) rule surrounding 3703(a) superseding illustrated four attempted reach demonstrated briefs record. First, imposition training tanker's address control staffing, those waters. drill pertain "operation" "personnel qualifications" §3703(a). reserved confirmed circumstance STCW addresses "training" "qualification" Second, proficiency peculiarities. It §3703(a) qualification" 1228(a)(7), any waters have least licensed deck officer bridge who capable clearly understanding English. Third, requirement consist officers, helmsman, lookout attempt "manning" Fourth, report casualties regardless world occurred cannot stand same subject intended sole source vessel's obligations, 6101 3717(a)(4). On remand, argue times restricted visibility, necessary Puget Sound, therefore pre-emption, should instead evaluated analysis. 20_24. (d) preferable petitioners' remaining considered within framework herein discussed. did participate cases until appeal, resolution litigation would benefit development full record all interested parties. If, pending adjudication threatens begin lower courts weigh stay application appropriate legal principles discussed national Ultimately, largely confront their scheme, demands high degree uniformity, adequate. States, environmental groups authorities, process. 24_25.148 F.3d 1053, reversed remanded. Kennedy, J., delivered unanimous Court. Notes 1 1. Together 98_1706, (Intertanko) Locke, Governor Washington, al., certiorari court. Opinion 2 NOTICE: This formal revision before publication preliminary print Reports. Readers requested notify Decisions, Supreme D. C. 20543, typographical errors, order corrections made goes press. Nos. 98-1701 98-1706 3 STATES, PETITIONERINTERNATIONAL ASSOCIATION INDEPENDENTTANKER OWNERS (INTERTANKO), PETITIONER 4 ON WRITS OFAPPEALS 5 [March 2000] 6 Justice Kennedy 7 transport industry presents ever-present, too real dangers spills ships, catastrophes environment. cargo 120,000 tons Cornwall, England, 151 (1978). 8 Prince William 53 million gallons caused statutory provisions, adopted operations design. Today we must recent despite Relying statute hold pre-empted; balance remand stake conformity discuss. 9 * embraces Nation's most coastal regions. Pacific Ocean seacoast consists, large part, wave-exposed rocky headlands separated stretches beach. borders Columbia River estuary, dividing Oregon. Two estuaries, Grays Harbor Willapa Bay, Of special significance inland sea 2,500 square mile consisting inlets, bays, channels. More islands located sound, sustains fisheries plant animal life immense value Nation world. 10 Passage quieter Sound through Strait Juan de Fuca, channel 12 miles wide 65 divides Canadian Province British Columbia. boundary midchannel. Access Vancouver, Canada's port, strait. Traffic inbound Ocean, destined ports Canada, routed waters; outbound traffic, pattern had adoption 1979 agreement entered Canada. Agreement Cooperative Management System Fuca Region, 32 T. 377, I. A. S. 9706. 11 addition our vital site major installations destination shipping point huge volumes end products. Refineries product terminals adjacent Cherry Point, Ferndale, Tacoma, Anacortes. refineries near Vancouver Burrard Inlet Fraser River. Crude transported Sound. Most extracted Alaska's North Slope reserve shipped flag vessels. Foreign-flag arriving nations Venezuela Indonesia call installations. bulk tankers, group tanks contained ship-shaped hull, propelled isolated machinery stern. described increase size numbers ships close three decades ago Askew American Operators, Inc., 411 325, 335 (1973), noting average increased 16,000 during World War 76,000 1966. (The term "tons" refers "deadweight tons," way measuring cargo-carrying capacity vessels.) Between 1955 1968, fleet grew 4,300. Ibid. By 1973, 366 excess 175,000 tons, M. Tusiani, Petroleum Shipping Industry 79 (1996), 1998 number "tankers" merchant fleets numbered 6,739, Dept. Transp., Maritime Administration, Merchant Fleets (Oct. 1998). 13 frequency operations, vast amount layers metal present serious risks. subjected threatened misses. 1984, example, ARCO Anchorage grounded Angeles 239,000 Alaskan oil. notorious grounding released and, like it, public intense concern over threat 14 responded enacting issue. legislature Office Marine Safety, prevention plans "the best protection [BAP] discharge oil." Wash. Rev. Code §88.46.040(3) (1994). then attack petitioners. Admin. (WAC) §317_21_130 seq. (1999). A summary relevant Appeals, set out Appendix, infra. 15 If fails comply possible sanctions restrictions denial entry into Code. §§88.46.070, 88.46.080, 88.46.090 16 ("Intertanko") whose 305 members own operate 2,000 registry. organization represents approximately 80% world's independently owned fleet; estimated 60% imported carried Intertanko Groups preservation defense laws. argued areas occupied imposed uniformity mandated. contended political subdivisions nation differing regimes goal governments develop effective safety defeated. 17 intervene Court, ocean-going expressed concerns diplomatic note States. lodged copy concerned represented "legislation personnel, equipment cause inconsistency regime US individual US. Differing different parts create uncertainty confusion. unwelcome precedent Federally administered countries." Note Verbale Royal Danish Embassy Dep't (June 14, 1996). 18 upheld Lowry, 947 F. Supp. 1484 (WD followed, stage Appeals equipment. 148 1220 (1998) reasoned WAC §317_21_265, F.3d, 1066. Over Judge Graber's dissent, denied petitions rehearing en banc. 159 (1998). Graber, unwilling, without analysis, conclude panel reached wrong result, "incorrect exceptionally important respects: (1) places much OPA 90 [The 1990] limit 90's preemptive effect. (2) Portions discuss inconsistent precedent." Id., 1221. We granted reverse. 527 1063 19 interstate navigation, embarrassment intervention separate resulting difficulties nations, cited Federalist Papers reasons adopting Constitution. E.g., 44, 12, 64. 1789, First certificate entitled benefits States." Sept. 1, ch. 11, §1, Stat. 55. importance emergence steamship resulted licensing promote enhance passengers. July 1838, 191, 304; Mar. 3, 1843, 94, 626. 1871, steam powered provisions captains, chief mates, engineers, pilots. Feb. 28, 100, 440. 20 Cooley Board Wardens Philadelphia ex rel. Soc. Relief Distressed Pilots, How. 299 (1852), stated instances commerce inappropriate even absent exercise authority, permitted needs conditions. acted, however, little difficulty finding governed certification operation. Gibbons Ogden, Wheat. (1824), invalidated New York grant monopoly steamboats ground coasting license owner challenging exclusive franchise. And Sinnot Davenport, 22 227 (1859), decided guards restraints, seen fit annex privileges engaged trade." 241. went explain circumstance, yield: "In act treaty supreme; State, though controverted, yield it." 243. 21 Against background, transports subject. referring principal instruments Act. 23 49 1889, operation "[i]n secure hazards property," respect "design repair vessels," duties qualifications officers crews thereof." "a reasonable concerning _ carrying type deemed dangerous." H. R. Rep. 2962, 74th Cong., 2d Sess., (1936). tank next 30 years, led take action. 24 2. Ports 1972. 25 Responding (PWSA). Act, amended 1978, 92 1471, contains somewhat titles, may, explained, preclude enforcement "in place jurisdiction 110 3934, 1223(a)(1) (1997 ed. III). Under required so. 26 require "design, property, safety, enhanced environment." 27 critical above remain operative, significantly (OPA), 104 484. response discussion. 28 3. 1990. 29 nine having captioned "Oil Liability, Compensation" adds extensive 2375, 2701 (1994 (for damages) §2702. Other defenses to, limitations on, liability. 2703 2704. clauses, §2718, below. IV "Prevention Removal." For amends existing instructs Secretary Transportation (whose departments Guard) action previous grants rulemaking authority. "significant harm 6101(a)(5) V). define areas, single hulled shall escorted 523. incremental dates specified double hull. 3703a. 31 4. Treaties Agreements. intricate complex treaties bearing upon advised depends principle reciprocity. say, government warrants ship complied standards, certificates enter signatory nations. Brief Illustrative party Life Sea, 1974, 47, 9700, Prevention Ships, L. 546, Training, Seafarers, With Annex, 1978 (STCW), Treaty Doc. 96_1, 7624. 34 argues treaties, supreme land, need because detail below relevance, course, longstanding displaces law, indicate demanded commerce. 166 (recognizing anticipated "arriving building vessels" speak voice" matters). proceedings, disposition open binding, force. questions, suffice, complete determination. III 35 Richfield, asked review, established Washington. 36 cases, petitioners relied preempted well. concluded retained subsequent Congress. disagree. controlling. 37 outset, essential interpreted, continuing force, neither return stating: 38 "(a) Preservation authorities 39 "Nothing 1851 shall- 40 "(1) affect, construed interpreted pre-empting, subdivision thereof imposing to- 41 "(A) pollution . 42 43 "(c) Additional liabilities; penalties 44 (46 183 seq.), section 9509 [the Internal Revenue 1986 (26 9509]), thereof- 45 47 "relating discharge, 2718. 48 bear, either textual standpoint consideration whole part. Liability Compensation creating pollution. contrast here, Placement suggests preserve similar transport. evident rather substantive conduct, financial relating spills. Gutierrez Ada, 528 ___, ___ (2000) (slip op., 5) (words consistent neighbors avoid giving unintended breadth Congress). 50 Our conclusion fortified Congress' decision key words used declaring OPA. permits recovery involving "from discharged, pos[e] 2702(a). parallel manner, permit §2718(c). following registry, 509; senior relieve master, 511; 513; casualties, ibid.; minimum plating thickness, 515; 517; 517_518, disrupt matters, placement 51 "this Code." §2718(a) explicit qualifiers interpreting alter thereunder. text indicates intent allow wide-ranging at-sea ability acts. 52 Limiting determined respects federal-state retain concurrent control. 325. view savings preserves role unchallenged think quite unlikely use means indirect upset settled division allowing states decline broad doing careful law. See, e.g., Morales Trans Airlines, 504 374, 385 (1992); Telephone Telegraph Co. Central Telephone, 524 214, 227-28 From long-established commerce, doubt surprised conclusion, Conference Report shared "does disturb (1978)." Conf. 101_653, 101, p. 122 (1990). undiminished, turn detailed discussion case. 54 As mentioned above, confronted claim operator refinery precluded prefaced observation: 55 "The prior power Supremacy Clause, `we start Congress.' Rice Santa Fe Elevator Corp., 331 218, 230 (1947)." 157.The fragmentary quote support respondents. 56 quoted fragment longer paragraph Rice. followed show approaches taken various contexts. explanation detail, however. To quotation, suffices sentence sentences preceding it. stated: each what was. legislated here traditionally occupied. So Congress." (citations omitted). 57 qualification word "so" consequence. indicates, Jones Rath Packing 430 519, 525 (1977) ("assumption" said States"); Medtronic, Inc. Lohr, 518 470, 485 (1996) (citing medical negligence, historically regulated States). us, earliest days Republic, scheme. 58 bear valid powers. Rather, ask structure, objectives No artificial us below, preserve, circumstances. time, uniform, seaworthiness PWSA. 59 proposition waterways, based precautionary measures." circumstances problems, idiosyncratic waterway. There itself unnecessary inappropriate. waterways ports. Cooley, How., 319 adopt "applicable limits"). fundamental residual Those powers, constrained displaced proper enactments, often exercised concurrence government. McCulloch Maryland, 316 (1819). 60 apparent, run counter then, occurs "when compliance impossible, `stands obstacle accomplishment execution purposes objective " California ARC America 490 93, 100_101 (1989) context, conflicting City FCC, 486 57, 63_64 (1988) (" `[A] acting congressionally delegated pre-empt regulation' hence render unenforceable otherwise law"). defined inquiry all. 171_172; also, 178 `where failure affirmatively takes character approved pursuant policy statute,' regulation. Bethlehem Steel Labor Relations Board, 330 U. S 767, 774 (1947)"). recognized that, context related official overview ramifications might position competing interests. 177. 61 While explained demanding uniformity. 168 ("Title leaves stricter hope them internationally accepted result accord. frustrate desire achieving standards"). crews. 160. manning" 62 applied pre-empted. 391a (1982 ed.), predecessor reaffirm Contrary suggestion "design" "construction," terms read isolation section. covers 141 (1982) (explaining pre-emption). court "[T]he Clause dictates judgment safe navigate prevail contrary judgment. Enforcement seems intention tankers." 165. 63 difficulty, follow approach, recognize broad. defining scope, useful consider actually section, section's list types included. 175 (a "based peculiarities"). Furthermore, rule. Limited tug escort 171, registered (i.e., involved trade) pilot allowed, 159_160. Local pose minimal risk innocent noncompliance, affect jurisdiction, adjustment systemic aspects vessel, burden itself. 64 us; remand. crew. §317_21_230; infra, ___. certify "complete[d] program [State]." master "be trained shipboard management" resource management, automated radar plotting aids, shiphandling, washing, inert gas systems, handling, response, fire fighting. mandates "weekly," "monthly," "quarterly" drills. 66 §317_21_230 contrary, receives confirmation crew, Art. VI), CFR Pts. 10, 13, 67 second find §317_21_250; _______. dictate how staffs outset voyage, thousands addition, another statute, provides: "[N]o navigable , while underway, English." supplemented compromising achieves. 68 third invalid §317_21_200. watch, depending visibility not. mention evaluate reads: lookout." tied Sound; throughout times. discussing current record, enforced assertion govern circumstances, 70 reveals fourth sources ultimately casualties. §317_21_130; incidents (defined "collision," "allision," "near-miss incident," "marine casualty" listed kinds, "accidental intentional grounding," "failure propulsion steering systems," component system," "fire, flood, incident affects seaworthiness," "spills oil"), occurred. incident, listing date, location, weather agencies whom reported contain "brief known causes" "description prevent reoccurrence." 71 contends incorrect statement always answer say supplement, mirror, observed Commerce doctrine shape, Alabama owners information condition "to furnish, oath law." 242. still remains statutes, workable, system, point, Holmes' relevant: "[W]hen matter hand coincidence ineffective opposition, help attempts go farther go." Charleston Western Carolina Varnville Furniture 237 597, 604 (1915). 72 obligations statute. "shall prescribe manner reporting," lists kinds cover. §3717(a)(4) (requiring "establish system"). intend cumulative enters. cost noncompliance. Roanoke, 189 185, 195 (1903) (the "such almost impossible him acquaint himself he visit"). operator's out-of-state doubt. V 73 Titles raised pre-emption. 74 skills, Petitioners claims appeal. Resolution 75 infer emerges, 76 When contemplates mass ever transit oil's proximity life, destructive far sea, international, federal, insufficient protection. Sufficiency, us. adequate responsibility; is, measure, views "officials governments," "representative harbor authorities," "representatives groups" standards). 77 reversed, proceedings opinion. 78 ordered. APPENDIX OPINION "1. Event Reporting-WAC 317_21_130. Requires operators events collisions, allisions near-miss five years filing plan, occur thereafter 80 "2. Operating Procedures-[Watch Practices WAC_317_21_200.] employ practices navigating anchor, management system `standard practice owner's fleet,' organizes responsibilities coordinates communication bridge. 81 "3. Procedures-Navigation WAC-317_21_205. positions fifteen minutes, write voyage plan entering frequent compass checks way. 82 "4. Procedures-Engineering WAC-317_21_210. engineering monitoring practices. 83 "5. Procedures-Prearrival Tests Inspections WAC-317_21_215. undergo tests inspections engineering, systems twelve hours less getting underway 84 "6. Procedures-Emergency Procedures WAC-317_21_220. masters post written assignments procedures emergencies. 85 "7. Procedures-Events WAC-317_21_225. transpires collision, allision miss prohibited erasing, discarding altering records plan. 86 "8. Personnel Policies, Training-WAC-317_21_230. beyond obtain document, instructions procedures. 87 "9. Policies-Illicit Drugs Alcohol Use-WAC 317_21_235. drug alcohol testing reporting. 88 "10. Policies-Personnel Evaluation-WAC 317_21_240. monitor fitness duty members, annually job performance evaluation serve six months year. 89 "11. Policies-Work Hours WAC-317_21_245. Sets work. "12. Policies-Language WAC-317_21_250. proficient understood subordinate unlicensed Also instruction printed 91 "13. Policies-Record Keeping WAC-317_21_255: maintain assigned "14. WAC-317_21_260. implement demonstrate active development, fitness, technological improvements navigation. 93 "15. Technology WAC-317_21_265. equipped global positioning receivers, emergency system. 94 "16. Advance Notice Entry Reports WAC-317_21_540. twenty-four notice hazard 1053 (footnote

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