Document: 546 U.S. 481 (2006) DOLAN v. UNITED STATES POSTAL SERVICE ET al. No. 04-848. Supreme Court of United States. Argued November 7, 2005. Decided February 22, 2006. *482 James R. Radmore argued the cause for petitioner. With him on briefs was Michael T. Kirkpatrick. *483 Patricia A. Millett respondents. her brief were Solicitor General Clement, Deputy Kneedler, Robert D. Kamenshine, Mary Anne Gibbons, Lori J. Dym, and Stephan Boardman.[*] JUSTICE KENNEDY delivered opinion Court. Each day, according to Government's submissions here, States Postal Service delivers some 660 million pieces mail as many 142 delivery points. This case involves one such pointโpetitioner Barbara Dolan's porchโwhere left by postal employees allegedly caused trip fall. Claiming injuries a result, Dolan filed claim administrative relief from Service. When denied, she husband (whose loss consortium Dolans later conceded barred failure exhaust remedies) suit in District Eastern Pennsylvania, asserting that Service's negligent placement at their home subjected Government liability under Federal Tort Claims Act (FTCA), 28 U.S.C. งง 1346(b)(1), 2674. The dismissed suit, Appeals Third Circuit affirmed, 377 F.3d 285 (2004). Both courts concluded that, although FTCA generally waives sovereign immunity federal employees' torts, claims an exception waiver, ง 2680(b). We disagree hold may proceed. I Under Reorganization Act, 39 101 et seq., is "an independent establishment executive branch *484 States," 201. Holding monopoly over carriage letters, has "significant governmental powers," including power eminent domain, authority make searches seizures enforcement laws protecting mails, promulgate regulations, and, subject Secretary State's supervision, enter international agreements. See Flamingo Industries (USA) Ltd., 540 736, 741 (2004) (discussing 101, 401, 407, 601-606). Consistent with this status, enjoys absent waiver. ibid.; cf. FDIC Meyer, 510 471, 475 (1994) ("Absent shields its agencies suit"). Although "waives giving it `to sue be sued official name,'" Industries, supra, (quoting 401(1)), statute also provides "shall apply tort arising out activities Service," 409(c). FTCA, turn, two different sections Code. first confers federal-court jurisdiction defined category cases involving negligence committed course employment. jurisdictional grant covers: "claims against States, money damages, accruing after January 1, 1945, injury or property, personal death wrongful act omission any employee while acting within scope his office employment, circumstances where if private person, would liable claimant accordance law place occurred." 1346(b)(1). *485 As falling grant, second provision, makes "in same manner extent individual like circumstances," though not "for interest prior judgment punitive damages." 2674; see Olson, ante, 44. qualifies waiver certain categories (13 all). If exceptions applies, bar remains. 13 exempted are set forth 2680, relevant subsection our purposes, pertaining operations, It states: "The provisions chapter section 1346(b) title shall . [a]ny loss, miscarriage, transmission letters matter." consequence, commit torts local law, but exception. provision relied upon dismiss suit. Appeals' decision created conflict Second Circuit. Raila 355 118, 121 granted certiorari. 544 998 (2005). II assume applicable state person injured tripping package bundle papers negligently porch residence party have action damages. question whether, when causes slip fall, 2680(b) "loss, matter" preserves despite FTCA's more general statements *486 considered isolation, phrase "negligent transmission" could embrace wide range acts delivering mail, creation slip-and-fall hazards leaving packets parcels residence. After all, ordinary meaning usage, complete until arrives destination. See, e. g., Webster's New International Dictionary 2429 (1971) (defining "transmission" act, process, instance transmitting" "transmit" "to go conveyed another place"). In large part inferenceโ includes deliveryโled rule Government. F.3d, 288; App. Pet. Cert. 5a-6a. definition words however, necessarily controlling statutory construction. A word extend outer limits definitional possibilities. Interpretation depends reading whole text, considering purpose context statute, consulting precedents authorities inform analysis. Here, we conclude both precedent require narrower reading, so does beyond causing lost arrive late, damaged condition, wrong address. Raila, (holding covers "damages delay material itself consequential damages therefrom"). comprehend all occurring delivery. Starting context, follow other terms, "loss" "miscarriage." Those think, limit reach "transmission." "[A] known company keeps"โa "is often wisely applied capable meanings order avoid unintended breadth Acts Congress." Jarecki G. Searle & Co., 367 *487 303, 307 (1961); Dole Steelworkers, 494 26, 36 (1990) ("[W]ords grouped list should given related meaning" (internal quotation marks omitted)). parties acknowledge, "lost" destroyed misplaced "miscarried" goes Since those terms refer failings obligation deliver timely right address, odd swept far broadly include alleged hereโ happen involve neither transmit nor damage contents. Our interpretation less secure deem decisive weight here. Kosak 465 848 (1984). Kosak, art collector artworks he owned Customs seized detained them. Id., 849-850. whether retained based 2680(c), since been amended time covered: "[a]ny respect assessment collection tax customs duty, detention goods merchandise officer excise law-enforcement officer." 852, n. 6 omitted). concluding did thus immunity, gave specific consideration central holding, contrasted what called "generality 2680(c)" "specificity 2680(b)," id., 855. observed: "One principal purposes waive resulting auto accidents *488 which System fault. ensure 2680(b), governs mailmen, effect barring precisely sort Congress most concerned authorize, draftsmen carefully delineated types misconduct assuming financial responsibilityโnamely, `the matter'โthereby excluding, implication, handling motor vehicles." Ibid. (footnote present suggests Kosak's conclusion regarding operation vehicles ignored dictum. light discussion, cannot interpret cover trucks well deliveringโand transmittingโmail they collide vehicles, indicates nonetheless, retains no immunity. Seeking distinguish argues driving relates only circumstantially whereas accident itself. Nothing text supports distinction. Quite contrary, placing create risk constitutes transmission," true endangers others road. transmitting mail. addition, recognized acknowledged oral argument, focusing yield anomalies, perhaps making turn sack empty full, pedestrian sideswiped passing truck hit *489 side-view mirror dangling parcel. 122-123. think likely intended retain rule, arising, directly consequentially, because either fails Illustrative instances exception's operation, then, harms nondelivery late sensitive materials information (e. medicines mortgage foreclosure notice) mailed parcel shattering shipped china). Such harms, primarily identified function transporting throughout Resisting conclusion, emphasizes vast operationsโthe daily mailings points mentioned outset. Brief Respondents 36. mailboxes doorsteps essential nationwide undertaking, must intended, asserts, insulate delivery-related liability. If, doorstep enterprise, then so. And event, "[t]he 2680 designed protect important functions prerogatives disruption," Molzof 502 301, 311 (1992), specificity 855, intend immunize activities. Other paint broader brush. They cover, example: fiscal operations Treasury regulation monetary system," 2680(i); combatant military naval forces, Coast Guard, during war," 2680(j); foreign country," 2680(k); *490 Tennessee Valley Authority," 2680(l), "the Panama Canal Company," 2680(m); land bank, intermediate credit bank cooperatives," 2680(n). Had preserve deliveryโ hazardous customer homesโit used similarly sweeping language By instead "carefully delineat[ing]" just three harm (loss, transmission), U.S., expressed intent subset wrongdoing, Further supporting interpretation, losses type least degree avoidable compensable through registration insurance. Service, Mailing Standards, Domestic Mail Manual 609.1.1 (Nov. 10, 2005), available http://pe.usps.gov/text/dmm300/ 609.htm (as visited Jan. 9, 2006, Clerk Court's file) (allowing indemnity "insured, collect (COD), registered insurance, Express Mail"); CFR 111.1 (2005) (incorporating reference Manual). enacted 1946. 245 (1940 ed. Supp. V) (setting rates conditions insurance); 381 (1946 ed.) ("For greater security valuable matter Postmaster establish uniform system registration, provide rules senders owners indemnified rifling, thereof mails ."). explains, "extending coverage suits adequate remedies already available," 858โan objective consistent retaining *491 covered While outside relief, even true, cites permits discretionary automatic remedy 2603 (indicating "may adjust settle" personal-injury property-damage "not cognizable" provision); 31 224c "[w]hen done property Post Office Department. invested settle award exceed $500"); Legislative 1946, 424(a), 60 Stat. 846-847 (repealing cognizable FTCA). raises specter frivolous slip-andfall inundating addition considerations identified, describes "avoiding exposure excessive fraudulent claims" aim exceptions, 858. Slip-and-fall liability, imposes it, shared business deliveries. Given viewed sweep claims, protections litigation suffice do vehicle collisions. Finally, noted implicate "a will strictly construed, scope, favor sovereign," Lane Pen๑a, 518 187, 192 (1996). principle "unhelpful" *492 "unduly generous interpretations run defeating statute," 853, language," Yellow Cab 340 543, 547 (1951); Nordic Village, Inc., 503 30, 34 (1992) (observing "[w]e occasion narrowly construed waivers Congress' clear intent, `sweeping language' [FTCA]" 547)). Hence, proper court attempting construe subsections identify `those reason exception'โno more." 9 Dalehite 346 15, (1953)). Having made inquiry fall * inapplicable, falls reversed, remanded further proceedings opinion. ordered. ALITO took case. THOMAS, dissenting. (FTCA) civil seeking *493 occurred," save several found 2680. reserved respecting (postal exception). Petitioner suffered tripped packages, periodicals (Postal Service) porch. Today, concludes lawsuit proceed disagree. arises Even ambiguous, ambiguities resolved favor. Accordingly, respectfully dissent. exception, every term therein, ascribed meaning. 477 (noting statute). controversy here transmission." crux my disagreement majority assign plain That "[a]ct, transmitting." 2692 (2d 1934, republished 1945). "Transmit" as, inter alia, "[t]o send transfer another; *494 forward rail, post, wire, etc., [t]o pass conveyed." 2692-2693. There unaware Nor there textual indication deviate these terms.[1] meaning, 486, exempts patron, claim. Rejecting "ordinary usage" "directly consequentially" "negligence address." Ante, 489. Thus, majority's view, direct arise For example, carrier drops box containing glassware patron's doorstep, contents shatter, patron injures himself handle shards glass, item injury. *495 view correct, goes. However, places heap front trips walks door, forward. basis line drawn majority. Indeed, odds broad expressly applies (emphasis added). rationalizes "miscarriage" 486. Applying noscitur sociisโthat keepsโ reasons "failings `negligent transmission' broadly." 487. But nothing "odd" about interpreting encompass ground than decidedly sociis prevent ascribing expansive conflicts gives "`unintended Congress.'" Gustafson Alloyd 513 561, 575 (1995) (1961)). "does [the Court] series terms," where, demands limited Gustafson, 586 (Thomas, J., dissenting) deleted). read use narrow limiting "would defy common sense; doing whenever combined *496 restricted meaning." 587. (1984), support construction suggested employees. Specifically, stated: [FTCA] accidents.... ... matter' ." 855 observation import recognition exceptionโwhatever beโwas crafted undermine undisputed FTCAโto accidents. says capture enacting thus, unremarkable construing exception.[2] *497 outcome case, discussed above, purport exception; rather consequence (damage delivery, etc.). exclusion drivingโregardless personโfrom implies, anything, envisioned discrete being covered, independently nature consequences. ibid. (excluding vehicles" "types misconduct" such, Assuming suggests, 486-487, settled principles *498 governing us exercise pursuant statement waiving together waiver." White Mountain Apache Tribe, 537 465, 472 (2003). sovereign." These legal (explaining qualifications immunity). incorrect "this `a sovereign.'" 491. clearly illustrates, amenability can ascertained exceptions. well-established rationale sovereign's equal force plausible own, still resolve mandated canons construction.[3] *499 reasons, affirm Appeals. NOTES [*] Harold Krent, Daniel Popeo, Paul Kamenar Washington Legal Foundation amici curiae urging reversal. [1] fact, supported routine criminal statutes handling, processing, final Mar. 3, 1845, ch. 43, 6, 5 734 (respecting deputy postmasters authorized place" packages free charge); 18 1696(b) (c) (referring unlawful letters); 1716(b), (c), (d), (e) (regulating proscribing "transmission mails" dangerous items medicines) except "to," "from," "between" specified individuals entities). [2] attempt reconcile "one `extending available,'... [some] insurance." 490-491 858). majority, ignores fact cases, insurance sender, recipient, recipients means obtaining compensation money, gifts, heirlooms, papers, delayed medicine, time-sensitive documents. 609.4.3(f) (ae), pp. 1129, 1130 (rev. 2005). justification take into account patrons insure sentimental value. 609.4.3, generally. accurate depiction hand, amenable easily dismissed. 2603, argues, settlement discretion otherwise cognizable, Dolan's. settlements alter undermines position purported unavailability recovery proposed interpretation. [3] canon counsels ambiguity "on immunity," plainly waived particular issue, before permissibility form (citing 543 (1951), Aetna Casualty Surety 338 366 (1949)). disputed, preclude actions (1953); Orleans, 425 807 (1976);

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