Document: 537 U.S. 51 SPRIETSMA, ADMINISTRATOR OF THE ESTATE DECEASEDv.MERCURY MARINE, A DIVISION BRUNSWICK CORP. No. 01-706. Supreme Court of United States. Argued October 15, 2002. Decided December 3, Petitioner's wife was killed in a boating accident when she struck by the propeller an outboard motor manufactured respondent, Mercury Marine, division Brunswick Corporation (Brunswick). In his subsequent common-law tort action Illinois state court, petitioner claimed that Brunswick's unreasonably dangerous because, among other things, it not protected guard. The trial court dismissed complaint, and intermediate affirmed, finding expressly pre-empted Federal Boat Safety Act 1971 (FBSA or Act). rejected rationale, but affirmed on implied pre-emption grounds. Held: FBSA does pre-empt claims such as petitioner's. Pp. 56-70. (a) enacted to improve safety, authorize establishment national construction performance standards for boats associated equipment, encourage greater uniformity laws regulations States Government. Secretary Transportation has delegated authority promulgate establishing minimum safety recreational vessels equipment Coast Guard, which must, inter alia, consult with special National Boating Advisory Council before exercising authority. Guard may issue exemptions from its if will be adversely affected. Section 10 sets forth express clause, § 40's saving clause provides compliance standards, regulations, orders prescribed under relieve person liability at common law law. When issued first 1972, exempted regulate matters covered federal regulations. since promulgated host detailed determined 1990, after 18-month inquiry subcommittee, available data did support adoption regulation requiring guards. 2001, recommended specific guard no regarding their use one this case are currently pending. 56-62. (b) petitioner's claims. 10's clause—which applies "a [state local] regulation"—is most naturally read encompassing two reasons. First, article "a" implies discreteness is present Second, because word known company keeps," Gustafson v. Alloyd Co., 513 U. S. 561, 575, terms "law" "regulation" used together indicate Congress only positive enactments. Act's buttresses conclusion. It assumes there some significant number cases save, language permits narrow reading excluding actions. See Geier American Honda Motor 529 861, 868. And contrast between general reference "liability law" more description what pre-empted—including exception addressing "uniquely hazardous conditions"—indicates drafted requirements imposed statute regulation. This interpretation produce anomalous results. would have been perfectly rational claims, necessarily perform important remedial role compensating victims. 62-64. (c) Guard's 1990 decision guards also That left applicable exactly same had subcommittee began investigation. particular aspect fully consistent intent preserve regulatory pending standards. explanation reveals meet FBSA's stringent criteria take further step deciding that, matter policy, political subdivisions should impose version regulation, reject unsafe. Although undoubtedly intentional carefully considered, convey authoritative message policy against guards, nothing recent activities alters distinguished. 64-68. (d) Nor statutory scheme implicitly require comprehensive covering every boat design; nor must certify acceptability subject jurisdiction. Ray Atlantic Richfield 435 151, Locke, 89, Even could interpreted occupying field respect clear manifest completely occupy so foreclose remedies. Court's conclusion cover suggests opposite intent. An unembellished statement House Report establish goal fostering manufacturing respondent ultimately relies argument, unyielding interest, demonstrated early grants broad position litigation. 68-70. 197 Ill. 2d 112, 757 N. E. 75, reversed remanded. STEVENS, J., delivered opinion unanimous Court. 1 CERTIORARI TO SUPREME COURT ILLINOIS. 2 Leslie A. Brueckner argued cause petitioner. With her briefs were Arthur H. Bryant, Joseph Power, Jr., Todd Smith. 3 Malcolm L. Stewart amicus curiae urging reversal. him brief Solicitor General Olson, Acting Assistant Attorney Katsas, Deputy Kneedler, Douglas Letter, Michael Robinson, Kirk K. Van Tine, Paul M. Geier, Dale C. Andrews, Peter J. Plocki, Robert F. Duncan, G. Alex Weller. 4 Stephen Shapiro respondent. Steffen Johnson, W. McConnell, Kenneth Geller, Timothy Bishop, Daniel Connolly.* 5 JUSTICE STEVENS 6 question presented whether seeking damages manufacturer either enactment 1971, 46 §§ 4301-4311 (FBSA, Act, Act), motorboats. 7 * On July 10, 1995, wife, Jeanne Sprietsma, died result inland lake spans Kentucky-Tennessee border. She riding 18-foot ski equipped 115-horsepower Apparently turned, fell overboard propeller, suffering fatal injuries. 8 Petitioner filed nine-count complaint court1 state-law theories. Each count alleged product guard.2 granted respondent's motion dismiss, appellate ground FBSA. 312 App. 3d 1040, 729 45 (2000). Relying our intervening 861 (2000), court's 75 (2001). added split precise arising lawsuits against, few others, corporate subsidiaries.3 9 We certiorari, 534 1112 (2002), decide pre-empts character.4 Because defense raises threshold issue, we occasion consider merits even viable however, evaluate three distinct theories defense: (1) claims; (2) (3) potential conflict diverse rules interest uniform system impliedly Before considering each these theories, review history area. II several statutes safe operation boats. 1910 required classes motorboats carry certain lights, sound signals, life preservers, fire extinguishers. June 9, 1910, 36 Stat. 462. 1918, passed numbering over 16 feet long, 7, ch. 93, 40 602, 1940, reenacted above requirements, provided inspection, authorized penalties reckless motorboats, Apr. 25, 155, 54 163. 1958, additional administered directed compile transmit statistics Treasury. 72 1754. 1958 expressed encouraging insofar practicable. 11 compiled presumably instrumental persuading legislation necessary.5 purposes, recites "to safety," "the equipment," "uniformity Government." Pub. 92-75, 2, 85 213-214. Three provisions implementing goals particularly relevant case. 12 FBSA, amended codified 4302, authorizes "minimum installation equipment.6 Guard. 49 CFR 1.46(n)(1) (1997). authority, factors, extent proposed contribute appointed pursuant 33 13110.7 consists 21 members, representatives different groups: "State officials responsible State programs," manufacturers, "national organizations . public." 13110(b). determines "will affected." 4305. 13 4306, thus basis argument. states full: 14 "Unless permitted section 4305 title, subdivision establish, continue effect, enforce vessel standard imposing requirement (except may, absence Secretary's disapproval, carrying marine articles uniquely conditions circumstances within State) identical 4302 title." 15 40, 4311, assessed persons who violate Act. At end section, included following clause: "Compliance chapter law." 4311(g). Regulation Under 17 day President signed into law, took based assumption existing "is prescribed" promulgated. August 11, exempting all then-existing Fed. Reg. 15764-15765. He explained "not affected continuing effect those various subdivisions" until new issued. Id., 15765. 18 One year later, 4, 37 15777-15785. Those hull identification numbers, maximum capacity warnings capacity, flotation. They include any requirement. After became effective, limited scope original blanket exemption regulations" concerned 1972 38 6914-6915 (1973). Existing regulated continued pre-emption. Ibid. 19 years since, Some prescribe specified personal flotation devices visual distress pts. 175(B), (C) (2001), procedures, labeling manufacturers prompt reporting operators, 181(B), 173(C). generally 173-181. Other governing design manufacture themselves electrical fuel systems, ventilation, "start-in-gear protection" devices. Pt. 183; cf. Chao Mallard Bay Drilling, Inc., 235, 242 (2002) ("Congress assigned mission [T]he possesses promoting ."). 20 Consideration Propeller May 1988, decided accidents water propellers merited study.8 request Subcommittee. prevention propeller-strike accidents" study "various methods shrouding prevent contact [a] water." 43. 22 months study, "should guards." 40. Its recommendation rested upon findings given current technology, feasible might penetrating injuries increase blunt trauma caused collision guard, enlarges boat's underwater profile; models power speed loss higher speeds; "prohibitive[ly]" expensive retrofit "[n]o simple universal suitable motors existence" proved feasible. 36-38. 23 endorsed subcommittee's recommendation, letter Council, Chief Office Navigation Waterway Services agreed stated information "regarding development testing guarding art." 81. 1996, 1997, invited public comment proposals reduce involving strikes. 24 April develop four 66 63645, 63647.9 response, published notice rulemaking recommendations. rule, adopted, owner nonplaning houseboat rent equip combination injury avoidance measures." "manufacturers importers planing 26 length aft transom select install factory installed methods." indicated along Council's recommendations, addressed "subsequent projects," ibid., yet prohibiting involved III 25 contains "task instance focus plain wording best evidence Congress' pre-emptive intent." CSX Transp., Inc. Easterwood, 507 658, 664 (1993). Here, regulation." 4306. think "law regulation" discreteness—which embodied regulations—that 575 (1995), If broadly render superfluous. S., 867-868. "[c]ompliance §4311(g). As held "saving commonlaw save [and t]he preemption provision excludes actions." 27 independent reason. 10—including 28 Our statute's which—unlike administrative legislative regulations—necessarily Cf. Silkwood Kerr-McGee Corp., 464 238, 251 (1984). Indeed, compensation object focuses regulate, preserving context, phrase surely refers private remedies.10 agree IV 29 contends entire statute, specifically Both theories: 30 "We recognized overrides indicates intended exclusively, English Elec. 496 72, 78-79 (1990), actual found where `impossible party comply both requirements,' id., 79, `stands obstacle accomplishment execution full purposes objectives Congress.' Hines Davidowitz, 52, 67 (1941)." Freightliner Corp. Myrick, 514 280, 287 (1995). 31 Moreover, inclusion "does bar ordinary working principles," 869 (emphasis original), find "where impossible stands Congress." (internal quotation marks citations omitted). persuaded, effect. 32 consider, reject, reliance adopt quite wrong view functional equivalent adopting accept "take action," 80, Of course, claim directly conflicted without incurring occur. This, teaches us course followed immediately passed, again 1973. never taken litigation relating area (1941). 34 concluded "that failure here equates ruling appropriate FBSA." 2d, 128, 85. regard policies defined Congress, forgo imply determination unregulated, event much force regulate." Arkansas Cooperative Serv. Comm'n, 461 375, 384 (1983); see Bethlehem Steel Co. New York Labor Relations Bd., 330 767, 774 (1947) (state affirmatively exercise takes character approved statute"). instance, accurately reflect decision: 35 "The process very structured justification. Available do imposition Regulatory many questions about universally acceptable technically modes operation. Additionally, retrofitting millions certainly major economic consideration." 80. judgment "stringent" definitely unsafe.11 apparent lack "universally acceptable" "all operation." But official inconsistent verdict premised jury's type kind motor. Thus, although "authoritative" presents sharp case, promulgation Vehicle Standard (FMVSS) 208 affirmative "policy promoted alternative protection systems fleets rather than car." 881. pre-emption, placed "weight DOT's FMVSS 208's conclusion, set Government's brief, suit `"`stan[d] execution'"' DOT implement statute; technical; background complex extensive. agency likely thorough understanding own `uniquely qualified' comprehend impact requirements." 883. today, General, joined counsel informed refusal actions having reasoning therefore strong submission. V though possible whole 1971. so, carried forward 1973 adopted saved "in effective date" far relate Reg., 6915. 39 151 (1978), considered determine "which oil tankers sufficiently allowed proceed navigable waters States," inspection "each protect environment." 163, 165. mandatory Washington exclude Puget Sound certified characteristics, unless they satisfy 89 analysis governed field-pre-emption "field reserved "Congress ha[d] room matters." 111. particular, Title Ports Waterways (PWSA) "such necessary design, construction, vessels." 161. relied Locke pre-empted. unlike PWSA, neither PWSA holding purported whereas preserves 41 structure framework "clear manifest" intent, 79 (1990) omitted), go manufacture. Rather, Cipollone Liggett Group, 505 504, 517 (1992); 547 (SCALIA, concurring part dissenting part). sweep away established "preempts regulations." R. Rep. 92-324, p. (1971). made prior amendment containing report meant occupied "field" judge-made 42 Respondent main goals: Uniformity industry, "assur[e] domestic trade involve widely varying local 20. Yet unyielding, Absent contrary concern justify displacement remedies compensate victims families serve prominent objective, emphasized safety. 43 reversed, remanded proceedings opinion. 44 ordered. Notes: Briefs ofamici reversal Missouri et al. Jeremiah (Jay) Nixon, Missouri, James Layton, Solicitor, Charles Hatfield, Attorneys respective follows: Mark Pryor Arkansas, Bill Lockyer California, Richard Blumenthal Connecticut, Butterworth Florida, Earl I. Anzai Hawaii, Steve Carter Indiana, Curran, Maryland, Mike McGrath Montana, Frankie Sue Del Papa Nevada, Philip T. McLaughlin Hampshire, Patricia Madrid Mexico, Roy Cooper North Carolina, Hardy Myers Oregon, Shurtleff Utah, Christine O. Gregoire Washington, Darrell V. McGraw, West Virginia; Association Trial Lawyers America Ross Diamond Jeffrey White. amici affirmance Chamber Commerce John Roberts, Catherine Stetson, Robin Conrad; Maritime Law Joshua Force, Raymond P. Hayden, William Dorsey III, Patrick Cooney; Manufacturers Starr, Gasaway, Cordray, Ashley Parrish, Jan Amundson, Quentin Riegel; Product Liability Alan Untereiner. alleges Sprietsmas owners residents purchased Illinois. 101 100-122. CompareLewis 107 1494 (CA11) (finding FBSA), cert. granted, 522 978 (1997), dismissed, 523 1113 (1998); Carstensen 430 (CA8) denied, 516 866 (1995); Ryan 454 Mich. 20, 557 541 (1997) Moore Bowling & Billiards 889 246 (Tex.) (holding context), denied sub nom. Vivian Industrial Plastics, Moore, 1057 (1994). Lady Neal Glaser 228 598 (CA5 2000) manufacturer's provide FBSA; Outboard successor declared bankruptcy shortly petition certiorari filed), Marine 532 941 asserted maritime governs argument raised below, waived Senate observed approximately million Americans engaged year, nearly 7,000 during preceding 5-year period. 92-248, pp. 6-7 (1971) (hereinafter Rep.). added: "It seems annual alarming proportion Government products built commensurate risks use. Similar exists products, including aircraft vehicles. Also, categories larger commercial existed years."Id., 13. provides: "(a) — "(1) procedures tests measure conformance "(A) meeting need safety; "(B) being stated, practicable, performance; "(2) installation, carrying, chapter, conform section. ." "In prescribing shall, things— statistics, data, research, development, testing, evaluation; "(3) compel substantial alteration item existence, begun date limitation performance, avoid risk public, considers relation degree hazard correct; "(4) 13110 title considerations referred clauses (1)-(3) subsection." Between 1976 officially reported 100 per year. inLewis Brunswick, 97-288, 170. 1992 members Johns Hopkins University Injury Prevention Center Institute Reduction adjusted underreporting, true fatalities closer ... 2,000-3,000 year." 199. "After discussing alternatives cost, regulations: Require driven longer display warning labels employ emergency cut-off switch, installed; methods; non-planing rental jet propulsion 63647. itself imposes civil money payable States, well imprisonment willful violations, injured noncomplying boats, response Subcommittee's favor "educational awareness campaigns," publish series "aimed avoiding boat/propeller strike accidents," topic "available 82-83

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