FILED
United States Court of Appeals
Tenth Circuit
March 10, 2008
Elisabeth A. Shumaker
PUBLISH Clerk of Court
UNITED STATES COURT OF APPEALS
TENTH CIRCUIT
PORT CITY PROPERTIES, an Oklahoma
corporation d/b/a Hodges Warehouse;
ALPINE PROPERTIES, LLC, an Oklahoma
limited liability company,
Plaintiffs-Appellants,
No. 06-5187
v.
UNION PACIFIC RAILROAD COMPANY,
a corporation,
Defendant-Appellee.
Appeal from the United States District Court
for the Northern District of Oklahoma
(D.C. No. 06-CV-321-JHP-FHM)
Kenneth L. Brune of Brune Law Firm, Tulsa, Oklahoma, for Plaintiffs-Appellants.
Christopher D. Wolek (Tom L. Armstrong, Robert D. Hart, and Laura L. Eakens
with him on the brief) of Gibbs Armstrong Borochoff Mullican & Hart, P.C.,
Tulsa, Oklahoma, for Defendants-Appellees.
Before KELLY, SEYMOUR, and MURPHY, Circuit Judges.
SEYMOUR, Circuit Judge.
Port City Properties, Inc. d/b/a Hodges Warehouse and Alpine Properties,
LLC (collectively “Hodges”) appeal the district court’s denial of their request for
a preliminary injunction against Union Pacific Railroad Company (“Union
Pacific”). We affirm.
I
Hodges owns and operates a commercial public warehouse in an industrial
park located in Tulsa, Oklahoma. An industrial rail track is routed through the
park with rail service provided to Hodges’ warehouse via an additional private
track owned by Hodges. After Union Pacific determined the industrial rail track
servicing the warehouse was no longer safe, it ceased rail service thereon.
Hodges brought this action against Union Pacific, alleging breach of contract,
tortious interference with business relations, and defamation. In pursuing those
claims, Hodges moved for a preliminary injunction to enjoin Union Pacific from
ceasing rail operations servicing his warehouse and from informing others that
Hodges could not receive shipments by rail. Hodges also moved for an order
directing Union Pacific to maintain and operate the line.
The matter was referred to a magistrate judge who held an evidentiary
hearing on the motion for preliminary injunction. The judge issued a Report and
Recommendation determining that all of Hodges’ claims, except for the breach of
contract claim, were preempted by the Interstate Commerce Commission
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Termination Act (“ICCTA”), 49 U.S.C. § 10101 et seq. The judge also
recommended that the district court deny Hodges’ motion for preliminary
injunction based on the breach of contract claim. The district court adopted the
Report and Recommendation and affirmed.
II
We review the district court’s determination on jurisdiction de novo.
Prairie Band of Potawatomi Indians v. Pierce, 253 F.3d 1234, 1241 (10th Cir.
2001). We review the district court’s denial of a preliminary injunction for abuse
of discretion. Utah Licensed Beverages Ass’n v. Leavitt, 256 F.3d 1061, 1065
(10th Cir. 2001).
A. Jurisdiction
Section 10501(b) of the ICCTA broadly grants jurisdiction to the Surface
Transportation Board (“STB”) over “the construction, acquisition, operation,
abandonment, or discontinuance of spur, industrial, team, switching, or side
tracks, or facilities, even if the tracks are located, or intended to be located,
entirely in one state . . . .” 49 U.S.C. § 10501(b)(2). This broad jurisdictional
grant is coupled with an express preemption clause mandating that “[e]xcept as
otherwise provided in this part, the remedies provided under this part with respect
to regulation of rail transportation are exclusive and preempt the remedies
provided under Federal or State Law.” 49 U.S.C. § 10501(b). As a consequence,
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jurisdiction over “spur, industrial, team, switching or side tracks, or facilities”
rests solely with the STB. 49 U.S.C. § 10501(b)(2); see also United Transp.
Union Ill.-Legis. Bd. v. Surface Transp. Bd., 183 F.3d 606, 612 (7th Cir. 1999).
In 49 U.S.C. § 10906, however, Congress provided that entities may construct,
transfer or operate spur or industrial tracks without STB approval. Hodges
contends § 10906’s withdrawal of authority from the STB creates a jurisdictional
void, thereby permitting jurisdiction over state causes of action related to such
tracks.
To the contrary, § 10906 has been interpreted to preclude all regulation of
industrial or spur tracks: “When sections 10906 and 10501(b)(2) are read
together, it is clear that Congress intended to remove [STB] authority over the
entry and exit of these auxiliary tracks, while still preempting state jurisdiction
over them, leaving the construction and disposition of [them] entirely to railroad
management.” Cities of Auburn and Kent, 2 S.T.B. 330, 1997 WL 362017 at *7
(1997); see also Report on ICCTA, H.R. Rep. No. 104-422, 104th Cong., 1st.
Sess. 167 (1995) (explaining that § 10501(b)(2) was added “[i]n light of the
exclusive Federal authority over auxiliary tracks and facilities . . . .”). In short,
read together, § 10501 and § 10906 completely preempt Hodges’ state law tort
claims with respect to spur or industrial tracks. See, e.g., PCI Transp. v. Fort
Worth & Western R.R., 418 F.3d 535, 545 (5th Cir. 2005) (ICCTA completely
preempts non-contractual claims); Friberg v. Kansas City S. Ry. Co., 267 F.3d
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439, 444 (5th Cir. 2001) (ICCTA preempts claims of negligence and negligence
per se with respect to railroad’s alleged road blockages); Pejepscot Indus. Park,
Inc. v. Maine Cent. R.R. Co., 297 F.Supp.2d 326, 334 (D. Me. 2003) (state law
claims preempted by ICCTA); South Dakota ex rel. South Dakota R.R. Auth. v.
Burlington N. & Santa Fe Ry. Co., 280 F.Supp.2d 919, 934-35 (D.S.D. 2003)
(state law claims for punitive damages and tortious interference preempted by
ICCTA); Guckenberg v. Wis. Cent. Ltd., 178 F.Supp.2d 954, 958 (E.D. Wis.
2001) (state law nuisance claim preempted with respect to railway traffic issue);
Rushing v. Kan. City S. Ry. Co., 194 F.Supp.2d 493, 500-01 (S.D. Miss. 2001)
(ICCTA preempts state law nuisance and negligence claims intended to interfere
with railroad’s operation of switchyard).
In an attempt to avoid this result, Hodges seems to argue the track at issue
was not a spur or industrial track, but rather a regular railroad line subject to STB
jurisdiction. Factors used to determine whether a section of track is an extension
of a regular railroad line, as opposed to a “spur” or “industrial” track, include
whether the railroad maintains a train schedule or regular service over the track;
furnishes express, passenger, or mail service; maintains buildings, loading
platforms, or an agent along the trackage; and who completes the bills of lading.
See Chicago, M., St. P. & P.R. Co. v. Chicago & E.I.R. Co., 198 F.2d 8, 12 (7th
Cir. 1952). It is also relevant whether the track has been or is to be used for
anything other than industrial delivery, see La. & Ark. Ry. Co. v. Mo. Pac. R.R.
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Co., 288 F.Supp. 320, 323 (D.C. La. 1968), the length of the track, whether the
track serves only a single customer, and whether the customer requested the
carrier to provide service. See Hughes v. Consol-Pa. Coal Co., 945 F.2d 594, 612
(3d Cir. 1991).
The burden of establishing subject matter jurisdiction is on the party
asserting jurisdiction. See Basso v. Utah Power and Light Co., 495 F.2d 906, 909
(10th Cir.1974). Hodges presented no evidence that the track was a main line
within the meaning of the cases cited above. The only evidence that the track was
something other than a spur or industrial track was the testimony of Hodges’
owner, Dennis Kriz, who referred to it as a “lead track,” a term we do not find in
the statute. The evidence in the record establishes that the Katy Industrial Park
was created in 1956. The Missouri-Kansas-Texas Railroad Company (the
predecessor to Union Pacific) extended railroad tracks into the industrial park to
service businesses located there. In 1966, the railroad contracted with Hodges to
extend its “spur track” to connect with a “spur track” Hodges agreed to build on
its property. Aplt. App. at 218 (1966 Agreement). In 1999, when part of Union
Pacific’s “industrial lead track” in the Katy Industrial Park needed rehabilitation,
Hodges agreed to pay $62,000 to Union Pacific for the materials and work
necessary for the railroad to repair the line. Id. at 196 (1999 Agreement). These
documents reference the track at issue here and support the district court’s
conclusion that the track was an industrial or spur track.
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Hodges also argues against preemption on the grounds that Union Pacific
was required to obtain prior permission from the STB for abandonment of its
service to the track pursuant to 49 U.S.C. § 10903(a)(1)(A) (rail carrier must file
application with STB if it intends to “abandon any part of its railroad lines”). As
discussed previously, the STB has no authority over the regulation of spur and
industrial tracks as opposed to main railroad lines. That authority is left entirely
to railroad management who may contract services as they see fit. As a result,
there was no requirement that Union Pacific request authorization for
abandonment from the STB.
In sum, Congress granted exclusive jurisdiction to the STB over the
construction, operation, and abandonment of spur or industrial lines, thereby
precluding state regulation. Congress then specifically withdrew regulation of
such lines from the STB, leaving their management solely to the respective
railroads.
B. Preliminary Injunctive Relief Based on Breach of Contract
To obtain a preliminary injunction based on a contract, Hodges was
required to meet the test established in this circuit:
It is well established that in order to obtain a preliminary injunction,
the moving party must establish four factors: (1) it will suffer
irreparable harm if the injunction is not granted, (2) its threatened
injury outweighs the harm caused to the opposing party as a result of
the injunction, (3) the injunction is not adverse to the public interest,
and (4) it has a substantial likelihood of success on the merits of the
case. In examining these factors, courts have consistently noted that
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because a showing of probable irreparable harm is the single most
important prerequisite for the issuance of a preliminary injunction,
the moving party must first demonstrate that such injury is likely
before the other requirements for the issuance of an injunction will
be considered.
Dominion Video Satellite, Inc. v. Echostar Satellite Corp., 356 F.3d 1256, 1260
(10th Cir. 2004) (citations and internal quotations omitted). “Likewise, because a
preliminary injunction is an extraordinary remedy, the right to relief must be clear
and unequivocal.” Id. (quotations and citations omitted).
A showing of irreparable harm requires that the injury “be both certain and
great, . . . and that it must not be merely serious or substantial.” Prairie Band,
253 F.3d at 1250 (internal citation and quotations omitted). The district court
determined that Hodges failed to show irreparable harm. Having reviewed the
record, we agree. 1 Mr. Kriz testified that the rail cargo he receives is a “small
part of [his] business.” Aplt. App. at 133. Further, he noted that loss of rail
service was “not going to put [him] out of business, but it definitely [was] costing
[him] money.” Id. at 136. Mr. Kriz also admitted that Union Pacific made
alternative arrangements for delivery of Hodges products and paid for them to be
1
Hodges asserts the district court abused its discretion by limiting the scope
of evidence it would consider in making its determination on Hodges’ right to
injunctive relief. But Hodges did not raise this issue in his objection to the
Report and Recommendation and it was therefore waived. See United States v.
One Parcel of Real Property, 73 F.3d 1057, 1060 (10th Cir. 1996) ( “[A] party’s
objections to the magistrate judge’s report and recommendation must be both
timely and specific to preserve an issue for de novo review by the district court or
for appellate review.”).
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unloaded at another location a mile away. As the district court explained,
Hodges’ loss of business can be compensated in money damages. Economic loss
“usually does not, in and of itself, constitute irreparable harm. . . .” Heideman v.
South Salt Lake City, 348 F.3d 1182, 1189 (10th Cir. 2003) (citing 11A C HARLES
A LAN W RIGHT , A RTHUR R. M ILLER & M ARY K AY K ANE , F EDERAL P RACTICE &
P ROCEDURE § 2948.1, at 152-53 (2d. ed. 1995). Hodges has offered no evidence
demonstrating the type of loss that satisfies the element of irreparable harm.
In addition, the district court held that Hodges failed to show a likelihood
of success on the merits because it offered no evidence of a contract requiring
Union Pacific to provide rail service to it. Hodges contends on appeal that the
district court erroneously relied on the 1966 Agreement between the parties in
making this determination. Hodges claims this is not the contract requiring “rail
service between Union Pacific and Hodges.” Aplt. Br. at 21. However, the 1999
Agreement, the document Hodges apparently relies on, was specifically
referenced by the court. As the court concluded, while the 1999 Agreement “may
support a subjective expectation of continued rail service for some period of time
after October 1, 1999, nothing within the [1999] Agreement obligates [Union
Pacific] to provide continued rail service to [Hodges’] warehouse for any period
of time.” Aplt. App. at 77. In fact, that agreement provided for termination upon
ten days’ notice. There is no contract for rail service by Union Pacific to Hodges’
warehouse. Accordingly, Hodges cannot show a likelihood of success on the
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merits. 2 See PCI Transp., Inc., 418 F.3d at 545 (plaintiff cannot show likelihood
of success on contractual claim without evidence of contract).
Without a showing of either of these two key preliminary injunction
factors, Hodges cannot succeed on its contention that the district court abused its
discretion when it determined Hodges was not entitled to a preliminary
injunction. The district court also correctly held that Hodges’ state law tort
claims were completely preempted by the relevant provisions of the ICCTA.
We AFFIRM.
2
In his argument on likelihood of success, Hodges also contends Union
Pacific is a common carrier and is thereby required to provide rail service to
Hodges’ warehouse. Hodges did not specifically raise the issue of common
carrier status in his objection to the Report and Recommendation, and the issue is
therefore waived. See One Parcel of Real Property, 73 F.3d at 1060.
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