Document: 494 U.S. 1 110 S.Ct. 914 108 L.Ed.2d J. Paul PRESEAULT, et ux., Petitionersv.INTERSTATE COMMERCE COMMISSION al. No. 88-1076. Argued Nov. 1, 1989. Decided Feb. 21, 1990. Syllabus Because pre-existing federal law failed to deal adequately with the national problem of shrinking rail trackage, Congress enacted National Trails System Act Amendments 1983 (Amendments) (Trails Act), which authorize Interstate Commerce Commission (ICC or Commission) preserve for possible future railroad use rights-of-way not currently in service and allow interim land as recreational trails. Section 8(d) this so-called "rails-to-trails" statute provides that a wishing cease operations along particular route may negotiate State, municipality, private group prepared assume financial managerial responsibility right-of-way. If parties reach agreement, may, subject ICC-imposed terms conditions, be transferred trail operator notwithstanding whatever reversionary interests exist property under state law. no agreement is reached, abandon line entirely, thereby allowing revert abutting landowners if applicable easements provide such reversion. After Vermont Railway, Inc., stopped using right-of-way adjacent petitioners' Vermont, petitioners brought state-court, quiet title action, alleging railroad's easement had been abandoned thus extinguished, therefore reverted them Holding it lacked jurisdiction because ICC authorized abandonment still exercised exclusive over it, court dismissed State Supreme Court affirmed. Petitioners then sought certificate from ICC, but granted petition permit discontinue transfer city Burlington § 8(d). The Federal Appeals affirmed, rejecting contentions unconstitutional on its face takes without just compensation violation Fifth Amendment valid exercise Congress' Clause power. Held: 1. Even rails-to-trails gives rise taking, available Tucker Act, requirements are satisfied. Since their legislative history do mention Act—which Claims claims against Government recover damages founded on, inter alia, Constitution—the exhibit type "unambiguous intention" withdraw remedy necessary preclude claim Act. See Ruckelshaus v. Monsanto Co., 467 986, 1019, 104 2862, 2881, 81 815. 101 Amendments—which "authority . make payments shall effective only extent amounts provided advance appropriation Acts"—does not, claim, indirectly manifest intent by rendering "unauthorized," approved payment advance, any rail-to-trail conversion could result litigation. speaks capacious right-of-way, clearly authorizes conversions giving does support contention. That there explicit promise pay takings irrelevant, since constitutes an implied individual laws need reiterate. Moreover, themselves "arise" made "under" separately appropriated Judgment Fund. Nor statements indicating desire operate at "low cost" demonstrate unambiguous remedy, generalized protect public fisc insufficient purpose, see, e.g., Regional Rail Reorganization Cases, 419 102, 127-128, 95 335, 350-351, 42 320, might simply reflect rejection more ambitious program federally owned managed failure renders challenge ICC's order premature, determine whether taking occurred. Pp. 11-17. 2. stated congressional purposes—(1) encourage development additional trails basis (2) established reactivation service—are objectives reasonably adapted. were correct banking purpose sham concealing true preventing reversion owners after abandonment, would they adapted goal encouraging There requirement serve than one legitimate purpose. free rational-basis standard review hold invalid advanced completely measures Draconian 8(d)—such mandatory prohibition all abandonments. long attempts address abandonments sufficient reason defer judgment appropriate answer. Furthermore, light history, was entitled every potentially valuable asset meriting preservation even foreseeable, so fact must certify convenience necessity before granting indicate fails promote preserving corridors. 17-19. 853 F.2d 145 (CA2 1988), BRENNAN, J., delivered opinion unanimous Court. O'CONNOR, filed concurring opinion, SCALIA KENNEDY, JJ., joined, post, p. Michael M. Berger, Los Angeles, Cal., petitioners. Brian Martin, Washington, D.C., respondents. John K. Dunleavy, New York City, Justice BRENNAN question presented constitutionality unused converted into contend violates both Takings Clause, Art. I, 8. We find unnecessary evaluate merits we 28 U.S.C. 1491(a)(1) (1982 ed.), also power Clause. 2 * A. 3 issue case, (Amendments), Pub.L. 98-11, 97 Stat. 48, 90-543, 82 919 (codified, amended, 16 1241 seq.), culmination efforts trackage converting trails.1 In 1920, Nation's railway system reached peak 272,000 miles; today about 141,000 miles use, experts predict 3,000 will year through end century.2 Concerned loss included Railroad Revitalization Regulatory Reform 1976 (4-R 94-210, 90 144, 49 10906 several provisions aimed promoting abandoned3 lines 809(a) 4-R required Secretary Transportation prepare report alternative uses rights-of-way. 809(b) Interior conservational financial, educational, technical assistance local, state, agencies. note following ed.). 809(c) delay disposition up 180 days date permitting unless first offered sale reasonable purposes including use. 4 By 1983, recognized these "ha[d] successful establishing process immediately active can utilized purposes." H.R.Rep. 98-28, 8 (1983) (H.R.Rep.); S.Rep. 98-1, 9 (S.Rep.) (same), U.S.Code Cong. & Admin.News pp. 112, 119. right-of-way.4 conditions; entirely liquidate interest.5 5 amended "shall treated, rule law, 1247(d). This language typical case many railroads own outright rather similar interests. While vary, frequently reverts landowner upon operations. generally governs interests, course "exclusive plenary" regulate abandonments, Chicago North Western Transp. Co. Kalo Brick Tile 450 311, 321, 1124, 1132, 67 258 (1981), impose conditions affecting postabandonment property. Hayfield Northern R. 622, 633, 2610, 2617, 527 (1984). deeming like discontinuance see n. 3, supra, prevented reverting law: 6 "The key finding amendment when itself remains intact purposes, constitute purposes. alone should eliminate problems program. concept attempting establish formal self-defeating; once nothing left ensure potential considered prior abandonment." H.R.Rep., 8-9, 119, 120. 7 S.Rep., (same). primary has violated precluding B interest Vermont. 1962, acquired Rutland Railway Corporation's leased Inc. decade ago removed equipment, switches, bridges, track, portion claimed 1981, action Superior Chittenden County, operation August holding it. Trustees Diocese Vt. 510, 496 A.2d 151 (1985). ICC. intervened, claiming fee simple arguing that, State's easement, while being used petitioned Notice Exemption decided January 2, 1986, allowed between 51 Fed.Reg. 454-455. On February 4, Chairman denied application stay pending administrative review,6 decision became 5, 1986. Petitioners' motion reconsideration and/or clarification July 17, 1987. noted "[i]nevitably, conflict rights owners, very Act." Inc.—Discontinuance Service I.C.C.2d 903, 908. 10 Second Circuit, rejected arguments. (1988). It reasoned "plenary authority" id., 151, determining right held "For determines 'railroad purpose,' retains rights-of-way; matter immediate future." Ibid. believed vest until determined appropriate, concluded did taking. Next, found two Clause: "preserving corridors use" "permitting trails." Id., 150. challenge. certiorari. 490 1034, 109 1929, 401 (1989). II 11 relevant part "private [shall not] taken compensation." "does prohibit property, instead places condition power." First English Evangelical Lutheran Church Glendale County 482 304, 314, 107 2378, 2385, 96 250 (1987). designed "not limit governmental interference per se, secure event otherwise proper amounting taking." 315, S.Ct., 2385-2386 (emphasis original). require paid contemporaneously Williamson Planning Comm'n Hamilton Bank Johnson 473 172, 194, 105 3108, 3120, 87 126 All existence " 'reasonable, certain adequate provision obtaining compensation' time 124-125, 349, 320 (1974) (quoting Cherokee Nation Southern Kansas 135 641, 659, 965, 971, 34 L.Ed. 295 (1890)). "If government compensation, resort 'yield[s] compensation,' owner 'has Government' Comm'n, U.S., 194-195, 3121 1013, 1018, 815 (1984)). 12 For reason, "taking premature availed 195, 3121; United States Riverside Bayview Homes, 474 121, 106 455, 459-460, 88 (1985); Monsanto, 1016, 2879; Duke Power Carolina Environmental Study Group, 438 59, 94, 39, 98 2620, 2641, 57 595 (1978). providesjurisdiction Constitution, statute, regulation, express implied-in-fact contract. ed.); 1346(a)(2) (Little creates concurrent district courts exceeding $10,000 amount). 'founded Constitution' within [Claims Court] hear determine." Causby, 328 256, 267, 66 1062, 1068, 1206 (1946). 13 critical therefore, arising out pursuant Amendments. inquiry "expresses affirmative showing recourse remedy," "whether [statute] withdrawn grant suit involving Constitution.' 126, 350 Under standard, conclude remedy. intention claim. Glosemeyer Missouri-Kansas-Texas 685 F.Supp. 1108, 1120-1121 (E.D.Mo.1988), aff'd, 879 316, 324-325 (CA8 1989). 14 Neither nor mentions As indirect evidence prevent point which, although codified that: 15 "Notwithstanding other authority enter contracts, payments, Acts." 42, 1249. section limits those requiring expenditure funds others advance. Thus, litigation Congress, acquisition have insist unauthorized actions cannot create liability, citing Hooe States, 218 322, 31 85, 89, 54 1055 (1910), 127, 16, 350, 16. 17 decide what types official authorization, any, liability Amendment, "interim rights-of-way" added) proposed distinction not. Although explicitly takings, always assumed "implie[d] promis[e]" Yearsley W.A. Ross Construction 309 18, 60 413, 414, 84 554 (1940). argument specific authorization thinly veiled attempt circumvent method relief statute. reaffirm exists indications contrary. 18 101, moreover, appropriations evidenced 101's opening clause "[n]otwithstanding Act" added)—which refers means Amendments, funding scenic trails, markers, 209(5)(c), (codified 1249(c)(2)) (authorizing administration Scenic Historic Trails), "in Acts," mirrors 9, Constitution ("No Money drawn Treasury, Consequence Appropriations Law"). Payments affected language, Church, 315-316, 2386. Fund, separate account, 1304(a) clear unmistakable coverage. 19 next assert cost," 114, somehow indicates withdrew doubt meant keep costs minimum.7 intent, however, little bearing question. previously "[m]aximum" authorizations, nevertheless repeal maximum "support inference convinced huge sums surely equal exceed constitutional minimum never focused Claims." 128, 351. 20 "Congress [the statute] occur. specifically belief data Government] ways effects assumption general event, construed remedy." 1018-1019, 2881. 21 Similar logic applies instant case. during passage merely direct purchase,8 construction, maintenance local governments groups manage chosen less costly because, view some amount takings. Some simple. Wildlife Federation 271 U.S.App.D.C. 10, 850 694, 703 Others nature trails.9 addition, neither incurs constructing maintaining assumes legal contrast, acquiring administering historic borne directly Government. supra. withdrawal our cases.10 22 sum, premature. occurred III 23 8, traditional rationality review: regulated activity affects interstate commerce "if rational finding," Hodel Virginia Surface Mining Reclamation Assn., 452 264, 276, 2352, 2360, 69 selected 'reasonably permitted Heart Atlanta Motel, 379 241, 262, 85 348, 360, (1964)); Indiana, 323-324, 2376, 2382-2383, 40 (1981). pass muster. 24 Two evident. First, intended "encourage trails" "assist recreation[al] users providing opportunities basis." 9; 119; 1241(a) "promote[s] of, access to, travel within, enjoyment appreciation open-air, outdoor areas resources Nation"). Second, "to service, transportation corridors, energy efficient use." 8; These 25 latter "present necessity." 10903(a) ed.) added). explained 26 "In already (or regulatory approval [§] 10505)." 8012, 27 needed foreseeable future. This, according petitioners, reveals rationale sham. really wished voluntary agreements agencies groups. Rather, suggest, created administered outset reading, liberty measures—such abandonments—might legislating often involves tradeoffs, compromises, imperfect solutions, ability imagine redesigning ends render irrational. See, Minnesota Clover Leaf Creamery 449 456, 469, 715, 726, 659 5-6, Here, effectiveness existing legislation necessary." 283, 2364. 29 well taken. CITU NITU distinguish short-term long-term banking, develop contingency plan conversion. To contrary, apparently foreseeable. Given tradition regulation Colorado 153, 46 452, 70 878 (1926), make. IV 30 reasons stated, ordered. whom KENNEDY join, concurring. 32 enjoying secured effected compensable Circuit provide, forestalled possessing asserted interest, arise. Today affirms Circuit's quite different grounds. I join Court's write my possess doctrine compensate burden imposed possess. 33 acknowledges, ante, 15-16, defines scope real 208 occurred, "we mindful basic axiom '[p]roperty Constitution. dimensions defined rules understandings stem independent source law.' 1001, 2872, (1984), quoting Webb's Fabulous Pharmacies, Beckwith, 155, 161, 446, 451, 358 (1980) (internal quotation omitted). original grants influence disputes land, Great 315 62 529, 86 836 (1942); Idaho Oregon Short Line 617 207 (Idaho 1985), role present sharply dispute Corporation and, correspondingly, Brief 15, 14; Respondents 22-25; Reply 2-4. reference guided seeking way lapsed Compare Washington Preservation, 329 N.W.2d 543, 545-548 (Minn.) (trail matured), cert. denied, 463 1209, 103 3540, 77 1390 (1983), Lawson Wash.2d 444, 730 P.2d 1308 (1986) (change give effect interests); McKinley Waterloo 368 131, 133-136 (Iowa 1985) (lack triggered period leading reversion); Schnabel DuPage, Ill.App.3d 553, Ill.Dec. 428 N.E.2d 671 (1981) (easement lapsed). Determining enjoyed absence recent actions, predicate underlie 1001-1004, 2871-2874. resolve issue. pre-empt "conflict interfere same activity." 319, 1131, (1981); 318-319, 1131. obligations carriers odds governed "exclusive" carriers' cessations lines." 323, 1133; 324-327, 1133-1135. A again powers carrier's thus, attaches certificate, "brings Commission's] mission end." recognized, enforce enforcement Commission's results routine well-established consequences Supremacy Const., VI, cl. 35 delimiting ambit power, distinct matters Cf. Kaiser Aetna 444 164, 174, 100 383, 390, 332 (1979) ("[T]here assure access. Whether went far amounted 'taking,' question"). laws, displace 1003-1004, 1012, 2873-2874, 2877 (state trade secrets regime law). owners' burdens defeats suspends defers vesting rights. 11-12, 704-705, Any conclusion convert conflicting guaranteed incompatible Amendment. Ruckels- haus 2878 ("If 'pre-empt' manner advocated EPA, Taking lost vitality. [A] sovereign, 'by ipse dixit, transform compensation. kind thing prevent' "), 452. 36 adopted unjustified interpretation "no vest" appropriate. 145, conflates threatens read Just Compensation postpone circumstances exercises 314-315, 2385-2386, (1987) (The power," "is taking"). Nothing disavows principles. 13, "under takings," inconsistent view. Indeed, approach adopted, discussion availability unnecessary. respondents acknowledge rest state-created absent burdened interest. 23-24. 37 Well-established principles govern analysis state-defined recently Nollan California Coastal 483 825, 831-832, 3141, 3145, 677 (1987), occur easement. Aetna, 179-180, 393 ("[T]he 'right exclude,' universally fundamental element right, falls category take compensation") (footnote "permanent physical occupation" underlying "has where individuals given permanent continuous fro, continuously traversed, though station himself permanently premises." Nollan, 832, 3146; also, 180, ("[E]ven physically invades nonetheless compensation"). Government's other, lesser servitudes (1946); Portsmouth Harbor Land Hotel 260 327, 43 135, 287 (1922). And burdening period, short mandate 2387-2388. Of course, party gain benefit possession burdened. today's indicates, persons similarly situated ample opportunity showing. 38 With understanding, set forth agree below Many operated reserved designate delegated Agriculture administer entire system. §§ 1242-1246. 7(e) 1246(e), designated authorities, either cooperative purchase. fail, limited obtain lands condemnation proceedings. 1246(g). authorities cited Comment, Rails Trails: Converting America's Abandoned Railroads Into Nature Trails, Akron L.Rev. 645, (1989); 102 Ann.Rep. 44-45 (1988); 37-38 important "abandonment" "discontinuance" service. 10903 Once carrier "abandons" Commission, longer system, empowered 10905(f)(4), proposition terminates. 633-634, (1984); 8011-8012 allows operating indefinite corridor 8(d), 1247(d), provides: Transportation, Interior, 1976, programs. Consistent furtherance policy donation, transfer, lease, sale, consistent chapter Act], restoration reconstruction political subdivision, qualified organization full management taxes levied assessed rights-of-way, conveyance chapter, disruptive implementing regulations promulgated apply Certificate Interim Trail Use Abandonment (CITU) or, proceeding exemption (NITU). Abandonments—Use Rights-of-Way 591, 628 (1986); CFR 1152.29 180-day cancel tariffs, salvage track operator. authorized. automatically converts notice abandonment. yet final NITU. Docket AB-265 (Sub-No. 1X). 113 (noting Committee "eliminated most items expenditures"); (same); 11, 122 (reporting bill "insignificant"); 129 Cong.Rec. 5219 (remarks floor manager Rep. Seiberling) committee recommended revised text eliminated expenditures. Additional recommendations continuing expansion recreation across low cost"). condemn Abandonments, I.C.C.2d, 596-598; 6-9, 697, 699-702 Connecticut Trust Preservation 841 479, 482-483 1988); Dept. Game 829 877, 879-882 (CA9 1987). trigger (Minn.), (1983); Reiger Penn Central Corp., 85-CA-11 (Ct.App. Greene Ohio, May 1985). statement Senator Domenici "the too much procedures essence changed landowners," 1607 unavailable. disagree. spoke context praising "encourag[ing] cooperation" resorting condemnation. begins voluntarily seeks NITU; negotiates interpreted exclude vested Secretaries limitation resulting occur, certainly sign relief.

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