Document: 459 U.S. 131 103 S.Ct. 514 74 L.Ed.2d 311 BURLINGTON NORTHERN INC. et al., Petitioners,v.UNITED STATES al. No. 81-1008. Argued Nov. 3, 1982. Decided Dec. 13, Rehearing Denied Feb. 22, 1983. See U.S., 1238. Syllabus In 1974, San Antonio, Tex., negotiated with petitioner railroads to transport Antonio coal purchased under long-term contracts in Wyoming for use the city's coal-fired electricity generating plants. Because it was not satisfied railroads' quoted rate moving coal, filed a complaint Interstate Commerce Commission (ICC). 1976, ICC issued temporary order, subject modification, establishing of $10.93 per ton. 1978, on petition railroads, ordered raised $16.12 But both and were dissatisfied, 1979 third order resulting $17.23 The then tariffs at this rate. Petitions review 1978 orders by all parties Court Appeals District Columbia Circuit, which 1980 decided that arbitrary capricious, accordingly vacated them remanded ICC. disagreed about effect decision pending ICC's remand, continuing treat as one required pay, claiming revived. asked clarification its decision. Ultimately, after parties, review, had carried their controversy other forums, including ICC, 1981 1976 later held since without authority determine interim policy remand proceedings court's necessarily reinstate "revived" vacation orders, therefore set excess "unlawful" period court but before formally order. Held: should have deferred questions concerning applicable rates. Pp. 138-144. (a) Under Act, primary jurisdiction reasonableness rates lies Federal reject extends alone Where there is dispute appropriate rate, equities favor allowing carriers' control Act shipper may receive reparation overpayment while carrier can never be made whole underpayment. 138-142. (b) By declaring indicated, did what federal do, i.e., freeze charge shippers prior reasonable be. This undermines ability exercise insure equitable uniform Moreover, Appeals' determination requires accept return considered when approved "below maximum rate" modified 1978. If unsure continued vitality more course would been explanation rather than undertake itself construe so doing interfere jurisdiction. striking Court's action operated leave redetermination reparations protect find these too high. 142-144. 211 U.S.App.D.C. 111, 655 F.2d 1341, reversed. Robert Eden Martin, Washington, D.C., petitioners. Elliott Schulder, respondent support William L. Slover, non-federal respondents. Chief Justice BURGER delivered opinion Court. 1 We granted certiorari clarify allocation authority, between courts Commission, movements rail. 2 * case arose result 1972 Texas, acting through City Public Service Board, substitute coal-generated natural gas. Toward end, entered into purchase from two suppliers Campbell County, Wyoming; began construct units; initiated negotiations Burlington Northern, Inc. Southern Pacific Transportation Company new Although Railroads originally $7.90 ton County economic conditions, characterized rapid inflation, raise $11.90 May 1975, seeking prescription just tariff. 3 October rendered decision, Texas v. Inc., 355 405 (1976) (San I), movement. emphasized noting "[t]he public interest that, view parties' inability reach an agreement, prescribed time movement commence. As actual experience gained, modification if circumstances warrant." Id., 417-418. "continue full force until further Commission." Ibid. sought United States Eighth claiming, inter alia, erred considering Railroad Revitalization Regulatory Reform Pub.L. 94-210, 90 Stat. 31 (4-R Act),1 became effective announced. affirmed reasoning expressly could guidelines implementing 4-R promulgated, States, 555 637, 648 (CA8 1977). 4 June 1977, six months operation I rates, petitioned reopened proceeding, year later, Northern 359 (1978) II ), finding compared similar movements, [was] warranted." 7. After making extensive cost findings applying ratemaking level 5 Both dissatisfied reconsideration. 1979, issued, 361 482 (1979) III certain modifications analysis resulted 6 prescriptions Circuit parties. Without expressing whether high, claimed, or low, urged, 1980, aspects "arbitrary capricious" "without defensible rationale." 203 U.S.App.Div. 249, 269, 631 831, 851 (1980). Commission's Commission. 7 It point present arose, sharply remand. Construing vacating only filed, pay pursuant 49 U.S.C. (Supp.III) § 10761. hand, interpreted reviving I. Accordingly, unilaterally reduced payments 1976.2 8 we might thought otherwise, clear legal taken Several maneuvers attempted: first effort reestablish period, carriers tariff early November 1980. That tariff, prepay service provided, suspended division agreed precluded any except $10.93. 9 decision.3 Pending however, forums. again attempted file conformity III. rejected even tariff's December date; addition, enforce Western Texas. Before rule, countered filing asking refusal suspend amounted second prepayment tariff—which also accepted react Railroad's request clarification, ruled Antonio's application preliminarily enjoin conditioning conform appealed Fifth Circuit. 10 April 1981, Railroads' appeal finally took step necessary end over applied context prescription. stated "what . during effect." 364 887, 894 (1981) IV ). Pursuant 10327(h), 30 days 1981. 11 holding, preliminary injunction ground collecting denied stay 650 (CA5), clarified, 652 422 (5th Cir.1981). Thus, shipment ton.4 12 One month 30, holding. here. Citing Consolidated Rail Corp. National Association Recycling Industries, 449 609, 101 775, 66 776 (per curiam Atchison, T. & S.F. R. Co. Wichita Board Trade, 412 800, 93 2367, 37 350 (1973), I, F.2d, 1344. Tariffs declared 1343. certiorari. 455 988, 102 1609, 71 847 (1982).5 13 agree Trade case, holdings require defer rates; accordingly, reverse. 14 recent years, four occasions consider courts' alter rail regulated Act. these, Arrow Co., 372 658, 83 984, 52 (1963), railroad faced declining revenues lower issue us district power reduction competitors those who shipped Affirming denial injunction, Congress, meant "vest sole exclusive suspend" 667, S.Ct., 988. 15 noted several reasons rule. First, legislative history 1910 amendments demonstrated Congress nonuniformity inequities 1887 Act's failure give grant injunctive relief. amendment cure problem unless suspension exclusive. 664, 987. 16 Second, court-ordered relief careful way takes account need return, desire lawful. Unlike limited seven-months' duration. 665-666, 987-88. shippers, are fully protected provision reimburse determines unreasonable. 666, 17 Finally, injunctions inconsistent congressional intent vest decisions stating: 18 "Congress foreclose judicial timing changes out harmony uniformity levels fostered doctrine jurisdiction." 668, 990. (Emphasis original.) 19 Ten years SCRAP, 669, 2405, 254 (1973). There reversed three-judge enjoined permitting surcharges shipments recycled goods. argument conferred Environmental Policy 42 4331 seq., stating "to context, though based upon substantive consideration directly go effect, ignore our conclusion Arrow. ." 697, 2421. (First emphasis added; others 20 A supra, position stronger terms. increases failed, view, explain adequately. addition remanding reconsideration charging nevertheless reiterating views expressed has no enter operates fix 21 "The consequence suspending [an] rely, some subsequent proposed reasonable. 22 "Carriers put Suspension thus does preclude rate." 818-819, 2380-81. added.) 23 Again channeled instance, id., 820, 2381; interferes delicate balance strikes competing interests carrier, id.; ultimately because gives right such protection given carriers, 823, 2383. 24 now turn holding Rail, appear concede states controlling law. fixed materials. On revoked increases, structure incorporating standards forth reversing summarily, held: 25 particular implemented matter placed squarely hands 662-672 [83 986-91, 52] (1963). [T]here basis revocation against increases. 'If reviewing cannot discern [the Commission's] policies, agency justification. When agency's policies unclear, ordinarily Commission.' 822 [93 2382, 350] (1973) 612, 777. 26 To recapitulate, cases stand three propositions: (1) see Arizona Grocery 284 370, 384, 183, 184, 76 L.Ed. 348 (1932); (2) whatever reason alone, themselves, cf. 28 2349 ("[t]he make judgment determining validity of, enjoining agency") (emphasis added); (3) where carrier's 11705(b)(3).6 Cf. Atlantic Coast Line Florida, 295 301, 55 713, 79 1451 (1935). 27 distinguish Arrow, supra. entering 1980-May said do: approach delegated More important, inequitable best times, impact particularly acute high inflation changing regulatory standards.7 provisions do apply losses suffered recovered. Carriers adequately §§ 10761 10762 10327(g) modify urges. arguable—and proceedings, Brief Petitioner 38-39—that either take party adversely affected ask hearing Grocery, plenary causes delay, not, usually will elapsed served, 10327(h). 29 claim powerless achieve different because, 10704(a)(1), legally Since must charge. disagree. terms Commission," 418. Absent contrary indication terminated I.8 jurisdiction, important policies.9 existence reached Rail. each preceded it. III, always high.10 32 33 Reversed. changed atmosphere key respects. Especially relevant here 205, which, codified 10704(a)(2), instructs "make adequate assist attaining revenue levels" "adequate, honest, economical efficient management, cover total operating expenses plus profit (or both) capital employed business." For convenience, continue refer "San I," II," III." fact, general here, significantly raising 9, n. 3. Initially, adopted panel, namely While pending, Nat'l Ass'n handed down. At time, revised espouse position. Government joined overturn Appeals. dispute, prescription, savings it—and loss Railroads—of $19 million. Respondents 6. argues within rehearing deprives "resolve[d] genuine ambiguity previously rendered" dealt question "plainly properly settled finality," FTC Minneapolis-Honeywell Regulator 344 206, 211-212, 73 245, 248-49, 97 245 (1952), plainly 207(d)(2) Staggers 96-448, 94 Stat.1906, 10707(d)(2), reparations. limited, underpayments tariff; where, prevented higher See, e.g., discussed note 1, supra; Stat.1895, statutes movement; neither makes much dictionary definitions "modify" "vacate." ordinary meanings insignificant statutory construction, cited single distinction. Another minimized interference objectives, own calculations low. 2349, aside "in part, agency." 822, 2382. mandates result, doctrine.

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