Document: 344 U.S. 237 73 S.Ct. 236 97 L.Ed. 291 PUBLIC SERVICE COMMISSION OF UTAH et al.v.WYCOFF CO., Inc. No. 44. Argued Nov. 13, 1952. Decided Dec. 22, [Syllabus from pages 237-238 intentionally omitted] Mr. Wood R. Worsley, Salt Lake City, Utah, for petitioners. Harold S. Shertz, Philadelphia, Pa., Wayne C. Durham, respondent. Justice JACKSON delivered the opinion of Court. 1 As this suit in equity was commenced United States District Court it sought two kinds specific relief: (1) a declaratory judgment that complainant's carriage motion picture film and newsreels between points Utah constitutes interstate commerce; (2) Public Service Commission its members be forever enjoined interfering with such transportation over routes authorized by Interstate Commerce Commission. 2 The complaint alleged course importing, processing transporting to support contention so integrated their movement whole constituted commerce. It averred 'threatened are attempting stop prevent plaintiff newsreel places within State they thereby conduct commerce imposing an undue burden upon commerce,' unless defendants will 'block, harass said Utah.' 3 answered respondent's nothing more than intrastate They specifically denied attempting, threatening, or intending interfere 4 Court, after trial, sustained dismissed complaint. Appeals considered only 'whether transportations nonetheless integral parts transportations.'1 held evidence warrant affirmative answer, reversed ordered further proceedings conformity view. We granted certiorari,2 requesting counsel discuss whether single judge could hear determine case view 28 U.S.C. § 2281, U.S.C.A. 2281. That section provides injunction restraining enforcement state statute order administrative body thereunder 'shall not granted' ground unconstitutionality application is heard determined district court three judges as provided 2284, 2284. 5 respondent, which plaintiff, contends three-judge required, because does question constitutionality any nor validity says also no has been even urged 'outside naked recitation prayer complaint.' offered whatever past, pending threatened action touching business respect. pleadings made clear-cut issue, seems have completely ignored thereafter. issues defined on pretrial hearing matter fact law within-state trial court, however, general finding interference had threatened, mentioned Appeals. 6 For reasons one clear proceeding can result constitutional grounds. In addition defects appear our discussion relief, wanting there proof probable act might cause irreparable injury essential equitable relief injunction. 7 respondent appears abandoned but seeks judgment, hoping avoid both requirement necessity injury. Whether appropriate under circumstances apparently either courts below. But inquiry every grant remedy must survive. 8 Declaratory Judgment Act 1934, now 2201, styled 'creation remedy,' actual controversy competent may 'declare rights other legal relations' party sought.' This enabling Act, confers discretion rather absolute right litigant. 9 Previous enactment were responsible expressions doubt limitations federal judicial power would permit procedure. Cf. Liberty Warehouse Co. v. Grannis, 273 70, 47 282, 71 541; Willing Chicago Auditorium Ass'n, 277 274, 48 507, 72 880; Arizona California, 283 423, 51 522, 75 1154; Piedmont & N.R. States, 280 469, 50 192, 74 551. Finally, practice extended states, we reviewed rendered justiciable if presented less declaratory. Nashville, St. L.R. Wallace, 288 249, 53 345, 77 730. Encouraged guided experience thirty-four states enacted laws, Senate Judiciary Committee recommended adaptation principle practice. Its clause narrower Uniform adopted 1921 Commissioners Laws, gave comprehensive declare rights, status relations. Federal omits limits declaration cases controversy.3 10 adjudged interpreting confine conventional 'case controversy' limits. Ashwander Tenessee Valley Authority, 297 288, 325, 56 466, 473, 80 688, said, 'The June 14, providing judgments, attempt change requisites exercise power' still tested established principles extend * abstract questions' 'Claims based merely 'assumed potential invasions' enough intervention.' 11 Aetna Life Insurance Haworth, 300 227, 57 461, 463, 81 617, Chief Hughes used catalogue familiar phrases define delimit measure new remedy. If metes bounds clearly marked, his available verbal markers themselves elastic, inconstant imprecise. applies, he out, 'cases controversies sense' nature 'consonant function' 'appropriate determination.' Each present 'justiciable distinguished 'a difference dispute hypothetical character *. definite concrete, relations parties having adverse interests. real substantial admitting through decree conclusive character, advising what facts.' 'concrete immediate determination parties.' 12 Other sources stated relevant limitations. report regarded 1,200 American decisions theretofore subject establishing 'the issue real, practical academic decision finally settle controversy.'4 Indeed unlike expressly declares refuse 'terminate uncertainty giving rise proceeding.' recommending Rule Rules Civil Procedure, U.S.C.A., provide procedures decree, noted 'A special statutory adjudication some type case. *'5 13 when all axioms exhausted words definition spent, propriety particular depend circumspect sense fitness informed teachings concerning functions extent power. While should reluctant niggardly granting designed, alert imposition jurisdiction obtaining futile premature interventions, especially field public law. A maximum caution necessary litigation here, where ruling reach far beyond Such differences conflicts interest 'ripe determination' rights. disagreement nebulous contingent taken fixed final shape see deciding, effect adversaries, useful purpose achieved deciding them. 14 complainant request do, have, anything particular. ask without enter take concrete regulatory step. simply establish that, presently conducted, goods well One naturally asks, what? To ultimate answer sought. 15 multitude immunities predicated premise consists What ones controversy? record silent little articulate. surmise served ultimately same explanation purposes originally asked, 'to guard against possibility operating certificate Commission.' (Emphasis supplied.) 16 connection, Wycoff Commission, 1951, 227 P.2d 323, brought attention. From predecessors long obtain certificates authorize commodities Utah. Supreme cited case, denying already adequately served. told filed petition enjoin few specified locations State, process never tells us happened action. conjecture fears form prohibit service wholly Commission's leave. asks win before commenced. Even engaged solely commerce, cannot say require. Eichholz 306 268, 273, 59 532, 534, 83 641. 17 basis proper party, 2202, 2202. carrier's idea major exemption, incident immunity, hold readiness use at future time apply part complicated it. contemporarneous neither briefs make us. think several exceeds permissible discretionary Act. 18 first place, matured point what, any, develop. much like asking enact legislation consideration yet shaped up into enactment. risk suffering penalty, liability prosecution, avoid, pointed out takes raises power, complete relief. proposed end controversy. 19 Nor apparent serve date undertakes regulation After sifting facts today, assurance changes significance place decides move. Of course, withheld necessitates weighing conflicting province courts. supra, page 242, 464, Perkins Elg, 307 884, 1320; Currin 1, 379, 441. preliminary findings conclusions intended fortify litigant regulation, rare granted. Coffman Breeze Corporations, Inc., 323 316, 65 298, 89 264. 20 incipient federal-state conflict, procedure preempt prejudice committed initial tribunal substitute methods review. tolerable, example, judgments enterprise forestall National Labor Relations Board, many agencies try decide instance. Myers Bethlehem Shipbuilding Corp., 303 41, 58 459, 82 638; Eccles Peoples Bank, 333 426, 68 641, 92 784. See Colegrove Green, 328 549, 66 1198, 90 1432. Responsibility effective functioning thus transferred bodies Congress placed 21 But, here invoked, because, foreclosing body, incompatible relationship. carrier, being rushed get ways disclosed tie hands all. 22 officials decided regard implications system. reduce policies statutes orders primary fact. last word meaning legislative terms reference State. disapproved anticipatory declarations statutes, originated entertained affected. Alabama Federation McAdory, 325 450, 1384, 1725. Anticipatory frustrate agency tolerable federalism. Is contemplated res judicata, itself? so, virtually lifted heard. not, serves 23 review usually afford ample protection carrier whose actually invaded, remedies injuries. bound equally Constitution laws. Ultimate recourse certiorari allegedly right. 24 actions realistic position reversed.6 seeking defense defendant assert Respondent ward off possible petitioners good asserted. Where essence impending action, defense, federal-question threatens assert, itself involve claim law, doubtful entertain claim. dubious though sets forth right, reality seize litigations one, normally defendant, goes begin federal-law begins Tennessee Union Planters' 152 454, 654, 38 511; Fair Kohler Die Specialty Co., 228 33 410, 716; Taylor Anderson, 234 74, 34 724, 1218. 25 Since event, whether, record, begun maintainable head jurisdiction. advert doubts indicate rested as, learn, may. 26 conclude continued judgment. below modified direct dismissed. 27 Reversed ordered. REED, concurring. 29 although uncertain unsatisfactory, convinces me evidently portion out-of-state exhibitors authority operate certificate. films unloaded prepared exhibition, stored owners until exhibition points. then again loaded trucks exhibitors. continues free need court. No Thereafter instituted 30 2201. declaring interested parties' 'of controversy'. 31 means responsibilities powers violation other. definite. creates Ins. 617. operations conducted light knowledge darkness ignorance. S.Rep. 1005, 73d Cong., 2d Sess. 32 However, recognized introduced method determining existing Therefore language deliberately cast permissive, mandatory, cognizance petitions relief.1 enables appraise injuries complainant, danger acting peril incurring heavy damages, adequacy remedies, particularly bodies. respect bodies, exists instrument protect citizen dangers damages erroneous belief Great Lakes Dredge Dock Huffman, 319 293, 300, 63 1070, 1074, 87 1407. Spector Motor McLaughlin, 101, 105, 152, 154, 101; O'Connor, 340 602, 605, 508, 95 573. settlement illustrated years ago important dealing Railroad Adjustment Board.2 involved divisions Board division disputes involving yardmasters. jurisdictional resulted stalemate. Here, show unusual loss damage shows reason why Because these circumstances, I concur reversal DOUGLAS, dissenting. 35 Respondents convenience news reels Idaho, Montana. Their according Appeals; conclusion agree since continuing stream. threat activity immediate. First. those activities Second. did intend operating, deemed therefore regulation. Similarly, Court's acceptance contentions business. Third. brief 'will conducting' 'unless do order' 36 enough. Moreover, regulate phase State's police She endeavoring holds permit, obtains him conducting pre-empted Carrier 49 301 seq., seq. kind precluded Buck Kuykendall, 267 307, 45 324, 69 623. 37 Thus involves interests parties. test laid down satisfied. who knew live, active contest theatened serious consequences repercussions remote future. adjudicate stay hand. There policy indicating intervene. 1407, tax unconstitutional prohibited enjoining taxes adequate courts, cf. Township Hillsborough, Somerset County, N.J. Cromwell, 326 620, 623, 445, 448, 358, withheld. given indication integrity permits carriers protected All presumptions contrary. created clear. 'arises Constitution' 'laws' States. 1331, 1331. absent Huffman presented, 39 failure relegates low estate. Cir., 195 F.2d 252, 254. 343 975, 1074. S.Rep.No.7005, Sess., May 10, 1934; Borchard, Judgments (2d ed. 1941), 1043, 1048. op. cit., 1042. See, Developments—Declaratory Judgments, 62 Harv.L.Rev. 787, 802. H.R.Rep.No.1264, P. 2; 312; Brillhart Excess 316 491, 494, 1173, 1175, 86 1620. Order Ry. Conductors Swan, 329 520, 67 405, 91 471.

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