Document: 426 U.S. 290 96 S.Ct. 1978 48 L.Ed.2d 643 Ralph NADER, Petitioner,v.ALLEGHENY AIRLINES, INC. No. 75-455. Argued March 24, 1976. Decided June 7, Syllabus Shortly before his scheduled departure from Washington, D. C., to Connecticut, where he was fulfill speaking engagements, petitioner, who had reserved a seat on one of respondent's Hartford flights, arrived at the check-in area but advised that could not be accommodated because all seats were occupied. After refusing tender respondent, which concededly overbooked flight, denied boarding compensation, petitioner brought common-law action against respondent based an alleged fraudulent misrepresentation arising failure apprise its deliberate overbooking practices, and statutory under § 404(b) Federal Aviation Act 1958, afford priority specified in rules filed with Civil Aeronautics Board (CAB). The District Court entered judgment awarded compensatory punitive damages both claims. Appeals remanded petitioner's claim for further findings reversed award claim. question good faith. None court's foregoing rulings presented petition certiorari. court also held stayed, principles primary jurisdiction, pending referral CAB determine whether disclose practice is deceptive 411 Act, provides may investigate any air carrier has been or engaged unfair practices found violate section shall subject cease-and-desist order. determination would preclude tort injuries caused by practice. Held: Petitioner's reondent should stayed reference "deceptive" within meaning Act. Pp. 298-308. (a) There no irreconcilable conflict between Act's scheme remedy; coexist as contemplated saving clause, "(n)othing contained this way abridge alter remedies now existing common law statute, provisions are addition such remedies." 1106. Texas & Pacific R. Co. v. Abilene Cotton Oil Co., 204 426, 27 350, 51 L.Ed. 553, distinguished. 298-300. (b) No power immunize liability can inferred 411's language; Congress sought confer it done so expressly, 414 Section broader narrower than remedies. A order issue thereunder if concludes practice, intentionally injury fact necessary; other hand, decision inappropriate does manifest CAB's approval merely represent agency's conclusion more flexible approach necessary. 300-303. (c) doctrine applied originally cognizable courts requires resolution issues which, regulatory scheme, have placed special competence administrative agency, inapplicable here asserted implicates tariff similar technical uniquely expertise. 303-307. 167 U.S.App.D.C. 512 F.2d 527, remanded. Reuben B. Robertson, III, petitioner. E. Barrett Prettyman, Jr., respondent. Mr. Justice POWELL delivered opinion Court. 1 In case we address regulation (Board) must 72 Stat. 769, 49 U.S.C. 1381. We hold circumstances stay inappropriate. 2 * facts contested. Petitioner agreed make several appearances Connecticut April 28, 1972, support fundraising efforts Citizen Action Group (CCAG), nonprofit public interest organization. His two principal noon rally later Storrs campus University Connecticut. On 25, flight 864 28. leave 10:15 a. m. arrive 11:15 ticket purchased travel agency morning flight. It indicated, standard "OK" notation, reservation confirmed. 3 approximately five minutes time. He informed occupied he, like passenge shortly him, accommodated. Explaining time rally, asked agent standby passengers allowed board mistake anyone already voluntarily give up her seat. Both requests refused. accordance offered alternative transportation taxi Philadelphia, connections made Allegheny 12:15 p. Fearing Philadelphia connection, only 10 planes, too close, rejected offer elected fly Boston, met CCAG staff member drove him Storrs. 4 parties agree honored accepted reservations accommodate. One hour prior 107 confirmed 100 actually available. Such industry designed ensure each leaves few empty possible despite large number "no-shows" reservation-holding do appear By use statistical studies no-show patterns specific airlines attempt predict appropriate necessary fill way, they most efficient aircraft while preserving booking system permits cancel change without notice penalty. At times results oversales, occur when When occurs, some ("bumped"). chance particular passenger will bumped negligible prospective aware possibility second thought. month dishonored, 6.7 per 10,000 enplanements domestic flights.1 For airlines, oversales resulted bumping average 5.4 4.6 1973.2 operations oversold 6.3 1972 4.5 1973.3 Thus, experience there slightly 2,000 given flight.4 Nevertheless, total holders quite substantial, numbering over 82,000 about 76,000 1973.5 5 regulations require airline establish "denied compensation" passengers. These "liquidated damages" equal value passenger's $25 minimum $200 maximum. 14 C.F.R. 250.5 (1975). Passengers free reject compensation favor commonlaw suit suffered result bumping. refused ($32.41 case) and, CCAG, damages. did seek se bases liability: inform advance 1374(b),6 CFR 250.3 6 claims, awarding $10 $25,000 Judgment claim, $51 7 Columbia Circuit reversed. 527 ground organization "remote transaction" fall "within class persons recover." Id., 372, F.2d, 549. merits findings. reverd conduct "elements intentional wrongdoing conscious disregard for" rights. 373, 550. particular, trial consider "whether reasonably believed policies completely lawful carried Board." 374, 551. these 8 us concerns Appeals' disposition misrepresentation. Although argument existence Board's eliminates private torts regulated carriers, would, matter law, seeking practice.7 Therefore, first instance challenged (in case, overbooking) falls ambit 411. took judicial rulemaking proceeding concerning changes response 1973-1974 fuel crisis underway challenge carriers' raised intervenor proceeding.8 instructed outcome proceeding. characterized holding "but another application whose purpose coordination workings court." U.S.App.D.C., 367, 544. II 9 us, then, opportunity proceed. resolve question. If find violation 411, immunized liability. A. 1106 1506, chapter "although clause purports speak absolute terms cannot read literally." reaching conclusion, relied 553 (1907). Court, virtually identical 1106, permit state-court challenging published rate "unjust unreasonable." conceded right, even absent abrogated "unless preexisting right repugnant statute survival effect deprive subsequent efficacy; words, render nugatory." U.S., 437, S.Ct., 354, L.Ed., 557. But continuance actions attacking reasonableness rates Interstate Commerce Commission destroy eliminate discrimination requiring uniform rates. found, "cannot reason construed continuing shippers continued absolutely inconsistent act. act itself." 446, 358, 561.9 11 unlike Abilene, faced persistence carrier, sanctions, put untenable position disagreed rate. abide Commission, required comply excessive. authority ratemaking direct unambiguous. present contrast, called upon substitute or, indeed, requirement carriers engage fail so. And impact imposition adopted avoid incidental. Under circumstances, "absolutely inconsistent" coexist, B 12 allows Board, "it considers . public," "upon own initiative complaint foreign agent," "investigate methods competition ." Practices determined "shall" concluded totally action. held, relying nature "a limited competition," American Airlines, Inc. North Inc., 351 79, 84, 76 600, 604, 953, 961 (1956), duty promote "adequate, economical, service," 102(c) 1302(c), "at lowest cost consistent furnishing 1002(e)(2) 1482(e)(2), approve might otherwise considered thus 366, 543. 13 agree. derived language 1384, relieves those affected certain designated orders (not including issued 411) "from 'antitrust laws.' " exemptive provision United States Navigation Cunard S. 284 474, 52 247, 408 (1932), dismissed antitrust initial consideration sought. pointed out "restrictive operation activities ., permissive respect others." 485, 250, 414. See Far East Conference States, 342 570, 492, 576 (1952). purely restrictive. contemplates elimination "unfair practices" impair interest. Its role described supra, 85, 605, 962: 'Unfair competition,' used concepts idea competition. concerned punishment protection injured competitors, rather interest." 15 As such, injunctive remedy vindication supplement preserved 1106.10 16 contrary coextensive breach law. note jurisdiction initiate investigation expressly premised finding "public interest" involved. "may employ powers vindicate rights." 83, 961. Indeed, individual consumers entitled proceedings circumstance indicates intend litigants obtain proceed Cf. Rosado Wyman, 397 397, 406, 90 1207, 1214, 25 442, 452 (1970). 17 available after interest, practice." 86, 962. investigation. serious prohibitory sanction inappropriate, wrong sort calls extreme dealing problem declined orders, examiner occurred.11 Instead, priorities compensated being either liquidated sum resort law.12 18 sum, confers new powerful weapon injure public. only, best, wrongs. C 19 "is promoting proper relationships agencies charged duties." Western 352 59, 63, 77 161, 165, 126, 132 (1956). Even rights survive lacks immunity liability, refer procedure secure "(u)niformity consistency business entrusted agency" 20 "the functions review judiciary (would be) rationally exercised, preliminary ascertaining interpreting underlying legal better equipped specialization, insight gained through experience, procedure." 574-575, 494, 582. 21 64, L.Ed.2d, 132. 22 applied, example, raises validity included g., Danna Air France, 463 407 (C.A.2 1972); Southwestern Sugar Molasses River Terminals Corp., 360 417-418, 79 1210, 1214-1215, 1334, 1340-1341 (1959), particularly involves questions expertise matters turning assessment conditions, 66-67, 166, 133-134. however, considerations uniformity call Board. 23 seeks practices. makes tariff, indeed applicable disclosure practices.13 challenge, comparable maden Lichten Eastern 189 939 1951), limitations imposed exculpatory clauses tariff. 24 Referral justified informing ultimate expert specialized knowledge," 132, turn facilitated evaluation economics technology industry. standards conventional courts, technically body likely helpful case.14 that, redressed itself, provided tariffs, adjudications suits option passenger. problems promulgated 1967. They provide seating file reports accommodated.15 instituting choice accepting incurred carrier's space," pursuing remedies.16 specifically 30-day period need forced consequences occurred known."17 evaluating consequences, choose "to pursue their law."18 III 26 conclude accordingly introduced sufficient evidence sustain remand opinion.19 ordered. 28 WHITE, concurring. 29 I join Court's additional words. 30 pre-empt recoveries state undisclosed overselling. so, least yet. unnecessary state-law Neither denying nor granting relief foreclose claims law; resolving, affecting manner, Ricci Chicago Mercantile Exchange, 409 289, 93 573, 34 525 (1973); Exchange Deaktor, 113, 94 466, 38 344 (1973). seriously doubt future reveal anything relevant view propriety overselling apparent subjects. Brief Amicus Curiae Appeals, App. B, 58. 50. 51. course, higher lower overall average. provides: "No make, give, cause undue unreasonable preference advantage person, port, locality, description traffic whatsoever unjust prejudice disadvantage whatsoever." full: "The may, agent, public, sale thereof. find, hearing, competition, cease desist competition." initiated January 1974. Emergency Reservation Investigation, 39 Fed.Reg. 823 (1974) (CAB Order 73-12-93, EDR-260). An 13, Investigation 76-4-55). "outside scope (the) investigation." 7. noted overbooking, general, nondisclosure trade practice" issue. 8. 1976 announced proposed oversales. Priority Rules, Denied-Boarding Compensation Tariffs Reports Unaccommodated Passengers: Reexamination Policies Concerning Deliberate Overbooking Oversales, 41 16478 (1976) EDR-296). decided re-evaluate light recent "trend toward oversales" "continue significant (consumer) complaints." Ibid. Among options continue, disclosed customers. 16479. discussed follows: "That proviso added end nullify parts defeat preceding sections, preserve created statute. intended remedies, shipper could, court, recover property hands interstate carrier; delay shipment; duties like." Pennsylvania Puritan Coal Mining 237 121, 129-130, 35 484, 487, 59 867, 872 (1915). Trade Comm'n Klesner, 280 19, 25-26, 50 1, 2-3, 74 138, 143-144 (1929); Holloway Bristol-Myers 158 207, 212, 485 986, 991 (1973) (both opinions discuss 717, amended, 45, 82, 603, 960, model 411). late 1950's, investigations overbooking. terminated record showed carrier. Lines Enforcement Proceeding, C.A.B. 862 (1960). terminated, violation, industrywide National 31 390 nn. 15-18 accompanying text, Infra. 1965, rule notify conditions hours Passenger Priorities Overbooked Flights: Notice Proposed Rule Making, 13236 (1965) EDR-95). This proposal subsequently abandoned opposition excessively rigid unworkable. Denied Boarding Tariffs, 32 459, 460-461 (1967) EDR-109). abandonment blanket notification program expense, relations, confusion prohibitive. means significantly less disruptive. suggests, inspection. approved innovative suggested Lines, denial outset status. Delta CAB, 147 272, 455 1340 (1971) (aff'g 71-6-120). detailed therefore Rather, applying settled party as, suggests would. Reply 3-4, n. 3. Passengers, 11939 ER-503). 250.1 Et seq. ER-503, Supra, 11943. 11942. Foreign Carriers: 15083, 15084 EDR-248) (amending include carriers). testimony Jerome F. Huisentruit, assistant general counsel Transport Association America witness 72-73. contemplation continue exist conformance longstanding policy dating back 1962 agreement covering trunk calling ticketing limits charges combination compensation. Domestic Trunklines, Tariff Agreement, 881 (1962) E-18064). exclusive remedy: "(T)o extent restrict adverse Accordingly, condition our clear prescribed penalty obligation passenger, terminate obligation." Id. 882-883. reconsideration ruling express merits. above mere compliance itself exempt clear, considering, relation fully complained of, cooperated

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