Document: 485 U.S. 589 108 S.Ct. 1404 99 L.Ed.2d 664 REGENTS OF the UNIVERSITY CALIFORNIA, Appellantv.PUBLIC EMPLOYMENT RELATIONS BOARD et al. No. 86-935. Argued Jan. 12, 1988. Decided April 20, Syllabus The Private Express Statutes establish postal monopoly and generally prohibit private carriage of letters over routes without payment postage to United States Postal Service. On basis those statutes, state university (governed by appellant Regents hereafter referred as appellant) refused request a union use its internal mail system carry unstamped from certain employees whom was attempting organize. Appellee Public Employment Relations Board (PERB) upheld union's charge that appellant's refusal violated requirement California Higher Education Employer-Employee Act (HEERA) employers grant unions access their "means communication." Agreeing with this holding, but noting HEERA right expressly subject "reasonable regulations," State Court Appeal remanded for determination whether reasonable in light surrounding circumstances, including Statutes. PERB then found consistent federal law because involved fell within "letters-of-the-carrier" "private-hands" exceptions affirmed, Supreme denied review. Held: Appellant's delivery would violate Pp. 594-603. (a) letters-of-the-carrier exception, which permits "relate" "current business" carrier, does not apply. alleged "business" case—the efforts organize although certainly is interested, close enough own affairs be natural concerning business." It more accurately described current business. argument makes harmonious labor relations business universities, thereby rendering business, far too expansive reading since permit define some agency defeat monopoly. Rather, legislative history confirms statutory language much narrower than appellees contend, view Court's only previous decision v. Erie R. Co., 235 513, 35 193, 59 L.Ed. 335. 594-597. (b) Nor private-hands exception apply, exception's "without compensation." Giving quoted phrase normal meaning, it clear Congress unambiguously intended no form compensation, direct or indirect, may flow sender carrier. An arm's-length relationship such one between on side other ordinarily involves an exchange benefits constituting "compensation" By delivering letters, perform service they otherwise pay through dues, become part employees' package monetary nonmonetary provides labor. Thus, facts specifically merely performing duty imposed law, do render 597 601. (c) Because analysis reveals Congress' intent, issue deference Service's regulations construing need addressed. 601—602. 182 Cal.App.3d 71, 227 Cal.Rptr. 57, reversed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, BLACKMUN, SCALIA, JJ., joined. WHITE, filed concurring judgment, post, p. ----. STEVENS, dissenting opinion, MARSHALL, joined, KENNEDY, took consideration case. James N. Odle, Berkeley, Cal., appellant. Christopher J. Wright, Washington, D.C., U.S., amicus curiae, supporting appellant, special leave Court. Andrea L. Biren, San Francisco, appellees. Justice O'CONNOR 1 This case presents question university's violates Statutes, 18 U.S.C. §§ 1693-1699, 39 601-606. These statutes 2 * Appellant govern large state-owned 100,000 employees. (hereafter operates facilitate various sites campuses. collect originating campuses many depositories take central location sorting. separated into three groups: (1) already bearing postage; (2) mail; (3) mail. Group Service further handling monitored ensure includes official examined any addressed destinations come can therefore postage. affixes remainder group delivers Service, charges senders costs involved. 3 In late 1979, appellee William H. Wilson, president Local 371 American Federation State, County, Municipal Employees (Union), attempted send Union represented these had recognition bargaining unit. A subsequent unit determination, however, placed different Brief Wilson 2, n. 2. ground prohibited carriage. Believing (HEERA), Cal.Govt.Code Ann. 3560-3599 (West 1980), unfair practice (PERB), charged interpretation enforcement HEERA. 4 Before PERB, argued Statutes; relied advisory effect. Advisory Op., PES 82-9 (July 1982), App. Juris. Statement A66. turn HEERA's initially declined consider issues pressed held required letters. agreed PERB's denial HEERA, noted regulations." 139 1037, 1041, 189 298, 300-301 (1983). court unresolved factual issue, namely, regulation" all back issue. Id., at 1042, Cal.Rptr., 301. remand, determined two namely § 1694; CFR 310.3(b) (1987), 1696(c); 310.3(c) (1987).1 5 affirmed. Cal. Rptr. 57 (1986). concluded permitted Union's system. conclusion, address exception. 77, 60. petition A-13. We probable jurisdiction, 483 1004, 107 3226, 97 733 now reverse. II 6 enacted pursuant constitutional authority "Post Offices post roads," Const., Art. I, 8, cl. 7. general prohibiting others carrying routes. 7 has prevailed country Articles Confederation, see Oct. 18, 1782, 23 Continental Cong. 672-673 (G. Hunt ed. 1914), embraced concept first Feb. 1792, ch. 7, 14, Stat. 236. desires "prompt, reliable, efficient services [postal] patrons areas," 101(a) (emphasis added), provided nationwide uniform rates. 8 There doubt prohibition apply here, 1693, 1694, so numerous Appellees urge both each turn. A. 9 founded portion 1694 italicized below: 10 "Whoever . carries, mail, packets, except relate carrier shall, fined $50." (Emphasis added.) 11 allows operate all. To fall face statute requires Precisely what constitutes carrier's described. ordinary sweep term, falls short encompassing also appellant's. strains contend activity. 12 argue made thus sense Cf. 3560(a) 1980) ("fundamental interest development cooperative relations"). sure, free nature institutions scope activities sees fit. But principle must have limits context for, otherwise, could citizens are urging statute. rely meaning chosen conclude 13 our language, making narrow one. added 1909. Until time, unqualified. new responded Opinion Attorney General rendered 1896. 21 Op.Atty.Gen. 394, 397-399. That concerned Department regulation allowed railroads said valid conditions were present. First, related Second, "letters sent company, behalf." 400. second condition, implied broad. 14 approved General's decision, Members difficult square express, unqualified See 42 Cong.Rec. 1901-1905 (1908). Therefore movement began amend include present "the carrier." 1976. Mar. 4, 1909, 321, 184, 1124. Senator Sutherland, sponsor specific amendment, explained intent: 15 "I move amendment I think puts express precisely section means stands it. Attorney-General gives correct construction section. dealing others. itself." 1976 16 House Report reflected similar intent put "in exact conformity upon existing law." 43 3790 (1909) (referring 394 (1896)). 17 suggests intention codify construction. "sent behalf," qualify Op.Atty.Gen., 29 418, 419 (1912) ("Congress transportation outside mail: should itself; second, business"); 28 537 (1910). Our 335 (1915), language. railroad joint venture telegraph company. simply "business carrier" included enterprise. sheds proper quite context. Moreover, They written employee his capacity capacities representatives railroad. 19 Particularly clarifying history, we Tanner States, 107, 125, 2739, 2750, 90 (1987); Dixson 465 482, 491-496, 104 1172, 1177-1180, 79 458 (1984). Whether read reach, least limited closer here. Accordingly, hold B 20 derives 1696(c): "This chapter shall conveyance transmission packets hands 22 From inception, granted always been "for hire." J.Continental 670, 1914); reflection monopoly; designed undertaken hire reward." Ibid. While private, gratuitous excepted prohibitions 1845, time when greatly dwindling revenues S.Rep. 137, 28th Cong., 1st Sess., 1, (1844); H.R.Rep. 477, (1844). increase revenues, lowered prices franking privileges. sought boost eliminating competition. Therefore, strengthened carriage, intending "put end interference department" source. supra, 10. Against backdrop, developed "private hands," crafting way out friendship, relationship. ("Penalties favor party who conveys letter neighborly kindness, fee reward"). used unambiguous accomplish goals. Persons entities i.e., hands"—may violating long receive benefit sender—i.e., pivotal "compensation," defined, qualified reach. give effect congressional giving meaning. dictionary period during illustrates term; defines compensation "that supplies place something else" given received equivalent services, debt, want, loss, suffering." Webster, Dictionary English Language (C. Goodrich 1849). available there kind flowing 24 parties unavailable, acts course involve quid pro quo.2 understood point. Early debates 1909 amendments Sutherland expressed concern adding agree other. He undertaking "some common understanding," "would McLaurin, supporters responded: "[A]n arrangement itself compensation. quo evidently accepted above, he sponsored actual became perhaps best summarized McLaurin's statement solely "an innocent man some[one]." 1905 converts "favors" very implicit attempts 25 consistently interpreted authorizing encompass Thompson, F.Cas. (No. 16,489) (DC Mass.1846). Thompson prosecution proprietor along merchandise. defendant carried connection merchandise additional essence, contended gesture good will. rejected argument, holding did "as such." 98. 26 opined other's "express obligation amount 'compensation' statute." 401. 27 Applying well-established situation hand, obviously restrictive term "compensation." indirect well If made, quickly swallow rule; carriers manipulate relationships avoid evade lacking mandatory law. lack legal consideration, argue, demonstrates As matter contract true performance cannot constitute consideration. Common-law notions control Congress, after all, generic less exchanges benefits. Here themselves, dues. services. view, necessarily C 30 curiae focused arguments largely exceptions. With respect require Even before issued formal regulations, espoused periodic pamphlets published describing reach See, e.g., Post Office Dept., Restrictions Transportation Letters 16-17 (4th 1952). When own: 31 "The sending permissible if person them. individual actually addressed, officer (see [39 CFR] 310.3(b)(2)) person." (1987). 32 purposes evaluation term. describe follows: 33 permitted. Compensation consists rendered. consist, non-monetary valuable example, exists user, user's will under exception." 310.3(c). 34 urged us defer constructions conclusion application, indicated oral challenging validity regulations. Tr. Oral Arg. 33. able ascertain based agency. III incorrectly Properly construed, neither proffered appellees—the judgment 36 Reversed. 37 KENNEDY 38 judgment. here reaching deal exceptions; majority sets Part II-C, respected unless inconsistent statute—unless either clearly foreclosed governing spoken precise stray enforcing Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 842-843, 2778, 2781-2782, 81 694 rational statute, agency's normally respected. 40 Here, it, settles matter. inquiry negates Where determinative open construction, foreclose surely 41 Inquiry lead acceptable even majority's description background, am unable adopted, adopt, would, case, views appellees, particularly concur MARSHALL joins, dissenting. 44 me compliance state-law allow "by compensation" 1696(c). respectfully dissent. 45 Government adopted broadens beyond envisioned passed defining reenacted 1792 amended them 1825, broad contrary hostile wisdom narrowly legislation created powerful far-reaching important reasons construe narrowly. impose criminal penalties violation. Though sanctions modest seldom imposed, rule lenity strict statutes' provisions. economic though Federal monopoly, Nation's tradition opposition monopolistic privileges supports policy Third, greatest significance, expanding bounds delimited inevitably curtail volume communication exchanged society. 46 wrong assume university, third depriving significant revenues. Many messages user privilege communicating way. WHITE correctly noted, fact "user measurably reduces ability persons organizations communicate others." Greenburgh Civic Assns., 453 114, 141, 101 2676, 2691, 69 517 (1981) (concurring judgment). demonstrate worthwhile civic groups whose constituents seriously impaired instead using methods distribution. 119-120, 2680-81. against facilities imposes real burden First Amendment uncertain loss revenue "First Amendment's guarantee speech applies teacher's mailboxes elsewhere." Perry Assn. Educators' Assn., 460 37, 44, 103 948, 954, 74 794 47 deliver "hire, reward, profit advantage." infringe grant, creating profit. granting 1782. provided: 48 "[T]he Postmaster being, deputy deputies, thereunto him sufficiently authorized, agents, post-riders, expresses messengers respectively, whatsoever, receiving, taking up, ordering, despatching, speed, despatches hire, advantage. ." 1914). 49 substance 236, chose again being profit: 50 "That person, General, employed, receive, order, dispatch, convey, packet newspapers, setting up foot horse wagon established post-road, packet, vessel boat, whatever, whereby post-office injured, every offending, forfeit, offence, sum hundred dollars." 51 1825 repealed 3, 64, 102. continued substantially weakened id., 6, 17, 19, 104, 106, 107; Kimball, 782 15,531) Mass.1844) (holding amended, 1827, 61, 238, railroad); Craig & Alvis, Monopoly: Two Hundred Years Covering Commercial Well Personal Messages, U.S.F.L.Rev. 72 (1977). weakening encouraged proliferation companies. 1845 enacting "to reduce rates postage, limit abuse privilege, prevention frauds Department." 43, 732. protect competition, but, same saw fit continue charge. emphasized distinction profit—which prohibited—and "no tendered therefor way"—which not. 736. 52 codified today 1845. Title 1696(c) provides: provision articulated exemption hands"1 really reflects desire excuse conduct sanction rather never 53 seems doubtful systems, universities apartment complexes, places. Since attention actions paid competing enterprises imposing believe interfere not-for-profit schools uncompensated anticipation "reward 672-673. 54 authorized confirmed prior 1979 applicable [was] (1979).2 Under plain make infringing legitimate thought suggested word "consist will." Although "clarification" change Fed.Reg. 60615, 60618 (1978); 76-4 Reconsidered (Jan. 15, seeks parlay unprecedented expansion 55 "clarified" interpreting support behalf Union. somehow compensated delivery. compulsion generate force recipients historical contours 56 forms; monetary. may, asked intangibles "good will," "forbearance demands benefits," "facilitation continuing relationship." A66, A71. recognized value recipient. Recognition intangible diminish recipient incurs undertakes is, account squarely directly result identify acquire begins fulfill creates mandate, appear contemplate, complying duty.3 Further, intends nonetheless provide Thus becomes despite absence compensate source obligations. 58 reason suspect increased towards might conceivably generated kindness heart, will, qualifies arise entity compels do. No will—" '[s]omething expectancy preference race competition' "4—merely broadcasting businesses expected do, conducts conformance Similarly, anticipate enjoy forbearance collective-bargaining agent importantly, unreasonable refrain seeking demand reasonably utilize chip disputes pre-existing accordance anything return promise obey find record evidence currently obligated regard complies obligations whit. 60 contends "has taken position defeats character carriage." 35. case.5 admitted Opinion, distinguishable previously considered voluntarily undertaken. 1982). thing recognize, previously, voluntary often actor concrete another action, compelled generates 61 judicial private-hands-without-compensation Mass.1846), "implicit-in-the-relationship majority. District with, mere such" mean Indeed, obvious hired court's rejection defendant's distinct rest existence enhanced profitability merchant's merchant service.6 62 instant settings exception.7 necessary articulate arises order proves represents attempt expand narrowing 63 policies behind recognizing enactment forgo whatever deliveries parties. "solely 'an some[one].' " Ante, 599. discussed 605-608, origin birth Nothing explains why later decided monopoly.8 excerpt debate proposed, passed, contains 64 During Senate's how insure urgent McLaurin Teller proposed words hire" 1902, 1903 spoke saying, 65 "[M]y objection stage driver happens regular trips were, friend way, liable fine $50. think, therefore, offered great good. Harmon, 66 67 "My idea about though, ought man, probably humble following pursuit, stumble pitfall when, goodness trying somebody, not." 1905. 68 day, know brief colloquy years passage proposed-but-never-adopted slender reed base wholly unnecessary unwise ancient suspend operation "public interest," 601(b). "suspension" "bona fide student faculty organizations," 320.4 applied press 16, 9. applicability suspension. Contrary suggestion dissent, 611 612, 5, purport automatically inapplicable whenever exists. indicates hands" Harmon commented 1896, 'private hands' cover routes." 401 (1896). full text "(c) However, engaged goods customers persons." 3568 "Subject times areas work, institutional bulletin boards, communication, purpose meetings exercise rights guaranteed act." Black's Law 625 (5th 1979) (quoting re Witkind's Estate, 167 Misc. 885, 895, N.Y.S.2d 933, 947 (1938)). implementing discusses impact analysis: "Compensation recognizes most instances suggest performed "ordinarily," anticipates occasions user. admits possibility. once established, foreclosed. applications regulation. drafters (1987) mind specified "a opinions assertion 1896 "proper company carry, mails, stamped envelopes, first-class connecting line." 397. explaining obligation" lines reciprocal Opinions (Mar. 1976) Salem Oregon School providing agreement. agreement reached process, service. controlling element overall negotiated bargaining. reality get exactly nothing save satisfaction finding referenced descriptive comment Act: "Penalties

Category: 6