new york dept social services dublino argued decided june together onondaga county department social services et al dublino et also appeal amendments social security act included federal work incentive program win designed help individuals welfare become members society required incorporate program aid families dependent children afdc program provide certain employable individuals condition receiving aid shall register manpower services training employment new york enacted provisions social welfare law commonly referred new york work rules similarly required cooperation employable individuals continue receive assistance appellees new york public assistance recipients subject work rules challenge rules win provisions social security act district ruled afdc program win new york work rules held win provisions social security act new york work rules new york social welfare law pp substantial evidence congress intended either expressly impliedly state work programs required apparent comprehensiveness win legislation show clear manifestation congressional intention must exist federal statute held supersede exercise state action schwartz texas pp affirmative evidence exists establish congress intention terminate state work programs foreclose future state cooperative programs win limited scope application partial program state supplementation illustrated new york department health education welfare responsible administering social security act never considered win pp coordinate state federal efforts exist within complementary administrative framework pursuit common purposes case federal persuasive pp question whether particular sections work rules might contravene specific provisions social security act resolved remanded district consideration pp powell delivered opinion burger douglas stewart white blackmun rehnquist joined marshall filed dissenting opinion brennan joined post jean coon assistant solicitor general new york argued cause appellants cases briefs louis lefkowitz attorney general ruth kessler toch solicitor general philip pinsky filed brief appellants dennis yeager argued cause filed briefs appellees fn briefs amici curiae urging reversal cases filed solicitor general griswold wilmot hastings john barrett evelle younger attorney general elizabeth palmer assistant attorney general john klee deputy attorney general state california steven cole henry freedman filed brief national welfare rights organization et al amici curiae urging affirmance cases justice powell delivered opinion question us whether social security act stat amended bars state independently requiring individuals accept employment condition receipt federally funded aid families dependent children precisely issue whether part social security act known federal work incentive program win preempts provisions new york social welfare law commonly referred new york work rules brief description state federal programs necessary work rules enacted new york part governor rockefeller efforts reorganize new york welfare program aim explained governor encourage young temporarily need assistance fault achieve education skills motivation determination make possible become increasingly independent citizens contribute share responsibility families society achieve work rules establish presumption certain recipients public assistance employable require recipients report every two weeks pick assistance checks person file every two weeks certificate appropriate public employment office stating suitable employment opportunities available report requested employment interviews report public employment office result referral employment fail willfully report suitable employment available addition establishing system referral employment private sector economy work rules permit establishment public works projects new york social service districts failure employable persons participate operation work rules results loss assistance like work rules win designed help individuals welfare acquire sense dignity confidence flow recognized member society supp program enacted part amendments social security act whereby required incorporate win aid families dependent children afdc plans et seq ed supp every state afdc plan must provide certain employable individuals condition receiving aid shall register manpower services training employment regulations promulgated secretary labor supp available services provided state must include health vocational rehabilitation counseling child care social supportive services necessary enable individuals accept employment receive manpower training supp required services provided state must certify secretary labor individuals ready employment training programs ed supp employment consists work regular economy participation public service programs ed supp work rules cooperation win necessary employable individuals continue receive assistance appellees new york public assistance recipients subject work rules challenged rules violative several provisions constitution win provisions federal social security act district rejected last contention supp wdny point held afdc program win preempts new york work rules holding affected continued operation new york rules raised serious doubts viability supplementary work programs set cause argument reverse holding holding affects work rules insofar apply afdc recipients new york home relief program example general state assistance plan federal reimbursement support remains untouched ruling afdc participants however decision render work rules inoperative hold win exclusive manner applying carrot stick efforts place recipients gainful employment sweeping step strikes core state prerogative afdc program program careful describe scheme cooperative federalism king smith dandridge williams jefferson hackney impair capacity state government deal effectively critical problem mounting welfare costs increasing financial dependency many citizens new york legitimate interest encouraging citizens work thus contribute societal addition personal family support extent work rules embody new york attempt promote civic responsibility assure limited state welfare funds spent behalf genuinely incapacitated need cope fiscal hardships enveloping many state local governments lightly interfere problems confronting society areas severe state governments cooperation federal government must allowed considerable latitude attempting resolution repeatedly refused void state statutory programs absent congressional intent congress authorized act field manifest intention clearly presumed federal statute intended supersede exercise power state unless clear manifestation intention exercise federal supremacy lightly presumed schwartz texas principle relates directly state afdc programs already acknowledged considerable latitude allocating afdc resources since state free set standard need determine level benefits amount funds devotes program king smith supra dandridge williams supra jefferson hackney supra moreover time passage win already initiated welfare work requirements condition afdc eligibility congress intended state plans efforts important dimension afdc program employment referrals assistance intentions likelihood expressed direct unambiguous language expression exists however either federal statute committee reports appellees argue nonetheless congress intended state work programs comprehensive nature win legislation legislative history alleged conflicts certain sections state federal laws agree reject begin contention inferred merely comprehensive character federal work incentive provisions et seq ed supp subjects modern social regulatory legislation often nature require intricate complex responses congress without congress necessarily intending enactment exclusive means meeting problem cf askew american waterways given complexity matter addressed congress win detailed statutory scheme likely appropriate completely apart questions intent especially case federal work incentive provisions sufficiently comprehensive authorize govern programs welfare work requirements well cooperatively requirements appellees also rely district legislative history supporting view win legislation addressed afdc recipients leaving employable recipients subject state work rules brief appellees pointed specific legislative history supportive conclusion appellees cite fragmentary statements find unpersuasive reliance placed example statement report house ways means committee win legislation follows committee bill required develop program appropriate relative dependent child assure maximum extent possible individual enter labor force order become accomplish assure adult family child age attending school given appropriate employment counseling testing job training emphasis supplied sum attention directed relevant argument supports except peripheral way view congress intended either expressly impliedly state work programs far required show clear manifestation congressional intention must exist federal statute held supersede exercise state action schwartz texas ii persuasive affirmative reasons exist case also strongly negate view congress intended enactment win legislation terminate existing state work programs foreclose additional state cooperative programs future note first win designed face embracing federal work incentive programs established political subdivisions secretary labor determines significant number individuals attained age receiving aid families dependent children political subdivisions shall use best efforts provide programs either within subdivisions provision transportation persons political subdivisions state programs established supp even districts win operate reach limited new york according federal estimates win registrants current fiscal year secretary labor contracted state provide services registrants majority receive full job training placement assistance fiscal new york asserts individuals referred participation win program federal government allowed opportunities enrollment california claims employable afdc recipients last year available win slots evident win partial program stops short providing adequate job training opportunities large numbers state afdc recipients incongruous congress one hand promote work opportunities afdc recipients prevent undertaking supplementary efforts toward end interpret federal statutes negate stated purposes significance state supplementation illustrated experience new york work rules aided objectives federal work incentives july september first months work rules operation state employment service claimed job placements approximately recipients moreover department health education welfare agency government responsible administering federal social security act including reviewing state afdc programs never considered win legislation hew followed consistently policy approving state plans containing welfare work requirements long requirements arbitrary unreasonable congress presumably knew settled administrative policy time enactment win welfare work programs subsequent win passage hew continued approve state work requirements pursuant approval new york received federal operation afdc plan including work provisions interpreting statute must mindful construction statute charged execution followed unless compelling indications wrong red lion broadcasting fcc dandridge williams case indications wholly absent new york furthermore attempted operate work rules manner avoid friction overlap win officials state department labor local social service department testified every afdc recipient appropriate win first referred person referred state program participating win position available win recipient referred employment pursuant state statute coordinate state federal efforts exist within complementary administrative framework pursuit common purposes case federal becomes less persuasive one context dissenting opinion reliance townsend swank carleson remillard king smith misplaced cases clear state law excluded people afdc benefits social security act expressly provided eligible found room either act language legislative history warrant additional eligibility requirements contrast act allows complementary state work incentive programs procedures incident thereto even become conditions continued assistance programs procedures necessarily invalid supplementary regulations promulgated within legitimate sphere state administration see wyman james snell wyman supp sdny aff see also dandridge williams supra jefferson hackney iii thus reverse holding win new york work rules ruling establishes validity state work program one means helping afdc recipients return gainful employment resolve however question whether particular sections work rules might contravene specific provisions federal social security act last question remand opportunity consider issue specific conflict state federal programs free misapprehension work rules entirely new york legislature amended work rules provide among things exemption persons engaged training vocational rehabilitation programs reporting check pickup requirements laws monthly rather payments shelter allowances significantly definition employable afdc recipient claimed new york identical used win inasmuch opportunity consider amendments related issue potential conflict remand afford deem unnecessary present time intimate view whether extent particular provisions work rules may contravene purposes provisions win determination made initially consistent principles set forth opinion judgment district reversed cases remanded proceedings consistent opinion ordered footnotes special message new york state legislature mar brief appellant state depts statutory definition persons deemed employable see supra see ibid provisions employment recipients public works projects implemented hew regional commissioner indicated projects approved federal aid brief appellant state depts see supra social services administrative letter reads relevant part laws place renewed expanded emphasis restoring employable recipients public assistance employment regular economy accordingly unemployed employable persons applying receiving public assistance required register new york state employment service district office community report regularly appropriate employment counseling services job referral effective july also pick assistance checks penalty cooperating procedure ineligibility public assistance whether individual grantee head family single person living alone family app amendments dealing win enacted act pub stat state plans aid services needy families children contents approval secretary state plan aid services needy families children must provide every individual condition eligibility aid part shall register manpower services training employment provided regulations secretary labor unless individual child age attending school full time ii person ill incapacitated advanced age iii person remote work incentive project effective participation precluded iv person whose presence home required illness incapacity another member household mother relative child age six caring child vi mother female caretaker child father another adult male relative home excluded clause ii iii iv subparagraph unless failed register required subparagraph found secretary labor section title refused without good cause participate work incentive program accept employment described subparagraph paragraph penalized reduction assistance fail certify secretary labor least average number registered year supp district parties case used word rather special sense litigation involve arguable federal wholly independent state program dealing similar problem huron portland cement detroit afdc federal statutory program win program part state work rules also promulgated part implementation afdc therefore wholly independent federal program caveat however preserve district usage advantage focusing attention critical question whether congress intended win provide exclusive mechanism establishing work rules afdc found additional points conflict state federal programs regard procedures termination benefits presence certain hearings counseling services win absent work rules supp postponed consideration question jurisdiction hearing merits conclude constitutional questions raised appellees insubstantial deprive district jurisdiction appellees due process claim directed state implement suitable means informing home relief recipients hearing rights state stipulates done tr oral arg issue address appeal whether state program superseded whole part federal law afdc program jointly financed federal government dandridge williams appellees position also one complete exclusion work rules least regard afdc recipients tr oral arg brief appellees response brief amicus curiae see brief amicus curiae information derived survey state plans conducted department health education welfare express intention eliminate state work programs appears either time original enactment win see time amendments supra asserted legislative history supportive intent view remand part iii infra reach issue specific alleged conflicts sum however sufficient indicate intent especially light impressive evidence contrary citations similar effect appear brief appellees perhaps revealing legislative expressions confirm subsequent enactment congressional desire preserve supplementary state work programs supersede wake invalidation new york work rules district members new york congressional delegation became concerned misconstrued intent congress following colloquy occurred senator buckley new york senator long louisiana chairman finance committee considered win prior approval senate buckley ever intention congress time provisions win statutes preempt field employment training adc recipients long mind buckley far distinguished chairman concerned ever intention least body preemption field long never intention prevent state requiring recipients something money employable cong rec house representatives similar dialogue took place congressman carey new york congressman mills chairman house ways means committee considered win program carey new york specific question chairman intent congress authorizing win program amendments program subsequent years understanding congress intended win program merely assist critical area guiding welfare recipients toward supersede individual state programs designed achieve end interpretation new york operate programs supplementary federal win program understanding congressional intent area correct mills arkansas agree interpretation friend gentleman new york matter long state program contravene provisions federal law cong rec win guidelines issued department labor provide according appellants establishment win programs areas least potential win enrollees brief appellant state depts see title iii supp may also contemplated limited application win since exempts win registration person remote work incentive project effective participation precluded see brief amicus curiae citing dept labor manpower administration contract modification june government contends current level win funding win registrants receive full job training placement assistance contemplated act ibid brief appellant state depts brief california amicus curiae brief appellant state depts app appellants claim january june job placements win program placements work rules figures must qualified however observation many job placements temporary many placed work rules may recipients forms assistance afdc number win placements counts afdc recipients single recipients may referred placed thus statistically tabulated one occasion see brief appellees none observations however obscures basic fact work rules materially contribute toward attainment objective win restoring employable afdc recipients members society see supp see brief amicus curiae filed solicitor general joined general counsel hew ibid excerpts depositions nelson hopper director employment service bureau new york state dept labor george demmon senior employment counsellor erie county dept social services app see also brief appellant state depts tr oral arg considering question possible conflict state federal work programs take account prior decisions congress given broad discretion afdc program jefferson hackney see also dandridge williams king smith long state actions violation specific provision constitution social security act courts may void jefferson supra conflicts merit judicial rather cooperative resolution substance merely trivial insubstantial conflict substance eligibility provisions federal law course must control king smith supra townsend swank carleson remillard justice marshall justice brennan joins dissenting today ignores fundamental rule interpreting social security act must respectfully dissent said townsend swank absence congressional authorization exclusion clearly evidenced social security act legislative history state eligibility standard excludes persons eligible assistance federal afdc standards violates social security act therefore invalid supremacy clause see also king smith carleson remillard new york work rules fall squarely within statement clearly exclude persons eligible assistance federal standards hardly maintained impose additional conditions eligibility example federal standards irrelevant determination eligibility recipient filed every two weeks certificate local employment office suitable employment opportunities available yet work rules recipient fails file certificate deemed refused accept suitable employment eligible assistance soc serv law supp thus according rules interpretation heretofore followed proper inquiry whether social security act legislative history clearly shows congressional authorization state employment requirements involved win answer neither act legislative history shows authorization relevant conditions eligibility act found supp addition exempting certain persons registration participation win act permits disregard needs persons otherwise eligible assistance refused without good cause participate work incentive program accept employment able engage supp act thus makes actual refusal participate win program accept employment permissible ground denying assistance contrast new york adopted technique deeming persons accepted employment example obtained certain certificate local employment office every two weeks deeming familiar legal device evade applicable requirements saying satisfied fact satisfied federal requirement state may alter without clear congressional authorization requires actual refusal participate win program accept employment refusal participate program fictitious refusal employment legislative history social security act confirms interpretation whenever congress legislated respect work requirements focused actual refusals accept employment participate certain special programs clearly authorized congress time congress authorized adopt programs make refusal participate programs condition eligibility even guise deeming refusal refusal accept employment inception program aid dependent children designed lessen somewhat burden supporting children program provided assistance children deprived parental support reason absence parent stat assistance provided supply needs children thus releas ing parent role doc see also thus program purposes many ways inconsistent requirement parent leave home accept employment yet operation original program failed provide sufficient inducement parent remain home since amount assistance measured solely child needs order relieve pressures parent leave home accept work congress amended act aid include payments meet needs relative dependent child living sole emphasis social security act provisions assistance dependent children preserving integrity family unit year congress expanded definition dependent child include children deprived parental support reason unemployment parent families two parents present first time receive assistance one parent leave home work without impairing integrity family unit congress therefore required participating program aid families unemployed parent deny assistance provision individuals refused accept bona fide offers employment pub stat refusal actual offers employment clearly contemplated condition see congress developed concept permitting establish community work training programs work public projects pub stat rendered inapplicable pub stat refusal accept work assignment project without good cause ground denial public assistance see congress established win abandon previous policies recipients public assistance required accept bona fide offers employment placement specified programs indication whatsoever legislative history congress intended permit deny assistance potential recipients refused participate programs supervised secretary labor win programs parameters win program designed accommodate congress dual interests guaranteeing integrity family maximizing potential employment recipients public assistance without careful federal supervision sort contemplated delegation secretary labor establish testing counseling services require design employability plans stat state work programs might upset accommodation congress sought work incentive program thus carefully coordinated system whose individual parts fit integrated whole hardly surprising congress expressly impliedly authorize develop independent work programs since win program represented congress recognition programs kept careful scrutiny variety goals congress sought promote achieved believe seriously misconceives purposes federal programs public assistance apparent belief congress sole purpose promoting work opportunities purpose precluding additional state programs negate ante instead congress consistently indicated desire adopt programs enhance employability recipients public assistance maintaining integrity families receiving assistance program regulated persons required participate terms must participate congress consistently recognized regulation requires close federal supervision work programs view course legislation mentioned neither ambiguous fragmentary peripheral ante matter viewed however one fairly say social security act legislative history clearly evidences congressional authorization making participation state work programs condition eligibility public assistance policy clear statement townsend serves useful purpose informs legislators wish alter accommodations previously arrived act major importance must indicate clearly wish since may appear minor changes narrow scope may fact ramifications throughout administration act policy clear statement insures congress consider ramifications regularly adhered finally particularly appropriate require clear statement authorization impose additional conditions eligibility public assistance myths abound area widely yet erroneously believed example recipients public assistance little desire become see goodwin poor want work recipients public assistance generally lack substantial political influence state legislators may find expedient accede pressures generated misconceptions order lessen possibility erroneous beliefs lead state legislators single politically unpopular recipients assistance harsh treatment congress must clearly authorize impose conditions eligibility different federal standards observed king smith rule leaves considerable latitude allocating afdc resources since state free set standard need determine level benefits amount funds devotes program today quotes observation misses import latitude adjust benefits two ways mentioned imposing additional conditions eligibility adjustments like made legislators single especially unpopular groups discriminatory treatment reasons affirm judgment district appellants state work rules constitute additional condition eligibility public assistance reply brief appellant state depts arguments present however relate entirely purported congressional authorization additional conditions sort federal conditions eligibility relating registration employment found supp amicus curiae argues rule stated townsend swank fairly characterize course interpretation social security act relies primarily decision wyman james reasons escaped time see address statutory argument wyman therefore express limitation rule townsend similarly summary affirmance snell wyman district opinion king smith least offset summary affirmances carleson taylor juras meyers weaver doe argument authority weak argument matter logic even weaker suggests may narrow class persons eligible assistance federal standards may impose additional conditions eligibility pursuit independent state policies distinction withstand analysis makes decision turn meaningless verbal tricks one easily find independent state policy townsend narrowing class eligible persons state might policy minimizing subsidies persons clear prospect future income well poverty level denying assistance persons attending colleges granting attending vocational training schools system subsidies almost certainly held constitutional due process clause position seems may impose conditions eligibility squarely conflict federal standards pursuit constitutional state interest example child attending school full time need register supp take find conflict substance ante provision state work requirement applicable children legislative history clear congress defining conditions eligibility spell ed people think required go work senator long put cong rec see also position assume provision narrow class persons eligible assistance appellants argue provision section aid furnished eligible individuals read within context social security act means individuals eligible state requirements federal reply brief appellant state depts expressly rejected argument townsend may course adopt procedures necessary insure offers employment transmitted recipients public assistance hardly needs extended argument however show new york work rules taken whole necessary congress required adopt plans provide social services strengthen family life pub stat original proposal work incentive program permitted state operate community work training programs federal win program operated state thus either win program state program operate within state final version authorization community work training programs eliminated federal win program implemented every state congress recognized federal state work programs coexist amendments win program pub stat demonstrate congress desire federal control work requirements state must establish separate administrative unit provide social services connection win supp anomalous congress require devote substantial resources unit connection win program yet permit operate independent work programs using federal funds without providing special services congress thought important unnecessary discuss length analysis problem note ante case present classic question enactment statute congress preclude state attempts regulate subject question new york may impose whatever work requirements wishes consistent constitutional limitations gives public assistance solely state funds see ante question relates conditions congress placed state programs supported federal funds distinction without importance makes inapposite strictures earlier cases relied lightly interfering state programs ante must course cautious prevent state regulating area absence congressional action important interests holding federal win program exclusive method imposing work requirements conjunction federally funded programs public assistance impact new york remain free operate public assistance programs state funds whatever work requirements chose see hart sacks legal process tent ed connection let pass without comment extraordinary use makes legislative history relying exchanges floor house senate occurred decision district case ante although reliance floor exchanges criticized schwegmann calvert distillers jackson concurring force generally accepted proposition exchanges particularly sponsors bill committee chairmen involved relevant determination purpose congress sought achieve enacting bill paul legislators know legislative history made aware importance floor exchanges disagree interpretation placed bill exchanges may offer amendments vote thus congress enacting statute may fairly taken endorsed interpretations offered exchanges none true floor exchanges bearing pending legislation disinterested legislator might well pay scant attention senator buckley representative carey wished congressional expression intent issue barred introducing legislation possibility treatment discriminatory unconstitutional insubstantial shown brief discussion jurisdiction district ante