de canas bica argued december decided february section california labor code prohibits employer knowingly employing alien entitled lawful residence employment adverse effect lawful resident workers held unconstitutional regulation immigration supremacy clause immigration nationality act ina pp standing alone fact aliens subject state statute render regulation immigration even local regulation purely speculative indirect impact immigration thereby become constitutionally proscribed regulation immigration congress powerless authorize approve pp basis congressional intent occupy field thereby invalidate even harmonious state regulation required case either nature regulated subject matter permits conclusion congress unmistakably ordained result florida lime avocado growers paul section clearly within state police power regulate employment relationship protect workers within state presumed congress enacting ina intended oust state authority regulate employment relationship covered manner consistent pertinent federal laws absent showing intent either ina wording legislative history comprehensive scheme regulating immigration naturalization rather evidence congress unmistakably ordained exclusivity federal regulation field employment illegal aliens farm labor contractor registration act whose provisions prohibiting farm labor contractors employing illegal aliens enacted supplement state action persuasive evidence ina taken legislation expressing congress judgment uniform federal regulations matters affecting employment illegal aliens therefore barring state legislation hines davidowitz pennsylvania nelson distinguished pp california courts construe decide first instance whether extent construed unconstitutional conflicting ina federal laws regulations pp brennan delivered opinion members joined except stevens took part consideration decision case robert catz argued cause petitioners briefs howard scher ralph santiago abascal burton fretz robert johnstone william marrs argued cause respondents brief robert trapp justice brennan delivered opinion california labor code ann provides employer shall knowingly employ alien entitled lawful residence employment adverse effect lawful resident workers question presented case whether unconstitutional either attempt regulate immigration naturalization supremacy clause art vi cl constitution immigration nationality act ina stat amended et comprehensive federal statutory scheme regulation immigration naturalization petitioners migrant farmworkers brought action pursuant respondent farm labor contractors california superior complaint alleged respondents refused petitioners continued employment due surplus labor resulting respondents knowing employment violation aliens lawfully admitted residence petitioners sought reinstatement permanent injunction respondents willful employment illegal aliens superior unreported opinion dismissed complaint holding labor code unconstitutional encroaches upon interferes comprehensive regulatory scheme enacted congress exercise exclusive power immigration app california appeal second appellate district affirmed cal app cal rptr appeal held attempt regulate conditions admission foreign nationals therefore unconstitutional area immigration naturalization congressional power exclusive cal appeal indicated state regulatory power subject matter foreclosed congress incident national sovereignty enacted ina comprehensive scheme governing aspects immigration naturalization including employment aliens specifically intentionally declined add sanctions employers control mechanism ibid california denied review granted certiorari reverse power regulate immigration unquestionably exclusively federal power see passenger cases henderson mayor new york chy lung freeman fong yue ting never held every state enactment way deals aliens regulation immigration thus per se constitutional power whether latent exercised example takahashi fish game graham richardson cited line cases upheld certain discriminatory state treatment aliens lawfully within although doctrinal foundations cited cases generally arose equal protection clause clarke deckebach undermined takahashi see griffiths graham richardson supra remain authority standing alone fact aliens subject state statute render regulation immigration essentially determination admitted country conditions legal entrant may remain indeed need cases graham takahashi hines davidowitz even discuss relevant congressional enactments finding state regulation state regulation aliens ipso facto regulation immigration existence vel non federal regulation wholly irrelevant constitution force requires state regulation case california sought strengthen economy adopting federal standards imposing criminal sanctions state employers knowingly employ aliens federal right employment within country even local regulation purely speculative indirect impact immigration thereby become constitutionally proscribed regulation immigration congress powerless authorize approve thus absent congressional action invalid state incursion federal power ii even constitution commit exclusive power regulate particular field federal government situations state regulation although harmonious federal regulation must nevertheless invalidated supremacy clause stated florida lime avocado growers paul ederal regulation deemed state regulatory power absence persuasive reasons either nature regulated subject matter permits conclusion congress unmistakably ordained possess broad authority police powers regulate employment relationship protect workers within state child labor laws minimum wage laws laws affecting occupational health safety workmen compensation laws examples california attempt prohibit knowing employment california employers persons entitled lawful residence let alone work certainly within mainstream police power regulation employment illegal aliens times high unemployment deprives citizens legally admitted aliens jobs acceptance illegal aliens jobs substandard terms wages working conditions seriously depress wage scales working conditions citizens legally admitted aliens employment illegal aliens conditions diminish effectiveness labor unions local problems particularly acute california light significant influx state illegal aliens neighboring mexico attempting protect california fiscal interests lawfully resident labor force deleterious effects economy resulting employment illegal aliens focuses directly upon essentially local problems tailored combat effectively perceived evils course even state regulation designed protect vital state interests must give way paramount federal legislation presume congress enacting ina intended oust state authority regulate employment relationship covered manner consistent pertinent federal laws demonstration complete ouster state power including state power promulgate laws conflict federal laws clear manifest purpose congress justify conclusion florida lime avocado growers paul supra quoting rice santa fe elevator respondents made demonstration fail point independent review reveal specific indication either wording legislative history ina congress intended preclude even harmonious state regulation touching aliens general employment illegal aliens particular intent derived scope detail ina central concern ina terms conditions admission country subsequent treatment aliens lawfully country comprehensiveness ina scheme regulation immigration naturalization without said draw employment illegal aliens plainly within central aim federal regulation san diego unions garmon conclusion buttressed fact comprehensiveness legislation governing entry stay aliens expected light nature complexity subject said another legislative context given complexity matter addressed congress detailed statutory scheme likely appropriate completely apart questions intent new york dept social services dublino true proviso making felony harbor illegal entrants provides employment including usual normal practices incident employment shall deemed constitute harboring best evidence peripheral concern employment illegal entrants san diego unions garmon supra admonished due regard presuppositions embracing federal system including principle diffusion power matter doctrinaire localism promoter democracy required us find withdrawal power regulate activity regulated merely peripheral concern federal regulation finally rather evidence congress unmistakably ordained exclusivity federal regulation field evidence form amendments farm labor contractor registration act stat et seq supp iv congress intends may extent consistent federal law regulate employment illegal aliens section authorizes revocation certificate registration farm labor contractor found employed alien lawfully admitted permanent residence authorized attorney general accept employment section prohibits farm labor contractors employing alien lawfully admitted permanent residence authorized attorney general accept employment particular significance inquiry provision chapter provisions contained herein intended supplement state action compliance chapter shall excuse anyone compliance appropriate state law regulation emphasis supplied although concerned agricultural employment farm labor contractor registration act thus persuasive evidence ina taken legislation congress expressing judgment uniform federal regulations matters affecting employment illegal aliens therefore barring state legislation hines davidowitz pennsylvania nelson upon respondents rely fully consistent conclusion hines held pennsylvania alien registration act federal alien registration act nelson held pennsylvania sedition act federal smith act although cases relied comprehensiveness federal regulatory schemes finding intent federal statutes specific field attempting regulate indication congress intended preclude state law area employment regulation nelson stated even face general immigration laws right enforce sedition laws times federal government occupied field protecting entire country seditious conduct moreover neither hines nelson affirmative evidence congress sanctioned concurrent state legislation subject covered challenged state law furthermore extent cases based predominance federal interest fields immigration foreign affairs appear similar federal interest situation state law fashioned remedy local problems operates local employers respect individuals federal government already declared work country finally pennsylvania statutes hines nelson imposed burdens aliens lawfully within country created conflicts various federal laws iii remains question whether although ina contemplates room state legislation nevertheless unconstitutional stands obstacle accomplishment execution full purposes objectives congress enacting ina hines davidowitz supra florida lime avocado growers paul think address inquiry upon record us appeal reach question light decision today reversed congress completely barred state action field employment illegal aliens accordingly questions construction settled california courts determination appropriate whether construed enforced without impairing federal superintendence field covered ina example requires employed alien must entitled lawful residence application statute prevent employment aliens although entitled lawful residence may federal law permitted work petitioners conceded oral argument face apply aliens thus unconstitutionally conflict federal law point however limiting construction given administrative regulations promulgated california director industrial relations california administrative code title part art defines alien entitled lawful residence follows alien entitled lawful residence shall mean possession form alien registration receipt card document issued immigration naturalization service authorizes work dolores canning howard cal app cal rptr whether regulations superior case appear appeal found unconstitutional without addressing whether conflicts federal law obviously california courts decide effect administrative regulations construing thus decide first instance whether extent see supra construed conflict ina federal laws regulations suffices decide time appeal erred holding congress ina precluded state authority regulate employment illegal aliens judgment appeal reversed case remanded proceedings inconsistent opinion ordered footnotes employer shall knowingly employ alien entitled lawful residence employment adverse effect lawful resident workers person found guilty violation subdivision punishable fine less two hundred dollars five hundred dollars offense foregoing provisions shall bar civil action employer based upon violation subdivision assume arguendo opinion referring illegal aliens prohibition applies aliens permitted work pertinent federal laws regulations whether correct construction statute issue remain open determination state courts remand see part iii infra insofar determination objective matter state law appeal view attempt regulate conditions admission foreign nationals may questioned another division appeal said section aimed immigration control regulation seeks aid california residents obtaining jobs dolores canning howard cal app cal rptr dolores canning also invalidated however relying inter alia guss utah labor board san diego unions garmon stating statute affect immigration several ways cal app cal also uncertain appeal viewed constitutionally proscribed state regulation immigration invalid even absent federal legislation discussion ina seems imply assumed congress clearly authorize state legislation even yet done pending congress amend provide penalty knowingly employing alien lawfully admitted see also new york dept social services dublino schwartz texas california zook course even absent manifestation congressional intent occupy field supremacy clause requires invalidation state legislation burdens conflicts manner federal laws treaties see part iii infra however conflicting law absent repealing exclusivity provisions extent necessary protect achievement aims federal law since proper approach reconcile operation statutory schemes one another rather holding state scheme completely ousted merrill lynch pierce fenner smith ware quoting silver new york stock exchange course state regulation congressionally sanctioned discriminates aliens lawfully admitted country impermissible imposes additional burdens contemplated congress federal government broad constitutional powers determining aliens shall admitted period may remain regulation conduct naturalization terms conditions naturalization see hines davidowitz constitution granted powers neither add take conditions lawfully imposed congress upon admission naturalization residence aliens several state laws impose discriminatory burdens upon entrance residence aliens lawfully within conflict constitutionally derived federal power regulate immigration accordingly held invalid takahashi fish game emphasis supplied finding ina appeal cited guss utah labor board san diego unions garmon controlling authority reliance upon decisions misplaced decisions involved labor management disputes conduct expressly committed national labor relations board regulate concerning board declined assert jurisdiction board ceded jurisdiction regulation empowered rejected argument inaction nlrb left free regulate conduct section national labor relations act expressly excluded state regulation disputed conduct unless board entered agreement state ceding regulatory authority held circumstance leave free regulate conduct plainly within central aim federal regulation involves great danger conflict power asserted congress requirements imposed state law san diego unions garmon guss garmon recognize therefore areas congress decides require national uniformity regulation congress may exercise power exclude state regulation even harmonious nothing remotely resembling nlra scheme found ina little aid derived vague illusory often repeated formula congress occupying field excluded state legislation every act congress occupies field must know boundaries field say precluded state exercise power reserved constitution discover boundaries look federal statute read light constitutional setting legislative history hines davidowitz stone dissenting construction proviso immunizing employer knowingly employs illegal aliens may possible imply view upon question appear infra federal law criminalizes knowing employment illegal aliens agricultural field sanctions appropriate state laws criminalizing conduct accordingly neither proviso congress failure enact general laws criminalizing knowing employment illegal aliens justifies inference congressional intent state regulation employment area indeed congress failure enact general sanctions reinforces inference may drawn congressional action congress believes problem yet require uniform national rules appropriately addressed local matter cited statutory provisions event relevant remand analysis actual potential conflicts federal law see also title supp iv provides upon notice hearing accordance regulations prescribed secretary may refuse issue may suspend revoke refuse renew certificate registration farm labor contractor finds contractor recruited employed utilized knowledge services person alien lawfully admitted permanent residence authorized attorney general accept employment every farm labor contractor shall refrain recruiting employing utilizing knowledge services person alien lawfully admitted permanent residence authorized attorney general accept employment solicitor general memorandum amicus curiae concedes act contemplates limited room state law argues appropriate light various alleged conflicts federal regulation appear regulations superior since held conflict federal immigration laws stating statute forbids hiring alien entitled lawful residence immigration laws many aliens may work certain classifications labor code direct conflict federal law app