Document: 503 U.S. 407 112 S.Ct. 1394 118 L.Ed.2d 52 NATIONAL RAILROAD PASSENGER CORPORATION, et al., Petitioners,v.BOSTON AND MAINE al. INTERSTATE COMMERCE COMMISSION and United States, Petitioners v. BOSTON Nos. 90-1419, 90-1769. Argued Jan. 13, 1992. Decided March 25, Syllabus The Rail Passenger Service Act of 1970 (RPSA) created petitioner National Railroad Corporation (Amtrak), a private corporation, to provide intercity commuter rail passenger service. permits Amtrak enter into "trackage rights" agreements use tracks owned used by freight railroads, 45 U.S.C. § 562(a); allows ask Interstate Commerce Commission (ICC) condemn railroad property "required for service" if the cannot agree upon sale terms, 562(d). For purposes ICC's condemnation order, Amtrak's "need property" "shall be deemed established" unless conveyance will significantly impair railroad's ability carry out its obligations as common carrier can adequately met acquisition alternative property. Ibid. had trackage rights agreement with respondent Boston Maine (B & M) operate "Montrealer" train between Washington, D.C., Montreal. claims it was forced discontinue this service because B M's poor maintenance track segment. Subsequently, entered an Central Vermont (CV) which provided that, among other things, would acquire M reconvey CV, CV grant usage M. When did not accept purchase offer track, sought received ICC order compelling just compensation. found, that 562(d) statutory presumption need failed rebut. Court Appeals remanded case further proceedings, concluding intend retain needed only use, ownership. While petitions rehearing were pending, amended allow subsequently convey title acquired third party finds reconveyance furthers RPSA's purposes. Nonetheless, court denied rehearing, holding valid service." Held: 1. decision based on reasonable interpretation application Pp. 417-424. (a) word "required" is due deference ambiguous term in statute administers. See, e.g., Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 104 2778, 81 694. existence dictionary definitions indicates open interpretation. gives effect 562(d)'s need. In contrast, Appeals' view—that establishes separate condition authority limited indispensable operations—is clear tension presumption. addition, amendment confirms definition, while strict rule make superfluous barring whenever purpose 417-420. (b) required specific findings regarding actual oversight responsibility ensuring condemned operations. statute's structure create strong inference authorizes business judgment advisable, rebutted. P. 420-421.[[SC2Q!]] (c) several arguments against are rejected. eminent domain power has been given ICC, entity, thus suggested cases such States Carmack, 329 230, 243, n. 67 252, 258, 91 L.Ed. 209. Furthermore, turns agency, Amtrak. also violate "public use" requirement Fifth Amendment's Takings Clause, since agency's determination serve public facilitating irrational. Hawaii Housing Authority Midkiff, 229, 240-241, 2321, 2329-2330, 186. Moreover, agency err prerequisite parties "unable terms sale" mandated nothing more than factual they unable reach through negotiations. Nor inadequate rebutted unreasonable considering compensation award assessing whether obligations, or interpreting availability-of-alternative-property provision referring could using route, lesser interest suffice meet needs. 421-424. 2. parties' challenges finding well certain issues should resolved remand. 424. 286 U.S.App.D.C. 1, 911 F.2d 743 (1990), reversed remanded. KENNEDY, J., delivered opinion Court, REHNQUIST, C.J., STEVENS, O'CONNOR, SCALIA, SOUTER, JJ., joined. WHITE, filed dissenting opinion, BLACKMUN THOMAS, John G. Roberts, Jr., petitioners. Irwin Goldbloom, respondents. Justice KENNEDY Court. 1 issued request Corporation, requiring 48.8 miles from Corporation. these consolidated we must decide 402(d) Act, 562(d), invoked proceeding. We hold authorized statute, so reverse District Columbia Circuit, set aside action. 2 * Amtrak, private, for-profit corporation Congress (RPSA), Pub.L. 91-518, 84 Stat. 1328, 501 seq. modern efficient §§ 501, 541. instrumentality Government, 541, but supported over years congressional appropriations. Most trains run existing systems railroads. RPSA those tracks. agreement, may terms. 562(a). 3 1973 add subsection (d) 402, Section provides pertinent part: 4 "(1) If [Amtrak] (including interests property) service, apply [ICC] establishing at issue thereof conditions, including Unless that— 5 "(A) carrier; 6 "(B) modern, efficient, economical available exercise under section 545(d) title, 7 "the shall established conditions prescribe, compensation." 8 nonrail somewhat similar provision, 545(d), here. 9 began offering D.C. Montreal 1972. parts Massachusetts, Vermont, New Hampshire Connecticut River Line (Conn Line), portions (CV). have operated Conn reciprocal dating back 1930. 10 1977 agreed maintain Line. Those include mile segment Brattleboro Windsor, Vermont. This At first arrangement proceeded well, early 1980's problems developed. Guilford Transportation Industries, purchased bankruptcy, operating parallel line. claim neglect resulting caused delays Montrealer Maintenance Brattleboro-Windsor points slowed five hour. Negotiations better unsuccessful. April 1987 11 responded events July appropriating $5 million upgrade route. 11, 1987, 100-71, 101 447-448. decided spend money continued own it, view relied once restored. negotiations 1988 reached preliminary agreement. promised question, up $3.1 rehabilitate return, balance funds necessary 20 meeting standards, years, customers. As invoking made $1 million, take-it-or-leave-it basis. offered negotiate willing segment, stated, "it appears there no pursue very complex 'offer purchase' forth your letter." App. 60. refusal seems anticipated indicated internal Memorandum written January, 1988. 94. 12 Interpreting communication rejection offer, instituted proceeding before compel track. simultaneous exemption regulation 13 assessed transaction significant shift long competition traffic. already large after proposed most it. Though rights, gain ownership right obtain new customers alleged gave advantage CV's corporate parent, Canadian Railway Company, each links competing companies Canada. lines link National, Pacific, Ltd., National's competitor. challenged simply device give which, argued, sole provision. 14 initial objections two grounds: shown sale, authorize lines. rejected held inability It ruled covers "rail 'required service.' " Pet. Cert. No. pp. 130a-133a. next convert 562(a), again position, "election remedies" 562 obligation seek (d). Id., 115a-116a. Meanwhile, numerous parties, intervened (CV Massachusetts support petitioners.) 15 involving powers 39a. final ordered $2,373,286. reaffirmed earlier rulings found "ha[d] criteria institution proceeding" 40a-42a, 81a. 16 concluded contained 562(d)(1) applicable. both rebut presumption, neither. (subsection (1)(B)), route existed And impairment (1)(A)), awarded continue part transaction, impaired. 45a-46a. bulk deals question compensation, See infra. 17 On petition review, divided panel Circuit granted matter proceedings. (1990). majority does permit intends another railroad. acknowledged interpreted different way, usual course judicial principles enunciated 694 (1984); unambiguous light language history, due. reasoned condemned, obtaining either condemning easement entire fee U.S.App.D.C., 8, F.2d, 750. stated confirmed considerations, including: (1) potential constitutional problems, raised 562(d); (2) 562, intent relegate 562(a) when seeking track; (3) Congress' policy cross-subsidization sectors industry, violated transaction. Judge Ruth B. Ginsburg concurred separately, rejecting majority's remand adequate determine fact protect interests. 11-13, 753-755. portrayal recalcitrant accurate, remains dispute. Under our resolution case, however, reached. 18 pending amendment, adopted response added following sentence 562(d)(1): "The party, Act." Independent Safety Board Amendments 1990 9(a), 101-641, 4658. applicable all cases, 9(b), dispute applied even rehearing. Brief Respondent 33-35. considered nonetheless. 288 196, 925 427 (1991). "subsequent otherwise [§ ]," change limitation service' place. 197, 428 (emphasis original). original failure satisfy requirement, affect holding. distinguished Second R.R. Corp. Two Parcels Land, 822 1261 (1987), cert. 484 954, 108 347, 98 373, 545(d)(1) (the authorizing condemnation. 196-197, 427-428. wrote her misinterpreted remained determinations. 19 90-1769, review decision. certiorari cases. 502 ----, 48, 116 26 now reverse. II primary straightforward interpretation: amended, approved Appeals. disallowed 562(d)(1). necessary, sense indispensable, relevant latitude, task 21 Judicial interpretations administers dominant, settled principle federal law. U.S.A., supra, often. K Mart Cartier, 486 281, 292-293, 1811, 1818-1819, 100 313 (1988); Pauley Bethenergy Mines, 111 2524, 115 604 These decisions mandate reviewing interpretation, "if silent respect issue, answer permissible construction statute." U.S., 843, S.Ct., 2782. conflict plain Corp., 292, 1818. ascertaining language, look whole. 291, 1817; Sullivan Everhart, 494 83, 88, 110 960, 964, 72 text some respects, degree though unreasonable. 22 permissible, error disregard explicit details, reading quite Appeals'. seeks determined however mean, suggests, necessary. Instead, doing implemented manner comports words structure. analysis inconsistent position mean "useful appropriate," p. 17, meaning. basic premise. 42a-46a. 23 brief cites definition view. citing Webster's Third International Dictionary 1929 (1986). "required," making itself supra. Few phrases scheme beyond real context. Further, reinforces conclusion appropriate serious question. defined establish (indispensable) operations, without support. American Heritage English Language 1105 (1981). though, leaves little substance favor need, statute. 24 respects conclude one. defer say dispute, old jurisprudence McCulloch Maryland, Wheat. 316, 413, 579 (1819), Chief Marshall, choice parallels one, read "necessary" "convenient, useful," stricter Constitution "most direct simple" means available. think context plausible, preferable, find useful way accomplish goals. 25 consistent addition enacted Congress. modify here, M, hand, superfluous, meaning attribute condemnations seem barred Contrary dissent, "deferring what imagine mind." Post, 1407. Rather, presupposition recognize well-established action upheld grounds agency. SEC Chenery 318 80, 63 454, 459, 87 626 (1943). But many articulate plausible explanation addressed submissions proffered require circumstances. noteworthy regard neither contends informed governed argument 16, 22, 44. this, said, effect. 27 There record sufficient command RPSA. ends inquiry point. 28 What said answers Ginsburg's concern contention implement criterion service," basis concurrence 12, 754. That same majority, mandated. argues combined sought, creates advisable. agree. responsibility, exercised enforcing delegated rebutted; Indeed, discussion above indicates, us any events, one substitute 29 Arguing 209 (1946), suggest delegations entities nature. do believe relevance here Government To sure, assess impact Since proper regulatory authority, intended ensure compliance private. 30 contradicting short, advanced prevail Chevron's deference. 31 reject objections. violates unchanged reconciled precedents. Clause coterminous power, strike down lacks taking "is rationally related conceivable purpose." 186 see Berman Parker, 348 26, 32-34, 75 98, 102-103, 99 (1954). Midkiff land reform legislation transferring eliminate oligopoly. permitted contemplated reselling redevelopers, plan restore dilapidated sections Columbia. Berman, present resulted transfer another, government remaining unchanged. exercises constitutional, authorities rational their positions served. holdings control irrational determining purpose, suffices Constitution, objectives. 242-243, 2330-2331. 32 last effort, accurate matters. prove 'unable' agree" sale. demands engage "good faith . negotiations" invoke powers. 42. construed narrow fashion, able 130a-131a ("Nothing indication ever sale"). phrase sale," Thus satisfied. 33 concluding: carrier, 562(d)(1)(A), (d)(2) property, 562(d)(1)(B). impairment, argument, like point, 8-9, 750-751, relies notion consider itself, mitigating measures restrictive inquiry. impairment; conclusion, impaired substantial evidence. availability Again, defer. doubt affirmed. III 34 reasons exceed ordering Because contrary address issues. 753. questions reversed, proceedings opinion. 35 ordered. 36 whom THOMAS join, dissenting. 37 proceeds courts legislation.1 2782, I quarrel general proposition. do, object invocation justify deference, post hoc rationalization lawyers attempting explain gap reasoning factfinding (ICC Commission). Motor Vehicle Mfrs. Assn. State Farm Mut. Automobile Ins. Co., 463 29, 50, 103 2856, 2870, 77 443 (1983). 38 codified directing conditions: met, established," 39 conferring outcome disputes section, receive benefit assume particular importance. However, factors. Although come disputed 130a-131a, nor second condition, respondent's easement, "Amtrak demonstrated reason line." 43a. 40 acknowledges details," ante, 418, nevertheless concludes Commission's entitled "gave 'need' structure." begs showing therefore 41 simple never construe key portion omission particularly treating Act; guide future adjudications. 42 Rather acknowledging remanding clarification factfinding, Government's appropriate." developed during administrative Appeals.2 debuted briefs creation appellate counsel, concocted fill gaps analysis. short—and sufficient—answer [this] submission counsel's rationalizations upheld, all, articulated itself." Assn., 2870 added), Burlington Truck Lines, 371 156, 168, 83 239, 245, 207 (1962); 332 194, 1575, 1577-1578, 1995 (1947); Textile Institute, Donovan, 452 490, 539, 2478, 2505, 69 185 Therefore, wrong asserting 'required,' 1402 added). 43 "[t]here made, expert discretion." 167, 245. concludes, presumed obligated 420. magnifies mistake; "agency decision, evidence." 44 Deferring charged administering thing. deferring inferences derived excerpted lawyer entirely. "For discretion incompatible orderly functioning process review." 169, 246. clear, authoritative return job properly. strain mind respectfully dissent. erred unambiguously prohibits transactions leaseback Railroad. Legislation passed makes permissible. how framed Appeals: "Under Chevron, broad interpret certainly true central issu[e] 402(d). merely states needs property." Joint Respondents 88-1631 (CADC), 15-16.

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