Legal Document

537 U.S. 36 YELLOW TRANSPORTATION, INC.v.MICHIGAN ET AL. No. 01-270. Supreme Court of United States. Argued October 7, 2002. Decided November 5, Prior to 1994, the Interstate Commerce Commission (ICC) allowed States charge interstate motor carriers operating within their borders annual registration fees up $10 per vehicle. As proof registration, participating issued stamps that were affixed a card carried in each Under this so-called "bingo card" system, some entered into "reciprocity agreements" whereby, exchange for reciprocal treatment, they discounted or waived from other In Intermodal Surface Transportation Efficiency Act 1991 (ISTEA), Congress directed ICC replace regime with new "Single State Registration System," under which carrier's one had participated system would be deemed satisfy requirements all such ISTEA also capped state by directing "establish fee . will result is equal fee, not exceed vehicle, collected charged as 15, 1991." 49 U.S.C. § 11506(c)(2)(B)(iv)(III) (1994 ed.), amended and recodified 14504(c)(2)(B)(iv)(III). its final implementing regulations, ruled that, could terminate reciprocity agreements place regime. To allow them do so, decided, inconsistent ISTEA's fee-cap provision Act's intent flow revenue maintained while burden reduced. Michigan For 1990 years, Public Service did levy petitioner's trucks licensed Illinois pursuant policy vehicles registered Michigan-based fee. 1991, however, commission announced change policy, effective February 1, 1992, whereby granted treatment based on policies carrier principal business rather than individual licensed. Because no arrangement Kansas, where petitioner was headquartered, levied vehicle 1992 year entire fleet, payment due January 1992. After paying protest, brought suit Claims seeking refund it paid Illinois-licensed after Single System came effect. It alleged because "collected charged" those trucks, prohibits levying them. The court summary judgment, Appeals affirmed. reversed, concluding are relevant determining what "charged collected" 1991. Applying Chevron U.S.A. Inc. v. Natural Resources Defense Council, Inc., 467 837, determined statute unambiguously forbids ICC's interpretation. Reasoning company, but concluded must look at any given year, generic Held: erred holding 14504(c)(2)(B)(iv)(III), only State's "generic" may renounce modify agreement so alter date. interpretation permissible reading statutory language reasonably resolves ambiguity therein, receive deference Chevron, supra, 843, declining enforce it. does foreclose determination States' pre-existing were, effect, frozen System. can quite naturally read mean actually charged. easily chose, making unlawful While Court's might reasonable, nothing compels particular result. refers "fee system," charged." rule, waives zero remain zero. disavow potentially permit increase revenues substantially believed intend. rejects respondents' arguments intended set single, uniform fee; add constraint statute's express language; rule contravenes limiting carrier. Pp. 45-48. 464 Mich. 21, 627 N.W.2d 236, reversed remanded. O'CONNOR, J., delivered opinion Court, REHNQUIST, C. SCALIA, KENNEDY, SOUTER, THOMAS, GINSBURG, BREYER, JJ., joined. STEVENS, filed an concurring post, p. 48. 1 CERTIORARI TO THE SUPREME COURT OF MICHIGAN. 2 Charles A. Rothfeld argued cause petitioner. With him briefs Evan M. Tager, Robert L. Bronston, John W. Bryant, R. Ian Hunter. 3 Austin Schlick amicus curiae support brief Solicitor General Olson, Assistant Attorney McCallum, Deputy Wallace, Michael Jay Singer, Bruce G. Forrest, Kirk K. Van Tine, Paul Geier, Dale Andrews, Laura Fentonmiller. 4 Thomas Casey, Michigan, respondents. Jennifer Granholm, General, Susan I. Leffler, David Voges Henry J. Boynton, Attorneys General.* 5 JUSTICE O'CONNOR Court. 6 We certiorari case, 534 1112 (2002), determine whether 7 * A 8 Beginning 1965, authorized require register permits. Pub.L. 89-170, 79 Stat. 648, 302(b)(2) (1970 ed.). provided constitute undue commerce long consistent regulations promulgated ICC. Ibid. 9 See CFR 1023.33 (1992). issue stamp vehicles. 1023.32. "uniform identification cab car[d]" square bearing name issuing State. §§ 1023.32(d)-(e). This known system. Insurance Registration, I.C.C.2d 610 (1993). 10 proved unsatisfactory many who felt administrative burdens placed outweighed benefits public. H.R. Rep. 102-171, pt. I, (1991); Conf. 102-404, pp. 437-438 (1991). therefore implement regime.* 102-240, 4005, 105 1914, 11506(c) called System, "a [would be] required annually State," "such single [would] States." 11506(c)(1)(A) (C). Thus, would—on behalf States—register vehicles, file maintain paperwork, collect distribute fees. 11506(c)(2)(A). Participation limited elected participate 11506(c)(2)(D). 11 per-vehicle carriers. 12 ... (I) number commercial operates operates, (II) minimize costs complying (III) 11506(c)(2)(B)(iv). 13 charging collection accordance "be commerce." 11506(c)(2)(C). 14 May 1993 notice-and-comment proceedings. Single-State supra. rulemaking gave rise central question case: whether, free Id., 617-619. these agreements, 617. 15 proposed rules soliciting further comments, questioned power preserve agreements. MC-100 (Sub-No. 6), WL 17833, *12 (Jan. 22, 1993); see Registration—1993 Rules, 2d noted voluntary mutually beneficial commented "as more [a State's] standard (subject limit), [ISTEA] satisfied." *12. 16 concluded, light preliminary view "the law reduced." 2d, 618. agency "must consider when 11506(c)(2)(B)(iv)." 618-619; American Trucking Associations—Petition Declaratory Order—Single 1184, 1192, 1194-1195 National Association Regulatory Utility Commissioners (NARUC) 18 regulatory commissions sought review certain provisions regulations. NARUC ICC, 41 F. 3d 721 (1994). District Columbia plain supported U. S. 3d, 729. B 17 implementation App. (Affidavit Lonergan, Director, Motor Carrier Regulation Division ¶ 3e) (hereinafter Lonergan Affidavit). Legislature simultaneously endowed authority "enter state." Comp. Laws Ann. 478.7(4) (West 1988). Pursuant empowered "waive [otherwise] required." Petitioner case trucking company headquartered Kansas. calendar years "not states fee." (Lonergan Affidavit 3i). take effect sent bill September 19 protest later 11506(c)(3) ed.) (setting date 1994). Illinois, trucks. 20 On cross motions disposition, favor Yellow Freight 95-15706-CM (Mar. 13, 1996) (Yellow I). Claims' relied declaratory order held caps level advance cutoff 3-4; Associations, 1195. 21 affirmed similar grounds. 231 194, 585 N. 762 (1998) II). rejected Michigan's argument need 1991," noting considered, agency's decision been upheld II, 202-203, 766. 22 reversed. 236 (2001) III). State] `charged collected' 33, 242. expressly Circuit's contrary conclusion. 29, 240 (citing supra). applied 837 (1984), III, Mich., 29-31, 240-241. "[t]he `fee system' "[w]e [petitioner] 31, 241 (emphasis added). Two justices dissented, finding ambiguous, construction due. 33-43, 242-247 (opinions Kelly Cavanagh, JJ.). 23 Nor reach "canceled 1989." Brief Amicus Curiae 23. before therefore, excess II 24 Neither party disputes governs interpretive task hand. ISTEA, made delegation promulgate standards 11506(c)(1) interpreting subsequent rulemaking. Mead Corp., 533 218, 229 ("[A] very good indicator meriting [is an] congressional authorizatio[n] engage process adjudication produces rulings claimed"). Federal Highway Administration adopted 39, n., now administered Safety Administration. 113. 25 Accordingly, us text issue, or, if not, accorded scheme. If speaks clearly "to precise issue," we give expressed Congress." S., 842-843. instead "silent ambiguous respect specific sustain "based statute." 843; Barnhart Walton, 535 212, 217-218 (2002). 26 requires "result thus "for predecessor system." 1194; 618-619. 27 different Although acknowledged silent nonetheless mandates have 241. reasoned place." 28 statute. And, there deference. 843. 29 commenters during pointed out, best served "intent considered allowing reduce burdens, concern carriers' costs, revenues, balloon. (noting "assertedly much 900%," commenter presented "worst scenario" "State $50 million $200 million"). 30 Respondents argue mandate would, indeed, simplified compelled statute, instructs 31 contend freezing part cap, added concern, stating "[i]t insert words 32, 241-242. precisely Congress' command, govern resolve ambiguities fill holes 229; 843-844. hold seems reasonable command "equal 32 point out focus actions State, agree focuses paid, inquiry latter. regime, reduced categories necessarily cap aggregate carrier; rather, simply levels 33 34 judgment remanded proceedings opinion. 35 ordered. Notes: Roy T. Englert, Jr., Sherri Lynn Wolson, Beth Law, Digges, et al. amici urging reversal. abolished 1995 assigned responsibility administering Secretary Transportation. Termination 1995, 104-88, 101, 109 803. governing recodified. 14504(c). Administration, Transportation, implemented 61 Fed. Reg. 54706, 54707 (1996), has administer 113(f)(1) judgment. 37 my (ISTEA). Act, delegated prescribe "standards" "amendments standards" create System." 11506 delegation, broad establish system" comply three conditions, third contained two requirements.1 (1) (2) 11506(c)(2)(B)(iv)(III). 38 both — continued thereafter—the violate either changed method carriers.2 Indeed, essential features same 1991: amount 1991; assessed exactly kinds date; arrangements, providing discount waiver 39 did, additional requirement imposed modified home out-of-state That agency-imposed effectively precluded systemic significantly revenues. I think clear enough include impose ensure "burden 11506(c)(2)(B)(iv), (c)(2)(C). proceeding confirmed avoid scenario "some realize windfalls." 610, 618 (1993) (responding comment alleging, among things, discontinued, million"); ante, 41. abandon agreement, equally prohibit threaten commerce.3 40 concur decide should, "frozen." believe mandated should subsection (c)(2)(B)(iv)(III). Rather, opinion, exercise vested basis "(B) RECEIPTS; FEE SYSTEM.—Such standards— "(iv) shall filing insurance subparagraph (A)(ii) paragraph ." 11506(c)(2)(B)(iv) explained majority,ante, 42-43, obtained license plate owned business. Not every how lead decrease change. am satisfied, potential circumstances sufficient threat meaning

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