Document: 414 U.S. 453 94 S.Ct. 690 38 L.Ed.2d 646 NATIONAL RAILROAD PASSENGER CORPORATION et al., Petitioners,v.NATIONAL ASSOCIATION OF PASSENGERS. No 72—1289. Argued Nov. 12, 1973. Decided Jan. 9, 1974. Rehearing Denied Feb. 25, See 415 952, 1478. Syllabus* Respondent brought this action to enjoin discontinuance of certain passenger trains on the ground that such was prohibited by Rail Passenger Service Act 1970 (Amtrak Act). The District Court dismissed respondent lacked standing under § 307(a) Amtrak Act, which confers jurisdiction federal district courts grant equitable relief petition Attorney General or, in a case involving labor agreement, any affected employee, including authorized employee representatives, if or railroad acts inconsistently with fails discharge its responsibilities thereunder. Appeals reversed, holding did have and 307(s) does not otherwise bar suit an allegedly aggrieved private party. Held: Section 307(a), light express language, legislative history provision as whole, provides exclusive remedies for breaches duties obligations imposed no additional cause enforce compliance can properly be inferred. Pp. 455—465. 154 U.S.App.D.C. 214, 475 F.2d 325. Reversed remanded. E. Barrett Prettyman, Jr., Washington, D.C., petitioners. Gordon P. MacDougall, respondent. Mr. Justice STEWART delivered opinion Court. 1 respondent, National Association Railroad Passengers (NARP), announced had previously been operated Central Georgia Railway Co. (Central). Named defendants were Central, parent, Southern (Southern), Corp. (Amtrak), all are petitioners question before us is whether maintainable applicable law. 2 After enactment Act), 84 Stat. 1327, 45 U.S.C. 501 seq., contracted latter assume Central's intercity rail service responsibilities.1 has entered into contract Amtrak. train discontinuances precipitated pursuant 404(b)(2) 564(b)(2).2 gravamen respondent's complaint these by, fact Act.3 concluded lacks 307 547, accordingly action. reversed held party who aggrieved.4 We granted certiorari decide maintained Act. 411 981, 93 2273, 36 957 (1973). 3 In Appeals, parties approached from several perspectives. issue variously stated read create right provisions; court terms entertain suit; bring suit. Because reference each instance behind provision, questions overlap context even more than they ordinarily would. But, however phrased, threshold clearly other law creates whereby Act; it only exists we need consider it. 4 pointed outside itself imply seeks against It follows support bringing must found, at all, within four corners section authorizes suits provides: 5 'If Corporation engages adheres action, practice, policy inconsistent policies purposes chapter, obstructs interferes activities refuses, fails, neglects threatens violation, obstruction, interference, refusal, failure, neglect, United States person resides may found shall jurisdiction, except law, upon thereby, duly necessary appropriate prevent terminate conduct, threat.' 547(a). 6 terms, purports confer history, however, makes clear congressional purpose authorize types enforcement Act's provisions. House Report explained follows: 7 'Section sue corporation omission commission violation legislation. agreements, individual employees representatives relief.' H.R.Rep. No. 91—1580, p. 9 (1970), U.S.Code Cong. & Admin. News, 4743. 8 language creating public General, created explicitly limited 'a agreement.' Thus, authority 307(a). argument made, serves should preclude causes claims passengers intended beneficiaries therefore J. I. Case v. Borak, 377 426, 431—432, 1555, 1559—1560, 12 423 (1964). goes without saying, inference statute consistent evident intent and, course, effectuation served A frequently principle statutory construction when legislation expressly particular remedy remedies, expand coverage subsume remedies. 'When limits thing done mode, includes negative mode.' Botany Worsted Mills States, 278 282, 289, 49 129, 132, 73 L.Ed. 379 (1929). This reflects ancient maxim—expressio unius est exclusio alterius. Since provisions very circumstances, maxim would compel conclusion means But most basic general principles yield contrary evidence intent. Neuberger Commissioner, 311 83, 88, 61 97, 101, 85 58 (1940). Accordingly, turn 10 original draft differed present form respects. conferred (but railroads) 'upon thereby . ..'5 At hearings Committee, organized took aspects proposed changes. One proposals railroads well Another 'any adversely Corporation.' proposal, one spokesman testified: 11 'The amendment propose modify so provide party, could institute legal proceedings violations 'As bill now reads, cases actions.' Supplemental Hearings H.R. 17849 S. 3706 Subcommittee Transportation Aeronautics Committee Interstate Foreign Commerce, 91st Cong., 2d Sess., ser. 91—62, 134 (1970) (emphasis added). 13 Secretary Transportation, primary administrative officer responsible implementation sent letter Chairman commenting His he object allowing Amtrak.6 As proposal amend permit 'aggrieved person,' stated: 14 'Sanctions normally Government. Consequently, I opposed permitting person' seek 307. objection, revised affected, Hearings. supra, 85. 15 Thereafter, redrafted conformity Secretary's recommendations. Committee's redraft finally enacted Amtrak, permitted agreements 'duly representatives' employees, but aggrieved.' 16 Both thus interpreted precluding actions those specifically therein. Although transcript indicate member voiced explicit affirmative agreement interpretation, surely unlikely members stood mute disagreed Especially substantial role eventual Act,7 cannot conclude his interpretation accorded significant weight Committee. 17 them specific altered being placed deliberate failure adopt after learning views, give agreed meaning effect existing opposition change. These factors indicia legislators understood written area 'involving indication committee reports. is, same settled rules construction. 18 also completely whole generalized history. outlining Report, referring comment noted '(i)n order achieve economic viability system, there will 'paring uneconomic routes." 4737. Congress rational reduction required save service.' Ibid. original). 404 provided efficient eliminate routes (other 'basic system' designated time augmented Transportation) necessity submitting time-consuming state regulatory bodies Commerce Commission passage.8 If, lawsuits trains, then regard substitute formerly pass discontinuances.9 19 If view prevail, plaintiff secure injunctive process 'uneconomic' pendente lite, force continue train's operation incur resulting deficits dislocations entire system while considered propriety discontinuance.10 through since myriad possible plaintiffs, potential exist barrage that, either individually collectively, frustrate severely delay discontinuance. Even eventually upheld discontinuance, judgment control another not, event, obviate loss interim sums diversion rolling stock heavily traveled routes. undercut apparatus sought use routes.' product anomalous result procedure considerably less existed before, longer single forum determine permissibility place bodies, substituted whose jurisdictions might run. 20 intend replace delays often inherent contemplated 13a probably greater multiple proceedings.11 Instead, clothed (except agreements) police various scrutiny operations subject both Executive, quite rationally suppose effectively correct Act.12 21 For reasons hold inferred.13 remanded further opinion. 22 ordered. 23 24 POWELL part consideration decision case. 25 BRENNAN, concurring. 26 am convincing expression Congress' anyone situations representative maintaining petitioners, leave open mandamus 28 1361 refusal act though authority—went 'beyond exercise discretion.' ex rel. Schonbrun Commanding Officer, Cir., Armed Forces, 403 371, 374 (CA 1967); see Byse Fiocca, Mandamus Venue 1962 'Nonstatutory' Judicial Review Federal Administrative Action, 81 Harv.L.Rev. 308, 333—335 (1967). 27 DOUGLAS, dissenting. 1970, creation passage. With 'the expectation rendering (rail) along corridors (could) made profitable commercial undertaking,' established private-for-profit corporation. 541; H.R.Rep.No.91 1580, Admin.News, 4735. until January 1, 1975, tender release responsibility service. 564(a). Unless render service, discontinue prior laws constitution State, of, pendency proceeding State court, agency, notwithstanding.' Those services yet put together 202 unique sense 'shall reviewable court.'1 522. 29 Our problem concerns, what called oral 'excess' lines absent mandate whatsoever 1975.' 30 phrases 'right action' exists, saying 'standing' 'jurisdiction' presented. Whatever merits distinction between three concepts some situations, difference here matter semantics. lack 'standing.' ruling argue basis Solicitor appeared amicus curiae granting conceives By Court's own admission where judicial review foreclosed. 547(a), May enforced unions? Standing existence identical posture 31 semantics, Passengers, national organization patrons, Co.2 Savannah Atlanta, Georgia, Albany, Birmingham, Alabama. 32 gives power obtain acting Petitioners restricts employees. That seems strained think drawn words wanted make sure agency oversight over activity Hence standing, General. Moreover, out penumbra persons, having rights collective agreements. left untouched 1337 '(t)he civil arising regulating commerce ..' Aggrieved obvious complainants comes saving extinction. Certainly discontinued suffer injury zone interests protected satisfy two requirements Data Processing Organizations, Inc. Camp, 397 150, 90 827, 124. third—that precluded—it plain me Appeals. Where denial review, test 'nonreviewability fairly inferred.' Barlow Collins, 159, 166, 832, 837, 838, 192. And, 'is rule, nonreviewability exception demonstrated,' preclusion lightly '(O)nly showing 'clear evidence' restrict access review.' Abbott Laboratories Gardner, 387 136, 141, 87 1507, 1511, 681. 33 screen voting procedures discriminatory Allen Board Elections, 393 544, 89 817, deprive citizens sue. 34 achievement laudable goal hampered, citizen depend solely litigation instituted discretion example, extend subdivisions thereof. staff unable uncover quickly new regulations enactments passed varying levels government. broad allow insure city county government complies approval requirements.' Id., 556 557, 827. (footnotes omitted). 35 busy person; credible believe him precludes prime casualties discontinued. Each availability stands feet. Switchmen's Union North America Mediation Board, 320 297, 64 95, 88 61, denied collective-bargaining neutral Board. There body construing enabling sue, largely own. General's correction Act.4 So far ascertain intruded case.5 To complete nonreviewable Amtrak's decisions. came group' carriers. clear. policing given operating profit, absolution seldom willing bestowed agencies. purpose. 37 deal tradition 'for fashion concerned.' Textile Workers Lincoln Mills, 353 448, 457, 77 912, 918, 972. sanctioned preserve improve protect per se nor rem purpose, dedication legalisms overlooks, people ride trains. much fours 423, unlawful solicit proxies prescribed Securities Exchange Commission. stockholders corporate deceptive proxy solicitation. Yet play area: 'Private supplement antitrust treble damage litigation, possibility damages effective weapon requirements. advises examines 2,000 statements annually necessarily expedited. Time independent examination facts set material results Commission's acceptance representations contained therein their face value, unless file it.' 432, S.Ct., 1560. 39 mood close doors let bureaucracies roll absolutism. When victims venality caprice allowed heard, abuses monsters become intolerable. separation powers designed provide, supremacy, checks balances. back transportation debacle. complain adventurers personal aggrandizement do jackals historically fattened debacles. crisis fortune. heard. They stringent laid down Baker Carr, 369 186, 82 691, 663, 'such stake outcome controversy assure concrete adverseness sharpens presentation issues 204, 703. 40 affirm rationalization based jurisdiction. * syllabus constituted prepared Reporter Decisions convenience reader. Detroit Timber Lumber Co., 200 321, 337, 287, 50 499. 401 561, undertake Upon entering contract, merely filing 30-day notice Commission, accordance 13a. Except pertinent, 564(b)(2) initiative. position subsidiary Southern, enter contends comply 401(a)(1) because parent company, 401(a)(1), railroad's relieve declining so. argues statutorily 404(a), 564(a), discontinuing 1975. unreported. appears 325 Supp. Hearing H.R.17849 S.3706 Subcomm. Comm. 9—62, 44 (1970). oppose amendment, expressed unnecessary sanctions other, statutes amenability written. See, e.g., §§ 521, 522, 548(c), 563(a), 602, 621, 645 (1970 ed. II). n. 2, supra. Before 1958, desiring permission commissions. effort reduce losses operations, 13a, gave option bypassing agencies petitioning Under filed continuance complaint. Either initiative, investigation begin investigation, long months. finds interest, require route period year. Orders approving disapproving review. R. Carolina, 376 93, 564, 541 hand, decides permissible conduct already begun, recourse decision. New Jersey 168 F.Supp. 324 (N.J. 1958), aff'd, 359 27, 79 607, 625 (1959); City Chicago 396 162, 309, 340 (1969). takes passenger, courts. Only conducts order, eliminated available. substituted, matters covered statute, Just complaint, likewise refused reason apparent underlying substantially equivalent pre-existing real demonstrated experience Wood Corp., 341 908 (D.Conn.1972), extended temporary restraining challenge dissolved prevailed merits. response dissatisfaction Senate observed, 'trains useful kept protracted proceedings.' S.Rep. 91—765, 'protracted proceedings' 644, authorizing Comptroller audit books record, 548, requiring periodic reports President concerning operations. became immaterial. finding relied primarily 184 1337. ICC pre-Act 564(b)(3). undertaken initiative time. 564(b)(2). Excess lines, continuous years. 563(a). While not. Whether bars passenger-train below, relevance us. Title 547(a) refusing involved consolidated Office (45 547(a)) purely technical violation.' Letter Assistant L. Patrick Gray III Congressman John Slack, 19, 1971, Brief 29, 30. noted, 'have refer instigated participated few intervened defense sue.' Potomac Assn. Chesapeake Ohio 227, 325, 338 On informed instances obtained declined act.

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