Document: 507 U.S. 258 113 S.Ct. 1213 122 L.Ed.2d 604 Peter C. REITER, et al., Petitionersv.Langdon M. COOPER, Trustee for Carolina Motor Express, Inc., al. No. 91-1496. Argued Dec. 1, 1992. Decided March 8, 1993. Syllabus * The Interstate Commerce Act (ICA) requires that motor common carriers charge the tariff rates they file with Commission (ICC), 49 U.S.C. § 10762, and such be "reasonable," 10701(a). Between 1984 1986, petitioner shippers tendered shipments to a carrier subject ICC regulation, at negotiated were lower than applicable on ICC. When filed bankruptcy, respondents, trustee in bankruptcy rate auditing firm, brought adversary proceedings against petitioners Bankruptcy Court recover difference between rates. Petitioners responded, inter alia, unlawful because unreasonably high. entered judgment respondents based rates, but District reversed referred petitioners' defenses of Appeals reversed, holding "unreasonable-rate" claims no obstacle respondents' actions because, even if unreasonable, "filed doctrine" required pay those first then seek relief separate action under 11705(b)(3), which gives an express cause damages (reparations) amount determined by reasonable. Held: 1. Petitioners' unreasonable-rate 11705(b)(3) are ordinary rules governing counterclaims. Pp. ____. (a) While technically correct issue cannot asserted as defense, relate same collect and, thus, properly raised here It makes counterclaims may have been mistakenly designated defenses. See Fed.Rule Civ.Proc. 8(c). P. (b) 2-year limitation bringing civil is not since merely recoupment. United States v. Western Pacific R. Co., 352 59, 71, 77 161, 169, 1 126. (c) Nothing ICA provides that, carrier's undercharge collection action, counterclaim normally provisions Federal Rules Civil Procedure, including Rule 54(b). That permits district court enter final any claim or after making "an determination there just reason delay." doctrine"—which embodies principle shipper avoid paying invoking common-law defenses—does preclude avoidance through specifically accorded itself. Crancer Lowden, 315 631, 62 763, 86 L.Ed. 1077, distinguished. 2. Respondents' arguments yet cognizable rejected. contention prerequisite litigating reasonableness finds support ICA. Rather, related shipment property accrues delivery tender delivery, 11706(g). Nor initially present their doctrine primary jurisdiction only enable "referral" administrative agency containing within agency's special competence, does deprive jurisdiction. And exhaustion remedies—which would jurisdiction—is inapplicable here, both has long interpreted giving it power decree reparations itself, can discern intent reasonable-rate must obtained before filing action. 1220-1221. 3. courts below made "express determination" 54(b) entry claims, said categorically abuse discretion either grant deny judgment. Although insolvency claimant factor weighing claimant's favor, this say absolute bar. Curtiss-Wright Corp. General Electric 446 100 1460, 64 followed. 1221. 949 F.2d 107 (CA4 1991), remanded. SCALIA, J., delivered opinion Court, REHNQUIST, C.J., WHITE, STEVENS, O'CONNOR, KENNEDY, SOUTER, THOMAS, JJ., joined. BLACKMUN, dissented. Carter G. Phillips, petitioners. Michael Dreeben, amicus curiae leave Court. Joseph L. Steinfeld, Jr., respondents. Justice SCALIA This case presents question whether, when defends suit should proceed immediately complaint without waiting (ICC) rule issue. 2 In many ways, sequel our decision Maislin Industries, U.S., Inc. Primary Steel, 497 116, 110 2759, 111 94 (1990). facts two cases follow pattern replicated times era "deregulation" following enactment Carrier 1980, Stat. 793: A negotiates less (ICA), 10701 seq., "publish file" ICC, 10762. After paid (sometimes years after), goes bankrupt its sues Shippers' standard "undercharge" (1) attempt more agreed-upon "unreasonable practice" proscribed Act, see 10701(a), (2) high, ibid. 1989, announced policy approving these NITL-Petition Institute Rulemaking Negotiated Common Rates, 5 I.C.C.2d 623 (1989); also 3 99 (1986); Maislin, 121-122, S.Ct., 2763-2764. Our held invalid ICA, "rende[r] nugatory" specific command 10761 rate. Id., 133, 2769. thus eliminated shippers' "unreasonable-practice" expressly noted "[t]he open exploration remand." 129, n. 10, 2767, 10. problem timing arisen out California Consolidated Enterprises (CCE) Reiter. engaged business brokering transportation, essentially involves serving middleman shipping public. During period, was operating certified interstate commerce regulation several (Petitioners believed publish tariffs, never did so.) 4 respondent Langdon Cooper appointed trustee. Respondent Mark & Associates North retained conduct audit Carolina's bills, revealed undercharges (below rates) $58,793.03 CCE $13,795.73 Respondents amounts. moved stay refer refused do so re 84 B.R. 979 (WDNC 1988). 1989 (prior ), defense Appeals, appeal abeyance until 1991). light need F.2d, 109; unreasonable rate" them 11705(b)(3). 110-111. We granted certiorari. 504 ----, 112 1934, 118 541 (1992). II carriers' (called "reparations" pre-codification version statute, §§ 304a(2), (5) (1976 ed.)) reasonable 11705(b)(3).1 argue, however, unreasonableness "defense" charges true technical sense, rather defense. But establish suit, defendant having plaintiff may—indeed, often —assert counterclaim. 13; Southern Const. Co. Pickard, 371 57, 60, 83 108, 110, 9 31 (1962). certainly collect. defenses, Procedure 8(c) "the terms, justice requires, shall treat pleading had proper designation." Wright A. Miller, Practice 1275, pp. 459-460 (2d ed. 1990) ("Inasmuch clear whether set-offs recoupments viewed counterclaims, court, misdesignation provision 8(c), matter type defendant, penalize improper labelling"). 6 Under 11706(c)(2), "must begin [§ ] accrues," occurs "on carrier," presented response "recoupment"—i.e., setting off liability arising transaction. Recoupment generally barred statute limitations main timely. Bull States, 295 247, 262, 55 695, 700, 79 1421 (1935); J. Moore, B. Ward, Lucas, Moore's ¶ 13.11 There apply suits we indeed already done so. 126 (1956), nearly identical one prohibit (the States) from asserting "by way defense" seeking previous shipments. distinguish ground unique statutory set-off right (now codified 3726), allowing deduct amounts due prior overcharges carrier. well essential case, some withheld (they other subjects suits). rationale recoupment here: "Only clearest congressional language could force us result allow impunity suit." 169. Glama Dress Mid-South Transports, 335 I.C.C. 586, 589 (1969). Courts understood expressing narrow general contexts. Distribution Services, Ltd. Eddie Parker Interests, 897 811, 813 (CA5 1990); Smith, 737 1549, 1554 (CA11 1984); East 60th Owners, Bonner Properties, 677 200, 203 (CA2 1982); Luckenbach S.S. 312 545, 549, 1963). 7 One major consequence attach fact defense: possibly adjudicated separately plaintiff's applies; be. counterclaim, Sears, Roebuck Mackey, 351 427, 76 895, 1297 (1956); Cold Metal Process Engineering Foundry 445, 904, 1311 (1956). largely discretionary, 1466, (1980), exercised "judicial interests equities involved," id., 1465, weight " 'the historic federal piecemeal appeals,' (quoting supra, 438, 901).2 8 undercharges, Rules. contend so-called entitlement disagree. payment ignorance, estoppel, agreement different Texas Mugg, 202 242, 245, 26 628, 630, 50 1011 (1906); Louisville Nashville Maxwell, 237 94, 98, 35 494, 495, 59 853 (1915); Pittsburgh, C., S.L.R. Fink, 250 577, 581-582, 40 27, 27-28, 63 1151 (1919). assuredly rate, agree latter category include "unreasonable-rate defense," derived requirement 10701(a)) "reasonable." T.I.M.E. 359 464, 468-472, 907-909, 952 (1959). precludes (by counterclaim) rights explicitly conferred Contrary contention, preclusive effect over established 1077 (1942). There, sued rail challenged sought opportunity denied unlike petitioners, counterclaim; instituted proceeding (as allowed carriage) Reply Brief Petitioners, p. 13, Respondents, 18, O.T.1941, 505, precluded court. (1946 ed.). Moreover, all "there trial judge," balanced ICC's determination. 636, 765. Thus, ruled rates; prohibited doing entirely consistent here. III 10 raise First, argue exists what denominate "pay first" rule, whereby "prerequisite issue." 23. Milne Truck Lines, Makita U.S.A., 970 564, 572 (CA9 1992) (embracing similar theory). argument merit ex rel. Cement 246 638, 38 408, 914 (1918), still good law. shipper's accrue "until charges." 644, 410. "if Congress intended received, carrier, . simple obvious form intention used." Ibid. Within years, enacted stating "cause respect deemed upon delivery." Transportation 1920, 424, 41 492. survives substantially text now theoretically possible create time purpose calculating begins run, another will infer odd absence indication statute. therefore hold assert payment, delivered. 11 Secondly, reflects mistaken understanding jurisdiction, contain competence agency. agency, staying further give parties ruling.3 Pacific, 63-64, 164-165; Ricci Chicago Mercantile Exchange, 409 289, 291, 302, 93 573, 574, 580, 34 525 (1973); Port Boston Marine Terminal Assn. Rederiaktiebolaget Transatlantic, 400 62, 65, 68, 91 203, 206, 208, 27 (1970). Referral jurisdiction; retain or, unfairly disadvantaged, dismiss prejudice. Carnation Westbound Conference, 383 213, 222-223, 781, 787, 15 709 (1966); Mitchell Coal Coke Pennsylvania 230 266-267, 33 916, 924-925, 57 1472 (1913); Jaffe, Jurisdiction, Harv.L.Rev. 1037, 1055 (1964). 12 produced, remedies. Where available ordinarily pursue avenue redress courts; recourse exhausted, premature dismissed. Myers Bethlehem Shipbuilding Corp., 303 41, 50-51, 58 459, 463-464, 82 638 (1938); Heckler Ringer, 466 12, 80 622 (1984). relief. Shortly law "grant initial award reparations"; rather, "shippers' courts," "refer" Commission. Informal Determining Freight Forwarder Reparation, 403, 413 continues adhere view. Amicus Curiae 9, 6; NITL—Petition I.C.C.2d, 106-107; 625, 630-631. find least interpretation hence binding one. Chevron U.S.A. Natural Resources Defense Council, 467 837, 104 2778, 81 694 13 though relief, Since period running shipment, enters order, compare 11706(c)(2) (g), 11706(e), expire acted. disposed implicit prior-agency-determination consequences. IV 14 concluded reversed. Neither nor where solvent promptly initiated favor principal claim: referral produce substantial delay, disapproved legal Keogh Northwestern 260 156, 163, 43 47, 49, 67 183 (1922); Arizona Grocery Atchison, T S.F.R. 284 370, 384, 52 183, 184, 348 (1932); Lowden Simonds-Shields-Lonsdale Grain 306 516, 520, 612, 614, 953 (1939). change, suing bankruptcy. Indeed, previously "threat insolvency" party it. Curtiss-Wright, 1467. Even so, Conceivably, determine judgment—for example, threat become insolvent, 62(h) protect entering enforcement condition deposit 3, 1467, remanded opinion. 16 ordered. 17 BLACKMUN dissents. syllabus constitutes part prepared Reporter Decisions convenience reader. Detroit Lumber 200 321, 337, 282, 287, 499. Section relevant part: "A providing transportation service liable resulting imposition violation subtitle." For purposes applying arose 54 fully 7008 7054, minor variation (not here) 7013. settled, moreover, meet plaintiff-debtor's transaction, extent seeks B L Oil 782 155, 157 (CA10 1986); Lee Schweiker, 739 870, 875 (CA3 1984). "just issue," "no element preference." Collier Bankruptcy, 553.03, 553-17 (15th "Referral" sometimes loosely described process refers See, e.g., 28 1336. (like most statutes) contains mechanism own authority demand request agency; left system, while files 11701(b). 11705(c)(1) (second sentence). Use term describe seems originated issues arise, judicial suspended pending body views." 64, 165, At conclusion passage, cited American Tank Car El Dorado 308 422, 433, 60 325, 331, 361 (1940), turn (1913). spelled actual procedure contemplated, "be stayed ruling practice," 267, 924.

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