Document: 425 U.S. 164 96 S.Ct. 1319 47 L.Ed.2d 653 UNITED STATES, Petitioner,v.UNITED CONTINENTAL TUNA CORPORATION. No. 74-869. Argued Nov. 3, 1975. Decided March 30, 1976. Syllabus Prior to 1960 the Suits in Admiralty Act authorized suit against United States cases involving vessels owned by, possessed or operated by for States, if such could have been maintained had vessel a private one, and provided further that was employed as merchant vessel. In 1960, Congress amended deleting latter proviso. The Public Vessels authorizes "a public of States," but bars foreign national unless it appears his government allows sue its courts under similar circumstances. Respondent, Philippine corporation, alleging jurisdiction both Acts, sued recover damages resulting from sinking fishing after collision with naval destroyer. District Court dismissed complaint on ground since destroyer "public governed Act, therefore respondent subject Act's reciprocity provision, there no reciprocity, barred. Appeals reversed suit, although vessel, maintainable delete "employed vessel" proviso, free restrictions, including requirement, imposed Act. Held : Claims within scope remain terms amendment and, respondent's claim falls erred concluding provision did not apply. Pp. 166-182. (a) Appeals' interpretation would render restrictions ineffectual effectively nullify specific congressional policy judgments made when enacted, enabling litigants bring suits previously 166-169. (b) legislative histories particular, latter, indicate clearly intend authorize wholesale evasion specifically caused vessels, deleted proviso merely remove uncertainty proper forum which maritime especially contract claim, where uncertain whether should be brought admiralty side district court, Tucker 170-181. 499 F.2d 774, remanded. Robert F. Kopp, Washington, D. C., petitioner. Francis J. MacLaughlin, Los Angeles, Cal., respondent. Mr. Justice MARSHALL delivered opinion Court. 1 corporation largely Americans, this Central California, 41 Stat. 525, amended, 46 U.S.C. § 741 Et seq., 43 1112, 781 seq. It sought recovery MV Orient, U.S.S. Parsons, States. 2 Upon States' motion summary judgment, held provisions See 781. court any government, "under circumstances, nationals courts." 785. Finding complaint. 3 Ninth Circuit action, is without reference 774 (1974). We granted certiorari, 420 971, 95 1390, 651 (1975), we now reverse. 4 * undisputed before then follows: 5 "(I)n were privately operated, cargo possessed, proceeding at time commencement action herein for, libel personam may . Provided vessel." ¢s167¢s 742 (1958 ed.) (emphasis added).1 6 however, italicized above, must 74 912. Reading literally, reached result spite acknowledgment "such conclusion permits (Public Act's) circumvented manner neither explicitly nor perhaps contemplated Congress." F.2d, 778. 7 permit circumvention only also several other significant limitations upon Under 784, example, officers members crew subpoenaed connection consent Secretary Department, commanding officer, certain persons. war, Navy can obtain stay prosecution tend interfere operations. 10 §§ 7721-7730. And unlike interest does accrue prior judgment. Compare 782 745. 8 these restrictive limited handful cases. Since virtually reason litigant prefer Act,2 import practically every case they otherwise application. If intended result, might just well repealed altogether. 9 recognized, contains language expressly permitting claims What amounts effective repeal those urged matter implication. is, course, cardinal principle statutory construction repeals implication are favored. See, E. g., Regional Rail Reorganization Cases, 419 102, 133, 335, 353, 42 320, 347 (1974); Amell v. 384 158, 165-166, 86 1384, 1388, 16 445, 449-450 (1966); Silver New York Stock Exchange, 341, 357, 83 1246, 1257, 389, 400 (1963); Borden Co., 308 188, 198-199, 60 182, 84 L.Ed. 181, 190-191 (1939). carries special weight find statute has more general one. g. Morton Maneari, 417 535, 550-551, 94 2474, 2482-2483, 290, 300-301 Bulova Watch Co. 365 753, 758, 81 864, 867, 72, 75 (1961); Rodgers 185 83, 87-89, 22 582, 816, 818-819 (1902). To sure, precisely applicable here argument longer application particular set facts, simply evaded will asserting another statute. should, hesitant infer narrow Both types "repeal" actual involve compromise abandonment articulated policies, normally expect some expression results intended. Indeed, expectation an intent particularly strong like extend 11 ultimate question intended, deletion vessels. An examination history indicates quite intent. II A. 12 Court's attention occasions. Canadian Aviator, Ltd. 324 215, 218-225, 65 639, 641-644, 89 901, 905-909 (1945); American Stevedores, Inc. Porello, 330 446, 450-454, 67 847, 849-850, 91 1011, 1016-1018 (1947); Johansen 343 427, 432-434, 72 849, 1051 (1952); supra U.S., 164-166, S.Ct., 1387-1388, L.Ed.2d, 449-450. clear our purposes, stated briefly. 13 1916, doctrine sovereign immunity barred owner whose damaged Recognizing inequities denying owners difficulties inherent attempting grant relief deserving through Acts Congress, Shipping Board "all laws, regulations, liabilities governing vessels." 39 730, 808. Lake Monroe, 250 246, 460, 63 962 (1919), subjected all proceedings rem admiralty, arrest seizure. concerned seizure occasion unnecessary delay expense, promptly responded Monroe decision enacting Act.3 prohibited 741. place proceeding, "provided ed.). Significantly, include authorization suggestion rejected committee "radical change" "materially passage" Act.4 14 Until 1925 recourse apply bill. year, enacted "for States." "shall proceed accordance (the Act) thereof, insofar same inconsistent herewith ." 782. Some inconsistencies lay provisions, referred restricting subpoenas barring prejudgment interest, imposing requirement reciprocity. Each assumed reflected deliberate choices Congress. notion central scheme One spurs enactment Congress' recognition principal nations, notably England, France, Germany, already permitted their foreigners vessels.5 while debates sparse, mentioned House floor response gave rights citizens suit.6 B 15 formed basis decision, outgrowth severe jurisdictional problems facing plaintiff courts, viewed providing exclusive remedy coverage. 745; Johnson Emergency Fleet Corp., 280 50 118, 451 (1930); Aliotti 221 598 (CA9 1955). But generally interpreted encompass actionable Maritime tort deemed beyond reach law Federal Tort 28 1346(b), 2671 et More importantly encompassed either fell lodged exceeding $10,000. 1346(a)(2), 1491. A than $10,000 often found himself difficult position. He choose between one he wisely, transferable Claims, incorrect choice having run error discovered.7 solution filing unavailable, because 1500 over pending court. Wessel, Duval & 124 F.Supp. 636, 129 Ct.Cl. 464 (1954). 17 Because serious uncertainties about hand, other, crucial determination appropriate one.8 illustrated Calmar S. Corp. 345 73 733, 97 1140 (1953). steamship charter additional hire loss bombed enemy airplanes carrying military supplies equipment. operated. "undoubtedly 'operated States', 'employed vessel' meaning (Suits Admiralty) equipment hire." Id., 447, 734, 1142. charter, so transporting war materiel. Having thus successfully argued cognizable Government position argued, held, nature irrelevant sensitive fact contrary ruling relegated 455, 737, 1146, even remained possibility 18 sharp reversals illustrative faced potential litigants. instances, conflicting other.9 19 difficulty determining moved amend 1960. first passed 1959 designed ameliorate harsh consequences misfilings authorizing transfer Claims.10 "prevent dismissal become time-barred finally determined."11 Senate Committee Judiciary bill inadequate: 20 "The operate prevent litigants, nothing eliminate correct cause original erroneous increase existing delays."12 21 Accordingly, committee, accepting amendment, proposed amendments, purpose succinctly amendments make possible employees breach originally filed trial merits."13 23 Two clarify First, added "if person property involved." version "vessel" "cargo" owned, generated considerable confusion.14 24 Second, change concerns us case: section requiring noted confusion evidenced addition, Report difficulties. For Continental Cas. 156 942, 140 500 (1957), repair out service years repairs "the all," said Similarly, Eastern Lines 187 956 (CA1 1951), affirmed owner's amount necessary recondition passenger ship Army used troop transport hospital services. Casualty were, noted, "on essentially identical facts."15 recommended confusing C 25 Respondent contends abolish distinction thereby enable There indication broad purpose.16 explicit nugatory Nor express put end litigation 26 definitions "merchant related basic purpose: regard, concern event 454-455, 1145-1146. precisely: 27 problem, directed, arises properly (in Claims) hand (on court) other."17 short, saw category other. attempted two categories expanding expense eliminating quasi-admiralty Act.18 alter expand 29 That Reports contain "confusion establishing 'merchant 'public vessel,' " suggest otherwise. course discussion choosing claim. extent, doubt created forum. explained: 30 "If (a is) admiralty. depending recalled Claims."19 31 differences authorizational involved court's involved. Thus, Act.20 Litigants depend type bringing whatever Act.21 instant presented none affect them. III 32 sum, advanced adopted reflects result. hold dispute embrace inapplicable. 33 urges grounds affirmance. applicable, bar 99% Of stock Americans substance owner. contention, address argues considered Philippines, fall prohibition denies due process violation Fifth Amendment. This Court, addressed Appeals. leave consideration contentions, extent adequately raised, remand. 34 judgment reversed, remanded consistent opinion. 35 ordered. 36 Reversed 37 STEVENS took part case. 38 STEWART, dissenting. formerly drew S.Rep. 1894, 86th Cong., 2d Sess., (1960). 92-1079, pp. 5-6 (1972). Six later Solicitor General explained effect brief behalf Court: 40 "As tugboats, excluded separately covered engendered public-merchant distinction, Section extends Brief 9, n. 282, O.T. 1963.1 present steered entirely different arguing plain ignored. I cannot accept boxing compass. At best, demonstrated problem amending law. ambiguous surely suffice undermine words statute, persuasive considerations2 implication3 anyone need inquire further: "When ambiguity words, room construction. indeed, justify departing search intention themselves suggest." Wiltberger, Wheat. 76, 95-96, 37, 92 (Marshall, C. J.). As ago construing Act: misconstruing easily rest language." supra, 166, 1389, 450. So long reads does, think correctly understood it, would, therefore, affirm us.4 ourselves suffices say mutually exclusive, apparent advantage lies broader venue provision. provide found, resides business (under States). 742, provides district, S.Rep.No.223, 66th 1st Sess. (1919); H.R.Rep.No.497, (1919). 4. H.R.Rep.No.913, 68th 5-6, 15-16 (1924); S.Rep.No.941, (1925); 66 Cong. Rec. 2088 (1925) (remarks Rep. Underhill). Ibid. Reps. Denison, Underhill, Bulwinkle). H.R.Rep.No.523, (1959) (hereinafter cited Report); S.Rep.No.1894, (1960) Report), U.S.Code Admin.News p. 3583. most incorrectly six-year limitations, 2401(a); two-year limitation periods, 745, respective reports "Since applicability Admiralty, Vessels, Acts) given factual situation frequently exceedingly determine reasonable men differ, lawyers practice occasionally unavoidably wrong forum." 2; 3584. 3; 1955), 1951); Lykes Bros. 622, 455 (1954), Marine 120 585 (SDNY 1954), rev'd, 220 655 (CA2 1955); Smith-Johnson 139 298, 135 869, cert. denied, 351 988, 76 1047, 100 1501 (1956), Sword Line 228 344 230 (CA2), aff'd, 976, 1493 (1956) (after affirmed, itself Smith-Johnson, 142 367, 866 (1956). 1958, H.R. 3046, 85th emerge expiration 4, 3587. 6, 2, 5, citing Ryan Stevedoring 175 490 338 899, 70 249, 553 (1949). supra. bearing case, require T. Falgout Boats, 361 838 (CD Cal.1972), 508 855 1974), 421 1000, 2398, 44 667 (1975); Roberts 498 520 (CA9), 1070, 656, 665 De Bardeleben (CA5 1971); Utzinger 246 1022 (SD Ohio 1965); Tankrederiet Gefion A/S 241 (ED Mich.1964); Tebbs Baker-Whitely Towing 227 656 (Md.1964); Beeler 224 973 (WD Pa.), rev'd grounds, 687 (CA3 1964). Shewan Sons 266 108, 45 45, 69 192 Sinclair Rfg. 628, 474 cast doubts least decisions narrowly defining Acts. understandably view Calmar. do dictum 164, 1387, 449 (1966), today. completely deprived arising context. wage working aboard still exclusively traditionally cognizable. 959; (1957). Other "damages compensation towage salvage services, salvage, rendered necessarily 456 8, 738, 1140, 1147 (1953), intimate subject. agreed: "In abolished sorely confused attorneys 449. boat Philippines rammed destroyer, violence concept allow federal able Sua sponte enforcement crews, realistic refuse security way stake. Finally, awardable money awards large award discretionary event. Scotland, 118 507, 519, 1174, 1175, 153, 155. None governmental interests supposedly served significant. provisions. While ruled precise issue here, indicated Circuit. Lines, Daniel Boone, 475 478, 480 (CA4); Ira Bushey Sons, 398 167, 169 (CA2). 140, 145-146 (CA5).

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