Document: 337 U.S. 346 69 S.Ct. 1108 93 L.Ed. 1406 UNITED STATESv.WITTEK. No. 473. Argued April 20, 21, 1949. Decided June 13, Asst. Attorney General A. Devitt Vanech for petitioner. Mr. Ward B. McCarthy, Washington, D.C., respondent. Justice BURTON delivered the opinion of Court. 1 The question presented is whether United States, as owner Bellevue Houses, a defense-housing project in District Columbia, 'landlord' within meaning Columbia Emergency Rent Act,1 with particular reference to rights occupancy and rates rental. For reasons be stated, we hold that it not. 2 States America, petitioner herein, filed its amended complaint Municipal Court against Wittek, respondent, seeking possession premises occupied by him known Houses. alleged were owned housing accommodations had been constructed Navy Department under authority § 201 Second Supplemental National Defense Appropriation Act, 1941.2 This summary proceeding was brought 31 Stat. 1193, 41 555, D.C.Code 1940, 11—735. respondent's tenancy terminated notice quit, served 1219, 1382, 3u 45—902, claimed he no longer any right possession.3 defense, now before us, did not establish additional facts which Act required landlord condition such landlord's recovery applied.4 parties agreed cause disposed upon pleadings, pretrial stipulations certain exhibits. That court found jurisdiction, apply ordered given States. Appeals affirmed judgment.5 Circuit allowed an appeal, limited two questions.6 It one sustaining jurisdiction answered other holding this proceeding. judgment reversed remanded Appeals. 83 U.S.App.D.C. 377, 171 F.2d 8. We granted certiorari because substantial importance decision administration Government-owned, low-rent housing, well defense Columbia. 336 931, 737. 3 When circumstances are appreciated, practically inconceivable Congress would have subjected program control prescribed Act. Yet interpretation below held applicable might make equally all including housing. came Congress, late 1941, through support Congressional Committees on House Representatives Senate. designed model, prewar, temporary, emergency measure forestall skyrocketing rentals workers then concentrating Obviously, directed, at least primarily, private landlords.7 sought stabilize about level January 1, selected 'a fixed (so far practicable) free competition; * *'8 4 traditionally has relied heavily matters. Through them must seen light own long-term, District. In appraising attitude these toward substitute substandard District, impossible overemphasize either seriousness need or long-standing concern need. frequent subject congressional debate, study legislation since Civil War. narrow alleys interior 200 more large downtown city blocks although unfitted habitation, notoriously congested population adequate never existed. widely publicized only partial success attained efforts improve it. Out there evolved long-term eliminate dwellings. Due obvious lack suitable led construction number Government-built, operated accommodations. 1934, enacted Alley Dwelling ct, 48 930, 5—103 et seq. authorized President acquire land adjacent inhabited erect buildings thereon rent 'upon terms conditions may determine: *.'9 Pursuant designated Chairman (officially entitled President) Board Commissioners Executive Officer (later Director) Capital Park Planning Commission Director Housing Federal Administration Public Works carry out purposes. He named group Authority.10 1938, substituted Architect Capitol third official constituting Authority,11 and, 1943, changed name Authority.12 presidentially Authority operated, projects passed respective tenants occupy those projects. Its composition, officials demonstrates incongruity attempt, here suggested, District's Administrator Control, himself appointed recognized responsibility federal agency further appears from fact that, due course, chosen Government operating lessee than 5,000 defense-housing, dwelling units, built near 5 issue us does turn what Houses Government-owned whatever operates, controlled rental policies Control. determining approved December 2, created therefore material note St tes, already acting much each instance, placed operations national authorization fitted varied purposes crucial significance connection operation several years. distinctly social welfare relief hands Authority. 6 Beginning put into five (including 112 units) three commercial properties.13 Title II added 52 1188, 5—112 seq., also public 1937, 50 888 See 42 U.S.C. (1940 ed.) 1401 seq, U.S.C.A. enabled secure loans build low-rent, promptly expanded. By end 1941 completed, II, six projects, 1,613 Government's brief instant case states managing, Title, 3,147 character dwellings plain definition 'low-rent housing' Act.14 poor-relief, rather These subsidized. keyed inadequacy income tenants. purport equal competition comparable privately important feature policy tenant dispossessed, 'graduated' termed it, whenever tenant's financial needs subsidized privileges. inappropriateness applying based levels evident. Act's fostered continuance tenancies regardless status individual tenant. If applied give vested clients once installed, new greater absence express statement conceivable familiarity local Control meet problems employed war indigent families, wholly partially dependent support. Such subjection, however, apparently follow reasoning use general term 'landlord,' accommodations, provisions makes distinction between applies activities landlord. Therefore, while seek dispossess unit, warning counsel if case, soon compelled 7 contains application kind.15 A statute imposing restrictions impose itself without clear expression implication effect.16 text, surrounding legislative history neither nor imply change permanent agencies their management thus temporary supplementing, superseding, contribution being made authorities meeting crisis. find evidence believed managers 'tempted demand exorbitant rentals' engage 'rent-gouging practices *' directed.17 seems where complete over rentals, but Governments control. 8 require control, imposed increasing units testified satisfaction Rental governmental At time enactment could elsewhere, September 9, 54 872, 883, Lanham October 14, 1125.18 first Acts. was, expressly discretion Secretary War Navy, restricted workers.19 provision amended, 28, so administering same powers duties Act.20 time, provided: 'That (Federal Works) shall fix fair developed pursuant reach persons engaged defense: *.' (Emphasis supplied.) 7, 1127, renumbered 304, 55 363. Those call subordination statutory standards landlords. special emphasized another amendment 1942.21 earlier they became many evidenced purpose insist significant Acts 1942. One before, after, 1941. emphasis repeated 10, 1942, manner demonstrated still consideration overlooked extent related On date IV. $30,000,000 appropriation 'to provide living quarters single families) employees whose determined essential reside Columbia.' 56 212, (1946 1561, 1561. 1942 (see supra), very 304 contained include 'local municipalities' conveyed street incidental project. 363, 1544, 1544.22 9 foregoing rents interest ground conflicts III. Price emphasizes conclusion 10 Although 30, empowered Administrator, limitations, maximum so-called defense-rental areas23 therefore, direct case. However. language both inside outside bearing proper consistent our lends interpretation. left authorities, except necessary intervene. intervene especial compliment existing controls, typical area calling competent fact, declared 'defense-rental 302(d), 36, U.S.C.App. 942(d), U.S.C.A.Appendix, 942(d). His indicates practice followed attempting Governent-owned produced seemed intervention. point intervened, nd 11 contrast omission, landlord, included 'person' whom applied.24 Thus, months after omission when established procedures controls fail times, said so. section provided punishments violators 12 published regulations even potentially hand, publish stating his elsewhere come stated state political subdivision either, generally prevailing 'as accommodations: Similarly, rented Army personnel, civilian Departments, schedule schedule.25 13 Later, 1947, 61 193—201, ed., Supp. I) §§ 1881 1901, 1881—1901, excluded struck previous inclusion Act.26 14 effect emphasize, form practical operation, place administrator. taken part exercise 15 thousand There nothing Rules Regulations Orders Office suggesting asserted official, coupled during life thoroughly accepted accordance fully justified Congress. 16 accordingly proceedings opinion. 17 ordered. 18 Reversed remanded. 788, VI, 45 1601 45—1611. took terminate 31, 1945. Id. 2(1), 1(b), 45—1602(1), see 45—1601(b). life, extended 1946, 59 592; 60 340; March 1948, 713; 62 100; 1949, 205; 63 30; 1950, 48. few provisions, none here. Approved 883—884. transferred 1125, Order 9070, C.F.R.Cum.Supp. 1095, 601 note, p. 5711, note. operate manage later delegated, lease, Authority, responsible involved making delegation, Acts, together amendments complaint, opinions refer allegations, respondent $38.20 month, gas heating utility services, increased $43 beginning February 1946. increase order rise expenses, substitution used space surplus sludge supplied nominal cost. refused execute lease pay rate, result 30-day terminating tenancy. previously cited presents (under IV, 45—1602 45—1604) issue, applicability 5(b), 45—1605(b)) maintenance allegations called deal 5(b) less factual controversy 4. 'Sec. 5. Prohibitions. '(b) No action recover maintainable tenant, notwithstanding expired, long continues entitled, unless— '(1) (a) violating obligation (other higher permitted regulation thereunder surrender accommodations) (b) committing nuisance using immoral illegal purposes, '(2) seeks good faith property immediate personal dwelling, '(3) contracted writing sell purchaser contract sale representation purchased occupancy, '(4) substantially altering, remodeling, demolishing replacing construction, plans altered, remodeled, having '(5) nonhousekeeping, furnished, located unit rooming boarding house defined remaining portion lessor family, '(6) school accredited nonprofit university, bona fide educational, research, administrative, dormitory use.' 791, 759, 721, 1605(b). Wittek v. D.C.Mun.App., A.2d 747. 805. Appeal 196, 11—773. follows: 'Whether suits suit landlord.' 378, 8, 9. I. warned law-rent 'Section 1. Purposes—Time Limit. hereby national-defense (1) aggravated situation regard seat government; (2) will lead profiteering speculative manipulative some owners accommodations; (3) rendered render ineffective normal market (4) increasingly difficult obligations live work obtain Whereupon prevent undue increases relating tend cost otherwise impede program. regulations, orders, requirements thereunder, 1945; 45—1601. seven steps termination 1950. supra. Committee Reports landlords, States—either widespread, future means combating shortage. 'With influx rate ever history, Nation's today faced threatens create serious last war. present effort requires tempted properties rentals. true, gratifying majority refrained taking advantage affects Capital. bill protect rent-gouging minority 'The most appropriate seriously affected acute shortage caused shortages building materials military Nation. 'It particularly immediately enact type serve model enactments desire areas borders suffering similar dislocations program.' H.R.Rep. 1317, 77th Cong., 1st Sess. (1941). And S. Rep. 827, also, discussion floor Representative Randolph West Virginia, 87 Cong.Rec., Pt. 8447—8454 nature reflected original '* enable President, health, comfort, morals, safety, welfare, discontinuance situated hidden communities May 16, 1918, caring alley empowered, *— '(a) To purchase, condemnation gift, land, buildings, structures, therein, *; demolish, move, alter structures deemed advisable: '(c) rent, maintain, equip, manage, exchange, sell, convey lands, 930—931. 1186, 5—103. 6868, 1934 (published Report Ten-Year Period 1934—1944, 3), 8033, Jan. 11, 1939, C.F.R. Cum.Supp. 443. 5—104. 7784-A, 5, Fed.Reg. 51 (1938). 9344, 1279. submitted 1944, 1945, 91 1597 (1945). Annual 5(a) 932, 5—107(a) (b). 2. Act— decent, safe, sanitary families low income, administered promote serviceability, efficiency, economy, stability, embraces appurtenances thereto. available solely net admission exceed times value heat, light, water, cooking fuel) furnished minor dependents, ratio one.' 888, 1402(1), 1402(1). II. contrasts 24—26, 36—37. 'person.' 19, infra. relies following definitions sufficiently broad read Act: 11. Definitions. As '(g) includes owner, lessor, sublessor, person receive '(h) individuals, firms, partnerships, corporations, associations agent, trustee, receiver, assignee, representative thereof.' 794—795, 45—1611(g) (h). old well-known rule statutes divest pre-existing privileges sovereign words effect. cases extraneous affirmative believing should restrictive statute, only. Though invoked successfully closely one, explicit, inclined weight here.' Mine Workers, 330 258, 272—273, 67 677, 686, 884. State Wyoming, 331 440, 449, 1319, 1324, 1590; Stevenson, 215 190, 197, 30 35, 153; American Bell Telephone Co., 159 548, 554 69, 72, 40 255; Herron, 20 Wall. 251, 263, 22 275. can devised (for example, persons, bodies politic corporate) affect (the King England) least, restrain diminish interests. settled respecting British Crown government, frequently different courts. considered royal prerogatives belonged capacity parens patriae, universal enters principles constitutions.' Dollar Savings Bank 19 227, 239, 80. Supplemented Urgent Deficiency 29, 147, 361 carrying utilize determine upon: Provided further, discretion, completion, enlisted men Army, Marine Corps field Military Naval Establishments who engaged, industries naval programs, ships Maritime Commission. 201, classification eligible 1126, 11—12, 1522, 1522. departments, agencies, instrumentalities acquired respect management, maintenance, thereof title I title.' consisted 1—3, 'Defense Housing.' 361. 21 6. second proviso (Lanham) hereof him, power emergency, exceptional cases, adjust housed, charged personnel Departments:' 12, 1544. evidencing likewise remain civil criminal whereever located, 307 1547, 1547. 23 2(b) 25—26, 58 633 634, 306—307, 902(b), 24 unlawful 'any person' violate issued 4, 904, 302. individual, corporation, partnership, association, organized legal successor foregoing, thereof, subdivisions, foregoing: Provided, punishment subdivision, agency.' 36—37, 942(h), 942(h). Territories possessions, 23—24, 901(c), 901(c). 25 Maximum rents. be: government. Defense-Rental Area date, corporation formed laws paragraph. decrease 5(c). Department. Department, schedule.' 13529—13530. exception restricting removal tenants, 6(c)(2), 13534. 26 193, superseded 'Se . 202. (Maximum Rents)— foregoing.' 1892(a), 1892(a). 209. Notwithstanding maintain administered: 200—201, Supp 1899(b), 1899(b). 211. Rents) possessions 1901.

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