preseault icc argued november decided february federal law failed deal adequately national problem shrinking rail trackage congress enacted national trails system act amendments amendments national trails system act trails act authorize interstate commerce commission icc commission preserve possible future railroad use currently service allow interim use land recreational trails section statute provides railroad wishing cease operations along particular route may negotiate state municipality private group prepared assume financial managerial responsibility parties reach agreement land may subject terms conditions transferred trial operator interim trail use notwithstanding whatever reversionary interests may exist property state law agreement reached railroad may abandon line entirely thereby allowing property revert abutting landowners terms applicable easements state law provide reversion vermont railway stopped using adjacent petitioners land vermont petitioners brought quiet title action alleging railroad easement abandoned thus extinguished therefore reverted state law holding lacked jurisdiction icc authorized abandonment route therefore still exercised exclusive jurisdiction dismissed action state affirmed petitioners sought certificate abandonment icc commission granted petition permit railroad discontinue rail service transfer city burlington interim trail use federal appeals affirmed rejecting petitioners contentions unconstitutional face takes private property without compensation violation fifth amendment valid exercise congress commerce clause power held even statute gives rise taking compensation available tucker act requirements fifth amendment therefore satisfied since amendments legislative history mention tucker act provides claims jurisdiction claims government recover damages founded inter alia constitution amendments exhibit type unambiguous intention withdraw tucker act remedy necessary preclude claim act see ruckelshaus monsanto section amendments provides authority make payments act shall effective extent amounts provided advance appropriation acts petitioners claim indirectly manifest necessary intent rendering unauthorized approved congress payment advance conversion result claims litigation since speaks capacious terms interim use clearly authorizes conversions giving rise compensation claims therefore support petitioners contention explicit promise pay takings irrelevant since tucker act constitutes implied promise pay compensation individual laws need reiterate moreover speaks payment amendments takings claims arise fifth amendment payments made tucker act separately appropriated judgment fund statements legislative history indicating congress desire amendments operate low cost demonstrate unambiguous intent withdraw tucker act remedy since generalized desire protect public fisc insufficient purpose see regional rail reorganization act cases since statements might simply reflect congress rejection ambitious program federally owned managed trails petitioners failure make use available tucker act remedy renders takings challenge icc order premature need determine whether taking occurred pp amendments valid exercise congress commerce clause power stated congressional purposes encourage development additional recreational trails interim basis preserve established railroad future reactivation rail service valid objectives amendments reasonably adapted even petitioners correct rail banking purpose sham concealing true purpose preventing reversion property owners abandonment amendments still valid reasonably adapted goal encouraging development additional trails requirement law serve one legitimate purpose moreover free applicable standard review hold amendments invalid simply rail banking purpose might advanced completely measures draconian program mandatory conversions prohibition abandonments long history congressional attempts address problem rail abandonments provides sufficient reason defer legislative judgment appropriate answer furthermore light history congress entitled make judgment every line potentially valuable national asset meriting preservation even future rail use currently foreseeable fact icc must certify public convenience necessity permit abandonment granting interim trail use permit indicate statute fails promote purpose preserving rail corridors pp brennan delivered opinion unanimous filed concurring opinion scalia kennedy joined post michael berger argued cause petitioners briefs clarke gravel richard davis christopher greene brian martin argued cause federal respondents brief acting solicitor general bryson acting assistant attorney general carr deputy solicitor general wallace anne almy james brookshire robert burk ellen hanson john dunleavy assistant attorney general argued cause respondents state vermont et al brief jeffrey amestoy attorney general john leddy briefs amici curiae urging reversal filed american farm bureau federation et al john rademacher richard krause missouri farm bureau federation et al ron mcmillin lori lerine national association realtors ralph holmen pacific legal foundation et al ronald zumbrun edward connor briefs amici curiae urging affirmance filed montgomery county maryland fritz kahn clyde sorrell iowa association county conservation boards et al charles montange national association counties et al benna ruth solomon joyce holmes benjamin beate bloch james quarles iii jerold kayden conservancy et al robert brager david friedland david burwell briefs amici curiae filed state california et al john van de kamp attorney general california gregory taylor theodora berger assistant attorneys general dennis eagan craig thompson terry fujimoto deputy attorneys general attorneys general respective follows robert butterworth florida thomas miller iowa frederick cowan kentucky frank kelley michigan brian mckay nevada stephen merrill new hampshire nicholas spaeth north dakota anthony celebrezze ohio ernest preate pennsylvania roger tellinghuisen south dakota paul van dam utah charles brown west virginia national association reversionary property owners daryl dentsch justice brennan delivered opinion question presented constitutionality federal statute unused railroad converted recreational trails notwithstanding whatever reversionary property interests may exist state law petitioners contend statute violates fifth amendment takings clause commerce clause art find unnecessary evaluate merits takings claim hold even statute gives rise taking compensation available petitioners tucker act ed requirements fifth amendment satisfied also hold statute valid exercise congressional power commerce clause statute issue case national trails system act amendments amendments pub stat national trails system act trails act pub stat codified amended et seq culmination congressional efforts preserve shrinking rail trackage converting unused recreational trails nation railway system reached peak miles today miles use experts predict miles abandoned every year end century concerned loss trackage congress included railroad revitalization regulatory reform act act pub stat amended ed several provisions aimed promoting conversion abandoned lines trails section act required secretary transportation prepare report alternative uses abandoned railroad section authorized secretary interior encourage conversion abandoned recreational conservational uses financial educational technical assistance local state federal agencies see note following section authorized interstate commerce commission icc commission delay disposition rail property days effective date order permitting abandonment unless property first offered sale reasonable terms public purposes including recreational use see congress recognized measures ha successful establishing process railroad immediately necessary active service utilized trail purposes congress enacted amendments trails act authorize icc preserve possible future railroad use currently service allow interim use land recreational trails section provides railroad wishing cease operations along particular route may negotiate state municipality private group prepared assume financial managerial responsibility parties reach agreement land may transferred trail operator interim trail use subject terms conditions agreement reached railroad may abandon line entirely liquidate interest section amended trails act provides interim trail use shall treated purposes law rule law abandonment use railroad purposes language gives rise takings question typical case many railroads outright rather hold easements similar property interests terms easements applicable state law vary frequently easements provide property reverts abutting landowner upon abandonment rail operations state law generally governs disposition reversionary interests subject course icc exclusive plenary jurisdiction regulate abandonments chicago north western transp kalo brick tile impose conditions affecting postabandonment use property see hayfield northern chicago north western transp deeming interim trail use like discontinuance rather abandonment see supra congress prevented property interests reverting state law key finding amendment interim use railroad trail use route remains intact future railroad purposes shall constitute abandonment railroad purposes finding alone eliminate many problems program concept attempting establish trails formal abandonment railroad abandoned railroad purposes may nothing left trail use amendment ensure potential interim trial use considered prior abandonment petitioners claim reversionary interest railroad adjacent land vermont state vermont acquired rutland railway corporation interest leased vermont railway vermont railway stopped using route decade ago since removed railroad equipment including switches bridges track portion claimed petitioners petitioners brought quiet title action superior chittenden county alleging easement abandoned thus extinguished reverted operation state property law august superior dismissed action holding lacked jurisdiction icc authorized abandonment route therefore still exercised exclusive jurisdiction vermont affirmed trustees diocese vermont state petitioners sought certificate abandonment rail line icc state vermont intervened claiming title fee simple arguing alternative even state interest easement land revert still used public purpose vermont railway state petitioned icc permit railroad discontinue rail service transfer city burlington interim use public trail trails act notice exemption decided january icc allowed railroad discontinue service approved agreement state city interim trail use see fed reg february icc chairman denied petitioners application stay pending administrative review decision became effective february petitioners motion reconsideration clarification denied july commission noted nevitably interim trail use conflict reversionary rights adjacent land owners purpose trails act state vermont vermont railway discontinuance service exemption chittenden county petitioners sought review icc order appeals second circuit arguing trails act unconstitutional face takes private property without compensation valid exercise congress commerce clause power appeals rejected arguments reasoned icc plenary exclusive authority abandonments federal law must considered determining property right held petitioners long determines land serve railroad purpose icc retains jurisdiction railroad matter whether purpose immediate future ibid believed reversionary interest vest icc determined abandonment appropriate concluded trails act result taking next found trails act reasonably adapted two legitimate congressional purposes commerce clause preserving rail corridors future railroad use permitting public recreational use trails appeals therefore dismissed petitioners commerce clause challenge granted certiorari ii fifth amendment provides relevant part private property shall taken public use without compensation amendment prohibit taking private property instead places condition exercise power first english evangelical lutheran church glendale county los angeles designed limit governmental interference property rights per se rather secure compensation event otherwise proper interference amounting taking emphasis original furthermore fifth amendment require compensation paid advance even contemporaneously taking see williamson county regional planning hamilton bank johnson city required existence reasonable certain adequate provision obtaining compensation time taking regional rail reorganization act cases quoting cherokee nation southern kansas government provided adequate process obtaining compensation resort process yield compensation property owner claim government taking williamson county regional planning supra quoting ruckelshaus monsanto reason taking claims federal government premature property owner availed process provided tucker act williamson county regional planning supra see also riverside bayview homes monsanto supra duke power carolina environmental study group tucker act provides jurisdiction claims claim federal government recover damages founded constitution statute regulation express contract see ed see also little tucker act creates concurrent jurisdiction district courts claims exceeding amount taking claim founded upon constitution within jurisdiction claims hear determine causby critical question case therefore whether tucker act remedy available claims arising takings pursuant amendments proper inquiry whether statute expresses affirmative showing congressional intent permit recourse tucker act remedy rather whether congress statute withdrawn tucker act grant jurisdiction claims hear suit involving statute founded upon constitution regional rail reorganization act cases supra emphasis original standard conclude amendments withdraw tucker act remedy congress exhibit type unambiguous intention withdraw tucker act remedy monsanto supra necessary preclude tucker act claim see glosemeyer supp ed mo aff neither statute legislative history mentions tucker act indirect evidence congress intent prevent recourse tucker act petitioners point amendments although codified law provides relevant part notwithstanding provision act authority enter contracts make payments act shall effective extent amounts provided advance appropriation acts stat note following need decide types official authorization necessary create federal liability fifth amendment find conversions giving rise compensation claims clearly authorized section speaks capacious terms interim use established railroad emphasis added support petitioners proposed distinction conversions might result taking although congress explicitly promise pay takings always assumed tucker act implie promis pay compensation individual laws need reiterate yearsley ross construction petitioners argument specific congressional authorization required conversions might result takings thinly veiled attempt circumvent established method determining whether tucker act relief available claims arising takings pursuant federal statute reaffirm tucker act remedy exists unless unambiguous indications contrary section moreover speaks appropriations amendments relief available tucker act evidenced opening clause withstanding provision act emphasis added refers amendments section means simply payments made pursuant amendments funding scenic trails markers similar purposes see amendments stat codified authorizing appropriations development administration certain national scenic national historic trails effective amounts provided advance appropriation acts concept mirrors art constitution money shall drawn treasury consequence appropriations made law payments takings claims affected language claims arise fifth amendment see first english evangelical lutheran church payments takings made tucker act trails act drawn judgment fund separate appropriated account see section manifest type clear unmistakable congressional intent necessary withdraw tucker act coverage petitioners next assert congress desire amendments operate low cost somehow indicates congress withdrew tucker act remedy doubt congress meant keep costs amendments minimum intent however little bearing tucker act question previously rejected argument generalized desire protect public fisc sufficient withdraw relief tucker act regional rail reorganization act cases recognized rail act established aximum funding authorizations nevertheless held limits unambiguous repeal tucker act remedy reasoned maximum limits might support inference congress convinced huge sums provided surely equal exceed required constitutional minimum never focused upon possible need suit claims monsanto stated congress statute address liability government pay compensation taking occur congress failure specifically mention provide recourse government may reflect congressional belief use data government ways authorized statute effects fifth amendment taking may reflect congress assumption general grant jurisdiction tucker act provide necessary remedy taking may occur event failure construed reflect unambiguous intention withdraw tucker act remedy sum petitioners failure make use available tucker act remedy renders takings challenge icc order premature need decide whether taking occurred case iii petitioners also contend amendments valid exercise congressional power commerce clause art true purpose prevent reversion railroad property owners abandonment create recreational trails rather preserve rail corridors future railroad use evaluate claim traditional rationality standard review must defer congressional finding regulated activity affects interstate commerce rational basis finding hodel virginia surface mining reclamation must ensure means selected congress reasonably adapted end permitted constitution ibid quoting heart atlanta motel see also hodel indiana amendments clearly pass muster two congressional purposes evident first congress intended encourage development additional trails assist recreation al users providing opportunities trail use interim basis see also trails act promote preservation public access travel within enjoyment appreciation outdoor areas historic resources nation second congress intended preserve established railroad future reactivation rail service protect rail transportation corridors encourage energy efficient transportation use see also valid congressional objectives amendments reasonably adapted petitioners contend amendments reasonably promote latter purpose icc authorize trail use found issue necessary present future public convenience necessity ed emphasis added icc explained every trails act case already found public convenience necessity permit abandonment regulatory approval required fed reg note outset even petitioners reading amendments still valid exercise congressional power commerce clause reasonably adapted goal encouraging development additional recreational trails requirement law serve one legitimate purpose moreover liberty rational basis standard review hold amendments invalid merely draconian measures program mandatory conversions prohibition abandonments might advance completely rail banking purpose process legislating often involves tradeoffs compromises imperfect solutions ability imagine ways redesigning statute advance one congress ends render irrational see minnesota clover leaf creamery history congressional attempts address problem rail abandonments see supra provides sufficient reason defer legislative judgment appropriate answer virginia surface mining reclamation congress considered effectiveness existing legislation concluded additional measures necessary petitioners argument serve rail banking purpose moreover well taken icc must certify public convenience necessity permit abandonment granting citu nitu indicate statute fails promote purpose preserving rail corridors congress distinguish rail banking require commission develop specific contingency plan reactivation line permitting conversion contrary congress apparently believed every line potentially valuable national asset merits preservation even future rail use currently foreseeable given long tradition congressional regulation railroad abandonments see colorado judgment congress entitled make iv reasons stated judgment appeals affirmed ordered footnotes see authorities cited comment rails trails converting america abandoned railroads nature trails akron rev see also icc ann icc ann important distinction interstate commerce act abandonment rail line discontinuance service see carrier abandons rail line pursuant authority granted interstate commerce commission line longer part national transportation system although commission empowered impose conditions abandonments see ed general proposition icc jurisdiction terminates see hayfield northern chicago north western transp fed reg contrast discontinuance authority allows railroad cease operating line indefinite period preserving rail corridor possible reactivation service future section codified provides secretary transportation chairman interstate commerce commission secretary interior administering railroad revitalization regulatory reform act shall encourage state local agencies private interests establish appropriate trails using provisions programs consistent purposes act furtherance national policy preserve established railroad future reactivation rail service protect rail transportation corridors encourage energy efficient transportation use case interim use established railroad pursuant donation transfer lease sale otherwise manner consistent chapter trails act interim use subject restoration reconstruction railroad purposes interim use shall treated purposes law rule law abandonment use railroad purposes state political subdivision qualified private organization prepared assume full responsibility management legal liability arising transfer use payment taxes may levied assessed commission shall impose terms conditions requirement transfer conveyance interim use manner consistent chapter shall permit abandonment discontinuance inconsistent disruptive use implementing regulations promulgated icc railroad may apply icc either certificate interim trail use abandonment citu proceeding involving exemption route icc regulation notice interim trail use abandonment nitu see rail abandonments use trails cfr citu nitu provides period railroad may discontinue service cancel tariffs salvage track equipment also negotiate voluntary agreement interim trail use qualified trail operator agreement reached interim trail use thereby authorized citu nitu automatically converts effective certificate notice abandonment icc yet promulgated final regulations implementing time decision instant case commission issue citu nitu state vermont vermont railway inc discontinuance service exemption chittenden county docket ix see noting committee eliminated items require future federal expenditures reporting required funding bill insignificant cong rec remarks floor manager seiberling committee recommended revised text eliminated items require future federal expenditures additional recommendations reflect continuing efforts encourage expansion trail recreation opportunities across nation low cost note icc construed providing federal power condemn railroad interim trail use see rail abandonments see also national wildlife federation icc app connecticut trust historic preservation icc washington state dept game icc state courts held trail use constitute abandonment public travel trigger reversionary rights see state washington wildlife preservation state cert denied reiger penn central app greene county ohio may petitioners also claim floor statement senator domenici federal government acquired much land landowners using condemnation procedures essence short changed property rights landowners cong rec means tucker act relief unavailable disagree senator spoke context praising statute encourag ing cooperation rather resorting automatically condemnation ibid administered icc conversion process begins railroad voluntarily seeks citu nitu negotiates qualified trail operator establish interim trail use icc set trails interpreted exclude type condemnation power vested secretaries interior agriculture see supra limitation icc condemnation authority relevant question whether compensation tucker act available takings resulting conversions occur certainly unambiguous sign congress meant withdraw tucker act relief justice justice scalia justice kennedy join concurring petitioners assert actions interstate commerce commission icc commission prevent enjoying property rights secured vermont law thereby effected compensable taking appeals second circuit determined matter vermont law might provide icc actions forestalled petitioners possessing asserted reversionary interest thus takings claim arise today affirms second circuit judgment quite different grounds join opinion write separately express view state law determines property interest petitioners possess traditional takings doctrine determine whether government must compensate petitioners burden imposed property interest possess acknowledges ante state law creates defines scope reversionary real property interests affected icc actions pursuant national trails system act amendments determining whether taking occurred mindful basic axiom roperty interests created constitution rather created dimensions defined existing rules understandings stem independent source state law ruckelshaus monsanto quoting webb fabulous pharmacies beckwith internal quotation omitted although original federal grants railway easements may influence certain disputes interests land see great northern idaho oregon short line supp idaho federal role present case rather parties sharply dispute interest according vermont law state vermont acquired rutland railway corporation correspondingly whether petitioners possess property interest claim taken see brief petitioners brief respondents state vermont et al reply brief petitioners similar reference state law guided courts seeking determine whether railway right way lapsed upon conversion trail use compare state washington wildlife preservation state trail use within original interest thus reversionary rights matured cert denied lawson state change use give effect reversionary interests mckinley waterloo iowa lack railway use triggered period leading reversion schnabel county dupage app easement lapsed determining interest petitioners enjoyed vermont law absence icc recent actions establish whether petitioners possess predicate property interest must underlie takings claim see ruckelshaus monsanto supra attempt resolve issue also clear interstate commerce act icc actions pursuant operation effect certain state laws conflict interfere federal authority activity chicago north western transp kalo brick tile see may impose obligations upon carriers odds governed icc exclusive plenary authority regulate rail carriers cessations service lines see state may exercise regulatory powers icc authorizes carrier abandonment service thus unless commission attaches postabandonment conditions abandonment certificate brings commission regulatory mission end hayfield northern chicago north western transp vermont recognized state courts enforce give effect asserted reversionary interests enforcement interfere commission administration interstate commerce act see trustees diocese vermont state results simply routine consequences supremacy clause art vi cl scope commission authority regulate abandonments thereby delimiting ambit federal power issue quite distinct whether commission exercise power matters within jurisdiction effected taking petitioners property cf kaiser aetna question congress assure public free right access whether statute regulation went far amounted taking however entirely separate question although commission actions may operation effect certain state laws actions displace state law traditional source real property interests see ruckelshaus monsanto supra state law creates property right trade secrets purposes fifth amendment regulatory regime state property law commission actions may delay property owners enjoyment reversionary interests delay burdens defeats property interest rather suspends defers vesting property rights see national wildlife federation icc app conclusion convert icc power conflicting state regulation interstate commerce power rights guaranteed state property law result incompatible fifth amendment see ruckelshaus monsanto congress state property law manner advocated epa taking clause lost vitality sovereign ipse dixit may transform private property public property without compensation kind thing taking clause fifth amendment meant prevent quoting webb fabulous pharmacies beckwith appeals second circuit adopted unjustified interpretation effect icc exercise federal power concluded even petitioners held reversionary interest claim taking occurred reversionary interest vest icc determines abandonment appropriate see view conflates scope icc power existence compensable taking threatens read compensation clause constitution icc may possess power postpone enjoyment reversionary interests fifth amendment doctrine indicate certain circumstances government must compensate owners property interests exercises power see first english evangelical lutheran church glendale county los angeles taking clause prohibit taking private property instead places condition exercise power clause designed limit governmental interference property rights per se rather secure compensation event otherwise proper interference amounting taking nothing opinion disavows principles conclusion authorizes conversions amount takings ante conclusion view takings law conversions amount takings ante inconsistent second circuit view indeed second circuit approach adopted discussion availability tucker act remedy unnecessary even federal respondents acknowledge existence taking rest upon nature property interest petitioners enjoyed absent federal action upon extent federal action burdened interest see brief federal respondents principles govern analysis whether burden icc actions impose upon real property interests amounts compensable taking recently concluded nollan california coastal taking occur government appropriated public easement see also kaiser aetna supra right exclude universally held fundamental element property right falls within category interests government take without compensation omitted case permanent physical occupation underlying property occurred individuals given permanent continuous right pass fro real property may continuously traversed even though particular individual permitted station permanently upon premises nollan supra see also kaiser aetna supra ven government physically invades easement property must nonetheless pay compensation government appropriation lesser servitudes may also impose burden requiring payment compensation see causby portsmouth harbor land hotel recently concluded government burdening property distinct period short permanent taking may nevertheless mandate compensation see first english evangelical lutheran church supra course party may gain benefit principles establishing possession property interest burdened today decision indicates petitioners persons similarly situated ample opportunity make showing understanding reasons set forth opinion agree judgment affirmed