Legal Document

411 U.S. 624 93 Supreme Court Reporter 1854 36 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 547 CITY OF BURBANK et al., Appellants,v.LOCKHEED AIR TERMINAL INC. al. Number 71—1637. Argued Feb. 20, 1973. Decided May 14, Richard L. Sieg, Jr., Beverly Hills, Cal., for appellants. Nicholas C. Yost, Los Angeles, the State of California, as amicus curiae, by special leave Court. Daniel M. Friedman, Washington, D.C., U.S., Warren Christopher, appellees. Mr. Justice DOUGLAS delivered opinion 1 The in Cooley versus Board Wardens, 12 How. 299, 13 L.Ed. 996, first stated rule pre-emption which is critical issue present case. Speaking through Curtis, it said: 2 'Now power to regulate commerce, embraces a vast field, containing not only many, but exceedingly various subjects, quite unlike their nature; some imperatively demanding single uniform rule, operating equally on commerce every port; and some, like subject now question, that diversity, alone can meet local necessities navigation. 3 '. . Whatever subjects this are nature national, or admit one system, plan regulation, may justly be said such require exclusive legislation Congress.' Id., at 319. 4 This suit brought appellees asked an injunction against enforcement ordinance adopted City Council Burbank, made unlawful so-called pure jet aircraft take off from Hollywood-Burbank Airport between 11 p.m. day 7 a.m. next day, making operator airport allow any during periods.1 regularly scheduled flight affected was intrastate Pacific Southwest Airlines originating Oakland, departing San Diego Sunday night 11:30. 5 District found unconstitutional both Supremacy Clause Commerce grounds. 318 F.Supp. 914. Appeals affirmed grounds respects conflict.2 457 Federal Reporter, 2nd 667. case here appeal. 28 Code KF62 § 1254(2). We noted probable jurisdiction. 409 840, 59, 34 78. affirm Appeals. 6 Aviation Act 1958, 72 Statutes-at-Large 731, 49 1301 seq., amended Noise Control 1972, 86 1234, regulations under it, 14 Regulations pts. 71, 73, 75, 77, 91, 93, 95, 97, central question pre-emption. Section 1108(a) Act, 1508(a), provides part, 'The America declared possess exercise complete national sovereignty airspace .' By §§ 307(a), (c) 1348(a), (c), Administrator Administration (FAA) has been given broad authority use navigable airspace, 'in order insure safety efficient utilization 'for protection persons property ground ..'3 8 Solicitor General, though arguing pre-emption, concedes 'airspace management' there That, however, fatal concession, found: imposition curfew ordinances nationwide basis would result bunching flights those hours immediately preceding curfew. these have twofold effect increasing already serious congestion problem actually increasing, rather than relieving, noise period greatest annoyance surrounding communities. Such totally inconsistent with objectives federal statutory regulatory scheme.' It also '(t)he cause loss efficiency airspace.' 9 Curfews Burbank imposed would, according testimony trial Court's findings, increase congestion, efficiency, aggravate problem. FAA occasionally enforced curfews. See Virginians Dulles Volpe, 344 573. But record shows consistently opposed curfews, unless managed interests its management 'navigable 10 As Judge Dooling American Hempstead, 272 226, 230, aff'd, Cir., 398 369: indivisible; extends outward same inseparability wings tail assembly; exclude Town aircraft; set level decibel limit directly lower air cannot without exceeding limit.' approved October 27, 'after consultation appropriate Federal, State, agencies interested persons' shall conduct study facets problems report Congress within nine months,4 i.e., July 1972 amending 611 Act,5 involves Environmental Protection Agency (EPA) comprehensive scheme control Under 611(b)(1), 1239, 1431(b)(1) (1970 ed., Supp. II) FAA, after consulting EPA, provide abatement sonic boom, including application standards issuance, amendment, modification, suspension, revocation certificate authorized title.'6 (b)(2), amended, 1431(b)(2) II), future certificates operations new requirements met.7 611(c)(1), later 1973 EPA submit proposed 'control boom' determines 'necessary protect public health welfare.' directed 30 days publish notice rulemaking. Within 60 publication, commence hearing rules. 611(c)(1). That subsection goes 'a reasonable time conclusion EPA,' either prescribe substantially submitted them modified form, Register prescribing regulation response EPA's submission together reasons therefor. 611(c)(2), if believes FAA's action respect 'does welfare boom,' consult request review advisability originally EPA. published Register; requested specified detailed statement findings identify impact filed 102(2)(C) National Policy 1969,8 83 853, 42 4332(2)(C), action. action, adverse proposal, Register. did act large provided 611(d), particularized standards: 15 'In section, shall— 16 '(1) consider relevant available data relating results research, development, testing, evaluation activities conducted pursuant Department Transportation Act; 17 '(2) interstate he deems appropriate; 18 '(3) whether standard consistent highest degree transportation interest; 19 '(4) economically type aircraft, engine, apreasonable, technologically practicable, particular pliance, will apply; 20 '(5) extent contribute carrying out purposes section.' 21 original complaint 1970; entered judgment November 30, announced March 22, 1972—all before President 1972. reaffirms reinforces conjunction full over noise, pre-empting state control. 22 There is, sure, no express provision Act. decisive. we Rice Santa Fe Elevator Corp., 331 218, 67 1146, 1152, 91 1447: 23 'Congress legislated field traditionally occupied. So start assumption historic police powers were superseded clear manifest purpose Congress. evidenced several ways. so pervasive make inference left room supplement it. Or touch interest dominant system assumed preclude laws subject. Likewise, object sought obtained law character obligations reveal purpose. policy produce objective statute.' 24 leads us conclude Jackson stated, concurring Northwest Airlines, Incorporated Minnesota, 322 292, 303, 64 950, 956, 88 1283: 25 'Federal intensive exclusive. Planes do wander about sky vagrant clouds. 26 They move permission, inspection, hands federally certified personnel intricate commands. moment ship taxis onto runway caught up elaborate controls.' 27 Both Senate House Committees included statements bills change existing rule. Report stated:9 'No bill intended alter way relationship Government governments existed matters covered section 1958 prior enactment bill.' stated:10 'States preempted establishing enforcing emission identical prescribed bill. does address responsibilities operators, government These avail Prior 611(a) 'shall amend rules find necessary boom.' 82 395. 611(b)(3) required 'consider standard, interest.' When added Act11 considered hearings, Senator Monroney (the author Act) Secretary Boyd 'to preempt boom.'12 written opinion, letter dated June 1968, stated: 29 courts held presently preempts insofar controlling aircraft. H.R. 3400 merely expand Government's role preempted. preemption. remain unable regulating aircraft.' According Report,13 'not intent committee recommending apportionment governments,' concurred views forth his letter.14 31 version passed contained section.15 never presented House. Instead, passed, amendments, version;16 House, then amendments.17 combined provisions each had earlier approved. blended Congressman Staggers, Chairman Committee Interstate Foreign Commerce, urging accept version, said:18 32 'I say what industry's intention be, & N Dec. Immigration Nationality Decisions gentleman my trying get passed. evidence across cities pass regulations. Certainly want happen. harass industry progress America. reason why session.' 33 bill, Tunney moved concur. He clear19 recommendation include: 'proposed means reducing environments controls patterns operations, modifications number, frequency, scheduling (as well as) curfews noisy airports, path alternations areas where problem, aircraft—with expectation retrofit schedule abate emissions aircraft—the load factor commercial flights, other reductions joint procedures determined useful (Emphasis added.) 35 Stagers weighty ones. For Staggers Report; member Public Works, Report. signed 'many most significant sources effectively regulated level.'20 37 Our cases precise guidelines controversy, turns peculiarities features question. Cf. Hines Davidowitz, 312 52, 61 399, 85 581; Huron Portland Cement company Detroit, 362 440, 80 813, 852. course deep-seated States. Yet vested seems controls. What ultimate remedy plagues many communities tens thousands people known. way.21 In addition variety takeoff landing preferences. requires delicate balance ground. U.S.C 1348(c). Any pollution must 'highest safety.' 1431(d)(3). interdependence factors congressional underlying fulfilled. 38 If uphold number municipalities followed suit, obvious fractionalized timing takeoffs landings severely flexibility traffic flow.22 difficulties avoid concomitant decrease compounded. 1960 rejected restriction Angeles because restrictions could 'create critically all patterns.' Fed.Reg. 1764 1765. 39 certain surface wind conditions reevaluated omitted practice prohibiting airports specific create patterns. network throughout constant availability essential maintenance sound system. continuing growth acceptance aviation major force passenger increasingly nation's economy accomplishments inhibited best served. concluded therefore relief might achieved compensated domestic foreign Air Commerce.' 40 decision, 1960, remains peculiarly competence supplemented input liberty diffuse letting planning. made, 41 Affirmed. REHNQUIST, whom STEWART, WHITE, MARSHALL join, dissenting. 43 concludes dealing 'pervaded' impliedly pre-empted city challenged invalid Constitution. says 'Act control.' Ante, 633. reports explicitly refers struck area. Report, H.R.Rep.No.92—842, discussing general pre-emptive entire 44 use, operation, movement products (The preemption discussed paragraph apply discussion below.)' 8. went specifically: 45 10. 46 Works Committee, S.Rep.No.92 1160, expressed pre-emption: 47 (see 226 (EDNY 1967)), 10—11. 48 light disclaimers reference necessarily subject.1 enactments enacted. prohibited late evening early morning hours. Its afford residents least partial relief, normal sleeping hours, associated airplanes. dealt city, cf. 1967), 369 (CA2 1968), cert. denied, 393 1017, 89 620, 561 (1969), nor categorically prohibit 50 Appellees contend produced engines reasonably deemed affect adversely constantly exposed it; sufficiently loud classified nuisance common law, traditional scope possessed governing bodies. Because area local, concern, determining has, implication, foreclosed remedial 'we 1447 (1947). derives our basic constitutional division legislative Congress; 'due regard presuppositions enbracing principle diffusion matter doctrinaire localism promoter democracy ..' Building Trades Garmon, 359 236, 243, 79 773, 779, 775 (1959) (emphasis added). Unless requisite abundantly clear, should hesitate invalidate 'the powerless remove ill effects while government, power, free burden.' Penn Dairies, Milk Comm'n, 261, 275, 63 617, 624, 87 748 (1943). 51 Since Congress' enacting clearly retain status quo holding implied depends upon two enactments, 1968 amendment 1431, manifested regulations, decisions require. 52 consolidate agency Executive Branch previously diffused branch. paramount substantive concerns aspects safety, see, e.g., 1422 and, once 'flight,' management, 1348(a). S.Rep.No.1811, 85th Cong., Sess., 5—6, 13—15 U.S.Code Cong. Admin. News Page 3741. While enough permit promulgate excessive see 1348(c), concerned created intend regulation. Furthermore, pre-empt flight, Monroney, specifically 'over space' airports.2 53 development civilian resulted concern Hearings years, resulting legislation. H.R.Rep.No.36, 88th 1st thought neither alleviate growing curfews: 54 'Until taken, governmental authorities citizens unreasonable invasion noise. wisdom exercising manner resolved level. 55 'Airports States, operated authority, municipality, county, independent unit. operators closer, geographically politically, conflict who needs community commerce. Some exercised proprietary right restrict manner, limiting used types civil transport it.' 27. 56 Several years enacted 395, On face,3 more limited reciting proportions outlined impose: 57 basically groups interests. hand, group services. hand live, work, go schools churches near airports. latter frequently burdened point they enjoy land operations. Many derive direct benefit unwanted Therefore, easy understand complain, complain vehemently. possible solutions vexing appear offer promise (1) engine airframe designs, (2) techniques procedures, (3) planning adjacent compatible toward primary problem; namely, reduction source.' H.R.Rep.No.1463, 90th 4. 58 Far indicating total intent, observed: 59 'Rather, expects manufacturers, carriers, segments community, civic entities continue contributions goal quiet.' Ibid. Committee's view similar vein: 'This investment representative avenues approach reduction, generate less Another establishment procedures. third principal technique merits consideration largely province governments. thoroughly studied employed, business stop escalation imposing technology. 62 'A completely quiet airplane developed foreseeable future. However, technological reduce limits technology economic feasibility, assure potential fact realized.' S.Rep. 1353, 2—3, Admin.News 2690. With emphasis 'Relation Local Initiatives 65 statute describing duties indicated report, actions agencies, zoning part attack connection, raised adds subtracts anything 66 regard, concur following 1968: permissible overflying recently down conflicted traffic. (U.S.D.C., E.D., N.Y., 1966). court said, 231, operates committed care, come 68 "However, rights agency, proprietor airport, issuing using airport. owners acting proprietors deny considerations long exclusion nondiscriminatory. 69 "Just owner responsible deciding how runways obtaining easements position service larger purpose, obtain longer runways. noisier additional easements. desired steps willing service. issue, substitute elements who, own operate Nation's designed prevent excluding considerations.' 70 'Of course, units diminished 71 'Finally, since Government, boom. makes regard.' 6—7, 1068, 2693. terms analysis, reading appears enable deal 'source' problem—the mechanical structural turbine design. 'prescribe 1431(a), grant Administrator, fairly read measure, absence section. established methods output far cry saying times 73 decision distinction reflected Amendment. reasoning, unit owned totally, or, here, partially, facilities, municipality having territorial jurisdiction effect. drew distinction, 'legislative history,' words into believe significance attributed below. 74 Secretary's addressed related aircraft' added), thus different precluded. supra. important highly practical probably nonfederal country carriers government.4 indication attention aware framing letter. simply strains credulity Secretary, except enact 75 Considering language history, shed Amendment oust Burbank. maintain authorities. history apart avoiding discloses focus alteration entrusted competence. play formulation promulgated promulgating implementing causes bodies thereby conceivable method. 76 A body owns certainly not, permanently closing facilities. likewise expansion declining facility. Even government's motivated entirely undertaken responsibility done, surely satisfactorily explain 'intrusive' 77 demonstrates, believe, affirmative even far, reflect States' reached. Clearly chose, very likely conferred 1431 sufficient authorize him chosen route. Until does, valid power. 78 impose undue burden reason. Neither determination reached based, municipal proper facts case, Bibb Navajo Freight Lines, Inc., 520, 962, 1003 (1959), predicted proliferation possibilities, doubtful validity. emergency week private corporate executives; heardly expresses refrain further analysis it.5 Municipal 20—32.1. exception 'emergency' Police Department. preference order, BUR 7100.5B, issued Chief Traffic Tower Airport. '(p)rocedures exposure lowest practicable minimum. 'interferes among empowered deal, frustrates accomplishment goals 667, 676. disposition appeal doctrine need reach 307 follows: '(a) develop plans formulate airspace; assign terms, conditions, limitations deem airspace. navigation, protection, identification ground, safe altitudes prevention collision water vehicles, airborne objects.' 7(a) provides: persons, adequacy operational controls; recommendations retrofitting phaseout implications identifying achieving levels cumulative around airports; (4) measures Representatives months date Act.' 1968. 21, Law 90—411, '(i)n unnecessary 1431(a). reads: measurement boom title. No exemption granted consulted granted, consulted, soon granted.' Subsection (b)(2) 603(a) substantial accordance listed (d).' 102 reads authorizes directs that, fullest possible: policies, interpreted administered policies chapter, shall—. (C) include proposals significantly affecting quality human environment, official on—(i) environmental (ii) avoided proposal implemented, (iii) alternatives (iv) short-term uses man's environment enhancement long-term productivity, (v) irreversible irretrievable commitments resources involved implemented. statement, comments expertise involved. Copies enforce standards, President, Quality 552 Title 5, accompany processes.' 611(c)(3) files 'then file supplemental specify (but ninety made), contain comparison (A) (including avoided) taken (B) regulations.' S.Rep.No.92—1160, Pages 10—11, 4663. n. Hearing Subcommittee S.707 H.R.3400, Aircraft Abatement Regulation, 29. S.Rep.No.1353, nondiscriminatory.' portion quoted approval Appellants General indicates notwithstanding But, 'proprietor' privately owned, yet physically located another. example, serving Cincinnati Kentucky. Thus, landlord congruent limits, any, proprietor. 118 Cong.Rec. 35868. 35886. 37075. 37083. 37317. Weekly Comp.Pres.Docs. 1582, 1583 (Oct. 28, 1972). met condition certification subsonic turbojetpowered pt. 36. January 1973, gave advance rulemaking fleet (FNL) airplanes 2769. pertain commerce.) FNL 1, 1978, when become function fleet. 1976, exceed previous 90-day base period. 1976 50% difference base-period ultimately centralized 'flow control,' accepted restricting routes flown. Flow Route Center April 1970, regional Centers flow areas. 1970 Central Facility coordinate necessitated center 'had information based overall ATC Fourth Annual Fiscal Year 1970. Statements individual Senators floor great, let controlling, weight ascertaining whole, Duplex Printing Press Deering, 254 443, 474, 172, 179, 349 (1921); McCaughn Hershey Chocolate Co., 283 488, 494, 510, 512, 1183 (1931); Wright Vinton Mountain Trust Bank, 300 464, 556, 563, 81 736 (1937). guidance particularly Congressmen odds reports. (hereafter Committee), S. 3880, 279. Consultations; standards; Administration, Transportation, rules, subchapter. '(b) Considerations determinative chapter title; reasonable, appliance, '(c) Amendment, certificate; rights. amend, modify, suspend, revoke violation (of) holder 1429 title, Safety Board, reverse finds contrl affirmation transportation.' 1431. exactly point, Although outside boundaries units, operate, country. cited Court, situation situation, 'admit(s) (which) 319 (1852). below held, divided vote, articulated policy, wit, non-mandatory tower chief pilots night. decide ground; occasion detail note doubt correctness

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