Document: 442 U.S. 444 99 S.Ct. 2388 60 L.Ed.2d 1017 SOUTHERN RAILWAY COMPANY, Petitioner,v.SEABOARD ALLIED MILLING CORP. et al. INTERSTATE COMMERCE COMMISSION, Petitioner, v. SEABOARD COAST LINE RAILROAD COMPANY al., Petitioners, Nos. 78-575, 78-597, and 78-604. Argued April 23, 1979. Decided June 11, Rehearing Denied Oct. 1, See 890, 100 194, 195. Syllabus When petitioner railroads proposed a seasonal increase in the shipping rates for grain soybeans, number of shippers filed protests with Interstate Commerce Commission (ICC) requesting that it exercise its authority under § 15(8)(a) Act (Act) to suspend such investigate charges their illegality. But ICC issued an order declining request, although admonished correct any violations as might exist directed records be kept protect shippers' right recover damages subsequent proceedings they bring pursuant 13(1) Act. The Court Appeals held had begun investigation but then erroneously terminated without adequately investigating illegality supporting decision appropriate findings. court concluded by refuse make or terminate lawfulness tariff is subject judicial review, even though suspension orders are not, primarily because single proceeding initiated better means determining than numerous complaint shippers. Held: 1. To extent interpreted ICC's final was lawful, rather simply discretionary not now lawfulness, misconstrued order. order's express language belies interpretation, did reject claim on merits contrary about possible violations. Moreover, since expressly indicated violation could resolved proceedings, plainly incorrect interpret action prejudgment issue. Pp. 452-454. 2. "no investigation" review. 454-463. (a) This conclusion supported 15(8)(a)'s permission discretion (the "may, upon interested party . ., hearing concerning [a] rate"), fact statute silent what factors should guide decision. 455-456. (b) structure also indicates Congress intended prohibit review use permissive found when wished create reviewable duties Act, instead used mandatory 13(1). treat if were written 13(1)'s language, would allow open-ended ill-defined procedures render obsolete carefully designed detailed view linkage between power rates, decisions holding reviewable, Aberdeen & Rockfish R. Co. SCRAP, 422 289, 95 2336, 45 191; United States 412 669, 93 2405, 37 254; Arrow Transportation Southern Co., 372 658, 83 984, 10 52, furnish further reviewable. 456-459. (c) legislative history Mann-Elkins amendments adding 15(8) supports nonreviewability decisions. Prior those amendments, no adjudicate advance either becoming effective being challenged complaint, adoption avoid disruptive consequences interference rate-making process. courts amount "backhanded approval" these same consequences, once again undermine primary jurisdiction bringing into adjudication administrative consideration. Pp.459-460 3. There statutory support compromise position that, while immediately do become later, completion whatever may While remedy lessens risk harm from initial refusal 15(8)(a), independent proceedings. 463-464. 570 F.2d 1349, reversed. Mark L. Evans, Washington, D. C., No. 78-597. Wandaleen Poynter, Jacksonville, Fla., petitioners Richard A. Allen, Cambridge, Mass., respondent, States. John H. Caldwell, Washington respondents Seaboard Allied Milling Corp., Harold E. Spencer, Chicago, Ill., Board Trade City Mr. Justice STEVENS delivered opinion Court. 1 On September 14, 1977, decided rate group railroads.1 question presented whether Commission's conduct 2 Because Courts Eighth Circuit, Corp. ICC, District Columbia Circuit have answered this differently,2 we granted certiorari. 439 1066, 831, 59 31. We hold 3 Petitioner railroads' schedule first one 202(d) Railroad Revitalization Regulatory Reform 1976 4-R Act). 90 Stat. 36, amending 49 U.S.C. 15 (1970 ed.) App. Pet. Cert. p. 28a. That provision directs adopt "expeditious establishment railroad based seasonal, regional, peak-period demand rail services."3 4 In August after promulgated new standards adjustments, see Ex parte 324, 355 I.C.C. 522, Freight Association 20% soybeans shipped Midwest railroad-owned cars December 15, 1977. proposal statistics describing high volume shipments fall, explanation anticipated effect temporary railcar usage, some cost evidence. 5 A large users transported (hereinafter shippers) claiming unlawful.4 They requested month filed, eight days receiving protests, legality rates. 286-291. 6 "to take prompt remove long-and-short-haul section 4(1) any, connection inter-territorial intra-territorial movements caused application demand-sensitive whole grains points southern territory." Id., at 288. carriers file weekly reports relating effects schedules, id., 289-290 (and, later order, keep accounts all receipts 302), "out caution" instructed Bureau Investigations Enforcement Operations closely monitor matter." 290. With respect basic formal investigation, concluded: 7 "Weighing contentions before us clear Congressional purpose permit experimental ratemaking, will adjustment effective." 289. 8 It noted, however, which allows initiate posteffective inquire still available "protect" persons aggrieved rates.5 9 Immediately entered two judges ex stay enjoined permitting go effect. 295. Eight dissolved went 298-300. Two months expired, concluding "adequately investigat[ing] charges" "patent illegality" "with findings conclusions." F.2d, 1352, 1355, 1356. hearings more fully protestants' patent and, revealed unlawful, provisions refund increased collected tariff. Although just-quoted passages suggest viewed inadequately investigated merits, other indicate reviewed disapproved realizing reach period covered already stated decide effectiveness pending 1352. Assuming, 698, 2421, 254, andArrow 667-668, 988-989, established reasoned powers separate distinct prompted applicable tariff." 1353. latter type former because, view, contending been overcharged. 1355. 11 reverse. First, has Second, transcends misinterpretation suggests determination Congress' intent 15(8)(a). 12 * is, course, true following approve disapprove set judicially g., Louisiana, 290 70, 54 28, 78 L.Ed. 181. Chicago States, 396 162, 309, 24 340. contend rule governs here. Commission, reviewing leaving intact knew effectively approved interpretation ruling 13 most forcefully urged shippers, both here Appeals, schedules contain long-and-shorthaul restrictions merits; contrary, 288-290. Since issue.6 14 note addition "the evidence offered alleged [§ 4(1)] [did] warrant suspension" investigation. But, light nature inquiry makes request area-wide this, too, clearly there 1910, precursor added typically made simultaneously; indeed, appears contemplate result. infra, 458-459. addition, leaves only 30 automatically effective. 6(3). duty, therefore, appraisal probable general reasonableness schedule—which may, case, involve thousands designated commodities routes each individual component schedules.7 short, time to, cases, finally components during preliminary 30-day period. II Nor can read tolerate schedule. lightly confer unreviewable agency, Morris Gressette, 432 491, 501, 97 2411, 2419, 53 506; Dunlop Bachowski, 421 560, 567, 1851, 1857, 44 377, choice case. For ultimate analysis always intent, "there persuasive reason believe [nonreviewability] Congress." Abbott Laboratories Gardner, 387 136, 140, 87 1507, 1511, 18 681. 16 Initially, important extremely limited scope conclude concerned rate-suspension shall see, our prior cases placed beyond control courts. Nor, fact, entirely rate-investigation authority. shipper require secure so—by filing complaint. Baird, 194 25, 39, 563, 566, 48 860. 17 Instead, sole concern consequences. burden proof regard carrier, who borne proceeding. (With aspects proceedings.) shipper's relief, unlawfulness proved, actual full overcharges determinations, neither necessarily affects citizen's rights8 conclude—based structure, well relevant case law—that agency's unreviewable. power, discretion. Under it, own initiative, [which] conducted answer pleading ." (Emphasis added.) 19 decision; "[t]he marked certainty," cf. U.S., 77, S.Ct., 32, face law apply" correct. Cf. Citizens Preserve Overton Park, Inc. Volpe, 401 402, 410, 91 814, 820, 28 136.9 Similar circumstances emphasized inferred nonreviewability. Barlow Collins, 397 159, 166, 832, 25 192; Schilling Rogers, 363 666, 674, 80 1288, 1294, 1478. B 20 included exercising exercise. particular, 13(1), authorizes supra, provides "[i]f appear reasonable ground said duty matters complained Appeals' therefore treats 21 Of greater significance, court's reading, least perhaps "patently illegal," given burden-of-proof remedial advantages, many surely would) force undertake Nothing left consideration We, reluctant almost century passed nullify original frequently provisions. 22 practical confirm reviews over 50,000 rate-schedule filings year; many, including involved here, Ann.Rep. 113 (1977). If generally within pre -effective suspension, must analyze explain actions schedule, investigations conducts, reversal, workload tremendously. 23 These reviewability especially present context policies underlying favor freedom railroads, flexibility, short-term supervision Commission10—all disserved examine adjustments. Furthermore, railroad, challenging party, bears challenger need prove recovering refunds out place regulatory system initiative setting railroad." 311, 2351, 191. additional structural why Section originally 36 552. As adopted, remained ensuing 70 years, 15(8)(b). phrased precisely limits both. Asphalt Roofing Mfg. Assn. 186 U.S.App.D.C. 8-9, 567 994, 1001-1002 (1977); n. 2, supra. inextricably linked occasion unless intends it. Chesapeake Ohio 426 500, 512-513, 96 2318, 2324, (Chessie). linkage, look previous find sufficient cases. 2351; SCRAP,, 691-692, 2417-2418, 2421; 658.11 Indeed, distinction drawn, sense pre-effective immediate impact does initiation whose outcome inevitably doubt. Trans Alaska Pipeline Rate Cases, 436 631, 641, 98 2053, 2060; Chessie, 513, 2324.12 C 26 enactment private years preceding rapidly rising encouraged success, ask enjoin unlawful result intervention ratemaking process, divested much public subjected nonuniform depended local district injunction. 9-10 (1907); 10-12 (1908); 6-7 (1909).13 27 discussed length Arrow, 662-672, 986-991, interference. decisions, giving very 664, 987. Judicial mandated suspension: "A disposition [an directing rates] seem applicant's carrier's unreasonable [or otherwise unlawful]. hazard forbidden intrusion domain." 669-670, 990. 29 allowance every appeals country replicate created "hazard[s] uniformity" along courts' assault jurisdiction, pass place. 671, 991.14 D Given strength nonreviewability, surprising 1977 ever adverted possibility Nonetheless, occasions commence analogous 13a(1), committed reviewable.15 31 340, discontinuing 13a(1) propriety certain changes passenger service rulings merits. so holding, distinguished undertaken place, saying: 32 "Whether discontinuance [of service] course discretion, matter New Jersey 168 F.Supp. aff'd, 359 [79 607, 625]" 165, 311. 33 cited three-judge squarely railroad's abandonment 328 (NJ 1958). Our summary affirmance 27, 79 625, having less precedential value argued nonetheless Hicks Miranda, 332, 2281, 223, dictum, strongly determinations. 34 necessary " 'clear convincing evidence' meant review" provided statute, design history, shed statutes. 568, 1858. 141, 1511. III 35 Solicitor General's belated (i. e., "final" stage cases), 13(1).16 novel reading denied he appeal earlier nor basis point self-contained procedure 1887. indication amendment Commission-initiated alternative shipper-initiated Third, preserve conducted, ultimately problems above approach arise. sum, arguments against diminished altering process allowed intrude. judgment 38 Reversed. 39 POWELL took part At times, pertinent part: "(a) Whenever common carrier stating joint rate, fare, charge, classification, regulation, practice affecting practice. pleading, notice parties. Such completed rendered scheduled effective, unless, expiration 7-month period, writing unable together delay. report Congress, date remain aside thereafter if, finds unlawful. "(b) Pending subdivision (a), suspended, (d), effect, except conditions 2630, 15(8). October 17, 1978, President Carter signed Subtitle IV Title 49, Code, "Transportation," 10101 seq. (1976 ed., Supp.II), recodifies revises archaic Supp.II). 10707 recodified corresponds old statute. refer statutes designations. (1977), held: "The permitted suspension. firmly settled suspending increases urge drawn refusing institute investigation; latter, argue, difficulty argument [15(8)(a)], empowers increases, grants substantially language. ground, treating differently purposes reviewability. controlled unreviewable." 202(d), codified 15(17), forth therein, follows: "Within year February 5, 1976, establish, rule, expeditious services. provide incentive reduce shipments, through rescheduling planning; generate revenues railroads; improve (i) utilization national supply freight cars, (ii) movement goods rail, (iii) levels employment (iv) financial stability markets served railroads. Following procedures, prepare submit annual implementation recommendations need, legislation facilitate rates." currently 10727. objected unreasonably 1(5); discriminatory §§ 3(1), applied cars; conforming goals seasonal-rate authorization; violating clause 4(1). provides: "Any person, firm, corporation, company, association, mercantile, agricultural, manufacturing society organization, body politic municipal complaining anything done omitted chapter contravention thereof, apply petition, briefly state facts; whereupon statement thus forwarded called satisfy writing, time, specified Commission. reparation injury done, relieved liability complainant particular of. specified, manner deem proper." 11701(b). text applies equal treatment 3(1) 288-289. 75-77, 31-32, 181; 312-313, 2352; 692 16, 2418 (even actually areawide finding contains individually components, properly "generally" lawful). proves damaged overcharged, different fails establish rate. foreclose requiring disapprove, investigate, shown include 31-32. standard equally foreclosed like General, Brief (review "abuse [action] [Commission's] mandate"), declaration policy Senate Report stated: "[T]he [the Title] fostering competition among promote adequate efficient transportation attractiveness investment, price promotion sensitive variations services, formulation guidelines revenue levels, modernizing clarifying functions bureaus." S.Rep., 94-499, (1975); U.S.Code Cong. Admin.News pp. 60. (primary end "excessive delay"); 3, 638-639, 2059, 56 591. reaffirmed SCRAP "that independently appraise rates"—i. merits—in did, "conclude mean cut off [the] purpos[e]" deciding question, i. "new rates" meaning 676-677, 1295, 1478 ("different considerations" agency "refus[al] fail[ure] discretion" discretion). Here, conceded issue (or investigate) them exercised raised correctly involved—a cannot "independently apprais[ing] [lawfulness] rat[e]." Similarly, situation unreviewable, far conducive parties seeking competitors alleging predatory pricing, excessive pricing. such, uncertain—and refused decide—whether complainants access remedies leave all. I. Sharfman, 49-55 (1931); Spritzer, Uses Summary Power Suspend Rates: An Examination Federal Agency Practices, 120 U.Pa.L.Rev. 45-49 (1971). debate surrounding portions absolutely commit unfettered perceived linked. S.Rep.No.355, 61st Cong., 2d Sess., pt. (1910); Cong.Rec. 3472 (1910) (Sen. Elkins); 462 (transmittal message Pres. Taft). required thirty change [in service]. discontinue operation ordered paragraph Upon days' enter change. institution affected thereby ten day train ferry continued service, part, longer four If, convenience necessity unduly interstate foreign commerce, continuance restoration ferry, exceed order." provision, parallels Both grant mutually supportive powers. nor, advised, previously advanced federal court.

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