Document: 450 U.S. 311 101 S.Ct. 1124 67 L.Ed.2d 258 CHICAGO AND NORTH WESTERN TRANSPORTATION COMPANY, Petitioner,v.KALO BRICK & TILE COMPANY. No. 79-1336. Argued Dec. 9, 1980. Decided March 1981. Syllabus The Interstate Commerce Act authorizes the Commission (ICC) to regulate interstate rail carriers' abandonment of railroad lines, including branch lines. Under Act, no such carrier may abandon a line unless it first obtains certificate from ICC that present or future public convenience and necessity permit an abandonment. After petitioner carrier's in Iowa had been damaged by mud slides, ultimately decided not repair, stop using, line, so notified respondent brick manufacturer, which shipped its products over applied for permitting line. granted application, finding abandoned due conditions beyond control, further repairs would have sufficient insure continuous operation, was "willful," right insist be maintained solely use, continued operation unnecessary burden on commerce. Respondent appeared oppose application but never perfected filing before did seek judicial review ICC's decision, but, instead, brought damages action state court while still pending. It alleged violated statute common law refusing provide cars negligently failing maintain roadbed, tortiously interfering with respondent's contractual relations customers. trial dismissed ground pre-empted as matters contention. Court Appeals reversed, ruling federal schemes complemented one another. Held: precludes shipper pressing state-court against regulated when, here, ICC, approving abandonment, reaches merits seeks raise court. Pp. 317-332. (a) "[T]here can divided authority commerce, . acts Congress subject are supreme exclusive." Missouri Pacific R. Co. v. Stroud, 267 404, 408, 45 243, 245, 69 L.Ed. 683. Consequently, efforts commerce must fall when they conflict interfere same activity. 317-319. (b) under abandonments is exclusive plenary. This critical congressional scheme, contemplates comprehensive administrative regulation Act's structure makes clear intended aggrieved should relief instance ICC. 319-323. (c) Both letter spirit inconsistent construed Appeals. That court's decision amounts holding State impose sanctions upon doing only has power declare unlawful unreasonable. A system each could, through courts, carriers own version reasonable service requirements could hardly more at odds uniformity contemplated enacting Act. Even though approval come here until after filed civil suit, contrary language litigation challenging lawfulness actions go forward expressly found them reasonable. Accordingly, Iowa's statutory cause failure furnish cannot asserted facts this case. reasoning applies common-law causes action, because they, too, essentially attempts litigate issues underlying petitioner's issue. questions court—whether roadbed maintenance negligent whether some tortious motive—are precisely sorts concerns address weighing requests. case, also pre-empts judgments fact reasonableness necessary already made 324-331. App., 295 N.W.2d 467, reversed remanded. Bruce E. Johnson, Des Moines, Iowa, petitioner. Henri F. Rush, Washington D.C., United States I.C.C. amici curiae, special leave Court. M. Gene Blackburn, Fort Dodge, respondent. Justice MARSHALL delivered opinion 1 Through amendments, various activities carriers, their decisions cease law, who injured result adequate available several damages. In case we called decide these state-law approved question. 2 * Petitioner, rail, jurisdiction Commission. For time prior April 1973, operated 5.6-mile between towns Kalo Dodge Iowa. manufacturing plant near Kalo, used transport outward commerce.1 3 During 1960's, tracks Kalo-Fort were three slides. Petitioner two following last slide 1967, portions embankment wholly vanished waters Moines River, using instead leased part another railroad's parallel connect Dodge. slide. By time, inspecting damage repair it. then longer although continue make if ship goods there truck. determined shipment truck economically feasible, customers complete existing contracts out business.2 4 November declaring permitted Government intervened support application. sole party appearing opposition request, failed perfect Commission.3 issued 1976, control request certificate. Chicago N. W. Transp. Abandonment, AB1, Sub. 24 (Jan. 11, 1976), App. Pet. Cert. 34a. attempt comply provisions regarding Commission's decision.4 Instead, pending Commission, complaint Code §§ 479.3, 479.122 (1971) customers.5 court, contention, action. represented "complimentary [sic], alternative means parties.'6 N.W. 2d 469 (1979). Supreme denied review, certiorari, 446 951, 100 2915, 64 807 (1980). We reverse. II 5 Pre-emption favored "in absence persuasive reasons—either nature matter permits other conclusion, unmistakably ordained." Florida Lime Avocado Growers, Inc. Paul, 373 132, 142, 83 1210, 1217, 10 248 (1963). See De Canas Bica, 424 351, 356, 96 933, 936, 47 43 (1976). rationale pre-emption doctrine, stated than century half ago, Supremacy Clause invalidates laws "interfere to, congress. ." Gibbons Ogden, 9 Wheat. 1, 211, 6 23 (1824). doctrine does our withdraw either "power where activity [is] merely peripheral concern" San Diego Building Trades Council Garmon, 359 236, 79 773, 778, 775 (1959), legislate "a distinctive peculiarly adapted local regulation, not," Hines Davidowitz, 312 52, 68, n.22, 61 399, 405, 85 581 (1941). But chosen pursuant constitutional powers, find whenever "challenged 'stands obstacle accomplishment execution full purposes objectives Congress.' " Perez Campbell, 402 637, 649, 91 1704, 1711, 29 233 (1971), quoting supra, 67, S.Ct., 404. Making determination "is two-step process ascertaining construction statutes determining question conflict." 644, 1708. And deciding any present, concern necessarily "the sought regulate, rather method adopted." 778. among most pervasive regulatory consequently presented recurring enactment. Since turn century, frequently invalidated obligations plainly plenary policy reflected These regulations taken many forms. example, early 1907, struck down State's challenge unreasonable rates rate within "would absolutely act." Texas Abilene Cotton Oil Co., 204 426, 446, 27 350, 357, 51 553. Similarly, Transit Comm'n States, 289 121, 129, 53 536, 538, 77 1075 (1933), held extensions therefore stripped similar commission all act area. More recently, Atchison, T. S. 357 77, 78 1063, 1174 (1958), city ordinance requiring license municipal transfer passengers, facially invalid carrier. "[I]t [federal] policy," observed, "if authorities retained decide" do what authorized do. Id., 87, 1069. cases easily stated: 683 (1925). III 7 pre-empted, determine said about ability provides subject, inconsistent. To tasks now turn. A. 8 endowed broad permanent temporary cessation lines 1(4) 1(11) recodified 49 U.S.C. 11101(a) 11121(a) (1976 ed., Supp. II),7 empowered both pass suspension and, necessary, order resumed. 533 F.2d 1025, 1027, n. (CA8 1976); Maine Central 505 590, 593-594 (CA2 1974). addition, relevant endows abandonments, cessations service. stems Transportation 1920, ch. 91, 41 Stat. 477-478, added new § 1(18), 10903(a) III). section pertinent part: "[N]o chapter shall portion railroad, thereof, obtained abandonment." 11 section, said, "construed effective extent exerted view eliminating evils abate." 128, 538. Among those "[m]ultiple respect affecting [interstate railroad] transportation," judgment Congress, proved "detrimental interest." U.S., 127, past concluded Commmission exclusive. Alabama Public Service Southern 341 341, 346, 7, 71 762, 766, 95 1002 (1951). Colorado 271 153, 164-166, 46 452, 455, 70 878 (1926). So extends even purely judgment, over-riding interests requir[e] it." Palmer Massachusetts, 308 79, 85, 60 34, 37, 84 93 (1939). scope 1(18) since interpreted provision inColorado supra. There, rejected grant intrastate Brandeis wrote Court: 12 "Congress assume paramount insofar involved. manner subordinated adequately rendered. inheres incident making involves exercise particular thereon consistent necessity, conferred Commission." 165-166, 454-55. 13 rule balance served hand, transportation other." Purcell 315 381, 384, 62 709, 710, 86 910 (1942). Once balance, conclusion entitled considerable deference. "The weight given cost relocated adverse effects experience qualifies decide. And, statute, redecision." 385, 711. 14 breadth discretion suggests intent limit interference agency's work. spells precision remedies abandoning without securing approval. objecting ask investigate 13(1), 11701(b) CFR 1121.36 (1980).8 If dissatisfied appropriate appeals, 28 2321(a), 2342(5). 1(20) provided believing injunction it.9 There Commission.10 thus plain 15 sum, applicable straightforward unambiguous. interest least 16 Equally meanings challenge. 479.3 "impos[e] railroads unqualified unconditional duty car persons apply," imposing duty. N.W.2d, 469. According carry "duties carrier" amount $350,000. 78. negligence based tort purported 471-472. count outlined claimed $150,000 failures "to track proper manner" properly right-of-way." 79-80. "at times material hereto, avowed publicized purpose [petitioner] close unproductive control," plan interfered $100,000. 81. These, then, claims cognizable courts. B 17 Armed authoritative constructions scheme next conflict. disagree. below acting will Cf. true counts mentions word "abandonment," compliance avoided mere artful pleading. difficult escape instant represents little disappointed gain courts Commission.11 18 Respondent's main alleges improper (1925), confronted precise lie shipper's commerce.12 lumber moved interstate, intrastate, "[t]he 245. bricks cars, like Pacific, moving commerce.13 essence use compel spite absolute," 'exacts circumstances.' Milmine Grain Norfolk Western 352 575, 585 (1976), citing Elgin Coal Louisville Nashville 277 F.Supp. 247, 250 (ED Tenn.1967). Midland Valley Barkley, 276 482, 484, 48 342, 72 664 (1928). constitutes belongs exclusively 384-385, 710-11. vitiate overarching creating "an efficient nationally integrated system," Railway Labor Executives Assn., 373, 376-377, 717, 719-20, 904 (1942), threat require exactly excuse. 19 suit conflicts bolstered actually reaching occurred control." 35a. Because role play. 1(17)(a), 10501(c) hold 20 requests regulation.14 711; Chesapeake Ohio 283 35, 42, 337, 339, 75 824 (1931). alone might enough prohibit raising Pennsylvania Clark Bros. Mining 238 456, 469, 35 896, 900, 59 1406 (1915) (no distribution practices ruled unlawful). 21 need barred issues, addressed wishes landslides, "made enable continuation service," 1967 "sufficient operations," "willful" "insist burdensome use," "continued commerce." 35a-36a. findings delegated simply room stemming 22 Nothing Puritan 237 867 (1915), compels result. respondents rely heavily language, discuss detail. Puritan, interpret related cars. survives substantive change recodified,15 nothing "shall way abridge alter addition remedies." Relying pursue previously agreed them, long "there involved." 131-132, 487-88. Without provision, explained, "it that, having entered field, whole liability shippers withdrawn courts," "was deprive general concurrent jurisdiction." 130, 487. relied broad-sounding concluding survived enactment amendments urges point analysis fails take into account arises Esch Car 23, 40 101. Our preceded viewed amended.16 assuming sake argument continuing validity opinion's reasoning, disposition noted involved calling particular, issue policies. factual carried duties undertake. Court's recognized importance distinction: borne mind forms discrimination,—one enforcement; promulgating discriminatory rule, unfair enforcement rule. practice itself attacked discriminatory, raised calls vested Until body declared unjust, occasioned enforcement. 25 "But fair face, unequally applied, damages, violation enforcement, involved, being fact." Ibid. 26 Here, face reverse situation gave rise involve evaluations call type conclusions entrusted informed 484-486, 342-43; Great Northern Merchants Elevator 259 285, 291, 42 477, 479, 66 943 (1922). analysis, "no jurisdiction" "has unjust." 131, discretion, done opposite; proper.17 Congress.18 reasons, supports arguments lack entertain arising today position remedy truly harmed. On contrary, free avenues set forth statute. gone challenged refusal filed, not. certificate, opportunity evidence allegation, so. Having lost battle there, followed congressionally prescribed path seeking appeals. This, creates express bring sue, implied consider policies, preserved. IV reserve day lies remanded proceedings opinion. ordered. traveling All traveled undisputed An characterized intention permanently indefinitely line." 1028 1976). Chicago, I. P. 501 908, 911 1974), cert. denied, 420 972, 1393, 652 (1975). embargo, contrast, emergency initiated notice n.2. "did file verified statement required," "deemed default formal proceedings." 34a-35a. reason default, according respondent, business forcing 2342(5), 2343, 2344. "Every railway corporation notice, suitable apply therefor, kinds freight, receive freight dispatch. provides: operating liable sustained person, employees corporation, consequence neglect agents, mismanagement engineers, willful wrongs, omission, employees, wrongs connected employed, contract restricts legal binding." create law. See, e. g., Baird Minneapolis St. L. R., 181 1104, 165 412 (1917). remove diversity citizenship lacking, correctly federal-court relevance inquiry exercising jurisdiction. 468-469 Brancadora Federal Nat. Mortgage 344 935 (CA9 1965); Alaska K L Distributors, Inc., 318 498, 498 1963). primary jurisdiction, sense initial deferral expertise litigation. well argues primary-jurisdiction occasion Although agree see infra, 326-327, 14, doctrine. As interpreting Act: "[T]he survival presence basic depends. Survival depends effect regulation." Hewitt-Robins Eastern Freight-Ways 371 84, 89, 157, 160, 142 (1962). best postpone ruled, yet place. complied spirit, save later ruled. Pub.L. 95-473, 92 1337, completely Subtitle Title Code. main, recodification change. opinion, cite original ease referring precedents. Where appropriate, give cites recodified. files months. 10904(a)(3)(D) re M., 611 662, 668 (CA7 1979). Section 1(20), was, "any competent enjoin private repealed Railroad Revitalization Regulatory Reform 94-210, 90 127-130. amended recodified, government State, sue illegal abandonments. 11505 (action state), 11702 Commission), 11703 States) person injunctive prevent freight-forwarding 11704 affect numerous exist. [would] plac[e] entirely mercy carrier, overriding Act." Hewitt-Robins, Freight-Ways, 88, 159 (emphasis added). 11705 III), Powell 300 276, 287, 57 470, 476, 81 643 (1937), remedy, enforcing" brought, 3, finality actions. remain valid supported substantial evidence, Illinois 385 57, 66, 87 255, 260, 162 (1966), ordinarily revision via collateral attack furnishing Most factors 354 125-126 (1977); Baltimore Annapolis 348 678, 700-703 (1976); 342 643, 644 (1972). 10103 moreover, 1(17)(a) ed.), "inconsistent Commission" prohibited 326. obviously considered circumstances apparently distinction jurisdictional strictly discretion. 472. assumed remains good erred raises expertise. concedes theory terminated compelling carrier." Brief original). kind decide, us, course reliance 1025 misplaced. behalf enumerated awaiting note bear relation us.

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