Document: 330 U.S. 238 67 S.Ct. 742 91 L.Ed. 868 UNITED STATESv.POWELL et al. SAME v. ATLANTIC COAST LINE R. CO. Nos. 56 and 57. Argued Jan. 13, 1947. Decided March 3, Mr. Robert L. Werner, of New York City, for petitioner. Thomas Preston, Norfolk, Va., respondents Powell others. W. Davis, Wilmington, N.C., respondent Atlantic Coast Line Co. Justice DOUGLAS delivered the opinion Court. 1 These cases involve controversies between United States carriers over transportation charges shipments government property in 1941. In one case phosphate rock superphosphate are involved; other, rock. both commodities were purchased by States, shipped on bills lading lines respondents, consigned to British Ministry War Transport. They exported Great Britain under Lend-Lease Act 11, 1941, 55 Stat. 31, 22 U.S.C.Supp. 1, § 411 seq., U.S.C.A. use as farm fertilizer Britain's wartime program intensified production food. It is agreed that these 'defense articles' defined 2 Act.1 Respondents billed at commercial rate paid rate. The Seaboard a land-grant railroad. not; but it entered into an equalization agreement with 1938 which accept rates could alternatively move road.2 General Accounting Office excepted payments ground applicable. amounts alleged over-payments deducted from subsequent concededly due States. thereupon instituted suits Tucker Act, 36 1091, 1093, amended, 28 U.S.C. 41(20), recover withheld. counterclaimed difference those asked be set off against claims complaints dismissed. District Courts gave judgment respondents. Circuit Court Appeals affirmed. 4 Cir., 152 F.2d 228, 230. here petitions writs certiorari we granted because importance determining controlling principle settlement many this character Government. 3 For years was fifty per cent applicable or troop 43 477, 486, 10 1375, 1375; Union Pacific Co., 249 354, 355, 39 294, 295, 63 643; Southern Ry. 322 72, 73, 64 869, 870, 88 1144. A change effected Transportation September 18, 1940, 54 898, 954, 49 65, 65. See Krug Santa Fe Pac. 329 591, 540. All railroad released their land grant States3 entitled full all shipments, except inapplicable 'military naval moving military not civil members forces (or such members) when traveling official duty * *' 321(a).4 filed release. Accordingly, question presented whether use' within meaning 321(a) Act. legislative history 1940 throws no light scope clause.5 But apparent face statute there important limitations type must carried less than rates. first place, 'all' only naval' second 'moving use.' Thus clause restricted nature will put end transportation. 5 bulk main stress petitioner's argument based enacted about six months after pointed out every shipment finding Executive would promote our national defense,6 indeed defense measure,7 unless administration impeached, lend-lease fall 6 Under conditions modern warfare, foodstuffs lend-leased civilian consumption, sustained war made possible continued manufacture munitions, arms, other supplies necessary maintain armed forces. like reasons, fertilizers increased food served same end. sense maintained health vigor citizens home abroad functions. 7 So us result clear if standards read circumstance used ally rather nation controlling. 8 Our difficulty, however, arises transplant And difficulty surmounted though exception construed, be, Northern 248, 747, strictly favor 9 preceded months, provided its own standards. different least terms Act; they time Congress much concerned problems defense. September, passed, visibly aware possibilities war. Appropriations army navy being operations widened,8 alien registration required,9 training civilians service authorized,10 development stock piles strategic critical materials encouraged11—to mention few measures passed interests 50 Yale L.J. 250. Moreover, realities total then plain all. Europe had fallen; militarism rampant. Yet spite acute awareness war, steps taken Chief prepare defense, s couched terms. parts Act,12 Congressional enactments during period, exigencies constituted standard govern administrative action. written did reflect necessities demands makes economy. more conventional language—'military contrasted 'civil' use. That obviously conclusive problem interpretation present. environment reluctant conclude meant 'all transported defense' restrictive language. language emphasizes distinction largely obliterated requirements accentuated waged world, it. Section uses contrast use, find difficult hold Government farmers country course allies pooled; maintaining agricultural effort successful, cannot gainsaid. When resources mobilized most what does end—whether rationing, industrial production, price control, host familiar activities. common parlance, activities civil, military. seems marked wrote 321(a). If distinction, 'for have read' serves defense.' construe would, us, substantially wipe line drew and, blend 'military' undertook separate them. designed permanent legislation, temporary measure meet supply determined times—in peace well Only parlance marks preserved, constant days peace, times hurried activity state 11 third extends specified uses. 'the *'. plainly include multitude employed Gove nment exclusively engaged furthering effort, officials others.13 Thus, entire contained receive harmonious construction broadly so consonant personnel portion clause. 12 sum, fertilizer. supra, develop fully breadth category property' use'. sufficient say 321(a), since destined agencies projects services satisfy any needs wants agency acted adjunct otherwise serviced them 13 Affirmed. 14 RUTLEDGE dissents. term includes 'Any agricultural, commodity article points moved also stations Line. Hence secure deductions been subject articles. Since lower rates, roads competed unable get business. reason agreements. 74, 871, 321(b). This provision eliminated December 12, 1945, 59 606, V, 65(a), 65(a). 65 note, October 1946, effective date amendment 'any travel specifically contracted prior shall rate, fare, charge effect entering contract carriage shipment.' Senator Wheeler, Chairman Senate Committee Interstate Commerce, who bill floor, following statement concerning pending involved instant cases: 'Now, President, I wish repeat said moment ago. should perfectly passage resulting repeal whatever upon proper classification material, has act. controversies, discussed extensively hearings, settled courts; action present bill, favorable, without property.' Cong.Rec. p. 9237. H.Rep.No. 2016, 76th Cong., 3d Sess., 87; 2832, 93. Relief urged basis financial plight railroads substantial increase traffic occurred 1930's. Report President's 20, 1938, Hearings, House Foreign 1st H.R. 2531, pp. 261, 271—272; Public Aids (1938), Vol. II, 42—45. section finally appears represent compromise Bill eliminating entirely see 1217, 27) silence left unchanged. S. 2009, Sess. authority vested President might, he deemed 'in interest defense,' authorize Secretary War, Navy, head department lease, lend, etc., article'. 3(a)(2), 412(a)(2). 'An Promote Defense States'; governing administration, note 6, plain. purpose evident Reports. 77th 2, 11; S.Rep.No. 45, 2. Roosevelt stated transmitting Second 'We furnishing aid act charity sympathy, means defending America. mere side issue arming integral part, keystone, great preserve security generations come, crushing disturbers peace.' S.Doc.No. 112, VI. See, example, June 265, 292, 297; 350, 377; 14, 394, 34 §§ 498—1, 498a—1, 498c—2, 498f—1, 498g—1, 498l, 601, 749c; Acts 15, 396, 521 seq.; 400; 26, 599. 28, 670, 451 seq. 16, 885, U.S.C.Appendix, 301 U.S.C.A.Appendix, 897, 15 606d. emphasized policy establishing system adequate, inter alia, 'of defense'. legislation 'troops States' half held discharged soldiers, prisoners, rejected applicants enlistment, enlistment provisionally accepted, retired enlisted men, furloughed soldiers en route back stations. supra. reached engineer officers Department assigned connection improvement rivers harbors. 285 240, 52 324, 76 736.

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