Document: 522 U.S. 479118 S.Ct. 927140 L.Ed.2d 1 NATIONAL CREDIT UNION ADMINISTRATION, Petitioner,v.FIRST BANK & TRUST CO. et al. AT&T FAMILY FEDERAL UNION, al., Petitioners, v. FIRST AND Nos. 96-843, 96-847. Supreme Court of the United States Argued Oct. 6, 1997. Decided Feb. 25, 1998. Syllabus* The National Credit Union Administration (NCUA) interprets §109 Federal Act (FCUA)-which provides that " [f]ederal credit union membership shall be limited to groups having a common bond occupation or association, within well-defined neighborhood, community, rural district''-to permit federal unions composed multiple, unrelated employer groups, each its own distinct occupation. After NCUA approved series charter amendments adding several petitioner Family (ATTF), respondents, five commercial banks and American Bankers Association, brought this action under §10(a) Administrative Procedure (APA). They asserted NCUA's decision was contrary law because unambiguously requires same unite member an occupationally defined union. District dismissed complaint, holding respondents lacked standing challenge their interests were not "zone interests'' protected by §109. Appeals for Columbia Circuit disagreed reversed. On remand, entered summary judgment against applying analysis announced in Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 104 2778, 81 694, had permissibly interpreted again reversed, concluding incorrectly applied Chevron. Held: 1.Respondents have prudential APA seek federal-court review interpretation Pp. ___-___. (a) A plaintiff will if interest seeks protect is arguably zone regulated statute question. See, e.g., Association Data Processing Service Organizations, Camp, 397 150, 152-153, 90 827, 829-830, 25 184. P. ___. (b) Although Court's prior cases stated clear rule determining when plaintiff's "arguably statute, four them held competitors financial institutions agency relaxing statutory restrictions on those institutions' activities. Processing, supra, at 157, S.Ct., 831-832; Arnold Tours, 400 45, 46, 91 158, 159, 27 179 (per curiam); Investment Company Institute 401 617, 621, 1091, 1094, 28 367; Clarke Securities Industry Assn., 479 388, 403, 107 750, 759, 93 757. (c) In test, does ask whether Congress specifically intended issue benefit plaintiff, see, Clarke, 399-400, 757-758. Instead, it discerns . protected'' provision inquires affected question are among them, 153, 829-830. By express terms, limits every members definable "groups.'' Because may, as general matter, offer banking services only members, 12 U.S.C. §§1757(5)-(6), also restricts markets can serve. these need small, they unquestionably limited. link between §109's regulation limitation served unmistakable. Thus, even cannot said specific purpose benefiting banks, one limiting This precisely As unions, certainly serve, has allowing increase customer base. Section 109 distinguished regard from provisions ICI, Processing. (d) Respondents' therefore Petitioners principally argue lack there no evidence enacted concerned with banks' competitive interests. argument misplaced. To accept argument, would reformulate test require particular class plaintiffs before could sue. mistakenly rely Air Courier Conference Postal Workers, 498 517, 519, 111 913, 915, 112 1125. Unlike who denied standing, here "competitive direct injury,'' U.S., 528, n. 5, 920, well Under precedents, irrelevant enacting FCUA, did intend fact respondents' objectives eleemosynary nature. 2.The §109-whereby must group-is impermissible first step set forth Chevron, see 842-843, 2781-2782, expressed intent Several considerations compel conclusion. First, makes phrase "common bond'' surplusage made up multiple such "group'' already bond,'' employment employer. If given any meaning employees joined together, different bond''-one extending employee considered together-must found them. Second, violates established canon construction similar language section accorded consistent meaning. consists two parallel clauses: "to district.'' never interpreted, contend interpret, geographic unlimited number units. occupational way. Finally, potential read words "shall limited'' out entirely. allow chartering conglomerate whose included company States. time permits limitless result. F.3d 525, affirmed. THOMAS, J., delivered opinion, which except footnote 6. REHNQUIST, C.J., KENNEDY GINSBURG, JJ., opinion full, SCALIA, O'CONNOR, filed dissenting STEVENS, SOUTER, BREYER, joined. Seth Waxman, Washington, DC, case No. 96-843. John G. Roberts, Jr., petitioners Michael S. Helfer, respondents. Justice THOMAS Court, 6.* (FCUA), 48 Stat. 1219, §1759, Since 1982, (NCUA), charged administering case, challenged ground We granted certiorari answer questions. do court interpretation? 694 (1984), permissible? affirmative second negative. affirm. 2 * 3 1934, during Great Depression, authorizes national level members. remained virtually unaltered since FCUA's enactment, expressly unions. relevant part, provides: 4 "Federal consist incorporators other persons incorporated unincorporated organizations, extent permitted rules regulations prescribed Board, may elected each, subscribe least share stock pay initial installment thereon uniform entrance fee required board directors; §1759 (emphasis added). 5 Until predecessors consistently however, reversed longstanding policy order groups. See IRPS 82-1, 47 Fed.Reg. 16775 (1982). It thus requirement apply group multiple-group union, rather than 82-3, 26808 new interpretation, all located "within area,'' ibid., but later revised provide "an area surrounding [credit union's] home branch office reasonably union] determined NCUA.'' 89-1, 54 31170 (1989). therefore, wholly bond. B 6 §109, (ATTF) expanded operations considerably membership. result, ATTF now approximately 110,000 nationwide, 35% whom affiliates. Brief Petitioner 9. remaining diverse companies Lee Apparel Company, Coca-Cola Bottling Ciba-Geigy Corporation, Duke Power Tobacco Company. App. 54-79. 7 1990, after ATTF's added membership, action. Invoking judicial (APA), §702, claimed approval existing alleged required. intervene defendants. 8 complaint. interpreting APA. First Nat'l Bank Trust Co. Admin., 772 F.Supp. 609 (D.D.C. 1991), rev'd, 988 F.2d 1272 (C.A.D.C.), cert. denied, 510 907, 114 288, 126 238 (1993). rejected claims caused injury, stating legislative history FCUA demonstrated passed establish place country's market, banks.'' F.Supp., 612. "suitable challengers'' term been used Circuit. Ibid. 9 agreed "Congress not, shield competition unions,'' id., 1275, hence "intended beneficiaries'' Relying our involving industry, 367 (1971), 757 (1987), nonetheless concluded sufficiently congruent beneficiaries decision; suit proceed. F.2d, 1276-1278.1 10 two-step we 863 (D.D.C.1994), 525 (C.A.D.C.1996). asked whether, spoken directly precise issue-whether 12. plausibly understood "groups,'' occupation, addressed ibid. then unnecessary decide, reasonable, "seriously argued'' unreasonable. 13-14. Accordingly, 11 Chevron: indeed indicated 527. reasoned concept implicit "group,'' constituent 528. further noted geographical comprise "neighborhood[s], communit[ies], district[s]'' should differently. 528-529. impermissible.2 id. 529. importance issues presented,3 certiorari. 519 ----, 117 1079, 137 215 (1997). II Respondents claim right APA, 13 "A person suffering legal wrong action, adversely aggrieved entitled thereof.'' §702. 14 impose addition requirement, imposed Article III Constitution, suffered sufficient injury-in-fact. 152, 829, 184 (1970) (Data Processing).4 For "the sought complainant [must be] question.'' Id., 830. 15 Based finding activities institutions, hold serve Therefore, interpretation. 16 inquire congressional would-be plaintiff. Office Comptroller Currency (the Comptroller) Act's incidental powers clause, Rev. §5136, §24 Seventh, perform data processing bank customers. 151, 829. plaintiffs, corporation trade providing [an] powe[r] necessary carry business banking.'' 2, 832, 2. 17 [be] plaintiffs' met although statutes-the Act, Corporation 76 1132, §1864-did "in terms specified group[,] apparent; broad narrow Acts easily identifiable.'' 832. [A]s engaging services,'' "aggrieved persons'' Comptroller's 18 Less year later, (Arnold Tours) curiam). There, certain travel agencies ruling Comptroller, contested operate agencies. 159. incorrect view resting peculiar §4 part behest industry. explicitly "we showing desired processors alone competition.'' explained: 19 "In [w]e brings competitor it. Nothing protecting field. When begin customers, compete agents less data-processing customers.'' (internal citations quotation marks omitted). 20 decided (1971) (ICI). investment association individual violated, inter alia, §21 Glass-Steagall Act5 permitting what essence early versions mutual funds. injured resulting controlled 1094. Significantly, unpersuasive Harlan's dissent "neither pertinent nor evince[d] concern others like freedom 640, 1103. 21 Our fourth vein (1987) (Clarke). securities dealers sued authorizing discount brokerage both offices locations inside outside 391, 752-753. contended violated McFadden authorized branches, open branches state-chartered State so state law. 391-392, 22 Summarizing holdings, "denies marginally related inconsistent purposes statute,'' 399, 757, "there indication plaintiff,'' (citing ICI). ability States, ha[d] shown keep gaining monopoly control over money.'' 759. preventing expanding into implicated offering "access more money, form balances, enhanced opportunities lend viz., margin purchases.'' analogous ICI: engage all; here, without limitations branching law.'' 23 cases, "indication plaintiff.'' ICI); 159 Processing). proper inquiry simply "whether statute.'' 830 Hence issue, discern issue; 24 §1759. serve.6 base.7 appeared designed parity treatment [national] [could] limit[ed] impact nonbank houses.'' dealers, restricting market power. interest, challenge, allowed expand 26 Similarly, though depositors, enter business. So too, Tours safety soundness statutes entering businesses' product markets. interpretations opening banks. NationsBank N. C., N.A. Variable Annuity Life Ins. Co., 513 251, 115 810, 130 740 (1995) (deciding Seventh act sale annuities; insurance agents' questioned). C attempt distinguish Congress, competition. 21-22. Indeed, very reason [b]anks picture'' far small borrowers concerned, believed create source people modest means. 25. 29 difficulty arguments unsuccessfully Clarke. argued following reasons: 30 [P]etitioners clear: dispels possible doubt enactment 1864 (13 101) sole creating strong system protection bottom competitors.'' O.T.1969, 85, pp. 19-20. 31 position "markedly processors,'' find "some manifestation position.'' Memorandum Opposition O.T.1970, 602, 3-4. And urged us because- 32 [t]he thrust legislation, drafters, public through maintenance sound 33 ..... 34 "There Congressional objective funds advisers underwriters.'' 61, 27-29 35 "Indeed, attitude toward bankers characterized distaste. example, discussing private bankers, Senator Glass pointed many "unloaded millions dollars worthless upon country.''' 30, (citation 36 [t]here type injury mind [McFadden] Act-the might inflict other.'' O.T.1985, 85-971, p. 24. 37 declined argument. "d[id] group,'' "their [was] apparent[,] [were] [the statutes] similarly unmoved comment spite positive effects 1103-1104 (Harlan, dissenting). debate about dealers. moreover, merely safety-and-soundness provisions, depositors effects. hesitate standing. 38 petitioners' refused refuse today. 39 1125 (1991). Courier, maximizing postal statutes, suspending international operations. 915. solely revenues Post ensure provided manner 526-527, 919-920. Only interests, employment, statute. Cf. Lujan Wildlife Federation, 497 871, 883, 110 3177, 3186, 695 (1990) (stating reporting agency's failure comply mandate conduct hearings record). competition, nothing [e]mployees generally enforce laws injury''). but, foregoing discussion clear, possess 40 nature,8 too beside point.9 41 Turning merits, judge permissibility current employing (1984). analysis, "directly issue. end matter; court, agency, give effect Congress.'' 2781. determine reasonable. 843-844, 2781-2783. conclude 42 noted, uses article "a''-"i.e., one''-in conjunction noun "natural reading'' united 33. reply plural bond, constitute 29-30. 43 Like Appeals, think either contentions, alone, conclusive. "a'' thought convey taken together. F.3d, word "groups'' refer single forms FCUA. Nonetheless, correctly recognized, additional conclusion 44 bond.'' use facts being together ATTF. former bonded worked AT&T, latter Such exists subsidiaries union; exist, Put another way, context, groups,'' provides. 45 contained Wisconsin Dept. Revenue William Wrigley, 505 214, 225, 2447, 2454-2455, 120 174 (1992). concedes geographically come "neighborhood, 37. units, render meaningless. principles interpret 46 advanced why whereas "within'' "prepositional,'' "having'' "participial'' (and limiting). 31. There is, participial inherently open-ended prepositional one; indeed, phrases universe exceedingly effective manner-for "persons February 29th wedding anniversary.'' Reading clauses that, just drawn community district,'' occupation.'' limited.'' interpretation-under group-has permissible grant include Nor it: Each company's 109, reasons, Chevron.10 49 Affirmed. 50 BREYER join, dissenting. 51 zone-of-interests Administration's (NCUA's) applies decisions and, importantly, eviscerates requirement. my view, conception inquiry, by'' provision. 830, (1970). I respectfully dissent. 52 sue demonstrate "adversely Ibid.; 523, 917, (1991); 882-883, 3185-3186, (1990). aspects correspond familiar concepts doctrine "injury fact'' Constitution principles. Bennett Spear, 520 ---------, 1154, 1160-1161, 281 53 show aggrieved,'' i.e., fact. 917; 3186. addition, assert satisfies test. 917-18; 886, 3187-88. Specifically, he complains (his aggrievement, adverse him), falls interests' violation basis his complaint.'' 3186; 523-524, 918. complain of,'' explains, "allows otherwise customers customers'' Union. Ante, __, 4. loss base competing entity, generally, competitor. then, "falls [common bond] provision.'' E.g., instance, where plaintiffs-like here-alleged violated.'' Bennett, 1167 (discussing 55 adopts quite approach today, eschewing assessment interest. begins observing provision-" §1759-expressly limit belonging Then, citing bar serving nonmembers, reasons "is serve.'' __. concludes [a]s [that] , interest.'' __ 56 approach, litigant establishes automatically satisfy rendering ineffectual. 524, 918 ("mistak[e]'' "conflat[e] fact''). That result stems articulation "interest.'' protects "interest serve,'' ante, presumably "markets'' sense markets, opposed to, markets: prohibiting nonmembers combine offer. 57 With understanding, "have'' "limiting [customer] serve'' means little enforcing union's base, enough observation "affected'' adds analysis; restriction course affect party restriction. bring vindicate crux 58 party, invariably An example Federation illustrates point. hypothesized situation requiring "on record' hearings.'' circumstance "would assuredly contract record transcribe proceedings,'' But obviously parties proceedings reporters.'' test: on-the-record hearings, 59 likewise squared case. involved mailing services. Private Express Statutes (PES)-the codify Service's monopoly-citing opportunities. PES job opportunities.'' 920. though, case: surely "had'' suspension 60 short, amounts hardly all. instead "establish provision'' 3186 added); 1167. noting workers,'' us'' workers encompassed PES.'' 918; 885-886, 3187-88 (noting "recreational aesthetic enjoyment,'' "are sorts [the] protect''). 61 last Term Spear vein. Fish Service, effort preserve species fish, issued biological minimum water levels reservoirs. ranchers irrigation districts asserting "competing water,'' alleging, using reservoirs water. 1160. Endangered Species "use [of] best scientific available.'' "best data'' assessed fell provision, economic erroneous opinions (observing avoid needless dislocation produced officials zealously unintelligently pursuing environmental objectives''). 62 lead recognize mandated decisions. Congress's concerns Act,'' motivated [c]ongressional unwanted industry.'' 24-25. asks tantamount abolishing altogether. 63 Contrary suggestion, application concert followed focused, 64 earliest (1970), formulated of, 1962, [n]o service activity performance services.'' 154-155, 831. articulated applicable 65 answering question, processors, "economic injury'' "competition 154, processors' "commercial anti-competition §4,'' Processing), explaining it,'' 156, 66 soon challenging agents, competitors. 158. Not surprisingly, ruled "desir[e] competition'' §4. turned 67 Camp (ICI), Tours. Banking 1933, 162, barring banking. rest determination notion prohibition observed legislated Act. 620-621, 68 final (1987). 1228, State, "branch'' essentially offered core allowable area, rationale offices. Representatives industry alleging limitations. 69 again, limits. provisions. 759 "a money branching.'' 402, 758 (STEVENS, concurring judgment) ("The based becoming massive monopolies services''). prevent "monopoly control'' 70 true, emphasizes repeatedly, __-__, line bringing suit. 757-58. processors. likewise, antibranching primarily injury. Lexington Bank, Piedmont 71 "anti-competition limitation,'' or, alternatively, "legislated competition,'' 759; accordingly, plaintiff-competitor's limitation'' determined, words, plaintiff] complain[ed] [fell] [relevant] fails undertake here. 72 Applying fall suggest framed exception preceding confers "incorporators organizations fee.'' suggests internal organizational principle defining way secures financially organization. text 73 nontextual effect. operation much Those evinced legislate entry all,'' 74 denote desire purport restrict large, nationwide expected embodied consequences growth. 25-26 (Navy 1.6 million members; Airlines 157,000 members); S.Rep. 555, 73d Cong., 2d Sess., (1934) "employees Government'' "specific association''). 75 More tellingly, operates individually: speaks group. Even requisite prevents joining district'' shares adequate "occupation[al] association[al]'' connection. Also, conceivably sense, collectively contrast, operated market: Banks barred ICI), location obtain bank, still receive erect boundary excluding identifiable market. 77 circumstances indicate shadow Depression; "come depression failures, failed notably, tribute worth cooperative indicates clearly great value rapid extension.'' __-__. enable public, largely ignored reasonable rates. 2-3; Administration, 1272, 1274 "was seen cement venture, was, important unions' continued success.'' 1276. assumed implicitly amongst making lending know applicants reluctant default.'' 6; A. Burger T. Dacin, Field Membership: Evolving Concept 7-8 (2d ed.1992). 78 meant remains institution economically stable responsive members' needs. governance secure viability day become seems anomalous, Congress' encourage proliferation disdained.'' 1275; Branch Bd., 786 625-626 (C.A.4 1986), 1063, 948, 997 79 viewed useful tool curbing inquiry. irrespective intent, 394, 754 "matter [is] basically intent''); 400, 757; 1276 ("To sure, passed-as flourished consumer intensified-bankers began desirable expansion fact, assuming serves illuminate 1934''). Otherwise, suits host unintended furthering loans make sums borrow. §§1757(5), (6). 80 light, establishing some beyond mere enforcement incidentally draw inference construed inference: Where legislates properly infer statute's principal objective. (slip op., 21-22) (indicating satisfied corresponds plaintiff). infer'' "that [of plaintiffs] relied disregard neither operates, evince This, suit.'' "seeks exclude likely frustrate objectives,'' 397, 12, 756 readily envision competitors, incentive suppress circumstances, odds aim supporting growth cohesive stable. 82 instructive regard. observes unlike suffer injury.'' 5. violated-the PES-were regulate law, presence Hardin Kentucky Util. 390 1, 5-6, 88 651, 654, 787 (1968). while [but] everything "marginally related'' most plaintiffs. suffice IV 83 Prudential "founded proper-and limited-role courts democratic society.''' 1161 (quoting Warth Seldin, 422 490, 498, 95 2197, 2205, 343 (1975)). integral ought gives content. undertakes leaves hollow one. violation, decisions, vacate remand instructions dismissed. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber Lumber 200 321, 337, 282, 287, L.Ed. 499. SCALIA joins Appeals' conflicted Fourth reached 621 panel Sixth conclusion, City 433 (C.A.6 1997). According NCUA, thousands Pet. Cert. 14. Moreover, injunction approving 14, disputed injury-in-fact allows unlawful [f]or person, firm, [or] engaged issuing securities, whatever receiving deposits.'' 189, §378(a). heavily rely, supports originated mid-19th century Europe associations means; usually organized around theme, associational. General Accounting Office, Unions: Reforms Ensuring Future Soundness (July 1991). Following European 1920's During contrast widespread failures level, involuntary liquidations (1934). nature state-law reinforced, contributed Hearing Subcommittee Senate Committee Currency, 1st 19-20, (1933). 1932; identical years later. sponsors legislation emphasized available qualify loans. 3. confirms reinforce turn promote access unable Because, nature, demonstrates dissent's post, formulation "eviscerat[e]'' "abolish[]'' imply articulated-discerning inquiring them-differs matter semantics accused "eviscerating'' "abolishing,'' complaint'') quotations citation disagreement lies unmistakable objectively companies, rulings advance noble goal maintaining depositors. suggestion preclude Block Community Nutrition Institute, 340, 2450, 270 consider history, which, below found, extremely "murky'' "slender reed reliance.'' 530

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