Legal Document

536 U.S. 424 CITY OF COLUMBUS ET AL.v.OURS GARAGE AND WRECKER SERVICE, INC., AL. No. 01-419. Supreme Court of the United States. Argued April 23, 2002. Decided June 20, CERTIORARI TO THE UNITED STATES COURT APPEALS FOR SIXTH CIRCUIT Federal law preempts prescriptions by "a State [or] political subdivision a ... related to price, route, or service any motor carrier with respect transportation property," 49 U. S. C. § 14501(c)(1). Exceptions this general rule provide that preemption directive "shall not restrict safety regulatory authority vehicles," 14501(c)(2)(A); "does apply household goods," 14501(c)(2)(B); and State" regulate "the price for-hire vehicle tow truck performed without prior consent [towed vehicle's] owner operator," 14501(c)(2)(C). Petitioner Columbus, Ohio (City), extensively regulates operation trucks seeking pick up vehicles within city limits. Plaintiff-respondents, tow-truck operator trade association such operators, brought suit enjoin enforcement City's regulations on ground they were preempted The District granted plaintiffs summary judgment. Sixth Circuit affirmed based its earlier decision in Petrey v. Toledo, which it held similar those Columbus preempted. Observing 14501(c)(1)'s explicitly applies State," while exception for regulations, 14501(c)(2)(A), refers only "authority court determined contrast statutory language indicated Congress meant limit States alone. This reading, further reasoned, was consistent Congress' deregulatory purpose encouraging market forces eliminating myriad complicated potentially conflicting state regulations. Yet another level regulation at local level, inferred, would be disfavored. Held: Section 14501(c) does bar from delegating municipalities other units State's establish governing carriers property, including trucks. Pp. 432-442. (a) Had contained no reference all "political subdivision[s] 14501(c)(2)(A)'s exercises "safety undoubtedly have embraced both under Wisconsin Public Intervenor Mortier, 501 597. It there exclusion subdivisions cannot inferred federal law's express authorization "States" take action, are components very entity statute empowers, created as convenient agencies exercise powers chooses entrust them, id., 607-608. case is closer call than Mortier because, singularly bare "[s]tate" authority, almost every provision 14501 links their subdivisions. Nevertheless, mean intended alone, respondents contend. Respondents rely Russello States, 464 16, observed that, where particular included one section but omitted another, generally presumed acted intentionally purposely. Reading 14501(c)'s exceptions combination context, however, leads conclude requisite "clear manifest indication sought supplant authority." S., 611. 14501(c)(2)(C) enact enforce" areas, wording parallels Accord, 14501(c)(3). parallel structure imply, concise statement must read use term "State" restrictively. In §§ (c)(3), neither exception, nor goods, 14501(c)(2)(B), enforce law, regulation, provision." presumption — presence phrase absence reveals design grows weaker each difference formulation provisions inspection. Furthermore, notes, 14501(c)(1) power localities "enact rules "price, property"; reading 14501(c)(2)(A) exclude prevent enacting also enforcing even when enacted legislature. Finally, resort here yield odds our system's traditional comprehension State. Local governmental may them absolute discretion. programs restricts discretion through spending power, evinces clear ensure States' economic over property "not restrict" preexisting police safety, field traditionally occupied." Medtronic, Inc. Lohr, 518 470, 485. Preemption analysis "start[s] assumption historic superseded Act unless Congress." Ibid. Because authority" includes choice delegate localities, forcing refrain doing so effectively "restrict" authority. Absent basis more reliable insufficient demonstrate purpose" contrary, courts should resist attribution disturb division between central municipal streets roads. 432-440. (b) Contrary Circuit's declarations legislative history do justify interpreting prism aspects process Giving narrowest possible construction resistible here, necessarily conflict purposes. area deregulate regulation; exemption question regulation. prices, routes, services genuinely responsive concerns garners preemption. advocate, moreover, guarantee uniform On petitioners', example, could, affront statute, pass discrete, nonuniform applicable several constituent municipalities. 31141 authorizes Secretary Transportation void upon finding has benefit cause an unreasonable burden interstate commerce affords means overwhelming purpose. 440-442. (c) expresses opinion whether Columbus' whole part, qualify otherwise fall compass. question, reached Circuit, remains open remand. P. 442. 257 F. 3d 506, reversed remanded. GINSBURG, J., delivered Court, Rehnquist, STEVENS, KENNEDY, SOUTER, THOMAS, BREYER, JJ., joined. SCALIA, filed dissenting opinion, O'CONNOR, joined, post, p. Jeffrey Sutton argued petitioners. With him briefs Traci L. Lovitt, Ronald E. Laymon, Susan Ashbrook. Malcolm Stewart amicus curiae urging reversal. brief Solicitor General Olson, Assistant Attorney McCallum, Deputy Kneedler, Mark B. Stern, Dana Martin, Kirk K. Van Tine, Paul M. Geier, Dale Andrews. Richard A. Cordray respondents. David Ferris.* JUSTICE GINSBURG Court. 1 relating carriers, (1994 ed., Supp. V), specifically save 14501(c)(2)(A). presents preserved delegated municipalities, permitting operations. 2 a" legislation property." As rule, provided vehicles." "State[s]" subdivision[s]." specifies mention 3 We hold A locality, recognizes, subdivision" Ordinarily, whatever portion State, own constitution laws, subdivision. "regulatory preserve, preempt, prerogative parts. 4 * Interstate Commerce Act, amended Aviation Administration Authorization 1994, 108 Stat. 1606, ICC Termination 1995, 109 899, "related enumerated matters, covered provision. prescribes: 5 "(1) GENERAL RULE. Except paragraphs (2) (3), having force effect property. 6 "(2) MATTERS NOT COVERED. Paragraph (1) 7 "(A) shall regard minimum amounts financial responsibility insurance requirements self-insurance authorization; 8 "(B) goods; 9 "(C) truck, if vehicle. 10 "(3) STATE STANDARD TRANSPORTATION PRACTICES. 11 CONTINUATION. [Section 14501(c)(1)] affect provision, intrastate [inter alia] cargo liability meets [various enumerated] requirements." 14501(c). 12 Tow trucks, parties agree, "motor carrier[s] property" falling corroborated 14501(c)(2)(C), relates nonconsensual tows, e. g., illegally parked abandoned vehicles. That plainly indicates exempts truck" towing "is operator." 13 Petitioner, City seeks require operators obtain licenses, submit inspections, meet standards recordkeeping, conform detailed equipment requirements. See Ohio, Code 549.02-549.06 (1991); App. Pet. Cert. 37a-52a. 14 Plaintiff-respondent Ours Garage Wrecker Service, Inc., joined Towing Recovery Association (TRAO), against two officials complaint alleged cross-motions judgment, ruled plaintiffs; declared enjoined enforcement. appealed Appeals Circuit. 15 During pendency appeal, decided 246 548 (2001). Toledo resembling 14501(c).1 first State." Id., 563. "Congress encourage elimination regulations," observed; "yet level," "would disfavored." 16 Eleven weeks after rendering judgment Petrey, case. Holding dispositive, appeals Court's injunction 507-508 17 Courts divided encompasses Compare 548; Stucky San Antonio, 260 (CA5 2001); Tocher Santa Ana, 219 1040, 1051 (CA9 2000); R. Mayer Atlanta, 158 538 (CA11 1998) (all holding preempted), Ace Auto Body & Towing, Ltd. New York, 171 765 (CA2 1999) (holding preempted). certiorari resolve conflict, see 534 1073 (2002), now reverse II 18 begin consideration presented observation beyond genuine debate. provision's 445 (SCALIA, dissenting). 597 (1991), been definitive. There considered Insecticide, Fungicide, Rodenticide authorizing "State [to] sale federally registered pesticide device 136v(a); "silent governments." 607. "Mere silence," we held, "cannot suffice pre-empt (internal quotation marks omitted). 19 Justice White stated "[w]hen considering pre-emption, `we start Congress.'" 605 (quoting Rice Fe Elevator Corp., 331 218, 230 (1947)). explained: 20 "The principle well settled exercising entrusted because empowers." 607-608 marks, citations, alterations 21 Mortier. Here, (2)(A) excepts series four rule. third series, covering prices services, matches provision; likewise linked 14501. 14501(a), 14501(b)(1), 14501(c)(3)(A), 14501(c)(3)(B), 14501(c)(3)(C). 22 TRAO, line Appeals, home statute's repeated references subdivisions; contrast, urge, Brief 15-16, 26-29. particularly (1983). case, observed: "Where omits same acts purposely disparate inclusion exclusion." 23 omitted) (cited 3d, 561; Stucky, 441; Tocher, 1051). dissent asserts argument vigorously. words: conceivable reason" separate enumeration "establish categories exercised directly later treated differently rule." Post, 445. acknowledge "disparate [and] exclusion" words subdivisions" support some force, could made set combination, view basic tenets system pivotal 24 just noted, i. e., preserving price" charged towing, 15-16. tracks omitting States." Similarly styled, fourth carrier-requested areas "uniform liability" antitrust immunity, 14501(c)(3), completely 14501(c)(1): provides provision" areas. 25 borrow simply states Notably, second train attention, economy. mentions says 14501(c)(1), 14501(c)(2)(B). abundantly notwithstanding verbal formulation, like neighbor permits 446 26 doubt synchronizes main Respondents' inference persuasive omission sole expression exception. household-goods provision."2 27 restrictive "State," note, introduces interpretive conundrum kind. (Emphasis added.) Those conjoined travel together. If, TRAO argue, reaches then enacting, equally enforcing, unlikely preserve and, time, ordinary method instrumentalities.3 28 reiterate, used To repeat essential Mortier: discretion." Whether how self-government. See, Holt Civic Club Tuscaloosa, 439 60, 71 (1978) (States enjoy "extraordinarily wide latitude creating various types conferring them"). 29 delegation unit long occupied attention lawmakers. D. Wilcox, Municipal Government Michigan Ohio: Study Relations Commonwealth 52-54, 63 (1896) (citing Const., Art. XIII (1851)). Constitution currently grants "to self-government adopt limits police, sanitary laws." XVIII, 3. Ohio's Legislature statutes empowering cities highways. Rev. Ann. 715.22 (Anderson 2000) (municipality highways); 723.01 ("Municipal corporations special streets."). Particularly relevant exempted 4921.02(A)(8), thus leaving largely cities, Cincinnati Reed, 115, 500 N. 2d 333 (1985). 30 expressed intent existing 14501(c)(2)(B) (C) (preemption apply" areas), 14501(c)(3) affect" multistate, state, behest carriers). 485 (1996) citation "in saving order hardly comparable congressional condition receipt funds, governance matter localities. Such typically make statewide funding, or, conversely, funds spent accordance interference. 153 (grants traffic conditioned motorcycle helmet "throughout State"); (highway withheld law" setting drinking age 21); 42 1396a(a)(1) (Medicaid available ensures plan medical assistance administered mandatory them"); Lawrence County Lead-Deadwood School Dist. 40-1, 469 256, 270 (1985) (State makes spend discretion).4 31 deals voluntary agreements relinquish vis-à-vis exchange stemming commerce, allowed address concerns. safety. Forcing III 32 supported disallow part 563; accord, 444-446; 1048, 1051; Mayer, 546. turn justification. 33 Conference Report 1994 "[s]tate operations huge problem national regional attempting conduct standard way business." H. Conf. Rep. 103-677, 87 (1994). Carrying weight, itself reported States" unreasonably burdened free trade, American consumers. Pub. 103-305, 601(a)(1), 1605. therefore concluded "certain preempted." 601(a)(2). These purpose, "aspects process" 34 policy furthers goal specific might tend invariably surely conflict. conferees attended regulation"; Corroboratively, measure's shows aim had endorsed key interest group Trucking subject "some conditions allow protection continue non-economic factors, safety." 88. believed "address[ed] these conditions." Ibid.; Body, 776. 35 respondents' govern city, there, down line. Tr. Oral Arg. 37-38. Indeed, "political" subdivisions, nothing text impede administrative agency organized into offices, craft suitable assigned jurisdiction. reason suppose stop spreading among employ artificial inefficient schemes. 36 ed.) lawmakers' commercial safety" Secretary's "has commerce." 31141(a), (c)(4); 31132(8) ("`State law' [for purposes 31141] 31132(9) (parallel definition regulation"). Under can invalidate content multiplicity threatens clog avenues commerce. 37 reiterate shields (and requirements"). 38 39 For reasons stated, spares Appeals,5 40 reversed, remanded proceedings opinion. 41 ordered. Notes: Briefs ofamici reversal Kansas et al. Carla J. Stovall, Kansas, Stephen McAllister, Solicitor, Attorneys respective follows: Bill Lockyer California, Ken Salazar Colorado, Jane Brady Delaware, Robert Butterworth Florida, Steve Carter Indiana, Thomas Reilly Massachusetts, Jeremiah W. (Jay) Nixon Missouri, Mike McGrath Montana, Frankie Sue Del Papa Nevada, Eliot Spitzer Betty Montgomery Drew Edmondson Oklahoma, Sheldon Whitehouse Rhode Island, Barnett South Dakota, John Cornyn Texas, Shurtleff Utah, William Sorrell Vermont, Christine O. Gregoire Washington; Dallas Christopher Bowers; Miami-Dade Leonard Leigh Elias; Francisco Rose-Ellen Heinz, Moses Johnson IV, Michael Dean, Charles Hinton, Jr., Brad Neighbor, Scott Howard, Henry Underhill, G. Colantuono, Conners, Cardozo, Koerner, George Rios, Valerie Armento, Debra Corbett, Murphy; Barry Byron, Gotherman, James Burkhardt; Coalition Sovereignty Kenneth Clark. amici affirmance Associations, Evan Tager, Beth Law, Digges, Jr.; California Dump Truck Owners Edward Hegarty; Cargo Airline T. Friedman, Ruth Borenstein, Days III, Brinkmann; America Erik Jaffe McGovern; VRC LLC Mosser. excepted city's purchase fell "municipal proprietor" rules. SeePetrey, 558-559. insists irrelevant phrasing "ha[s] issue separating authority."Post, (emphasis deleted). ultimately draw conclusion, course, regarding dissent, although urges "we seriously appear," 447, rests fact appear 14501(c)(2) comprises three exceptions, seems us indeed weight attached variation them. Faced argument, converted, however temporarily, "federal interference `historic evinced `plain statement.'"Post, 450, n. Gregory Ashcroft, 452, 461 (1991)). finds plain prohibition new laws previously laws" carriage 4. most natural suggestion applied locally laws. ibid. interpretation raises startling possibility prohibits "enact[ing]" (but States) Nor, dissent's notwithstanding, seepost, 448, Clean Air mandates undertake environmental planning necessity boundaries. 7407(c), 7410(a)(1) develop implementation plans air quality "air control region[s]," whose borders defined Administrator Environmental Protection Agency jurisdictional lines criteria she "deems necessary appropriate attainment [national] ambient standards"); cf. 1313(d)(1)(A) (under Water pollution abatement "priority ranking" "waters boundaries effluent limitations stringent enough implement [applicable] water standard[s]"). Even so, requirement bear ultimate oversight responsibility. 7410(a)(2)(E)(iii) "necessary assurances relied government, agency, instrumentality [state] ensuring adequate provision"). Nor inPetrey (CA6 2001), "controls disposition case," 508 563-564. whom O'CONNOR joins, dissenting. 43 dispute present arises include (as, power"); authority"). whether, V) preclusionary command except counties well. my not. 44 45 [The rule] 46 vehicles, impose highway route controls size hazardous nature cargo, 47 48 50 rules, subparagraph (B)." 14501(c)(2), (3) (emphases added). 51 impossible being struck added "`[W]here exclusion.'" impart assume word narrower sense, term. admits "support[s] force," ante, 434, 52 But strong, alone fully describe clarity excludes begins appended. reads: 53 "Except [in (3)], private carrier, broker, freight forwarder 54 Since lawmaking subset Hess Port Authority Trans-Hudson Corporation, 513 30, (1994); 597, precisely scope well-established common sense) situation occurs, "two expressions coupled together, generically other, obvious meaning excluding one." Sutherland, Statutes Statutory Construction 266, 349 (1891). specification apart establish, 55 following hypothetical using "football" (which soccer, Webster's International Dictionary 983 (2d ed. 1950)): Assume "football soccer played town green" (§ 14501(c)(1)), Saturdays" 14501(c)(2)(C)), summer nights" 14501(c)(3)(A)), Mondays" 14501(c)(2)(A)). today's Mondays. I think regarded football category. And true here. 56 opposite conclusion merely exhibits uneven drafting. First, notes "trac[k] Ante, 434. Whereas refer provision," Second, "stated economy." 435. addresses (transportation goods) instead source (a subdivision, States). has, neighbor, regulation.1 inconsistencies drafting style, contends, undermine ordinarily "`political subdivision'" 57 weakness self-evident. How points text's crystal-clear distinction disappear? certainly reflect orderly draftsmanship consistently rather replacing equivalent State"; referred (à la 14501(c)(2)(B)) either never all, else whenever authorities imagine imperfect unrelated matters casts precise subject-matter-plus-source appear. Unless appealing hitherto unknown canon perhaps (borrowed evidence) negligens uno, omnibus diverse styles 58 What truly anomalous terminology presently today come judicial renders appears throughout, utterly superfluous throughout. Although claims "Russello inspection," 435-436, cites proposition it, routinely cases employs different "verbal formulation[s]" sections omit language. Barnhart Sigmon Coal Co., 438, 452-454 (2002); Duncan Walker, 533 167, 173-174 (2001); Hohn 524 236, 249-250 (1998); Gonzales, 520 1, (1997). 59 Lacking invokes federalism decision. "Absent `clear purpose' contrary," reasons, roads." 439-440. Well course here"; besides overblown. with, thought relationship themselves "traditional delegate" (or refuse delegate) "their parts," 429 sacrosanct. contrary. few examples,2 gives substantial directed politicians upstate" "downstate"), see, Office Management Budget, 2001 Catalog Domestic Assistance AEI-1 AEI-29; LeadDeadwood (1985); many significant adopted government 1396a(a) (Medicaid); 153, (Federal-Aid Highway System); 7407(a), 7410 (Clean Act).3 "interference" prerogative... parts" considerable debate controversy. Hills, Dissecting State: Use Law Free Officials Legislatures' Control, 97 Mich. 1201 (1999). 60 major impositions already books, treating extraordinary obstruction allocation absurd. italicized massively single out treatment remain restrictions cars enter highways bridges, target "with addition, allows (rules authority") property.4 61 relatively modest "historic (1991) omitted), unambiguously imposed statute. repeatedly emphasizes declares "`not restrict' `safety State,'" 438 which, says, "includes localities," 439. entirely begs possessed municipality described, leave "subdivision dealing "[e]vidence pre-emptive issue." CSX Transp., Easterwood, 507 658, 664 (1993) added); (1947). 62 believe show encompass reason, respectfully dissent. Not point (as proceeds discuss) principle; misleading description fact, suggesting neighboring produce result 14501(c)(2)(C),unlike thinks examples "hardly comparable" involve Spending Clause legislationAnte, 438. sufficient answer not, Act), involving added, 1313(d), 1362(3) Act). event, siphoning off powers" achieved, about coercion deprivation means. unusual interfere matter. bad example toenforce plan. 439, 4; 7410(a)(2)(E)(iii). So what? Only plans; duty Moreover, explain 4, infra, different. (c)(2)(A), pursuant scheme "introduces kind," asserts, not"enact 436. view, will relying "enforce" regulations." 435-436. prevents ignoring (for issue) insistent elsewhere: "plain statement," (1991). faithful Gregory's believes "raises possibility," 436, 3, occur) precluded interpreted absurd results. municipalities' reserved continuing enforce.

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