Opinion ID: 429424
Heading Depth: 1
Heading Rank: 2

Heading: Congressional Intent: The National Transportation Policy

Text: 13 In interpreting the Motor Carrier Act of 1980, the starting point is the language of the statute itself. American Trucking Associations, Inc. v. ICC, 659 F.2d 452, 459 (5th Cir.1981). If the wording of the statute is clear, there is no need to look further. Id. 5 A court should not depart from the official text of a statute by consulting extrinsic material unless the statutory language is unclear or the apparent clarity of language leads to absurdity of result when applied. Id. 14 The national transportation policy referred to by the parties in this case and contained in the Motor Carrier Act is set out at 49 U.S.C. Sec. 10101 (Supp. V 1981): 15 (a) Except where policy has an impact on rail carriers, ... to ensure the development, coordination, and preservation of a transportation system that meets the transportation needs of the United States, ... it is the policy of the United States Government to provide for the impartial regulation of the modes of transportation subject to this subtitle, and-- 16 (1) in regulating those modes-- 17 (A) to recognize and preserve the inherent advantage of each mode of transportation; 18 (B) to promote safe, adequate, economical, and efficient transportation; 19 (C) to encourage sound economic conditions in transportation, including sound economic conditions among carriers; 20 (D) to encourage the establishment and maintenance of reasonable rates for transportation, without unreasonable discrimination or unfair or destructive competitive practices; 21 (E) to cooperate with each State and the officials of each State on transportation matters; and 22 (F) to encourage fair wages and working conditions in the transportation industry; 23 (2) in regulating transportation by motor carrier, to promote competitive and efficient transportation services in order to (A) meet the needs of shippers, receivers, passengers, and consumers; (B) allow a variety of quality and price options to meet changing market demands and the diverse requirements of the shipping and traveling public; (C) allow the most productive use of equipment and energy resources; (D) enable efficient and well-managed carriers to earn adequate profits, attract capital, and maintain fair wages and working conditions; (E) provide and maintain service to small communities and small shippers and intrastate bus services; ... (G) improve and maintain a sound, safe, and competitive privately owned motor carrier system; (H) promote greater participation by minorities in the motor carrier system; and (I) promote intermodal transportation; and ... 24 (b) This subtitle shall be administered and enforced to carry out the policy of this section. 25 (emphasis added). 26 We believe that the national transportation policy is clear in its manifestation of Congressional intent; there is no need to look beyond the statute. We have already held that the ICC, in evaluating applications for new CCNs, must consider all evidence in light of a number of factors, most notably those in the national transportation policy. American Trucking Associations, 659 F.2d at 474. See 49 U.S.C. Sec. 10922(b). 27 Steere suggests that the ICC's present policy of allowing all but unlimited entry of new truck transportation providers into the market will produce ruinous competition among carriers. That argument is certainly logical to a point; of course Congress did not wish, by passing the Motor Carrier Act of 1980, to destroy the motor carrier industry. Nor, while it intended to make it easier for new trucking companies to enter the market by reducing regulation, did it intend to eliminate regulation entirely. Steere V, at 1303; American Trucking Associations, 659 F.2d at 459. Accordingly, Steere's insistence that the ICC evaluate the cumulative effect upon the market of new entrants to that market is not inconsistent with the mandate of the national transportation policy to insure sound economic conditions among carriers. 49 U.S.C. Sec. 10101(a)(1)(C). 28 Steere maintains that because the cumulative effect upon the market is an element of the national transportation policy, the ICC must articulate a finding when the cumulative effect issue is properly raised. Steere's argument that it has a right to such a finding is based upon the requirements of 49 U.S.C. Sec. 10922(b)(2) (Supp. V 1981) and a sentence from the House Report on the Motor Carrier Act of 1980: 29 Persons opposing issuance of the application shall have the right to raise any element of the National Transportation Policy, including any factors listed in section 10101(a)(7)(A) through (H), to prove that the application is inconsistent with the public convenience and necessity and shall have the burden of providing evidence with regard to the applicable factors. 30 H.R.Rep. No. 1069, 96th Cong., 2d Sess. (1980) reprinted in (1980) U.S.Code Cong. & Ad.News 2283 at 2297. Thus, Steere asks this Court to hold that the ICC must make findings on the cumulative effect issue when that issue is properly raised by evidence. 31 Steere asks too much. While it is true that 49 U.S.C. Sec. 10922(b)(2)(A) (Supp. V 1981) requires the ICC to make findings on the elements of the national transportation policy and that policy requires consideration of sound economic conditions among carriers, nowhere do either of the two statutes say that the ICC must specifically consider the cumulative effect upon the market of all new carriers it has allowed to enter that market. For us to hold what Steere asks would be to add a new requirement in the Motor Carrier Act of 1980; our discretion does not extend to rewriting that Act. 32 Nonetheless, the ICC is required to make adequate findings under the Motor Carrier Act. Steere V, at 1313. Its findings need not be crystalline nor detailed, and the Commission need not buttress each finding with supporting evidence from the record. Id. The findings must, however, be basic, specific, and definite, not mere ultimate findings or conclusions. Id. Moreover, the absence of a required finding is fatal even though there may be ample evidence to support such a finding. Id. But the ICC need not explicitly discuss each factor enumerated in 49 U.S.C. Sec. 10101. It is required only that the essential basis of the ICC's rationale be clear enough so that a reviewing court can satisfy itself that the Commission has performed its function. C & H Transportation Co., 704 F.2d at 847; Alamo Express, Inc. v. ICC, 673 F.2d 852, 860 (5th Cir.1982). 33 Accordingly, we have examined the records in these consolidated cases to determine whether the ICC made adequate findings as to the sound economic conditions among the carriers here. 6 While we do not find that the ICC's findings regarding the national transportation policy are precisely articulated in each record and we would welcome more clarity in the future, we are satisfied that the Commission adequately performed its function. Each record contains sufficient discussion to support the Commission's ultimate conclusions. Consequently, we are satisfied that the Commission adequately considered the pros and cons of the new grants of authority with a view toward the industry's economic well-being. In each case the Commission found that Steere had not shown sufficient harm to its operations to demonstrate inconsistency with the public convenience and necessity. It is apparent throughout the records that the ICC found Steere's melodramatic list of adverse impacts upon the motor carrier industry unpersuasive. Such cryptic findings have satisfied this Court in the past. See, e.g., C & H Transportation, 704 F.2d at 847; Alamo Express, 673 F.2d at 860. Accordingly, we decline Steere's invitation to remand these cases for further findings and conclusions.