Document: 541 U.S. 246 ENGINE MANUFACTURERS ASSOCIATION ET AL.v.SOUTH COAST AIR QUALITY MANAGEMENT DISTRICT AL. No. 02-1343. Supreme Court of United States. Argued January 14, 2004. Decided April 28, Respondent South Coast Air Quality Management District (District)—the California subdivision responsible for air pollution control in the Los Angeles metropolitan area—enacted six Fleet Rules prohibiting purchase or lease by various public and private fleet operators vehicles that do not comply with requirements Rules. Petitioner Engine Manufacturers Association sued its officials, claiming were pre-empted § 209 federal Clean Act (CAA), which prohibits adoption attempted enforcement any state local "standard relating to emissions from new motor vehicle engines," 42 U. S. C. 7543(a). In upholding Rules, found they "standard[s]" under because regulate only are otherwise certified sale California, distinguished decisions First Second Circuits pre-empting similar laws as involving a restriction on sales rather than purchases. The Ninth Circuit affirmed. Held: 1. escape pre-emption just address vehicles, their manufacture sale. Neither Court's interpretation "standard" include regulations compel manufacturers meet specified emission limits nor resulting distinction between restrictions finds support 209(a)'s text CAA's structure. ordinary meaning language employed Congress is assumed accurately express legislative purpose. Park 'N Fly, Inc. v. Dollar & Inc., 469 189, 194. Today, when 209(a) became law, means "is established authority, custom, general consent, model example; criterion; test." Webster's New International Dictionary 2455. criteria referred relate characteristics engine. This consistent use throughout Title II CAA. Defining encompass production mandates confuses standards methods enforcing standards. (or purchasers) can be made ensuring standards, but themselves separate techniques. While target engines, standard-enforcement efforts directed toward purchasers. borne out provisions immediately following CAA 202. And 246, requires purchasing restrictions, shows contemplated through requirements. A purchase/sale also makes no sense, since manufacturer's right sell federally approved meaningless absent purchaser's buy them. Pp. 252-258. 2. at least certain aspects appear pre-empted, case remanded lower courts address, light principles articulated here, questions neither passed below presented certiorari petition may affect ultimate disposition petitioners' suit. 258-259. 309 F. 3d 550, vacated remanded. SCALIA, J., delivered opinion Court, REHNQUIST, STEVENS, O'CONNOR, KENNEDY, THOMAS, GINSBURG, BREYER, JJ., joined. SOUTER, filed dissenting opinion, post, p. 259. 1 CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR NINTH CIRCUIT 2 Carter G. Phillips argued cause petitioners. With him briefs Jed R. Mandel, Timothy A. French, Jeffrey T. Green, Eric Shumsky, Kenneth Geller, Andrew J. Pincus, John Sullivan. 3 Solicitor General Olson States amicus curiae urging reversal. brief Assistant Attorney Sansonetti, Deputy Hungar, Clark, P. Minear, Greer Goldman, Bryson, Justin Smith. 4 Seth Waxman respondents. respondent Boyden Gray, Jonathan E. Nuechterlein, Luke Sobota, Daniel Selmi, Fran M. Layton, Barbara Baird. Gail Ruderman Feuer Christopher Wright respondents Natural Resources Defense Council, et al.* 5 JUSTICE SCALIA Court. 6 (District) political area parts surrounding counties make up Basin. It enacted generally prohibit stringent question this whether these 81 Stat. 502, renumbered amended, 7543(a), 7 * law developing implementing "comprehensive basinwide quality management plan" reduce levels thereby achieve maintain "state ambient standards." Cal. Health Safety Code Ann. 40402(e) (West 1996). Between June October 2000, adopted govern fleets street sweepers (Rule 1186.1), passenger cars, light-duty trucks, medium-duty 1191), transit urban buses 1192), solid waste collection 1193), airport transportation including shuttles taxicabs picking airline passengers 1194), heavy-duty on-road 1196). All apply operators; three well (Rules 1186.1, 1193, 1194). 8 contain detailed prescriptions regarding types must adding replacing vehicles. Four (1186.1, 1192, 1196) require "alternative-fuel vehicles,"1 other two (1191 1194) either "alternative-fueled vehicles"2 specifications Board (CARB).3 CARB statewide regulatory body designates "the agency all purposes set forth law." 39602 keep records purchases leases provide access them upon request. See, e. g., Rule 1186.1(g)(1), App. 23. Violations expose fines sanctions. See §§ 42400-42410, 40447.5 1996 Supp. 2004). 9 August petitioner respondents, CAA, engines." 7543(a).4 granted summary judgment entirety. held California. recognized Courts Appeals had previously mandating percentage in-state "zero-emission vehicles." Int'l Automobile Mfrs., Commissioner, Mass. Dept. Environmental Protection, 208 1, 6-7 (CA1 2000); American Mfrs. Assn. Cahill, 152 196, 200 (CA2 1998).5 did disagreement rulings, purchases: "Where regulation does limit, affects do, standard." 158 2d 1107, 1118 (CD 2001). 10 affirmed reasoning 550 (2002). We certiorari. 539 914 (2003). Section states: 11 "No State thereof shall adopt attempt enforce standard engines subject part. No certification, inspection, approval . condition precedent initial retail sale, titling (if any), registration such vehicle, engine, equipment." 12 determination provision invalidate hinged word limits. turn caused court draw (not pre-empted) (pre-empted). manufacturer-specific structure 13 "Statutory construction begin assumption expresses purpose." 194 (1985). 1967 defined 2455 (1945). To engine emit more amount given pollutant, equipped type pollution-control device, have some design feature related emissions. (which governs moving sources) denote numerical comply, 7521(a)(3)(B)(ii), emission-control technology equipped, 7521(a)(6). 14 Respondents, like below, engraft onto limiting component, defining it "[a] mandat[e] require[s] ensure produce particular characteristics, individually aggregate." Brief (emphases added). those proscribed 15 "standards," one hand, enforcement, other, These — i. e., 202 203 selling covered "certificate conformity." 7522(a). 206 enables obtain certificate demonstrating Protection Agency conform 7525. Sections 204 205 manufacturers, dealers, others who violate imposed civil administrative actions. 7523-7524. By "production mandate manufacturers," lump together distinct statutory provisions, acknowledging combined prevents noncomplying 16 That even enforced manufacturer-directed seen Congress's term another portion As recognized, (in conjunction accompanying provisions) state-adopted "restrictions clean-air 2d, (emphasis added); see 7581-7590. (Respondents defend District's authorized provision; contains.) Clearly, requirements.6 17 Respondents contend qualified necessary prevent "far too much" "encompass[ing] broad range state-level initiatives" voluntary incentive programs. 29; id., 29-30. But hard why limitation purpose; purchasers, anyone, would same salvific effect. need resolve application programs case, mandates. 18 addition having basis statute, treating differently sense. absence true issue here cover purchasers thus eliminate demand if enact rules, then so other; end result undo carefully calibrated scheme. 19 command, accompanied sanctions, much an "attempt enforce" volume consist decline read into purchase/ III 20 dissent many areas our interpretation, should obscure agreement answer "whether sale." Supra, 249. joins us answering "no." 262-263 (opinion J.). reaches different outcome (1) feels free unconditional words statute requirement determine fact coerce not; (2) believes containing "commercial availability" proviso manufacture. 21 first point: categorical. (as we discussed) impossible find exception directly manufacturers; inventive discover subcategory standards-imposed-through-purchase-restrictions accepts invention, cannot conclude "provisos" save day. For mandated commercially available, eliminating proviso, persons governed effectively meeting artificially created demand. say, does, merely consequence "market competition," 263, fanciful. demand, generated market compelled compels production. think invalid until time manufacturer compliant whereupon become binding, seems quite bizarre. 22 objects interpretive method, invokes "presumption against preemption" scope delves history. Post, 260-261. Application methods, Members agree, demonstrably difference resolution principal question, (after applying them) answers we. additional reaches, true: textual obstacles strained validate reason provisos insurmountable principally, categorical 209(a). contends giving natural barring implementation stage renders superfluous second sentence 209(a), provides: superfluous, clear limited actual imposition penalties violation, includes steps preliminary action. Ibid. is, however, fatal dissent's statute. categorically "certification, approval" conditions Why world objection stage? disable assuring compliance impose? 23 next charges attributes carelessness without specifying "notwithstanding" 264. might been nice, hardly necessary. obvious, after all, requiring state-imposed What designed precisely required clean-fuel programs, turn, specifications. surprising come mind. Far casting doubt reconcile interpretation. strictly specifications, being lenient demanding. what imposing entirely impose own specifications? 24 Finally, says "admit" pre-empts 265-266. Voluntary significantly command-and-control regulation. Suffice say nothing present necessarily entails arguable phrase "adopt standard" refers enforceable possibility reinforced prohibition entities (States subdivisions) power enforce. IV 25 outside pre-emptive reach based withstand scrutiny. above, appears likely pre-empted. example, CARB's ULEV, SULEV, ZEV when, 1194, 50% passenger-car medium-duty-vehicle airport-shuttle van "meet standards" July 2001, 100% 2002.7 1194(d)(2)(A)-(B), 62. 26 follow, toto. addressed number issues suit, challenge, applications characterized internal (and, so, applies), applied beyond (e. arrangements used vehicles). They best instance above. 27 vacated, further proceedings opinion. 28 ordered. Notes: Briefs ofamici reversal Chamber Commerce America Catherine Stetson, Handman, Robin Conrad; Alliance al. Arnold W. Reitze, Jr., Stuart Drake, B. Wolff, Julie Becker, Charles H. Lockwood II, Jan Amundson, Quentin Riegel, William Frick, Ralph Colleli, Janice K. Raburn, Douglas I. Greenhaus; Automotive Leasing Kipp Coddington. amici affirmance Bill Lockyer, Manuel Madeiros, General, Richard Frank, Chief Theodora Berger, Senior Craig Thompson, Supervising Susan L. Durbin, Kristen Campfield, Anabelle Rodriguez, Secretary Justice Puerto Rico, Attorneys respective follows: Terry Goddard Arizona, Thurbert Baker Georgia, Lisa Madigan Illinois, Steven Rowe Maine, Tom Reilly Massachusetts, Brian Sandoval Nevada, Peter D. Smith Hampshire, Harvey Jersey, Eliot Spitzer York, Drew Edmondson Oklahoma, Hardy Myers Oregon, Greg Abbott Texas, Sorrell Vermont, Christine O. Gregoire Washington, Peggy Lautenschlager Wisconsin; Academy Pediatrics (California District) David Driesen; National League Cities Ruda Dowling; Gas Vehicle Coalition Gary Guzy; Sunline Transit Garvin Copeland. was Road Transportation Builders Lawrence Joseph, Robert Digges, Mary Lynn Pickel. define vehicles" varying ways, exclude run diesel. 1186.1(c)(2), (a "use[s] compressed liquefied gas, petroleum gas (propane), methanol, electricity, fuel cells. Hybrid-electric dual-fuel technologies diesel considered alternative-fuel rule"); 1192(c)(1),id., 47 (same definition 1186.1 most part, adds "mee[t] 13, 1956.1 Regulations"); 1193(c)(1), 52 "uses cells, advanced rely fuel"); 1196(c)(1), 66-67 1193 "certified Board"). 1191(c)(1),id., 24-25, defines vehicle" powered gasoline emits hydrocarbon, carbon monoxide, nitrogen oxides, individual equivalent ULEV [acronym described n. 3, infra]." 1194(c)(2), 59, fuel." More specifically, 1191(d), (e)(1),id., 27-28, Low-Emission (LEV), Ultra-Low-Emission (ULEV), Super-Ultra-Low-Emission (SULEV), Zero-Emission (ZEV) 1194(d), 61-63, LEV, acronyms part reduction program. program establishes five tiers characteristics: Transitional Vehicles (TLEVs); LEVs; ULEVs; SULEVs; ZEVs. limitations formaldehyde, nonmethane organic gases, oxides nitrogen, particulate matter. Regs., tit. 1960.1(e)(3), (g), (h)(2), (p), 1961(a) (2004). sold unless meets TLEV, 43009, 43016-43017, 43102, 43105, 43150-43156 Additionally, obligated overall "fleet average" average decrease over time, progressively cleaner mixes 1960.1(g)(2), 1961(b) retain flexibility decide how each tier order average. Supp.2d 1113-1114 Western Petroleum intervened plaintiff. Air, Communities Better Environment, Planning Conservation League, Sierra Club defendants cases virtually identical promulgated CARB. SeeAssociation 3d, 3; 199. reasoned "[i]t rational authorize them, prohibited `standard,' other." 1118. flawed; irrational view prescription numerous inconsistent unconstrained authority ignore description 3,supra. 29 dissenting. 30 holds preemption Act, 77 392, 7401 seq., polluted regions States1 clean readily available commercial market. I respectfully hold preempted Act. 31 So far concerns provides "[n]o [Title Act]." better reading rests majority address. 32 First, "[i]n cases, particularly [where] has legislated field traditionally occupied, start historic police powers superseded Federal manifest purpose Congress." Medtronic, Lohr, 518 470, 485 (1996) (citation quotation marks omitted); Wisconsin Public Intervenor Mortier, 501 597, 605 (1991) (applying presumption regulation). pertinence enough terms itself: 101 states "air prevention (that elimination, measures, pollutants produced source) source primary responsibility governments." 7401(a)(3);2 Huron Portland Cement Co. Detroit, 362 440, 442 (1960) ("Legislation very people breathe clearly falls within exercise traditional concept compendiously known power"). displacing applies both "question intended all" "questions concerning [§ 209(a)'s] invalidation supra, original). 33 Second, history inform choice, passing stop could sell. During hearings leading amendments, "[t]he auto industry adamant nature manufacturing mechanism single national undue economic strain industry." Rep. 403, 90th Cong., 1st Sess., (1967). Auto sought safeguard ability engaged automobiles controls," "a chaotic situation interstate commerce 728, Cf. Pollution Control, Hearings 306 before Special Subcommittee Water Senate Committee Works, 89th 91 (1965) (Sen. Muskie) ("Do you 50 standards?"). responding about regional appetites whatever models produce; addressing industry's fear bar failed State.3 34 easily give full effect principles. amended 1967, regulators promulgate "any class classes 202(a), 499. amendments "new equitable legal title never transferred purchaser," engine" "an purchaser." 212(3), 503. words, naturally understood itself prior eligible sold. underscored focus sale: incorporated variety acts left users unregulated. 35 On permissible preemptive Coast's requirement. Government took direct manufacturers' tailpipe emissions, disabled (the aside, supra) engaging project. "standards" preempts, accordingly, simply speak buyer's choice options. 36 every conceivable preemption. buyer novel, state-specified car [a] fantasy concern owing third central point passes over: available. 69 (Fleet 1196(e)(1)(C) (exempting complying specific application")); 21, 30, 50, 55, 63 1186.1(e), 1191(f)(8), 1192(e)(2), 1193(e)(3), 1194(e)(2)). If owners desire. would, course, understand existed maker began producing induced same; matter exempt producers competition. long availability there condemn kind market-based along prompted passage 209. 37 sum, am practical way keeps Act's tune object providing preemption, forcing majority's approach eliminates consideration purposes, acting though anything possibly Act: standard.4 reveals misalliance Gertrude Stein response dissent. ante, 256-257, 258. 38 Reading job honoring consistently congressional intent, avoids difficulties contrary with, "`attempt emissions,'" 252, vehicle," At least, view, imagine inspection going struck down anyway standard. 39 Next, "standard," seem careless drafting critical section aware authorizes 209, expressly provided authorization effective notwithstanding section. 7507 (authorizing "[n]otwithstanding 7543(a) title"). negative implication that, clause something similar, Given difficult square establish "covered operator[s]" ozone monoxide "nonattainment areas" struggling especially intractable pollution), 7586. States, purchaser (adopted level governmental authority) claims gives indication preempted; certainly clause. silence suggests thought ones issue. 40 254-255, decisions, 258-259, suggestions important avoiding apparent implausibility position; said barred deciding required, take airtight argument convince anyone meant thing. difficult, actually expansive sense forbidden explain specification State's procurement guidelines impermissible "adopt[ion a] standard," guided decisions. token, obvious how, sleight avoid preempting aimed sector; benefit proffered schemes hinges recipient's willingness complies (i. majority, "must emissions," 253). Such "adopt[s]" it. ibid. (cautioning "confus[e] standards"). should, then, admit petitioners concede Reply Petitioners (acknowledging preempt programs). strong recommendation reading. 41 objections not, sure, dispositive, standing alone. call attention untidy details, rightly legislation untidy: statutes unsystematic, redundant, fuzzy drawing lines. purely matter, mine strengths weaknesses. tie breakers cut favor sustaining My adheres closely takes proper account indirectly, And, importantly, my well-established itsamicus brief, notes Basin region country designated "`extreme' nonattainment" Amicus Curiae (citing CFR 81.305 (2003)). original version 1(a)(3), 393. irrelevant separated existing titles) moved finding regulates emissions). There recognizes primacy sources. Indeed, specifically pollution" "brought by," among causes, "motor 7401(a)(2) fact, allowed 7543(b) (§ 209(b) Act); (1967), indulged. 177 Act) (reiterating creation `third vehicle')") hypersimplification allows mischaracterize narrower illegitimate nontextual standardsAnte, 256.

Category: 9