Document: 486 U.S. 174 108 S.Ct. 1704 100 L.Ed.2d 158 GOODYEAR ATOMIC CORPORATION, Appellantv.Esto MILLER and Industrial Commission of Ohio. No. 86-1172. Argued Jan. 19, 1988. Decided May 23, Syllabus Appellee Miller, an employee appellant at Ohio nuclear production facility owned by the United States but operated appellant, a private contractor, received workers' compensation award from appellee (Commission) for injuries sustained in fall allegedly caused bolt protruding scaffold on which he was working. On basis state safety regulation prohibiting scaffolds having projecting parts, Miller then sought supplemental under constitutional provision authorizing such when injury is employer's failure to comply with any specific requirement. The denied claim, State Court Appeals ordered consider Miller's application. Supreme affirmed, ruling that federal law did not pre-empt applying requirements unrelated radiation hazards facilities. Held: 1. This has jurisdiction 28 U.S.C. § 1257(2), since upheld application State's additional-award question as against contention violated Supremacy Clause Federal Constitution. Cf. Japan Line, Ltd. v. County Los Angeles, 441 434, 99 1813, 60 336. Application "pragmatic approach" utilized Cox Broadcasting Corp. Cohn, 420 469, 486, 95 1029, 1042, 43 328, compels conclusion court's judgment "final" within meaning 1257(2) even though further proceedings before are anticipated, finally determined pre-emption question, reversal would preclude proceedings. Moreover, if prevails non-federal grounds, Court's unreviewed decision might seriously erode policy sanctioning direct nonradiological only producing fuel Navy, important implications federally facilities other States. Pp. 178-180. 2. does bar its contractor operating performs function. Such shielded regulation, function carried out unless Congress provides "clear unambiguous" authorization regulation. Hancock Train, 426 167, 96 2006, 48 555. Even sufficiently akin be potentially barred Clause, 40 290—which empowers apply "workmen's laws" premises same extent laws applied facilities—unambiguously requisite clear congressional provision. above-quoted, undefined phrase applies typical Acts cannot squared 290's plain language, places no express limitation type scheme authorized, or statute's history, demonstrates that, time enactment, substantial number provided additional awards violation regulations, matter presumably aware. fact enacting 290, rejected proposal have authorized their insurance directly projects preclude, consistent with, allowance provisions' incidental regulatory effects, significantly less intrusive than operation projects. 180-186. 26 St.3d 110, 497 N.E.2d 76, affirmed. MARSHALL, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, BLACKMUN, STEVENS, SCALIA, JJ., joined. WHITE, filed dissenting opinion, O'CONNOR, joined, post, p. ----. KENNEDY, took part consideration case. Robert E. Tait, Columbus, Ohio, Thomas W. Merrill, amicus curiae, supporting special leave Court. Stewart R. Jaffy, appellees. Justice MARSHALL 1 issue presented this case whether bars subjecting state-law increased resulting 2 * arises accident involving worker Portsmouth Gaseous Diffusion Plant, located near Piketon, plant States, all times relevant action it company, Goodyear Atomic Corporation, contract Department Energy (DOE). July 30, 1980, Esto maintenance mechanic employed plant, fell while performing routine work fractured his left ankle. His apparently glove caught guardrail scaffolding. program, pays premiums cover employees. He about $9,000 compensation. 3 After returning work, ground had resulted Goodyear's alleged Admin.Code 4121:1-5-03(D)(2) (1987), "[e]xposed surfaces [on scaffolds] shall free sharp edges, burrs parts." Constitution requirement, provide 15% 50% benefits already received. Const., Art. II, 35. fund recoups these payments increasing premium paid employer. Ibid. 4 claim award. held "the [Ohio] Codes Specific Safety Requirements . may Plant doctrine preemption." Claim 80-19975 (Mar. 8, 1983), App. 18. mandamus Appeals, seeking order directing court "[u]ntil government preempted field radiation, regulations give rise thereof equally applicable entity contracts power exclusively government." 84AP-208 (July 25, 1985), 17. therefore due because 5 A divided affirmed Appeals. ex rel. Comm'n, 76 (1986) (per curiam ). Relying analysis Silkwood Kerr-McGee Corp., 464 238, 104 615, 78 443 (1984), Act 1954, 68 Stat. 919, amended, 42 2011 et seq. (1982 ed. Supp. IV), St.3d, 111-112, N.E.2d, 77-78. In dissent, Wright agreed separate addressed majority, absence clearly expressed Congress, facility. argued necessary justify scheme. Id., 112-115, 78-80. We noted probable appeal, 483 1004, 107 3226, 97 733 now affirm different reasoning. II 6 Although neither party contests our appellate over case, we must independently determine threshold jurisdiction. See Brown Shoe Co. 370 294, 305-306, 82 1502, 1513, 8 510 (1962). Title gives final judgments highest where validity statute drawn being repugnant favor validity. "[A] holds particular set facts invalid grounds." 441, 1817, 336 (1979). Ohio's statute, facility, 7 more difficult anticipated Commission. requires appellee's 328 (1975), recognized four situations views 1257(a) although contemplated. fourth category cases "where been decided courts pending review here prevail merits nonfederal thus rendering unnecessary preclusive litigation cause rather merely controlling nature character of, determining admissibility evidence in, still come. circumstances, refusal immediately state-court policy, entertained issue, itself purposes litigation." 482-483, S.Ct., 1040. 9 believe present falls category. holding addition, example, determines there area production. sanctions Navy's fleet. Following finality, supra, conclude 1257(2). III 10 It well settled activities installations EPA Water Resources Control Board, 200, 211, 2022, 2028, 578 (1976); accord, 178-179, 2012-2013, 555 Mayo 319 445, 63 1137, 1139, 87 L.Ed. 1504 (1943). As initial matter, therefore, likewise States.1 answered U.S., 168, 2007, faced could enforce pollution emission limitations "federally installations" requiring obtain permit. One Paducah which, like contractor. 174, n. 2010, 23. Nuclear plants carry mission, property, control.2 struck down permit requirement Hancock, reasoning without authorization, " 'the free' [state] regulation." 179, quoting 447, 1140. establishes authorizes regulation.3 11 however, Rather, involves imposition compensation, chargeable Goodyear, Appellant Solicitor General argue nonetheless tantamount Clause. need decide ch. 822, 49 1938, workers Section 290 part: 12 "Whatsoever constituted authority each several charged enforcement compliances workmen's said compliance orders, decisions, lands America deed act cession, purchase otherwise, exterior boundaries projects, buildings, constructions, improvements, property belonging America, State, way were exclusive whose place be."4 13 Both concede respondent 290. They contend, authorize employer violates At bottom, defined, intended include law. claims precise definition, should infer envisioned act, automatically entitled certain they suffer work-related injury, regard fault. continues, limited standard awards. 14 do appellant's construction can language history. enforcing laws," Commission, "shall "in State." authorized.5 face, injured receive working wholly passage 1936, wide variety schemes fit neatly view "typical" least 15 remedies addition basic specified kinds misconduct.6 Eight including regulation.7 generally presume knowledgeable existing pertinent legislation enacts. Director, OWCP Perini North River Associates, 459 297, 319-320, 103 634, 648-649, 74 465 (1983). affirmative history unwilling assume ignorant providing Indeed, appears diversity awarded extent" course, infinitely elastic. address outer term others ilk, solidly entrenched enactment "to State. legislative muster support position S.Rep. 2294, 74th Cong., 2d Sess., (1936). But Congress' reluctance allow says little concerned effects arising law, Ohio's, breach choose disregard simply pay employee's violation. reasonably pressure acceptable, whereas not.8 Kerr-McGee, 256, 625-626 (Congress willing accept consequences tort aspects energy pre-empted). Because permission preclusion relied undermine unambiguously run afoul Clause.9 Accordingly, 16 so ordered. 17 KENNEDY 18 whom O'CONNOR joins, dissenting. 19 seminal McCulloch Maryland, Wheat. 316, 579 (1819), principle exercise sovereign powers control those instrumentalities judged proper into effect policies. narrow involved assertion Maryland tax bank, laid general proved enduring force reason. stated: "The attempt use [state power] means Union, pursuance constitution, abuse, usurpation people single give." Wheat., 430. contrary "capable arresting measures government, prostrating foot American declared made thereof, supreme; transfer supremacy, fact, States." 432. result," concluded, "is conviction power, taxation retard, impede, burden, manner control, operations enacted execution vested 436 (emphasis added). 20 Although, again, M'Culloch tax, "involves destroy," id., 431, passages quoted above demonstrate formulated, explicitly, sufficient breadth impose "retard, control" instrumentalities. 436. And, clearly, regulate also destroy" web spun too tightly around object. More commonly, perhaps conflicting imposed burden instrumentality, interfere operations, frustrate objectives designed achieve. Nonetheless, long Government indicates finds impositions pursuit 447-448, 1140-1141, 21 seeks require equivalent instrumentality,1 make "bonus" money payment who results facility's "any protection lives, health employees." declines some similarly impermissible upon it, ante, 182, I tenable us. 22 Initially, focus avowed purpose adopts given actual instrumentality ability achieve created. Perez Campbell, 402 637, 651-652, 91 1704, 1712, 29 233 (1971). framework lie Government. Murray Gerrick & Co., 291 315, 54 432, 821 (1934). And yet much application, laws. feature statutory regimes common governing relationship between employee, doctrines become disadvantageous employees, replaced automatic entitlement course employment. A. Larson, Law Workmen's Compensation §§ 1.10-3.40 (1985). Unlike scheme, alter respect exposes penalty specificity management preserve right sue willful misconduct intentional terms impact one thing know manage minimize risk employees; quite another expose penalties failing whole panoply dictate rules govern very detailed safety. 23 obvious directly, obliging satisfy them else suspend rule similar effect. Appellees code requirements, adopted administrative rule. sets restrictions mobile platforms rolling platforms, (1987). There thousands Commission's Division Hygiene, current version 200 double-columned pages meticulous prescriptions, illustrated minute detail diagrams, graphs, charts, see Admin.Code, 4121:1 countless regulations. will say attempted exposed possible often enforced fines enjoining conduct, event apparent through permitted 24 Nor sense fining penalizing form workers. extra injury; just fine every day frequent occasions inspections held. point, amount large, compulsion brought bear knuckle scrutinize jot title apparent. instance small. Thomas, 173 276, 453, 699 (1899), contested nothing person charge eating house home disabled veterans required put small printed sign read "oleomargarine sold used here" served oleomargarine inmates. found slight one, remains case.2 25 mechanics provision, interpreted courts, reinforce both differences First, unlike job regardless how occurred, available fails "requirement." provisions embodied activate afforded See, e.g., Ish 28, 482 941 (1985); Roberts 1, 460 251 (1984). Second, necessity "specific" dictates strictly construed. "does comprehend conduct duties obligations flowing relation embraces lawful, definite standards prescribed orders Commission." Trydle 32 St.2d 257, 748, 750 (1972). litigated invalidated claimant able "demands done." Holdosh 149 St. 181-182, 165, 166 (1948). Rae 136 594 (1939); Trydle, supra; Jack Conie Sons 56 150, 382 1366 (1978). secure award, show "definite" leaves discretion employer—does "a own choosing"—how Fast 176 199, 201, 198 666, 667 (1964). Since exacts monetary indeed precisely what steps take avoid financial exposure, principal induce adhere various adopted. presents problem, posed mere 27 today skirts difficulties rests disposition extensive be, sanctioned "unambiguous" mandate" approving past cases. Kern-Limerick, Inc. Scurlock, 347 122, 403, 410-411, 98 546 (1954); (1976). disagree. "property crux open up kind onerous penalties. employers, establishments coercive slew operations. Nothing background suggests intent, certainly "clearly" "unambiguously" approved Congress. am unimpressed fraction passed; itself, obscure practices few suffice create one. explicitly disapprove aspect refrain giving blessing. response (1934), areas bill stated humanitarian "correcting situation," deprived coverage purely oddity location. (1936); H.R.Rep. 2656, Senate Report explained greater length: amended fill conspicuous gap furnishing death disability laborers contractors persons property." 30 That much-needed shown revealing item scanty statute. House extended workers, subjected officers enter furtherance aims. latter request Executive Branch Government, noting expressly "would produce conflicts mark departure well-established complete pertaining normal practice enacted. 31 shows intend mandatory point assert "[t]he provision." Ante, 185. instances correct awards, two things exactly same, "regulatory effects" far "incidental," sanction These rationale articulated removing obnoxious included version. acted ambiguously score, forced offered "clear" mandate exerts respectfully dissent. failed fundamental distinction When dealing facilities, centers taken question. Hillsborough Automated Medical Laboratories, Inc., 471 707, 712-713, 105 2371, 2374-2375, 85 714 hand, immunizes interference, (1943), allowed With exceptions, DOE, agent owner 2061(a); Organization Act, 577, 7151(a) (transferring responsibility DOE Research Development Administration). parties operate subject direction supervision DOE. 2061(b); 2181, 83d (1954) ("In connection control"). material policy. 2013(c). amici prohibit permit, central emissions 181, 2013-2014. Under discern difference prior settings claiming out. indicate enclaves, assumed I, cl. 17, Sess. (1936), concede, agree, enclaves. doubt integral 1923 amendment abolished bring substituted percentage failure. Bailey Krise, 191, 195-197, 249 55, 58-59 (1969). 1925 Ariz.Sess.Laws, 83, 65 (option "wilful misconduct"); 1917 Cal.Stats., 586, 6(b) (50% increase exceed $2,500, serious employer); 1916 Ky.Acts, 33, 3, statute); 1911 Mass.Acts, 751, pt. 2, (100% misconduct); Mo.Laws, (15% 1929 N.M.Laws, 113, devices law); N.C.Sess.Laws, 120, (10% requirement); 35 1921 Ore.Laws, 311, 1936 S.C.Acts, 610, Tex.Gen.Laws, 103, "willful omission" "gross negligence" Utah Laws, 67, Wash.Laws, 74, injury); 1913 W.Va.Acts, 10, 1915 Wis.Laws, 378, 1(h ) 2A 69.10 29; Mo.Laws 3; 7; 13; 35; S.C.Act, 1; For versions laws, Ky.Rev.Stat. 342.165 (1983); Mo.Rev.Stat. 287.120(4) (1986); N.M.Stat.Ann. 52-1-10(B) (1978); N.C.Gen.Stat. 97-12 S.C.Code 42-9-70 Code Ann. 35-1-12 (1953); Wis.Stat. 102.57 (1985-1986). Prior recovery damages killed 15, 45 54, 457. Thus, enacted, evinced willingness exert pressures argues DOE's promulgated 1954 based expresses intent repeal nor implicitly repealing inconsistent. effective after before. recognizes, 180-181, precedents here, treated If thought worth allows larger somewhere $1,328 $4,429. Brief 4.

Category: 7