Document: 498 U.S. 517 111 S.Ct. 913 112 L.Ed.2d 1125 AIR COURIER CONFERENCE OF AMERICA, Petitioner,v.AMERICAN POSTAL WORKERS UNION, AFL-CIO, et al. No. 89-1416. Argued Nov. 28, 1990. Decided Feb. 26, 1991. L. Peter Farkas, Washington, D.C., for petitioner. 1 Paul J. Larkin, Jr., federal respondent supporting the 2 Keith E. Secular, New York City, private respondent. Syllabus 3 The United States Postal Service's monopoly over carriage of letters in and Nation is codified a group statutes known as Private Express Statutes (PES). was created by Congress revenue protection measure Service vis-a-vis competitors. Pursuant to PES provision allowing it suspend restrictions any mail route where public interest so requires, issued regulation authorizing practice called "international remailing," which entails bypassing using couriers deposit with foreign postal services destined addresses. Respondent Unions, representing employees, sued District Court, challenging pursuant judicial review provisions Administrative Procedure Act (APA), claiming that rulemaking record inadequate support finding regulation's suspension interest. Court Appeals vacated Court's grant summary judgment favor petitioner Air Courier Conference America (ACCA), holding Unions satisfied zone-of-interests requirement APA under Clarke v. Securities Industry Assn., 479 388, 107 750, 93 757 and, on merits, not justified Held: 4 1. This declines decide whether 39 U.S.C. § 410(a) exempts from APA, since question argued to, nor considered by, either lower courts, raised ACCA its certiorari petition, first time brief opposition encompassed questions presented upon granted. Pp. 522-523. 5 2. do have standing challenge permit engage international remailing. To establish similar cases, must show, among other things, claimed adverse effect workers' employment opportunities resulting within zone interests PES. they cannot do, language, see, e.g., 18 1696(c) 601(a), legislative history demonstrate that, enacting those statutes, concerned protecting or furthering job opportunities, but receipt necessary revenues Service. enable fulfill responsibilities provide service all communities at uniform rate preventing competing selectively most profitable routes. monopoly, therefore, exists protect citizenry large, workers. Nor can applying test, look beyond 1970 Reorganization (PRA), which, addition reenacting without substantive changes, contains various labor-management designed improve pay, working conditions, relations employees. None integral relationship PRA provisions, PRA's no indication such connection exists. It stretches test too far say simply because may be linchpin Service, whom different part benefit violation Clarke, supra, 401, S.Ct., 758, distinguished. 523-530. 6 3. In light Unions' lack standing, this does reach merits their claim 530-531. 7 282 U.S.App.D.C. 5, 891 F.2d 304, reversed. 8 REHNQUIST, C.J., delivered opinion WHITE, O'CONNOR, SCALIA, KENNEDY, SOUTER, JJ., joined. STEVENS, J., filed an concurring judgment, MARSHALL BLACKMUN, joined, post, p. ---. 9 Chief Justice REHNQUIST Court. 10 case requires us employees are "zone interests" (PES), action suspending operation respect courier remailing." We hold not. 11 Since establishment, has exercised States. PES, §§ 1693-1699 601-606. mission. See, Regents Univ. Calif. Public Employment Relations Bd., 485 589, 598, 108 1404, 1410, 99 664 (1988). prevents competitors offering low-cost routes prices below while leaving high-cost insufficient means mandate providing rates patrons areas, including remote less populated. See Haldi, Monopoly: An Assessment (1974); Craig & Alvis, Two Hundred Years Covering Commercial Well Personal Messages, 12 U.S.F.L.Rev. 57, 60, n. (1977). A allows "suspend [the restrictions] suspension." 601(b). 1979, suspended "extremely urgent letters," thereby overnight delivery services. CFR 320.6 (1990); 44 Fed.Reg. 61178 (1979). services, members petitioner-intervenor America, relied systems Believing remailing misuse urgent-letter suspension, proposed modification clarification order make clear extremely did cover practice. 50 41462 (1985). comments received response rule were overwhelmingly negative focused perceived benefits remailing: Lower cost, faster delivery, greater reliability, enhanced ability companies remain competitive market. Because vigorous rule, agreed reconsider position instituted "to remove cloud" validity 51 9852, 9853 (1986). After receiving additional meeting subject, June 17, 1986, proposal Id., 21929-21932. Additional received, after consideration had compiled, final 29637. 13 Respondents, American Workers Union, National Association Letter Carriers, AFL-CIO (Unions), Columbia, 702. They Petitioner (ACCA) intervened. On December 20, 1988, granted ACCA. 701 F.Supp. 880 appealed Columbia Circuit, court judgment. 304 (1989). held (1987), arbitrary capricious narrow interpretation "the interest." determining protected noted reenacted Pub.L. 91-375, 84 Stat. 719, 101 seq. found "key impetus" "principal purpose" implement labor reforms would conditions employees." U.S.App.D.C., 10-11, F.2d, 309-310. Reasoning "[t]he asserted embraced directly reform PRA," id., 11, 310, constitute statutory scheme maintaining effective, financially viable Service," ibid., concluded interplay between entire persuades there 'arguable' 'plausible' purposes Union[s]." Ibid. also protective alone, plausibly relate reduction opportunities," "postal workers PES's function ensuring sufficient base" activities. 14 Addressing order, applied 601(b)'s narrowly considering only remail small segment consumer base engages commerce. certiorari, 496 904, 110 2584, 265 (1990), we now reverse. 15 nominally respondent, argues along precluded 410(a), contends provides Chapters Title apply Service.1 dealing "Administrative Procedure" (Chapter 5) "Judicial Review" 7). 16 argument petition writ certiorari. deciding case. issue based our certiorari.2 Consequently, decline APA.3 17 sue respondents suffered legal wrong challenged agency action, adversely affected "aggrieved meaning relevant statute." Once shown affected, i.e., "injury fact," see Allen Wright, 468 737, 751, 104 3315, 3324, 82 556 (1984), show sought through Lujan Wildlife Federation, 497 871, 3177, 695 (1987); Data Processing Organizations, Inc. Camp, 397 150, 90 827, 25 184 (1970). Specifically, plaintiff injury he complains (his aggrievement, him ) falls 'zone interests' whose forms basis his complaint." Lujan, 883, 3186 (citing U.S., 396-397, 755-756). injury-in-fact increased competition might fact appealed. before us, then, PES—the assert violated promulgating rule. 19 opportunities." 310. view mistaken, conflates fact. gave following example illustrating how necessarily mean one given statute: 20 "[T]he failure comply requiring 'on record' hearings assuredly company contract transcribe agency's proceedings; obviously enacted parties proceedings reporters, 'adversely meaning' 3186. 21 inquire Congress' intent determine meant statutes. particular language respondents' assertion intended jobs Service.4 fact, 1696(c), conveyance if done one-time compensation, carried out mails certain procedures followed, indicate congressional concern 22 legislation—such When limiting post roads 1792, Post Office offered pickup C. Scheele, Short History Mail 66, 91 Statutory authority employ letter carriers until two years later largely ignored late 1820's. 66. 1792 Government's capital investment roads, yet virtually nonexistent 1825 1827, Acts passed prohibiting use stages vehicles, packet boats, vessels, 19, ch. 64 March 3, 1825, 107, foot horse posts, 61 2, 238. been 1824 1827 Acts; targeted transportation even then contracted carriers. W. Fuller, Mail: Enlarger Common Life 150 (1972). 23 1845 occasion subject substantial debate. statute, entitled "An reduce postage, limit correct abuse franking privilege, prevention frauds Department," 732, result three circumstances, none involved First, Department continued run deficits spite high postage rates. H.R.Rep. 477, 28th Cong., 1st Sess., 2-3, (1844). Second, enabled expresses inroads into domestic market proved unsuccessful prosecuting them. Priest, Monopoly States, J.Law Econ., 33, 60 (1975) Gray, 26 F.Cas. (No. 15, 253) (Mass.1840), Adams, 24 761 14,421) (SDNY 1843)). Third, inauguration "penny post" England quadrupled mails, thought dual virtues driving business increasing volume Office. This, turn, help Office's deficit. Cong.Globe, 2d 213 (1845) (remarks Sens. Simmons Breese). 5. sections shows two-fold purpose. Postmaster General distant commercial centers Northeast believed prevent users taking advantage early intelligence news affairs reached general populace slower mails. S.Doc. 3-4 (1845). duty Government serve outlying, frontier doing cost. 2-3. Thus, seen end themselves, sense levels employment, rather achieve national integration ensure areas equally served responsibility If could cost market, handle lose lucrative portions business, average unit higher users.5 Report President's Commission Organization, Towards Excellence, 94th 129 (Comm.Print 1968). will provided secure failed 601(b) requires. foregoing discussion demonstrated further argue courts should test. stablize "linchpin" arguably covered rely contention. 27 recent series cases regulated entities regulations. supra; Investment Co. Institute 401 617, 1091, 28 367 (1971); said "we limited statute sued, consider helps understand overall Bank Act." 758. statement, like others opinions, taken context made. next paragraph opinion, pointed 36, plaintiffs misinterpreted Comptroller, itself "a exception otherwise applicable [12 U.S.C.] 81," places bank transact headquarters "branches" permitted 36. Thus merely plaintiffs' 81, 36 exception. situation present quite different. PRA, both included codification PRA. spread some 65 pages Code take up title volume. [under APA] course, gravamen 886, 3187. adopt petitioners' contention require "relevant statute" united deal But accept level generality defining deprive meaning. 29 Unlike discussed made changes Criminal Code, 1693-1699; readopted change 601-606; required conduct 2-year study reevaluation laws modified repealed. 7, 783; S.Rep. 91-912, (1970); 91-1104, 48 (1970), U.S.Code Cong. Admin.News 1970, 3649. 30 documents constituting suggest saw relations. Senate House Reports note bills continue existing law referred well be; who 31 extension holdings Processing, Institute, allow leapfrog extension, therefore 32 Reversed. 33 BLACKMUN join, 34 There ambiguity text 410(a). That section (APA) exercise powers ante, 522, unnecessary, unwise, entirely hypothetical whether, authorize actions invoke curtail opportunities. I join discussing question. 35 objection waived surely matter notice own motion.* Faithful adherence doctrine restraint fully adequate justification best narrowest ground available. so. Accordingly, relying solely concur dismissed. 410 pertinent part: "[N]o Federal contracts, property, works, officers, budgets, funds, chapters shall Service." follows: "1. Are interest' when 'the requires?' Brief i. "2. Did act unreasonably, arbitrarily, capriciously "public interest" standard effects public, competition, services?" "congressional preclusion jurisdictional," Block Community Nutrition 467 340, 353, 4, 2450, 2457, 81 270 parties. agree. Section 410, most, APA. jurisdictional, Califano Sanders, 430 99, 97 980, 192 (1977), defense exemption Government. Whether essence cause against jurisdiction, assumed being decided. Burks Lasker, 441 471, 476, 1831, 1836, 404 1696 provides: "Private express packets "(a) Whoever establishes packets, manner causes same regular trips stated periods established law, city, town, place place, regularly carried, fined more than $500 imprisoned six months, both. . "(b) transmits unlawful means, delivers agent thereof, deposits appointed purpose transmitted packet, $50. "(c) chapter prohibit transmission hands special messenger employed only. Whenever twenty-five conveyed messenger, requirements 601 39, observed each piece." "Letters when— "(1) enclosed envelope; "(2) amount charged sent paid stamps, meter "(3) envelope properly addressed; "(4) sealed defacing "(5) stamps canceled ink sender; "(6) date letter, carrier endorsed ink. regulate brought suit here remailers. Employees generally denied enforce direct injury. Adams Pan World Airways, Inc., 264 174, 828 cert. sub nom. Union de Transports Aeriens Beckman, 934, 1109, (1988) (former airline antitrust allegedly drove former employer business); Curtis Campbell-Taggart, 687 336 (CA10), denied, 459 1090, 103 576, 74 937 (1982) (employees corporation injured anticompetitive laws). * least arguable waive review. As points out, ----. case, cognizant antecedent resolved. Moreover, although recognized USPS exempt strictures ('APA'), 410(a)," 8, 307 (1989), nevertheless thus implicitly rejecting here.

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