Document: 331 U.S. 284 67 S.Ct. 1207 91 L.Ed. 1492 STATE OF NEW YORK et al.v.UNITED STATES al. HILDRETH, Governor, v. SAME. ATCHISON, T. & S.F.R. CO. Nos. 343 to 345. Argued March 3, 4, 5, 1947. Decided May 12, Rehearing Denied June 9, See 866, 1527. Appeals from the District Court of United States for Northern New York. [Syllabus pages 284-286 intentionally omitted] Mr. Parker McCollester, York City, appellants State and others. Henry F. Foley, Boston, Mass., Maine Douglas Smith, Chicago, Ill., A., Co. Edward H. Miller, Washington, D.C., The States. Daniel W. Knowlton, Interstate Commerce Commission. J. V. Norman, Southern Governors' Conference. Byron M. Gary, Topeka, Kan., Arkansas, Kansas, Justice DOUGLAS delivered opinion Court. 1 orders Commission, which seek have set aside, resulted two separate investigations instituted by Commission on its own motion in 1939 inquire into lawfulness or unlawfulness most then existing rate-making standards interstate railroad class freight rates One investigation related classification1 under commodities move rail freight. other rates.2 were consolidated covered one report, as problems classification rates3 are closely interrelated. findings classifications not directly involved here. For attack interim affect only rates, increasing them some areas decreasing But a review summary Commission's both essential an understanding problem. 2 While there three major territories, five rate territories.4 Official Territory, roughly speaking, lies east Mississippi north Ohio Potomac Rivers; it includes Virginia. Territory south Mississippi. Western Trunk-Line is located approximately between Rocky Mountains. Southwestern west Texas, Oklahoma, part Louisiana. Mountain-Pacific Montana Mexico all territory Rockies. Only these cases. 3 Official, Western.5 great lack uniformity classifications. problem with has long wrestled.6 prior present chief accomplishment this field had been establish within territories. National was still main lacking. Many differences particular rating matters substance; others nomenclature. Moreover, tendency among carriers work against evolution uniform making exceptions remove purposes. 4 Section 1(4) Act amended, 24 Stat. 379, 54 899, 900, 49 U.S.C. § 1(4), U.S.C.A. provides that shall be duty common just reasonable applicable through charges. 1(6) prohibits every unjust unreasonable classification. 3(1), discrimination. And 15(1), empowers prescribe just, fair, classifications, after finding unlawful. found unlawful will continue unawful unti l national It levels much more, instances, than scales themselves. shippers pay more another same article because differences; territorial boundaries separating territories artificial cause serious complications; where geographic conditions produce divergent costs, revenue requirements, requiring adjustments, adjustments should made basic itself but creation legitimate classification; amongst no real ratings although principles throughout nation. concluded without such impossible maintain relationships competing commodities; feasible gave railroads opportunity take initiative preparing new classification—an invitation which, we advised, accepted. 5 Prior proceeding four investigations—one each except Mountain-Pacific.7 These established structures regional basis, i.e. they degree subdivision territory. did deal interterritorial harmonizing other. As result traffic moving another. 6 exceedingly complicated. There computed varying formulae. 7 Southern, those generally higher, article, Territory. higher impeded development movement neither comparative costs transportation service nor variations consists8 volume justified rates. also determined equalization dependent nonclass can solved establishing substantial 8 (5)(a) require charges reasonable. intraterritorial question violate provisions. 9 3(1) outlaws undue preferences advantages any region, district, Te Commissi relation results preference whole, receivers there, violation 3(1). acting pursuant authority 15(1) Act, prescribed nondiscriminatory cure exist, become simultaneously revised noted, ordered established. 10 time required formulate pending completion undertaking certain readjustments basis based could made—readjustments would reasonable, reduce minimum prejudices system. several freight-rate brought closer level constructed pattern scheme. many possible eliminated. accordingly rates9 at Southwestern, interterritorially reduced per cent subject qualifications important Terriroty increased cent, relevant our 262 I.C.C. 447, supplemental 264 41. 11 effective January 1, 1946. date, northern States, No. 343, filed their petition aside A statutory judge court convened temporary injunction issued preventing going effect. 38 208, 220, 28 47, 47. Governors six England (three whose successors office substituted 344) intervened side plaintiffs, others10 Appellants 345, including western railroads, seeking substantially relief 343. cases tried together, receiving additional evidence offered railroads. sustained respects, 65 F.Supp. 856, continued appeal Court.11 Judicial Code 210, 47a, 47a. 12 First. principal evil seq., aimed discrimination various manifestations. Louisville N.R. 282 740, 749, 750, 51 297, 300, 301, 75 672. Until 1935, prohibited 'person, company, firm, corporation, locality, description traffic.' 380. arose whether 'locality' included port insofar point origin destination gateway shipments made. held divided vote, contrary ruling not. Texas Pacific R. 289 627, 53 768, 77 1410. Thereafter Congress amended so extend prohibition include 'port, gateway, transit point.' 607. see Albany Port Ahnapie W.R. Co., 219 151. That 1935. In 1940 went further. By 5(b) Transportation 1940, 902, note, known Ramspeck Resolution, authorized directed institute points like purpose determining 'unjust respect themselves other, enter may appropriate removal exist * *.'12 extended discriminations adding words 'region, territory.'13 13 now asserted misunderstood duties amendments. said construed mandate mean identical mile mile, everywhere country, face standing practice (which legislative history amendments shows intended changed) allowed length haul, character terrain, density traffic, elements cost service. Thus argued runs afoul Ann Arbor 281 658, 50 444, 74 1098, construction joint resolution directing make determine unjust, unreasonable, unjustly discriminatory give advantage 'as localities parts country *.' 43 801, 802, 55. reling tha t mandate, condemned California eastern points. order holding purport change law left validity law. 14 proceed assumption Resolution changed substantive read took directive investigate correct violations deemed broadened amendment said: 15 'By antidiscrimination provisions section form advantage, prejudice disadvantage, regions, districts, viewed entities, purview act along inhibitions previously included. We mentioned proper proceeding. This means methods distributing general burden ratemaking cause, if upon consideration recognized applied light corrected.' p. 692. 16 From statement apparent enlarged scope section. indeed, stated 'it clear mind bring about greater equalization, harmony, different country.' Id. id. pp. 688—691. suggested factors outlawed evidenced condemnation 'undue disadvantage' and, since point.'14 is, moreover, even broad enough ban location shippers. contention unwarranted; pointed out recent years. action showing circumstances times. conclusion, therefore, warranted 17 need whether, amendment, 'locality,' permitted eradicate whatever doubt existed removed abundantly thought neglected present, eradicated.15 But, concedes, addition territory' respecting authorizing regard differing ongress, b y words, plain practices consider interests eliminate conditions. introduce standard 3(1); merely beneficiaries 18 Second. argued, however, concerning supported evidence. 19 shown following table. gives comparison (in cents 100 pounds) first-class scale territories: 20 Eastern Distance Scale 21 Percentage Rate 22 miles......... 57. --------- 23 miles........ 62. 79. 150 73. 96. 25 200 80. 112. 26 300 134. 27 400 miles....... 109. 156. 500 122. 173. 29 600 135. 189. 30 700 149. 206. 31 800 160. 222. 32 900 171. 235. 33 1,000 miles..... 182. 249. Average............... 137.7 TABLE CONTINUED WESTERN TRUNK-LINE SCALE Zone I II III 34 61 35 73 83 90 36 86 98 107 37 97 111 123 117 134 147 39 136 156 172 40 178 196 41 176 220 42 222 244 210 239 263 44 226 256 45 240 273 46 129.6 144.4 159.4 47 used bases formulating classes respective territories.16 48 tables compiled Government counsel show interritorial movements compared equal distances Territory: Disadvantage shipper First 52 From— To— Miles Nashville, Tenn.. Indianapolis, Ind..297 135 -------- 55 Ind.. Kent, Ohio.296.96 56 Knoxville, Columbus, Ohio.395.155 57 Baltimore, Md. Warren, Ohio.392.103 58 Birmingham, Ala.. Muncie, Ind..536.179 59 Pittsburgh, Pa. Rockford, Ill..538.128 60 Chattanooga, Ill..594 187 Philadelphia, Pa.. Toledo, Ohio.595.135 62 Atlanta, Ga. Ill..731.210 63 Danville, Ill. D. C..733 151 64 Macon, Ill..819.223 Trenton, N. Ill..819.163 66 68 69 70 71 Little Rock, Ark.Detroit,Mich.785.222 72 Point.Detroit, Mich 785 160 Oklahoma Okla.Cincinnati, Ohio.882 ------- Point.Cincinnati, 882 171 Sheveport, La Cleveland, Ohio.1,013 76 Offical 1,013 185 79 Dallas, Tex Pa.1,224.304 78 Point.Pittsburgh, Pa 1,224 207 80 81 82 84 85 Des Moines,Iowa Ohio.558.142.-------- Point.Toledo, Ohio.558 118 87 St. Paul, Minn South Bend, Ind.491.138 88 Pt.South Ind.491 89 Lincoln, nebr Evansville, Ind.612.169 Point.Evansville,Ind 612 125 Denver,Colo Cleveland,Ohio.1329.289 92 Officail Point.Cleveland.1,329 93 disadvantage who attempts market his product obvious. first Nashville pays pounds indianapolis, Indiana ships Indianapolis distance away (Kent, Ohio) Similar disadvantages suffered Shippers revealed comparable forth tables. 94 emphasized effects considered. miles though West lower nevertheless whole equivalent (first class) less-than-carload lots 2092 items Classification haul miles. 2076 classified $1.12. Of remaining 95, 78, 62, 45, 50, 45. I, 97, 82, 68, wit 53. 95 carload 213 items. 199 $1.12 14, 84, 78. 202 Additional illustrations too numerous detailed opinion. ones given representative rest how disparities aggravated when 96 rather voluminous record tendered effect concrete competitive situations inequalities. instances reviewed They attacked here grounds—that testified complaint showed paying yet maintaining positions prospering. do stop analyze discuss beyond saying specific support what plainly inferred figures summarized—that Territories, Commission; favor Trunk Line end matter. 'mere does render illegal 3.' Illinois Central 515, 521, 189, 192, 417. condemns 'any advantage' And, said, territory,' prevailing rules discrimination; reach 3. Hence must pre-existing obnoxious rule supra, page 524, 193, 417, follows: 'To difference practiced measured standard. cannot illegal, unless services, values, conditions.' 99 principle defended attacked. Third. challenged ground corresponding actually charged demanded say, southern competitor contended negatives existence facts Reliance placed circumstances. place, reference ratins briefly summarized above. example, less shipment commodity e.g., carries class, turn exacts granted Official. true dominant pattern. vast majority ratings, structure, benefit reliance second circumstance—that minor portion moves percentage requires answer. 101 reason non-use obsolete longer serve purposes designed. relatively small amount table indicates percentages carried 1942: To 102 103 trunk-line Official..............5.8.12.6.22.5 12.3 Southern................9.1.8.6.1 1.5 Southwestern..........1.5.1.2.2.4 2.0 Truck Line....3.1.6.1.13.0 .6 104 September, 3,000 exceptions. bulk exception rates.17 trend, according forces. 'shorn usefulness function.' 504. replete supporting seize claim largely paper source injury West; latter prejudiced flow proceeding; event case founded actual use disadvantageous 105 takes narrow view confronting start course regions assume originate. showing. Georgia Pennsylvania 324 439, 450, 716, 723, 1051, 'Discriminatory trade barriers.' Their impede industries prevent establishment ones, arrest difficult agricultural economy evolve industrial one. Non-discriminatory barrier offering equality designed afford. insure prospective se bt properly competitors. ability get ready move. planning ahead relying coherent structure reflecting factors. 106 If region sections, never proved barriers outlying regions. test, achieved purpose. attribute futility effort districts well shippers, anti-discrimination policy expressed So far remedy concerned, might, course, power grants full power, unduly preferential prejudicial,' 'just, reasonable.' over-all conclusion force harbor inequities fact amounts proves slight, constituted holds promise affording parity treatment warrant. substance was, main, moved later appropriateness challenged. sufficient note chiefly absence non-discriminatory features prejudicial 108 thus primarily concerned adequacies (cf. Florida 194, 119, 291; North Carolina 325 507, 1260, 1760; Mechling, 330 567, 894), whole. 109 Fourth. inquiry economic wide range. projudice think 110 obvious causal connection always susceptible conclusive proof. extent mathematical exactness. matter inference data. recognized, fewer East complex causes—that 'industrial due services climate, soil, natural resources, available water supplies gas coal, early settlements population antedated building railroads.' 619. notedthat revenues manufactures miscellaneous group 5.3 value manufactured goods resulting fraction figure. 'Nearness markets ship markets, fairly reasonably competitors, potent manufacturing plant. fact, relations manufacturer rates.' 619, 620. advance industrialization over labored, Some manifestations illustrated tables: Gainful Value added 112 Land area, Workers manufacture, 1949 1930 products, Official.............13.5.51.1.67.8 71.4 Southern.............13.3.16.8.10 9.4 line...20.9.13.5.9.9 8.7 Southwestern.........14.2.9.3.4.5 3.3 Mountain Pacific.....38.1.9.3.7.8 7.2 Total..............100.0.100.0.100.0 100.0 113 Another measure growth number gainful workers Actual increase Increase total products manufacture 114 1910 1909 115 Official...........6,230,273.$23,561,190,000 $11,284,350,000 116 Southern.............652,755.4,299,396,000 1,662,336,000 Line...904,986.3,117,079,000 Southwestern.......1,011,151.1,942,378,000 580,388,000 119 Pacific...1,863,419.3,320,930,000 1,341,785,000 120 1849 chart page. 121 maintained commanding lead spite increases elsewhere, especially South. Similarly, period 1929 wage earners entire decreased cent; while cent. period, values South, gain 122 fully occupied 70.5 69.4 nation's total, 11.9 activities rapidly reverse industries. stress heavily), comparisons particularly revealing disparity computed. remains lagged lags behind average annual dollar income person employed $1,988; $940; $1,177; Trunk-Line, $1,411. engaged te tates extractive has, high concentration steel copper iron ore reserves, reserves metallic copper. furnish raw materials buy finished back. machinery materials, sources, consumer luxuries, necessities. Yet suffer handicaps markets.18 suffice. Cottonseed oil commodity. Class cottonseed oleomargarine, 124 reply, reflect justify favorable people roads. unfavorable roads operate. heavy preponderance resource energy supply Territory—40 bituminous semi-bituminous coal supply, practically anthracite resources; electric originates there. logical metals coal. gross crops livestock highest amounting total. data inherent enjoy. sought equalize advantages, planning, arrange relocate industries, redistribution population, ways offset program Diffenbaugh, 42, 46, 22, 24, 83, discrimination, 'does attempt fortune, opportunities, abilities.' 417; 637, 638, 771, 772, revert come say makes strong alone responsible retarded West, played part. How determined, irresistible. conditions, maintenance preserves man-made imposed country. Such reconciled 1940. 126 Fifth. peculiar class-rate structures. reaching inquired furnishing patterns scales.19 study submitted staff. analysis exactly approximating districts: Eastern, Western. district further Pocahontas region. plus territory.20 study, assigned geographical areas; expenses individual groups, being associated units car-miles, ton-miles, cars originated terminated; unit obtained dividing aggregate units; built up costs. Costs put classes—(1) out-of-pocket variable vary kind handled; (2) constant fixed capable assignment kinds costs21 normally borne types proportion pay. details intricate relate 571—592. allowances return—computed 3/4 cent—were return recommended furnished Bureau Valuation. principally he c ent figure, noting figure close earned year viz., 1939. 127 summarize very briefly, broken down translated performing multiplied process repeated series Once computed, compared. 1939, supplementary studies periods 1930—1939, inclusive, 1937 1941, 1941. showed, hauling weight loads type car relative handling consist consists compared, equipment—box, hopper, gondola, tank, stock, flat, refrigerator cars. hauled equipment. Standard taken. experienced equipment aim adjustment Likewise, territory, Comparisons (for moved, equipment, loads) carrying respectively 128 When came computations excluded represented operation railroads—Chesapeake Ohio, Norfolk Western, Virginia—about this, exclusio Pocaho ntas considered desirable, low tonnage.22 129 attached originated, approximated Relative territorial23 (fully distributed) box gondola 130 [U.S. average=100] 131 Box Gondola hopper Assumed 132 ton load 133 (excl. Pocahontas) foregoing 100, miles, distributed little East, excluded, exceed stock-car, car, tank flat traffic. Based (Pocahontas excluded) stock 137 following:24 138 Identical 139 140 141 below excluding Pocahontas. latter. 142 Territorial net ton-mile (1930-1939) adjusted On hand, exceeded 143 prepared. Soth assumed taken, East. haul: Out pocket constant1pocket constant1 Constant 144 (1939) deficit, best showing, worst. table: Revenues Costs1 Deficit 145 (excl.) $107,155,756 $133,308,907 $26,153,151 146 46,635,725 47,451,184 815,459 88,797,938 123,146,215 34,348,277 Out-of-pocket solely collection delivery. 148 passenger deficits. frequently as, than, received subsequent served proportionately somewhat larger apparently density, maximum capacity influence reducing West. hand (proportionately West) illustrative noted 1941 ton-miles Pocahontas, decreases excess 149 significant excluded. terminal account 1937—1941, East.25 rendering less.26 obtain revenue-producing rate-bearing characteristics compose i.e., volumes distribution tons groups (including Percent percent 152 tonn- age Group I: Products 153 agriculture 6.57 8.73 6.07 8.03 10.8 17.73 18.88 23.7 II: Animals 154 1.64 4.72 1.47 4.23 1.45 3.51 3.00 6.3 III: 155 mines 58.06 34.85 61.53 40.24 46.39 23.65 36.64 13.98 IV: forests 2.43 2.74 2.69 11.4 9.45 10.59 9.31 V: Manufactures 157 29.57 41.41 26.89 37.75 27.21 34.66 29.3839.94 Total 158 98.27 92.45 98.39 92.94 97.25 89.00 98.49 93.23 All less-carload 159 1.73 7.55 1.61 7.06 2.75 11.00 1.51 6.77 tra ffic 161 Item 162 agriculture. 10.7 2.7 15.8 26.8 163 3.8 .5 2.2 4.5 mines. 49.3. 87.4 40.8 20.1 forests. 3.1 1.6 11.6 13.6 164 33.1 7.8 29.6 35.0 165 Grand carload. contribution (carload lots) appears 166 Unit 167 168 Agriculture. 4.2 18.0 169 products. 1.1 3.4 4.3 170 38.0. 73.4 21.2 13.9 29.7 2.8 8.1 5.7 53.5 19.6 50.2 55.7 51.1 173 174 large across therefore becomes respects balance, striking similarity concerned. embraces ton-mile, producedby ar e quite other—particularly 175 qualities, characteristics, 'the governing factor' 694. appraised meaning warrant Id., 695. vigorously challenged, 177 consists, heavier produces carry expenses. Findings relied roads' high-grade affords roads.27 undisputed disprove facts, traffic,28 merged final figures. different. distributions necessary. statistics that, diversity disappears Then, also, fall siilar th yields choice groupings specialized economics peculiarly competent pass. Its judgment expert entitled weight. disturb invading province reserved administrative body. 179 integrity assumed,29 facts. operating ratios, shortly refer, corroborate reached amply supported—a challenge 180 For, seen, run less. 181 justified. us conclusion. 182 finding, argument No prove fair differences. 183 start, premise economics, one, apprais al task experts, involve estimates assumptions unlike calculus, right wrong. are, guides judgment. significance appraisal. 184 highly conclusive. case: 'Discretion flexibility limits attended Neither control contours fix scales. Other aspects making.' 693. 186 appraising proceeded likely prevail post-war period. started margin slight accurately figures, if, fact,30 above reasons already stated. before financial condition roads, discussed. analyses lean years, railway book investment, cash, supplies: 188 1936 1938 1942 1943 189 district. 2.67 2.27 1.26 2.34 2.66 3.62 4.9 4.32 190 2.52 2.35 1.9 2.5 2.57 4.24 6.51 5.73 191 7.58 6.61 4.54 5.89 6.21 6.67 5.29 5.22 192 1.88 1.71 1.09 1.65 2.06 3.36 5.8 193 ratios—the absorbed attributed freight.31 194 195 64.95 67.86 68.98 64.88 63.92 63.04 61.93 66.23 65.38 67.77 66.73 64.99 65.34 61.07 56.84 59.41 197 47.04 50.63 53.59 50.71 49.77 48.12 49.62.... 52.86 198 65.07 66.93 67.13 65.01 63.63 60.98 55.79 59.47 'Making allowance decline war peak decade preceding earnings respondents low, nevertheless, prospects immediate future foreseen, conclude respondents.' 63—64. intrastateclass orders. 'cannot consistently sub-normal 64. 201 fallen disuse. respects. alone, dealing smaller 'The needs respondents. carriers' reports years 1942, 1943, original 1944, clearly report region.' 64, 65. 203 single payment unusually 204 cannot, treat earning carriers, return, estimate future, nature presently considerations counterbalance outweigh appraisal experts. err. error, any, egregious judicial review. 205 eliminated inequalities adequate 206 ratios overlooks prevails urged enjoy, disappear. assumes constancy mathematically demonstrated. discrimination—a prejudicies orderto contrary. protect revision easy thrive. flies Sixth. An challenging reduction lots. twofold—first, traffic; second, confiscatory. 208 referred seen East; allocated deficit possibly bearing share transportation; apart wartime loading, yielding, average, traffic32 delivery, Southern. 697. 209 unchanged shipping quantities carloads' materially affected. 66. Less-than-carload tonnage, moves, intrastate voluntarily circumstances, advert, reinforce phase complete revision. removing it. eliminating law, collateral create discriminations. permissible alone. affected Without readjustment prejudiced. With structure—intrastate interstate—would narly ratio nalized. not, answer confiscation. treatment. 211 rehearing raised confiscation point. doing rested Court, presented objection court. 212 This, Baltimore 298 349, 363, 371, 372, 797, 805, 809, 1209, refused receive proffered Here, offered; announced filed, tender bolster Manufacturers 246 457, 489, 490, 383, 392, 393, 831, Joseph Stock Yards 38, 53, 54, 720, 726, 727, 1033, exists, pertinent issues instance conducting trial de novo. enough. complicated involved. determination allocation mere exercise. Like accounting, involves exercise born intimate knowledge activity subtle uninitiated.33 impact enterprise thrive know managerial controls. reasons, Board Trade Kansas Mo. 314 534, 546, 366, 432: essentially empiric. stuff fluid changing—the resultant valued weighed. delegated enforcement permanent body responsive dynamic problems.' 214 necessary pass issue confiscation, remanded preliminary bear question. appear. 215 explained deficits amounted Since loading shipments, attributable loadings postwar levels. date bears past failure 216 elaborate (based introduced Court) irrespective paid contend reliable projecting war, once soon Office Defense ten-ton revoked. included, increase. 217 delivery loss damage payments. computation 1946 level. costs34 classrate revenues, provided made: (1) charge elimination exception, commodity, rates; (3) load; (4) 2.47 218 ascertain exact That, record. Hence, spoken word, believed constitutional Dakota, 236 585, 429, 735, L.R.A.1917F, 1148, Ann.Cas.1916A, 1; cf. Federal Power Hope Natural Gas 320 591, 602, 281, 288, 333, produced phase. difficulty treating way. carrier. Heavy loadings, speed service, rati empty cars, claims, substitution auxiliary truck Certainly compensate expensive way illuminate provide terms measuring compensatory called play. hereafter, issuance orders, nationwide prevented When, go effect, chargeable presumably probably least lessened, eliminated, Though case, speculative decide precise be. consequence structure. admonished 'to careful promptly possible, level.' 66—67. untouched justification leaving stage proceedings apparent. follow propose obviate likewise open program, part, 221 Where confiscatory await operations it, despite grave doubts consequences. City Knoxville Water 17, 18, 148, 153, 154, 371. Willcox Consolidated 19, 55, 200, 201, 382, L.R.A.,N.S., 1134, Ann.Cas. 1034; Darnell Edwards, 564, 570, 701, 703, 1317; Brush Electric Galveston, 443, 446, 606, 607, 1076; 69, 733, 1033. equally impelling straight jacket. onless-than- incident indicated followed overall problem, compensatory. flux, comprehensive drawn uncertain issue. supra. protected overruled suit legality lowest reaches meet 1317. Seventh. 650, 776, 777, 1410, afforded 'abate raising rate, lowering altering both.' qualified acts 15(1). 39. 1(5)(a) property 'shall thereof declared unlawful.' 1(4). finds fare, charge' carrier 'what reasonable' rate. 15(3). 'unjustly prejudicial' refer enables direct 15, alternative. Youngstown Sheet Tube 295 476, 822, 1553. situation, commerce involved, Public Service 283 765, 1397, 223 'A scource discrimination—must effectively participate correction them.' Jersey 257 247, 259, 80, 217, participation connecting partners participated causes locality similarly situated.' applies since, 224 reply area control, joinly sustain action. Louis, 245 136, 49, 149; Chicago I. L.R. 270 287, 226, 590. Those hold powerless perform. 257, establish, routes regulations, corrects prescribing practice. where, here, proceeds hands tied relationship controlled fell short goal. believe impotent. 225 633, 770, unreasonableness 1. pertains bringing moved. why tackle evils none. step time. Cf. Wabash 321 403, 752, 827. approximation result, awaiting justifying partial commencing tackled 227 Eighth. strenuously urge unauthorized portions 228 unlwfulness character. 700, 704, 705; prelimiary findin gs 229 unreasonably either noncompensatory otherwise threaten harmful efficiency question, finding. 230 passed reasonableness, might taken.35 P. P.R. 294 499, 506, 462, 465, 1023. presents relationships, effected zone forbidden Brandeis 'inherently just. Both lie reasonableness prejudice.' adjust upwards downwards, zone, unlimited; see, acted 231 empowered 'just minimum, existing, premised grounds 'lower waterrail route, tend disrupt destroy differentials producing destinations.' Page 479 U.S., 823 S.Ct., adjacent saying, reasonableness.' 480 824 Scandrett 995, 996, affirmed 312 661, 736, 1108, proposed 'compensatory, considering costs' destructive competition rail, water, motor carriers. order. Jefferson Island Salt Min. .2d 315. 232 cases, sure, recognize keep balance ruinous wars them. objectives 1920, seq. H.R.Rep.No.456, 66th Cong., 1st Sess., 19. Valley Barge 292 282, 692, 1260. occupies place substitute lawful non-compensatory practices. good illustration. doubtful warranted. non-compensatory, preferred East—a providing rational 233 compensatory, unlimited. 15a(2) provides: 234 'In consideration, factors, prescribed; need, public interest, efficient consistent service; enable honest, economical, management service.' 235 balancing weighing delicate task. 'Whether regarded committed body, appreciation affecting Swayne Hoyt, Ltd. 304, 478, 481, 659. Heights Trucking 310 344, 352, 353, 931, 935, 936, 1243; Barringer 319 6, 7, 729, 967, 970, 971, 1171. assume, former permissible, years36 favored ratios. reviewed, I..C. 61, . Revenue needs, germane written 15; totality Should fail unwarranted, completed current opposed decade. determine; doubts, usurp function 237 Ninth. After issued, rates.37 rendered unenforcible. increase, greatly proceedings; Territory38 undo framed; contemplated. 238 stale. 322 503, 1129, 1135, 1420; Pierce Auto Freight Lines, 327 35, S.C t. 687, repeat, recently superimposed exist. inconsistent decision case. earlier, dicate evidence, demand granting emphasizes distinction impairs prevailed stands Nor inconsistency proceedings. Whether awaits ready.39 staying vacated dismissing petitions affirmed. Affirmed. 241 FRANKFURTER, dissenting. 242 involving narrower day, struck want findings. 894, 902. Although explicit findings, inadequate 'unsifted averages.' clarity definiteness order, thereby afford assured concluding duly exercised allowable underlying ultimate issues. 293 454, 268, 587; Atchison, Topeka Santa Fe 748, 1382; Carriers Corporation, 315 475, 722, 971; Yonkers 685, 327, 400; Eastern-Central Motor Association 668; Alabama 535, 1274, 1779. Not having us. asked readjusts barring Rockies—an changes inter-territorially. am unmindful confronted empiric rate-making, limited process, accorded conclusions. 432. outcome legal bound cut deeply scale, asking ask definite indispensable 243 inter-territorial complained of, confront Commission: Is discrimination? abated? discrimination—i.e., harmonize territories—in disregard readjusted entirety sections articulated treated disjointedly. teaching Abilene Cotton Oil 426, 350, 553, 1075, Intermountain Cases (United Co.), 986, 1408—the controlling construing Act. remoe discrimi nation remedies fit requirement operate raise leval importance Unreasonable rates—whether low—even freight, discharging informing questions isolation, inequality—the essence discrimination—cannot dealt mechanically taking off Procrustean bed symbol equality. inequality unequals. reveal happened putting 10% beget adjustment. suggesting dig inexplicit, argumentative leave decrease conducive administration consonant discharge Court's task, indications giving consisting nearly 13,000 spread volumes, led pages. acknowledged Said court: so-called primary proved, significance, consequent unsupported evidence.' 873. may, abstract comparison, line hardly proof decreased. unreasonable. unfairness concurring dissenting views Report uncertainty regarding 247 show, nebulous fashion, represent apportionment totals, estimates; judgment; direct, movements. These, thefacts. omits n stud ies estimated, 458 sequences wholly partly estimated. fails disclose out, differs widely theoretical produced, things.' (Commissioner Porter, dissenting, 709, 717; Commissioner Barnard, 725.) 248 According Commissioners 70. needle haystack. ought dubious foundations. 249 mechanical abstractly tentative generalize typical taken application. did, sustained, Divisions Case (Akron, C. Y.R. States), 261 184, 270, 605. 15% throughfreight 'which character, ample quantity, division carrier.' 196, 197, 275, litigation, hearing submitted, made, opportunities apply modifications situations, record, reflected situation. gets impression outside attributable, fundamentally, laudable desire secure prepared classification, hope exert pressure agree conditional order—conditioned agreement realization experience guide, Greek kalends. 250 What Milwaukee, Paul 510, 511, 467, 1023, far-reaching consequences review, enhanced applicability 'We understood lurk phrases sentences suggestive meaning. gains places commission looked (initiated carrier) something disruptive *. siad simplicity clearness halting ripens certitude. spell argue, choose betwee conflicti ng inferences. Something requisite quasi jurisdictional agency. Beaumont, S.L. Ry. 74, 86, (6), 221; (State of) 215, (125), 291. ours wrong.' 251 Administrative experts antennae possessed courts reviewing feel justifiable imbalance shift rates—Official elsewhere 10%. coincidence unillumined faith 252 decree returned 253 JACKSON, 254 find extraordinary decision. phases—that Eighth rightfully exercised, add Northeastern goes prosperous insolvent alike, claimed assessment sense compensation concede adequately compensated before. really surtax, Brandeis, J., 605, handicapping divide cost. surcharge bundens fifty consuming resides estimated $15,000,000 bills. adds muh r evenues needed 255 advanced sustaining Briefly generally, this: Mile sparsely settled denser Northeast. Why, then, alleged West? ten proceeding, decrease. equalizing costly anywhere need. approval entirely theory 'discrimination.' render. Discrimination heretofore unequal exacted vice versa. Northeast frankly advocates concept resources reshape social, perhaps political life heart's desire. says brief us: 'There happens richest populated. converted vicinity, allowing conversion, transport considerable distances. Necessarily minerals deposits occur, suitable soil climate. system production centers ports export. freely cheaply carried, be, better economy. 258 sound stable indicated, accord assuming induce millions migrate, wise possible. one-crop restore land sources livelihood. 259 development, economy, unfairly unlawfully possibility change.' 260 TheCourt's en tire discussion feature acceptance Government's position last fail. imposition penalize able cheaper stood: 'adequate 15a(2), 912, 15a(2). intimated, deprive consumers reside policy. attention earnest complaints mistreated merits. True, provision prohibiting list persons things preferred. 5(a), conceded Senator Wheeler, Chairman Committee Senate, 'make toward rates,' Cong.Rec. 6072, accomplish attempted. colloquy occurred: 'Mr. Frazier. expectation committee (now Act) equalized territories? Wheeler. wondering intention was. 265 reasons. mountains trains plains train. depend intensity stretches densely plentiful busses, trucks, kind. However, seems me my corrected. 266 Dakota wheat year, volume, level, beneficial Our afraid special 267 help Senator's harm 268 equalized, 269 bill equalized. disabuse minds fear lose have. *' (84 5890.) confided regulatory reshaping 67, S.Ct tariff published destroying diverting aid unlawful; obviously, lawfully do, compel.' apge I.C.C., 433, 283; 83; 271 accepted Stoves, Ranges, Boilers, etc., 59, 'It locations,' Eastman explicit, 74: 272 'However, undeniable, think, manufacturers North, commercially commercial useful rivals, overhead shrouds simple levy surtax Northeast, discussions affirmations propositions ever doubt. testing order? object all. changed. Instead, boost ordered, inequality, injustice illegality illegalities corrected? extensive them? 274 Perhaps incomprehensible 'revenue problem.' admitted fatal 'If taken.' Can label affixed invalid? Because professes indefinitely deferred, incidentally therefor? call case' else, denominate problem' style someting nothing else. question; knocks revenues; lays revenues. admittedly invalid claim. valid entitling revenue. 'we heard inclined suspect hoped impartial exhaustive subject. description. student puzzled citation earns half instruction contrast today's attitude 'unsifted' averages deference expertise 275 unaware voice dissent 255, 276 decided, men life, degree, proclaimed conceive thesis 'Economic Problem 1', because, things, unfair producers burdened While, birth issue, representatives cry supposed oppression, variously called, risen defense 277 'Under influenced emotional reactions, play decision.' 278 succession fiat carriage inhabitants regardless causes. 279 observation Mahaffie accurate: 280 '* varied mistake try compel necessarily done painful costly. predicated calculated, rigid mileage. seem equitable entail radical readjustments. incur expense (262 708.) FRANKFURTER joins Commodities grouped classes, pounds. Frequently depending method packaging. percentage, multiple, first-class. lists containing descriptions assigned, ratings. 465—472. schedule price ascertaining rating, hau 515—519. rates: Exception transfer regularly class. Commodity commodities. rating; Column regular 562. subdivisions Sourthern Mountain-Pacifie Classification, 442; Classifications, Investigation, 513; 203; Rates, 314. 314, 156, 357; 513, 567; 494, 57, 595, 312, 119; Cases, 203, 601. 526 column Alabama, Florida, Georgia, Louisiana, Mississippi, Minnesota, Nebraska, Carolina, Tennessee, Commissions Conference, Southeastern Railroad Unilities Commissioners. denied dissolve injunction. 328 824, 1355. Rules Civil Procedure, 62(g), 23c. advised (the cases) mandate. 689. reads: (part) make, give, person, association, port, point, whatsoever; whatsoever: Provided, paragraph prejudice, description.' destination. Wheeler floor Senate 3(1): previous 'discrimination' simply 'locality, point' specifying felt broadening language excuse, expressly discriminate structures.' Cong.Rec., 5889. 2, stated, 695, 696: 'Although grown Southwest lesser decade, vastly diversification official created permit free articles, intrateritorial freely, delays basis. greatest reach, surplus sell. location, subjected competitors situation reacts tends restrict expansion extent, plants territories.' 597, outlays exclusively pertain apportioned. apportionment, conclusions cost, account.' boundaries, combinations definitions data, S. Doc. 63, 78th Sess. sum pro rata 578. exclusion Kentucky General Increases, 657. separately small. Weighting handled Terminal weighted terminated. Line-haul higher; same. highe r; higher. found, way; forest brackets; 36.91 (excluding 47.40 68.82 contrasted 20.88 tonnage 28.06 60.66 respectively. (68.82 cent) (60.66 traffic) almost times animals Pocahontas), 63.03 eastern, 28.51 58.73 7.52 33.31 49.85 Pocahontas). 3,392,964 Region.......... 7,519,840 District........... 1,358,041 developed Aggregate expenses, 4- Ratio (percent) reported applying Eastern. $1,426,950,260. $1,451,484,949 98.3 183,076,590. 185,387,990 98.8 450,448,155. 449,001,663 100.3 1,382,549,982. 1,395,188,845 99.1 3,443,024,987 3,481,063,447 98.9 'Judging table, errors studies, overstating understating appreciable degree.' 587. twelve months ended October 31, 1946, White, Analysis Operations (1946) seq.; Locklin, Economics (1938) 581; Inland (1933) 500—502. handled. Hamilton, Cost Price, Law Contemp. Prob., 321, 329: 'Now hardy soul, equipped calculating machine, essays adventure services. feat technically impossible, judgments empirical overhead. calculation transporting Lampassas, Kankakee, Illinois, stubborn imputation.' 13(4), yield devoted transportation. supra; 290 70, 28, 181; Ex parte 162, 37, infra. time, stayed corroborates 'On July considerably railroads' revenue, district.' 548. District.................... Region................... 6.26 Region..................... 4.01 3.31 December 537. Rates articles grouping Miscellaneous, any-quantity 22.5 Express 163, 369. provision: 'That outstanding unexpired hereby modified herein established; suspend supersede modify entered Docket 28300, 37.

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