Document: 540 U.S. 736 UNITED STATES POSTAL SERVICEv.FLAMINGO INDUSTRIES (USA) LTD. ET AL. No. 02-1290. Supreme Court of United States. Argued December 1, 2003. Decided February 25, 2004. After their contract to make mail sacks for the States Postal Service was terminated, respondents brought this suit alleging, inter alia, that had sought suppress competition and create a monopoly in sack production. The District dismissed antitrust claims, concluding is not subject liability under federal law. Ninth Circuit reversed, holding can be liable but it has limited immunity from conduct undertaken at Congress' command. Held: liability. In both form function, separate person part Government, so controlled by laws. Pp. 739-748. (a) waiver provided Reorganization Act (PRA)—which gives power "to sue sued its official name," 39 U. S. C. § 401—does suffice own terms Sherman Act. two-step analysis FDIC v. Meyer, 510 471, 484, applies here. Meyer's first step met because PRA's sue-and-be-sued clause effects sovereign actions against Service. However, second finding liability— whether Act's substantive prohibitions apply Service—is satisfied. imposes on any "person," defined include corporations associations existing or authorized laws ... States." 15 7. bring treble-damages claim alleged injury Act, Cooper Corp., 312 600, 606-607, observed that, if definition "person" included States, Government would exposed as an defendant, result Congress could have intended, id., 607, 609. Although statutes were later amended allow suits, see 15a, did thereby change statutory "person." So, Cooper's conclusion particular who unaltered action; indeed, means used amend law implicitly ratified proper defendant. 739-746. (b) For purposes laws, designation "independent establishment executive branch States," 201, consistent with idea entity outside Government. Indeed, indicates just contrary. PRA high degree independence other offices, remains defines corporations, 7, chosen corporation, ask extends definitional text. Congress, however, declined opting instead independent establishment. choice words likely more informed than unconsidered, debated proposals corporation before enacted PRA. refers explicitly various specifies exempt some others, §§ 409-410, makes no mention This silence leads helpful inference one way question issue. considerations discussed lead absent express congressional statement violations despite status does nationwide, public responsibilities Service, which different goals private most important being seek profits, 3621. It also broader obligations, including provision universal delivery free certain classes persons, 3201-3405, and, recently, increased related national security. Finally, many powers characteristic enterprise, state-conferred delivery, 601 et seq., eminent domain conclude international postal agreements, 401, 407. On hand, ways still relevant laws' nonapplicability, Service's are those businesses, since lacks unilaterally set prices close post office, 404. Its characteristics indicate should treated market participant it. fact operates nonpostal lines business beyond scope service obligation alter conclusion. 746-748. 302 F. 3d 985, reversed. KENNEDY, J., delivered opinion unanimous Court. CERTIORARI TO THE COURT OF APPEALS FOR NINTH CIRCUIT. Deputy Solicitor General Kneedler argued cause petitioner. With him briefs Olson, Assistant Attorney Keisler, Lisa Blatt, Mark B. Stern. Harold J. Krent respondents. brief Angela Wah George P. Eshoo.* JUSTICE KENNEDY 1 case requires us consider 2 Flamingo Industries Ltd., owner principal officer been making then terminated. alleging (They claims procurement state law, us.) Appeals held command Congress. 993 (CA9 2002). We granted certiorari amenable controlling statute. 538 1056 (2003). hold liability, we reverse. 3 Revolution, Articles Confederation Constitution empowered National provide regulate services. Article IX; Const., Art. I, 8. importance enterprise prefigured Continental appointment Benjamin Franklin Postmaster General, July 26, 1775. G. Cullinan, 26 (1973) (hereinafter Cullinan). From beginnings, become "the nation's oldest largest business." Tierney, Reorganization: Managing Public's Business vii (1981) Tierney). 4 During history Franklin, organization reorganized restructured times. immediate period after ratification Constitution, called Post Office subordinate Treasury Department. Cullinan 35-36. 1825, name changed Department, alteration accomplished somewhat informal when Joseph McLean simply title letterhead. began practice reporting directly President rather Secretary Treasury. Id., 50-51. (McLean popular served 1823 until 1829, incoming Andrew Jackson solved his worries about McLean's matters governance, especially patronage, appointing 52.) acknowledged enhanced member Cabinet, though 1872 formally recognized Department department Federal 36. A complete account origins mission system forth Council Greenburgh Civic Assns., 453 114, 120-126 (1981). 5 Major came 1970 (PRA), 101 seq. adopted increase efficiency reduce political influences operations. Tierney 1-26; 5-10. renames removes Cabinet "an 201. Superintendence over new responsibility Board Governors, consisting 11 members. 202. Nine governors appointed advice consent Senate removable only cause. Ibid. two serves chief nine, nine together General. 6 creates establishment, Rate Commission, recommendations rate changes. 3601. Commission advises Governors rates all services, letter carriage parcel delivery. Rates based decisions circumstances judicial review. 3625, 3628. must factors each class bear costs attributable it, effect increases mail-using competitors business. 3622(b). 7 Under PRA, retains letters, authorize inspectors search for, seize, forfeit matter transported violation monopoly. See 601-606. parts country. 101, 403. domain, regulations, enter agreements supervision State. has, addition, contract, acquire property, settle claims. 401. As summary indicates, significant governmental powers, Executive Branch. exempted many, all, governing agencies, specifically subjected others. 409-410. respect neither exempts nor subjects mention. silent point. 8 waives giving name." address suffices ch. 647, Stat. 209, amended, begin discussion our precedents bearing inquiry. 9 passes enabling legislation allowing agency given liberal — say, expansive construction. Housing Administration Burr, 309 242 (1940). support Burr Court, passage often cited cases involving immunity, wrote follows: 10 "[I]t presumed launched into commercial world endowed authority `sue sued,' less process like be." 245. general proposition considered extent effected Franchise Tax Bd. Cal. 467 512 (1984), underlying dispute concerned withhold unpaid taxes wages employees. required respond order amounts, even administrative tax levy, issued court. 525. clause, held, broad effect, body. 519-521. 12 Loeffler Frank, 486 549 (1988). found damages employment discrimination action Title VII Civil Rights 1964, arose well prejudgment interest. 551. allowed interest, course decision asserted, repeated, formulations immunity. 554-555. relied, upon provisions itself which, specific amendment, extended coverage 558-561. 13 Loeffler, decided 484 (1994). Savings Loan Insurance Corporation (FSLIC), so-called "Bivens action." Bivens Six Unknown Fed. Narcotics Agents, 403 388 (1971). statute suits FSLIC, explained interpretation initial two-part Even waived, there further, Bivens. supra, 483. explicit Meyer used, did, said, consult source pay interest depended. 14 If is, question, Branch When instant case, seemed outset follow analysis. view, ensuing Appeals' framework; having waived relied same conflated steps resulted erroneous 484. 16 step, U.S.C. unless waiver. suit, incidents process. 482; 565; Bd., While strip status. distinction important. An absence intended reach entity. So proceed determine look 17 Some years decided, Columbia distinct inquiries owns, named defendant Sea-Land Serv., Inc. Alaska R. Co., 659 2d 243, 245 (R. Ginsburg, J.). That correct approach. Upon examining interpreting organize 18 word. provides "`person' . shall deemed either [or foreign governments]." follows then, corporate instances bar imposition prohibition, instance, binds bodies. Georgia Evans, 316 159 (1942); Pfizer India, 434 308 (1978). 19 otherwise, pursued made clear 614 (1941). whether, injury. 606-607. Important present reason reaching decision. intended. 20 Cooper, suits. purposes, instructive. statute, added section sue. 15a. S., 609; Sea-Land, ("Although aware view indicated described `person' addressed direct ruling treble damage plaintiff" (footnote omitted)). 21 remaining itself. not. States" instruction "of offices H. Rep. 91-1104, p. (1970). 22 noted, however. issue us; say 23 Our goals, corporations. enterprise. difference break even, 3621, character. agreements. 24 non-applicability businesses. prototypical engaging anti-competitive behavior: prices. true mechanics, pricing participation substance, price governed principles profitability. 740-741. Similarly, written reasons, reversal arbitrariness, abuse discretion, failure procedures, lack evidence. 25 operate business, may profits offset losses 403(a). great majority organization's consists Revenue, Pieces, Weight Classes Mail Special Services Fiscal Year 2003, available http://www.usps.com/financials/_pdf/GFY03.pdf (as visited Jan. 23, 2004, Clerk Court's file). Further, predecessor, such money orders savings accounts. 84-85, 107. agency, old do show * 27 judgment 28 ordered. Notes: Briefs ofamici curiae urging affirmance filed American Trucking Associations, Inc., Drew Days III, Beth Brinkmann, Seth M. Galanter, Paul T. Friedman, Robert Digges, Jr.; Postal-Watch, William Stancil; Washington Legal Foundation al. Alan Charles Raul, Daniel Popeo, D. Kamenar. Nicholas Fobe Center Advancement Capitalism amicus curiae.

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