Legal Document

464 U.S. 30 104 S.Ct. 304 78 L.Ed.2d 29 NORFOLK REDEVELOPMENT AND HOUSING AUTHORITY, Etc.v.CHESAPEAKE POTOMAC TELEPHONE COMPANY OF VIRGINIA et al. No. 81-2332. Argued Oct. 3, 1983. Decided Nov. 1, Syllabus Respondent Chesapeake & Potomac Telephone Co. of Virginia (C P) was required to relocate some its transmission facilities by reason a street realignment resulting from federally funded urban renewal projects carried out in Norfolk, Va., petitioner Norfolk Redevelopment and Housing Authority (NRHA), political subdivision the State. C P sought reimbursement NRHA for expenses incurred this relocation, claiming that it "displaced person" within meaning Uniform Relocation Assistance Real Property Acquisition Policies Act 1970 (Act), which provides 42 U.S.C. § 4622(a)(1) any person displaced his home or place business federal project is entitled relocation benefits, including "actual reasonable moving himself, family, business, farm operation, other personal property." After receiving administrative rejections, sued Federal District Court, denied relief. The Court Appeals reversed. Held: not Act. did change long-established common-law principle utility forced public right-of-way must do so at own expense. An analysis Act—the purposes were ensure persons programs would receive uniform treatment suffer disproportionate injuries as result designed benefit whole—and legislative history, particularly relates provisions Federal-Aid Highway 1968 model issue here, shows passing Congress addressed needs residential tenants owners, deal with separate problem posed service lines. Pp. 307 - 311. 674 F.2d 298, Francis N. Crenshaw, petitioner. Joshua I. Schwartz, Washington, D.C., respondent support Joseph L. Kelly, Company Virginia. Justice REHNQUIST delivered opinion Court. 1 telephone realignment. It compensation local government agency responsible plan caused claimed term defined Act,1 passed 1970. We hold 2 "displaced" federally-funded 4622(a)(1). terms binds only agencies; but may provide funds state involving condemnation without first "satisfactory assurances" will be given such payments assistance "as are provided agency" under 4630. In order qualify funds, therefore, many states, Virginia, see Va.Code 25-235 seq. (repl.1980), have adopted legislation modelled on 3 located City Norfolk. During 1960's, began four redevelopment program contained Title I 1949, (and Supp.IV) 1450et seq.2 development plans approved reshaping certain land parcels, turn patterns. acquiring both sides streets question, successfully petitioned close off those parts thereof. Stipulations Fact 5-6, App. 39-41. New constructed accordance plans. 4 privately-owned company engaged selling telecommunication services city throughout To serve customers, had placed facilities, manholes, conduits, cables accessory fittings, rights-of-way areas.3 When realigned, facilities. manholes too massive move, simply abandoned place. withdrawn and, most part, sold their scrap value, though cable stored possible reuse. Tr. 41 (testimony Mr. Tucker), 100-101. Substitute installed beneath new prevent interruption service. 5 Act.4 series United States Eastern Virginia.5 relief P, appeal decision reversed Appeals, Fourth Circuit. That court held definitional compelled conclusion excluded definition Act, sort here. 6 granted certiorari review judgment Appeals. --- ----, 77 (1983). now reverse. Our statute history convinces us hold, common law expense; 7 There no doubt could, circumstances, Businesses well natural eligible benefits.6 Thus, example, if branch office building condemned NRHA, might recover cost equipment furnishings. just like legitimate project. But whether can said when relocates lines because an calls existing patterns different question requires more detailed analysis. containing conduits "just business;" faces unique utilities. 8 Under traditional rule, utilities been bear entire relocating whenever requested authorities. 12 E. McQuillin, Law Municipal Corporations 34.74a (3d ed. 1970); 4A Nichols, Eminent Domain 15.22 (J. Sackman rev. 3d 1970). This rule recognized long ago Orleans Gas v. Drainage Comm., 197 453, 462, 25 471, 474, 49 L.Ed. 831 (1905) (holding injury sustained damnum absque injuria ). 9 well-established statutory construction "[t]he . ought deemed repealed, unless language clear explicit purpose." Fairfax's Devisee Hunter's Lessee, 11 (7 Cranch) 603, 623, 453 (1812).7 Since elements eminent domain largely derived law, see, e.g., Miller, 317 369, 63 276, 87 336 (1943), canon has force case contexts construction. must, satisfied costs before we conclude benefits seeks. "As all cases construction, our task interpret words the[ ] statute[ light serve." Chapman Houston Welfare Rights Org., 441 600, 608, 99 1905, 1911, 60 508 (1979). 10 passage ended decade consideration problems faced projects. See Alexander Dept. HUD, 39, 49, 1572, 1580, 28 principal sponsor bill, Senator Muskie, noted over 50 resulted proceedings victims received widely varying treatment. "Nearly assisted differing, conflicting, helping displaced. They range liberal protection others." 115 Cong.Rec. 31533 (1969). passed, name suggests, condemnation.8 Another, equally important, purpose "not whole." 4621. concepts domain, homeowner market value house. H.R.Rep. 91-1656, p. (1970) U.S.Code Cong. Admin.News, 5850. A tenant will, residing doing premises, nothing. Id., 12. Yet incur significant, perhaps devastating, property. S.Rep. 91-488, pp. 6-7 (1969); 2-3 (1970). intended alleviate "disproportionate injuries" suffered persons.9 pursuit equity uniformity, relied heavily prior governing specific programs. For 501 through 511 (1968 Act), Pub.L. 90-495, 82 Stat. 815, 830-835. extend coverage preexisting agencies, modifications "only necessary achieve system requirements aids applied uniformly programs." also (1970), 5850; 31534 (1969) (remarks Sen. Mundt).10 Much declaration policy,11 definitions "person,"12 "business,"13 person,"14 formula calculating benefits15 taken directly 13 divining Congressional intent, instructive note claims made countenanced Utility necessitated highway already specifically governed provision, 23 123, predated left intact Careful provision demonstrates considered distinct plight dealt later, generally, 14 123 origins 1093, 83 Cong., 2d Sess., 12-13 (1954). 1954, Senate Committee Public Works "heard considerable testimony owners operators various concerning heavy financial burden upon them reconstruction modernization highways moved locations right-of-way." tentatively concluded that, since "neither feasible nor desirable Government give direction relationships application funds." 13. 15 did, however, authorize study problem, study16 led adoption 111 1956 (1956 84-627, 70 374, 383. Some states had, practice, altered reimburse relocation. felt should expense contribute pro rata share. state, pays project, "Federal used State same proportion expended project." 123(a). was, thus, laws individual congressional displacement laws. House Report accompanying stressed: "There requirement section, either express implied, pay part costs." 2022, 84th (1956). 16 response number providing federal-aid projects.17 expressed concern "this drastic practices," noting "the use increase substantially, thereby reducing amount available highways." 1407, 85th (1958). response, proposed put 70% cap contributions Ibid. limitation rejected final amendment proviso after evidence satisfactory Secretary shall presented him substantiating fact paid ." 85-381, 11(a), 72 89, 94-95. careful alternatives, relations between left, once again, law. No right ever utilities, although remained 17 As noted, nothing situation. untouched. directed problem: homes places business. 1584, 90th 20 (1968); 1340, (1968) 3482. never mentioned clearly covered 511. 18 1954 shows, persons" calling solutions. showed aware expenses, proved unwilling, extensive debate, federalize governments. 19 chose one these two problems. modifying extending addressing living working buildings bulldozed Muskie) (expressing bulldozing hundreds thousands people businesses annually").18 220 repealed sections superceded rendered superfluous 21, 32-38 occasioned projects, intact. neither contradicted outside scope At point hearings,19 debates,20 committee reports21 suggested alter rules expenses. Given hitherto expressly declined rules, seems inescapable fit absent-mindedness modified extended problem. 21 continuously Electric Power Fugate, 211 Va. 745, 747-748, 180 S.E.2d 657 (1971), Supreme franchise agreement, allows revocable confers property utility. Established practice agreement effect. always past borne included operating rate structure Corporation Commission. 10-11, 43-44. grant new, 22 Reversed. POWELL took disposition case. full title 1970, 84 1894, 4601 Agreements worked Department Urban Development (HUD) each HUD furnish two-thirds net cash, while remaining one-third "in kind," means improvements streets, schools parks. 9, 42; 129, 132-133 Rice), 187-188, 194. pursuant 1898 P's predecessor, Southern Bell Exhibit 228-243. could require move time, P. Section 101(6) follows: "The 'displaced person' who, January 27, 1971, moves real property, acquisition whole written vacate undertaken agency, assistance; solely 4622(a) (b) 4625 title, conducts 4601(6). turned down appealed Richmond HUD. claim joined defendant suit. basis regulation issued 24 CFR 42.707. authorization unclear, party questions validity proceed assumption authorized present litigation involves interpretation relevant "Person" include "any individual, partnership, corporation, association." 4601(5). "business" includes lawful activity, excepting conducted primarily (B) sale public. 4601(7). also, Herd Krawill Mach. Corp., 359 297, 304-305, 79 766, 770-771, 820 (1959); Texas Pac. Ry Abilene Cotton Oil Co., 204 426, 437, 27 350, 354, 51 553 (1907); Shaw Railroad 101 557, 565, 892 (1880). 4621 (statement purpose); 1-8 1-3 4, 6-7, sources indicate reliance 114 amended 1968, 90-448, 476, 526 (1968). mention costs, regulations promulgated accommodate If, involved then expenditure Renewal Handbook, RHA 7209.1, chap. 2, 4. 220(a)(5) extensively revised reflect remains unchanged. Compare ("to insure few individuals whole") 201 establish policy fair equitable whole"). 511(1) ("The 'person' association owner .") 101(5) 4601(5), set n. 6, supra. 511(4) 'business' activity 101(7) 4601(7), 511(3) ("any who expectation subsequently acquired, Federal-aid 4601(6), 505(a) ("actual property") 202(a)(1) property"). Incident Improvement, H.R.Doc. 127, 1st Sess. (1955). "During 1957, payment public-utility assemblies 40 states. Such States, vetoed became States. State-maintained highways, relate Interstate System only, where share least 90 percent." (1970); Mundt); id., 31534-31535 Tydings); 116 40167 Rep. Edmondson); 40168 Kluczynski); 40170 Mink). Land 1969: Hearings S. Before Subcommittee Intergovernmental Relations, 91st Policies-1970: H.R. 14898, 14899, Related Bills Works, (1969-1970). See, 31533-31535 40163-40172, 421332-42140 91-488 91-1656

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