lving the federalization of activity that is within the States' historic police power, Congress must speak with particular clarity. See, e.g., Will Y. Michigan Dept of State Police, 491 U.S. 58, 65 (1989). 12 3505-019 Page 58 of 63 SUBJECT TO PROTECTIVE ORDER PARAGRAPHS 7, 8, 9, 10, 15, and 17 EFTA_00003330 EFTA00157712