1
Frazer C. HilderAttorney, Office of Chief Counsel
HazardousMaterials
Preemption
Pipeline and Hazardous Materials Safety Administration U.S. Department of Transportation
January 2010
2
Introduction
More than a century of
Federal hazmat regulation
Explosives and Combustibles
Act of 1908
3
Definition
Preempt –
to take precedence over, supplant
Preemption –
displacement, supersedence
4
Federal Preemption
Supremacy Clause
This Constitution, and the Laws of
the United States, which shall be
made in Pursuance thereof . . .
shall be the supreme Law of the
Land
5
Federal Preemption
Two doctrines
“Field” preemption
“Conflict” preemption
6
Purpose
Uniformity promotes safety
Other incentives besides preemption
• MCSAP grants to States which adopt and enforce motor carrier requirements consistent with FMCSR and HMR. 49 CFR parts 350, 355
• State inspector program for rail transportation. 49 CFR part 212
7
Federal Hazmat Law
49 U.S.C. 5125 - Standards
Dual Compliance
Obstacle
Five subject matters
Highway routing
State fees
8
Authority Under Another U.S. Law
Other Federal Agencies
DHS/TSA
EPA
OSHA
ATF
NRC
9
Waiver of Preemption
DOT may waive preemption if it finds that the non-Federal State, local or Indian tribe requirement
• Provides the public with as equal or greater level of protection
• Does not create an unreasonable burden on commerce
10
Other Statutes
Highway - 49 U.S.C. 31141
State law that
--has the same effect, may be enforced
--is less stringent may not be enforced
--is more stringent, may be enforced unless it (a) has no safety benefit, (b) is incompatible with a DOT regulation, or (c) causes an unreasonable burden on commerce.
11
Other Statutes
Rail – 49 U.S.C. 20106
Laws, regulations, and orders related to railroad safety shall be nationally uniform to the extent practicable.
When DOT has issued a regulation, or order on the subject matter, a State may have an additional or more stringent law, requirement, or order that (a) addresses a local safety hazard, (b) is not incompatible with a Federal law, regulation, or order, and (c) does not unreasonably burden commerce.
12
Reaching a Decision
Defense to a citation
Lawsuit in court
DOT administrative determination
– any “directly affected” person may apply
13
Administrative Process
49 CFR part 107, subpart C.
• Application
• Federal Register notice
• Public comments
• Determination
• Petition for reconsideration/judicial review
14
Recent Cases
• Routing of HM shipments
• Package marking
• Hazardous waste
• Periodic vehicle inspections
15
Applicability of Hazmat Law & HMR
Transportation
In Commerce
Persons
16
Transportation
“Transports” or “transportation” means the movement of property and loading, unloading, or storage incidental to the movement.
49 U.S.C. 5102(13); 49 CFR 171.1
17
Commerce
“Commerce” means trade or transportation in the jurisdiction of the United States—
• between a place in a State and a place outside of the State;
• that affects trade or transportation between a place in a State and a place outside of the State; or
• on a United States-registered aircraft.
49 U.S.C. 5102(1)
18
Persons
Individual, corporation, company, association, firm, partnership, society, joint stock company.
Government, Indian tribe, or authority that
-offers hazardous material for transportation in commerce;
-transports hazardous material to support a commercial enterprise; or
-designs, manufactures, maintains, repairs, tests, etc. a packaging or component for hazmat
49 U.S.C. 5102(9)
19
Government Authorities
• United States Postal Service has its own law, regulations, and civil penalty authority.
• Civil and criminal penalties do not apply to a department, agency, or instrumentality of the Government.
• Regulations apply to government contractors.
• Exception from HMR for certain U.S. governmental activities (DOD, DOE, ATF).
20
Enforcement
Criminal prosecutions
• Investigation by IG and/or FBI
• Prosecution by Dept. of Justice
• Fine up to $250,000/$500,000
• Imprisonment up to 5 years – or 10 years when the violation involves a release of hazmat resulting in death or bodily injury.
21
Enforcement
Civil penalty process
• Federal Aviation Administration
• Federal Motor Carrier Safety Administration
• Federal Railroad Administration
• Pipeline and Hazardous Materials Safety Administration
• United States Coast Guard
22
Enforcement
Civil penalties
• $55,000 maximum, or $110,000 when a violation results in death, serious illness, severe injury, or substantial destruction of property.
• $275 minimum, except $495 for a violation related to training.
23
Enforcement
Other actions
• Compliance Order
• Safety Advisory
• Suspension or termination of special permit or approval
24
Enforcement
PHMSA procedures
• Inspection (usually unannounced)
• Exit briefing – opportunity to respond
• Violations
– Warning letter
– Ticket
– Enforcement case
25
Enforcement
Enforcement cases
• Notice of probable violation
• Response
– Pay proposed penalty
– Informal conference
– Formal hearing
• Attempt to reach compromise
• Order
• Appeal
26
Enforcement
Some areas of focus
– Batteries – new and recycled
– Aerosols – green gas
– Nurse tanks
– Package testing
– Systems Integrity Safety Program (SISP)
27
Information
• Hazardous Materials Safety Program Website
http://www.phmsa.dot.gov/hazmat
• Hazardous Materials Information Center
1-800-467-4922
• Office of Chief Counsel – 1-202-466-4400
http://www.phmsa.dot.gov/about/org/chief-counsel
28
Conclusion
Questions?