Document: 508 U.S. 439 113 S.Ct. 2173 124 L.Ed.2d 402 UNITED STATES NATIONAL BANK OF OREGON, Petitioner,v.INDEPENDENT INSURANCE AGENTS AMERICA, INC., et al. Eugene R. LUDWIG, Comptroller of the Currency, al., Petitioners, v. INDEPENDENT Nos. 92-484, 92-507. Argued April 19, 1993. Decided June 7, Syllabus * The Act Sept. 1916, 39 Stat. 753 (1916 Act), among other things, authorized any national bank doing business in a community with population not exceeding 5,000 to act as agent for insurance company. Although early editions United States Code included this provision section 92 title 12 (section 92), 1952 and subsequent omitted note indicating that Congress had repealed it 1918. Nevertheless, interpreting permit banks located small communities sell outside those communities, petitioner Currency ruled 1986 could through its branch Oregon town customers nationwide. Respondents, various trade organizations representing agents, brought suit challenging Comptroller's decision inconsistent 92's terms. District Court disagreed assertion granted summary judgment petitioners, noting apparently was inadvertently 1918, but expressing view exists "in proprio vigore." Respondents did challenge validity or Appeals, despite latter court's invitation do so at oral argument. Only after court ordered supplemental briefing on issue respondents even urge resolve question, while still taking no position merits. In reversing remanding instructions enter respondents, Appeals found first that, though parties their own questioned validity, duty so, and, second, relevant statutes, traditionally construed, demonstrated Held: 1. discretion consider 92, under circumstances abuse it. There is doubt before an Article III case controversy involving status. Though lock horns over issue, they clash whether properly relied authority his ruling. A presented limited particular legal theories advanced by parties, retains independent power identify apply proper construction governing law, Kamen Kemper Financial Services, Inc., 500 ----, 111 1711, 1718, 114 152 where law does govern because force, cf. Cohens Virginia, 19 (6 Wheat.) 264, 405, 5 L.Ed. 257 (Marshall, C.J.). Nor prudence oblige below treat unasserted argument been having waived, since may antecedent ultimately dispositive dispute it, if fail brief issue. Arcadia Ohio Power Co., 498 73, 77, 415, 418, 112 374. asked construe statutory Code's keepers suggested longer appeal from justifying reliance logic "inadverten[t] repea[l]," remained effect force. After giving ample opportunity address acted without impropriety refusing accept what stipulation question validity. Pp. ____. 2. Section Despite omission Code, must remain books Statutes Large, which provides "the evidence laws" 1 U.S.C. § 112, dictates. Viewed isolation, deployment certain quotation marks 1916 appears support argument, adopted pressed places Rev.Stat. 5202, subsequently when War Finance Corporation Act, ch. 45, 40 506 (1918 eliminated portion 5202. An examination structure, language, subject matter however, overwhelming placement placed 13 Federal Reserve Act. Since 1918 touch 13, affect, much less repeal, 92. It would appear misplacement simple scrivener's error someone unfamiliar law's object design. Courts should disregard punctuation, repunctuate, necessary render true meaning statute. Hammock Loan Trust 105 84-85, 26 1111. 293 U.S.App.D.C. 403, 955 F.2d 731 (CADC 1992), reversed remanded. SOUTER, J., delivered opinion unanimous Court. Christopher J. Wright, Washington, DC, argued petitioners. Ann Mary Kappler, respondents. Justice SOUTER recently enacted communities. These cases present unlikely We hold repeal occurred. 2 Almost 80 years ago, "doing place exceed five thousand inhabitants . [to] fire, life, company." 753. compilation appeared 12. See (1926 ed.); see also 1934, 1940, 1946. edition provision, 1918.1 (1952 ed.) (note). has left out including current one (each containing substance same 1952, 1958, 1964, 1970, 1976, 1982, 1988), refer "section 92," will we. 3 absence assumed remains occasion actually amending Garn-St Germain Depository Institutions 403(b), 96 1511; Competitive Equality Banking 1987, 201(b)(5), 101 583 (imposing 1-year moratorium activities). regulators concerned provision's subject, Board, have likewise understanding Brief Petitioners No. 92-507, pp. 31-32; Petitioner 26-28, indeed ruling relying precipitated these cases.2 4 came request National Bank Oregon, principal Portland, Banks, (population: 489), approved 1986, branches populations only inside App. Pet. Cert. 74a-79a. we decide today; Office are petitioners other. both agents. They challenged Columbia, claiming be "arbitrary, capricious, discretion, otherwise accordance law" Administrative Procedure (APA), 706(2)(A). argued, maintained permits federal Bank, defendant-intervenor, ground interpretation "rational consistent [section 92]." Assn. Life Underwriters Clarke, 736 F.Supp. 1162, 1173 (DC 1990) (internal citation omitted). thought "worth Code" "apparently repealed" 1918; Congress, Comptroller, courts presumed continuing content assume vigore," meaning, take Id., 1163, n. 6 rule existed, took tack Columbia Circuit, merely opening then stating all players nevertheless, directed prepared status (at respondents' counsel declined argue force) brief, urged valid law. Court's "duty" Independent Ins. Agents America, Inc. 406, 731, 734 (1992); "traditionally construed," demonstrate id., 407, F.2d, 735. Judge Silberman, dissenting, affirmed addressing he court. 413-416, 741-744. denied suggestion rehearing en banc, several judges filing separate statements. 296 115, 965 1077 1992). 7 separately petitioned certiorari, petitions presenting force additional addressed Because conflict important American Land Title 968 150, 151-154 (CA2 cert. pending, 92-482, 92-645, petitions. --- (1992). now reverse. II 8 Before turning Bank's threshold erred considering all. Court; or, invitation, Not until contends lacked alternatively, abused so. need linger long either 9 "The exercise judicial Art. Constitution depends existence controversy," "a [lacks] advisory opinions." Preiser Newkirk, 422 395, 401, 95 2330, 2334, 45 272 (1975); Flast Cohen, 392 83, 97, 88 1942, 1951, 20 947 (1968). maintains there about resolving violated prohibition against opinions. 10 doubt, start "pursuance honest actual antagonistic rights [party] another," Muskrat States, 219 346, 359, 31 250, 255, 55 246 (1911) omitted), "valuable [would] directly affected specific substantial degree" lawful, Nashville, C. & St. L.R. Co. Wallace, 288 249, 262, 53 345, 347, 77 730 (1933), therefore real extending ruling, "[w]hen claim court, rather law," (1991), Power" extends "arising Laws States," III, 2, cl. 1, constitutional determine exists. Cf. (1821) ("[I]f, depending cause depend such arising constitution, extend") contrary conclusion litigants, agreeing presented, extract hypothetical Acts dubious principles, difficult characterize anything advisory. 11 waived. start, noted, "antecedent of" brief. 374 (1990); Cardinal Chemical Morton Int'l, 9, 1967, (1993) (addressing agreed answer). moreover, along codifiers' indication repealed, created existed "need basis whose nonexistence apparent face simply agree upon it." Burke, 504 1867, 1877, 119 34 (1992) (SCALIA, concurring judgment). While says initially accepting widespread assumption forfeited right exists, "[t]here can estoppel way ascertaining Town South Ottawa Perkins, 94 260, 267, 24 154 (1877). stray beyond prudential boundaries. accordingly, APA F.Supp., Swift Hocking Valley 243 281, 289, 37 287, 290, 61 722 (1917). had, concluded, (which imply declining so), certainly discretion. appearance "prima facie" 204(a), Large "legal laws," dictates.3 Welden, 377 95, 98, 4, 84 1082, 1085, (1964); Stephan 319 423, 426, 63 1135, 1135-1136, 87 1490 (1943) (per curiam ). analysis underlies our calls familiarity provisions appearing Large. This background. 14 background begins 1863 1864, Civil reenacted launched modern banking system providing chartering private commercial empowering newly uniform currency. Feb. 25, 1863, 58, 665; 3, 106, 99; E. Symons, Jr., White, Law 22-25 (3d ed. 1991); 38. cases, set limits indebtedness banks, exceptions. 42, 677 (1863 Act); 36, 110 (1864 Act). Ten later, again part Revised massive revision, reorganization, reenactment statutes time, accompanied simultaneous prior ones. §§ 1-5601 (1874); Dwan Feidler, Statutes—Their History Use, 22 Minn.L.Rev. 1008, 1012-1015 (1938).4 62 Statutes, 5133 5243, Nation's laws, few stylistic alterations, Act's became 5202 Statutes: 15 Sec. No association shall time indebted, liable, amount capital stock paid remaining undiminished losses otherwise, except account demands nature following: 16 First. Notes circulation. 17 Second. Moneys deposited collected association. 18 Third. Bills exchange drafts drawn money deposit credit association, due thereto. Fourth. Liabilities stockholders dividends reserved profits.5 1913 amended adding fifth exception limit. amendment detail (Federal Board required formed pursuant become members new System. 6, 38 251; P. Studenski H. Krooss, 255-262 (2d 1963). paragraphs forth powers discount forms notes paper, issued banks. 263-264. (subject ellipsis) followed: 21 fifty-two hundred two hereby read follows: 23 Fifth. incurred 264. next final paragraph regulations rediscount bills receivable exchange. Ibid. 25 statute sections 752 Unlike employed marks, proved critical Appeals's finding provided, That thirteen be, hereby, Then followed within track modifications generally expanding closed, appeared: 27 "No 28 "First. 29 "Second. 30 "Third. "Fourth. reserve profits. 32 "Fifth. 33 purchase sale domestic foreign exchange, acceptances restrictions, limitations, imposed Board. "That addition vested associations organized laws inhabitants, shown last preceding decennial census, may, rules prescribed company authorities State said State. 35 "Any member more than three months' sight run, exclusive days grace, bankers counties dependencies insular possessions purpose furnishing dollar usages respective countries, dependencies, possessions. Such acquired amounts regulations, limitations ." 36 753-754. second-to-last just quoted eventually codified went amend introducing phrase surrounded placing revised language marks. 754. pattern repeated amendments 16, 24, 754-756. by, least, sixth limit: 20. "Sec. "Sixth. Act." 41 512. B 42 here stated: (to added exception), thus repealing Our discussion premise ends, conclude Act; 43 reader following path punctuation arrive opposite conclusion, reads, follows.6 colon marks; closing later unavoidable inference familiar 44 statute's plain enforced, course, typically heed commands punctuation. But purported plain-meaning based necessarily incomplete runs risk distorting meaning. Along text consists words living communal existence," Learned Hand's phrase, each word informing others "all aggregate tak[ing] purport setting used." NLRB Federbush 121 954, 957 1941). Over stressed "[i]n expounding statute, guided single sentence sentence, look whole policy." Heirs Boisdore, 49 (8 How.) 113, 122, 1009 (1849) (quoted dozen most Dole Steelworkers, 494 26, 35, 929, 934, 108 (1990)); King Vincent's Hospital, 502 570, 574, 116 578 (1991). isolated sentences alone reliable guide discovery Statutory "is holistic endeavor," Savings Texas Timbers Inwood Forest Associates, Ltd., 484 365, 371, 626, 630, 98 740 (1988), minimum, full text, well matter. Here, points direction, way. certainly, view, allow were misplaced put Act.7 46 thing notice, think, structure. [t]hat entitled "Federal Act," [1913], follows. 752. contains seven directory phrases (the numbers citations brackets ours): 47 [1] At end eleven insert clause 48 ". [39 752] [2] 50 51 [3] ."8 753] [4] subsection (e) fourteen, 52 754] [5] second sixteen 54 [6] twenty-four 56 57 [7] twenty-five 58 755] 59 open third "hereby amended" close fourth, hinges like others. structure supports another possibility, introduce Of phrases, terms sure, free detour work revise Statutes. taken turn, expect some textual point once done returned revision None follow mentioning refers back failure fourth example, say something "subsection fourteen suggests never veered original singlemindedly scope. 60 Further comes title: To December twenty-third, nineteen thirteen. During era titles pre-existing mentioned revised. See, e.g., 177, 967 ("An reenact four, eleven, sixteen, nineteen, twenty-two known eight nine, Statutes"). 251 ("Federal Act"). Absent comprehensive review impossible know extent exceptions general rule, any, cast aside solely title. provide supporting INS Center Immigrants' Rights, 551, 556, 546 (1991) (titles "can aid ambiguity legislation's text"). One ask, why stated follows, 753, answer emerges comparing amend, 1913, noticing identical As contained granting banks; (by limit "[l]iabilities Act"), began proceeded manner. somewhat versions ones similarity order restated version entirety, revising intended change leaving rest unaltered, 5202.9 defending reading meaningless purports good reason carry forward intend further. completely restating mixture old (providing "to follows," 752), restate indicate repeal. decisive provided surrounding regulate 64 65 (emphasis added). "[T]his Act" mean rediscount. Use "this discount-and-rediscount powerful proof refers, crucial travels together surround it; neither nor, justifies separating them. follows too. 66 persuaded term reference (in 5202). 753; 264 (1913 If right, (and accompanies it) arguable construing paragraph, cannot attach uses 752, 754, none vicinity Presumptively, " 'identical used different parts meaning,' Commissioner Keystone Consolidated Industries, 2006, ---- (quoting Atlantic Cleaners Dyers, 286 427, 433, 607, 609, 76 1204 (1932)), nothing rebuts presumption here, use contained. Rather aiding then, cuts fact confirms ended. 67 Finally, (located, again, 92) subjects regulation locating obvious, whereas narrowly (from derived), public Similarly, authorizes acquire transactions fits far comfortably disagree insofar assert agency Board), reasonably dealt 1916. break tie, around location neighbors, Act.10 68 Against stands too weak trump rest. unusual case, convinced error, mistake made Courts, said, "disregard statute." 1111 (1881) clear repunctuate. immediately instead precede Accordingly, between contrary.11 69 reversed. remanded further proceedings opinion. 70 So ordered. syllabus constitutes Reporter Decisions convenience reader. Detroit Lumber 200 321, 337, 282, 499. states "[t]he section, R.S. 461, Apr. 5, 20, 512, Code." prompted codifiers reverse predecessors. decision, legislation treated House Representatives Committee 1957. 1957: Hearings S. 1451 H.R. 7206 85th Cong., 2d Sess., pt. 989-990, 1010-1025, 1036-1040, 1060-1071 (1957). hearing conflicting testimony, action. 1090, 1199. Several congressional staffers explored codifiers, Consolidation Examining Supervisory Functions: 107 6885 Subcommittee Supervision Insurance 89th 1st 391 (1965). published Report, nor up matter, attempted staff repealed. too, one, First Security Utah, N.A., 405 394, 401-402, 318 (1972); Am., Governors Fed. System, 266 356, 340, 8, 835 1452, 1456 (1987); Lamarque Smith, 610 1258, 1261, (CA5 1980); Morris Trust, 367 794, 795, (CA4 1966); Genessee Trustee Corp. 102 125, 127 (CA6 1939); Washington Agency, Forbes, 309 Mich. 683, 684-686, N.W.2d 121, 121-122 (1944); Marshall Nat. Corder, 169 Va. 606, 194 S.E. 734, (1938); Greene Thief River Falls, 172 Minn. 310, 311-312, 215 N.W. 213, 213 (1927). squarely below. When positive (as done, instance, 11, Bankruptcy 101, 2549), laws." 204(a). 12, appeared. 1874 marked reenacting 1878 updated Mar. 1878, 27; 82, 268. 1919, Revision 1926. Stat., 1; Minn.L.Rev., 1018-1021. importance depart ordinary style regarding block quotations reproduce materials. opened closed infra. italics absent supra. Contrary Field doctrine preclude us asking means doctrine, indeed, irrelevant case. Clark, 143 649, 672, 495, 497, 294 (1892), "enrolled bill," signed session Speaker President Senate, printed enrolled bill. concerns 'the evidence' [may] determining bill passed Congress," Munoz-Flores, 495 385, 391, 1969, 109 384 (1990) Field, supra, U.S., 670, S.Ct., 496); Congress. space, break, significant. comparison layout supplies full, With exception, separates introductory line space. That, significantly, precisely absurd middle agree, course earlier Both drafting choices strike odd, plausible reason. might convenient add 5202's result liabilities concern, And conceivably similarly time. analysis, possibly best else. plain, "demonstrably odds intentions drafters," Griffin Oceanic Contractors, 458 564, 571, 3245, 3250, 73 973 (1982), legislative history. consider, unambiguous, weight accord longstanding survived Public Employees Retirement System Betts, 492 158, 171, 2854, 2863, 106 134 (1989). finally, raise point, remark Posadas City 502, 349, 351, 351 (1936), "amends [sections Act], Statutes" obviously controlling, coming Were past remarks discuss Code. Neither tells helpful contain valuable reminder distinguish opinion's holding dicta.

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