
The relationship between federal, state, and local governments in the United States is complex, and the laws at each level can sometimes conflict. The general rule is that federal law supersedes state law, and state law supersedes municipal law. This is known as preemption. However, some state constitutions allow for cities to have Home Rule powers, which grant them expanded authority over local affairs. In practice, the interplay between these different levels of government can be nuanced and subject to change.
| Characteristics | Values |
|---|---|
| Can a town go against state law? | No, state law typically overrides town law. |
| What is this called? | Preemption |
| Can towns have their own laws? | Towns can have their own laws, called municipal laws or local ordinances, but these are superseded by state laws. |
| What is home rule? | Home rule is when a town votes on and adopts its own Bill of Rights and charter that asserts its right to self-govern. |
| Can towns have "home rule" powers? | Some state constitutions allow for cities to have "home rule" powers. |
| What happens when state and town laws conflict? | If a town code is passed pursuant to a power delegated within the Town Charter and the ordinance conflicts with a general statute, the town ordinance may supersede the general statute. |
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What You'll Learn

State law typically overrides municipal ordinances
State preemption has been increasingly used more aggressively, often by red states against blue cities. For instance, the state legislature in Missouri, a red state, preempted attempts to raise the minimum wage in St. Louis, a blue city. Similarly, several Virginia municipal governments, which are blue, passed firearms resolutions that were overridden by the state law.
However, shared party affiliations do not guarantee agreement between state and local governments. For example, in Delaware, a local anti-abortion ordinance was struck down by a state court. In another instance, the Pennsylvania Department of Environmental Protection reapproved PGE's injection well permit, which conflicted with Grant Township's home-rule charter, resulting in a lawsuit.
Conflicts between state and local laws can be complicated, and it is not always clear if there is a legal conflict. A conflict arises when complying with a local ordinance would require breaking a state law or when enforcing the local ordinance would hinder the purpose of the state law. In such cases, the state law typically takes precedence and must be obeyed.
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Preemption: when a higher level of government overrules a lower level
Preemption is a legal concept that allows a higher level of government to overrule a lower level of government. In the United States, this can occur at the federal, state, and local levels. For example, federal law can preempt state law, and state law can preempt local ordinances. This typically occurs when laws at different levels of government conflict with each other.
The preemption doctrine holds that a higher authority of law will displace the law of a lower authority when the two conflict. This can occur regardless of whether the conflicting laws come from legislatures, courts, administrative agencies, or constitutions. For example, the Voting Rights Act, an act of Congress, preempts state constitutions, and FDA regulations may preempt state court judgments in cases involving prescription drugs.
There are three main types of preemption conflicts: outright conflict, express preemption, and implied preemption. An outright conflict occurs when an ordinance directly opposes a state law. Express preemption occurs when a state law directly opposes a local power. Implied preemption is more controversial and occurs when one of the following happens: the local ordinance prohibits an act permitted by the state legislature, the local ordinance permits an act prohibited by the state legislature, or there is clear legislative intent that the "field" is preempted by state law.
Preemption conflicts can emerge between state and local governments due to differences in the partisan makeup of the respective governments. For example, Democratic-led cities may be preempted by Republican state governments, as in the case of St. Louis, where the state legislature preempted efforts to increase the minimum wage. Similarly, Democratic state governments may conflict with Republican-led localities, such as when several Virginia municipal governments passed firearms resolutions that were preempted by state law.
In some cases, local ordinances may preempt state law. According to the City of Riverside v. Island Empire Patients Health and Wellness Center Inc. (2013), if significant interests for a particular issue vary from locality to locality, courts will favor the validity of local ordinances unless the state statute expressly forbids them.
Preemption can also occur at the federal level, as seen with the Trump administration's executive order, which preempted local and state laws regarding detainer requests from U.S. Immigration and Customs Enforcement (ICE).
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Home rule: a town's right to self-govern
In the United States, the concept of "home rule" refers to a town or city's authority to exercise powers of local governance. This idea of self-governance is often at odds with the principle of "preemption", where a higher level of government (such as state or federal) can overrule local laws. While the Constitution does not mention cities, courts have long accepted that cities are subject to state authority.
The National League of Cities identifies 31 Dillon's Rule states, 10 home rule states, 8 states that apply Dillon's Rule to certain municipalities, and Florida, which applies home rule to everything except taxation. Dillon's Rule states that local governments may only exercise powers specifically granted to them by the state. In contrast, home rule states grant municipalities the ability to pass various types of laws to govern themselves, provided they do not conflict with state and federal constitutions.
The tension between city and state laws often arises when towns try to keep out certain businesses or pass ordinances that the state deems unacceptable. For example, over 200 communities in the US have created their own Bill of Rights Ordinances to protect their natural resources and establish their right to say no to unwanted business activities. However, when a town votes to stop a business from conducting harmful activities, such as fracking or waste dumping, the state can overrule their decision. This conflict between city and state rights has led to court battles, with towns defending their right to self-governance and states asserting their authority over local laws.
Some states, like North Carolina, have gone as far as passing laws that bar cities from passing specific regulations, such as non-discrimination ordinances. On the other hand, some cities, like Charlotte, NC, have passed ordinances protecting LGBT rights, only to be overturned by their state governments. These conflicts between city and state laws often centre around issues like abortion, marijuana, gun control, and immigration policies. While states typically have the power to override local laws, there are instances where public opinion and economic consequences can influence their decisions, as seen in the case of North Carolina and the NBA All-Star game boycott.
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Sanctuary cities: local governments that restrict federal immigration enforcement
In the United States, the relationship between federal, state, and local laws is complex and often contested. While the Constitution does not mention cities, courts have long accepted that cities are "creatures of the state", meaning that state law typically overrides municipal ordinances. This is known as preemption, where a higher level of government uses its authority to overrule a lower level. However, this does not always play out so simply, and there are numerous examples of conflicts between state and local laws.
One area where this conflict is evident is in the emergence of "sanctuary cities". Sanctuary cities are jurisdictions that have adopted policies limiting their cooperation with federal immigration enforcement. These policies can take many forms, including restricting the ability of local police to make arrests for federal civil immigration violations or to detain individuals on civil immigration warrants, prohibiting agreements with Immigration and Customs Enforcement (ICE) to deputize local law enforcement, and preventing the construction of immigration detention centers. Sanctuary cities argue that these policies are necessary to protect public safety, determine how to allocate resources, and shield local law enforcement from liabilities resulting from local enforcement of federal immigration laws.
While there is no official or legal definition of a sanctuary city, the concept has sparked intense debate in recent years, particularly during the 2016 presidential campaign of Donald Trump, who made attacking sanctuary policies a cornerstone of his platform. Trump's administration took several steps to challenge sanctuary jurisdictions, including threatening to withhold criminal justice grants unless cities and counties complied with federal statutes mandating information-sharing with the Department of Homeland Security (DHS). However, it is important to note that federal actions to force local jurisdictions to perform immigration enforcement are likely unconstitutional, as the Tenth Amendment prohibits the federal government from compelling states and localities to participate in immigration enforcement.
Despite the lack of a clear definition, sanctuary cities can be found throughout the United States, including in states such as Arizona, Alabama, and North Carolina. These jurisdictions have faced backlash from their state governments, which have passed laws to overturn sanctuary policies and compel cooperation with federal immigration authorities. The conflict between sanctuary cities and state governments continues to evolve, with ongoing court battles and shifting public opinion playing a significant role in shaping the future of immigration enforcement in the United States.
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State constitutions and municipal autonomy
The relationship between state and municipal law in the United States is a complex one, with several conflicting interests and outcomes. While states have their own constitutions or codes, judicial systems, and police powers to enforce the law, municipalities (cities, towns, or villages) also have their own local governments and laws. This often results in conflicts between state and municipal laws, where the question of autonomy arises.
Municipalities have unique ordinances that can affect businesses and residents, such as local taxes and regulations. They may also have specific rules for starting and operating businesses, zoning laws, and even rules governing school systems. However, when it comes to the conflict between state and municipal laws, state laws typically override municipal ordinances. This is known as "preemption," where a higher level of government uses its authority to overrule a lower level. For example, a state may pass a law that contradicts or invalidates a municipal ordinance, as seen in the case of North Carolina's HB2, which barred its cities from passing non-discrimination regulations.
On the other hand, states often grant a certain degree of autonomy to municipalities, allowing them to adopt their own charters and exercise self-governance to some extent. This concept is known as "home rule," where municipalities can vote on and adopt their own Bill of Rights, asserting their right to make decisions on issues like harmful business activities or environmental protection. Over 200 communities in the US have created their own Bill of Rights Ordinances to protect their natural resources and establish their right to say no to unwanted business activities.
However, the extent of municipal autonomy varies from state to state, and there is a lack of comprehensive research on state provisions related to local government structure and autonomy. According to one study, 28 states give the majority of their municipalities the power to customize their form of government, while 21 states do not. Additionally, special districts, recognized by the Census Bureau, can function autonomously and provide services for designated areas, including multiple states if there is an interstate contract.
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Frequently asked questions
Generally, no. State law typically preempts town law, and conflicts between the two are resolved in favour of the state. This is called preemption.
Preemption is a legal concept that allows a higher level of government to overrule a lower level. So, federal law can be used to preempt state or local law, and state law can be used to preempt local ordinances.
Yes, but only in certain circumstances. If a town has been granted "Home Rule" powers by the state constitution, and the town code is passed pursuant to power delegated within the Town Charter, then the town ordinance may supersede a general statute.
Home Rule is a legal doctrine that gives local governments expanded power over their local affairs. It allows towns to vote on and adopt their own Bill of Rights and charter, asserting their right to self-govern.

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