Document: 357 U.S. 155 78 S.Ct. 1097 2 L.Ed.2d 1228 The UNITED STATES, Petitioner,v.CENTRAL EUREKA MINING COMPANY (a Corporation), Alaska-Pacific Consolidated Mining Company, Idaho Maryland Mines Corporation, Homestake Bald Mountain Ermont Mines, Inc. No. 29. Argued Jan. 7, 1958. Decided June 16, Rehearing Denied Oct. 13, See 79 9. Mr. George Cochran Doub, Washington, D.C., for the petitioner. Edward W. Bourne, New York City, respondents. Justice BURTON belivered opinion of Court. 1 In interest national defense, War Production Board, in 1942, issued its Limitation Order L—2081 ordering nonessential gold mines to close down. This litigation was instituted Court Claims recover compensation from United States alleged taking, under such order, respondents' rights operate their respective mines. Two issues are now presented. First, whether Act July 14, 1952,2 granting jurisdiction entertain claims arising out L—208, a mandate that court award whatever losses were suffered as result or it amounted merely waiver by defenses based on passage time. For reasons hereafter stated, we hold latter. We, therefore, reach second question—whether L—208 constituted taking private property public use within meaning Fifth Amendment.3 did not. Early 1941, became apparent those charge Nation's defense mobilization faced critical shortage nonferrous metals, notably copper, and comparable machinery supplies produce them. Responsive this situation, Office Management (OPM) successor, Board (WPB), series Preference Orders. These gave producers mining relatively high priorities acquisition needed materials. They also mines, which deemed important standpoint essential civilian needs, priority machinery. Gold classified eventually relegated lowest rating. orders prevented operated respondents acquiring new so that, March reduced using only they had hand. 3 Soon thereafter, severe skilled labor developed metal due part expanding need depletion manpower military draft attraction higher wages paid other industries. It reservoir remained Pressure brought bear WPB down with expectation many miners would thus be attracted 4 As conservation program, WPB, October 8, L—2084 before us. That order addressed exclusively industry nonessential. directed each operator mine take steps immediately operations and, after seven days, not acquire, consume any material equipment development work. 60 all should cease, excepting minimum activity necessary maintain buildings, equipment, keep workings safe accessible. Applications permitted meet special needs several exceptions made authority. Small defined exempted order. physical possession require owners dispose equipment. 5 On November 19, amended prohibit disposition certain types without permission an officer WPB. Each required submit itemized list held inventory indicate items he willing sell rent.5 August 31, 1943, further permit approval persons holding preference ratings.6 amended, effect until revoked 30, 1945.7 6 first legal action against Government 1950. there complainant's right during life demurred, present position lawful regulation short relevant war effort. sustained demurrer, damages compensable. Oro Fina Inc., v. States, 92 F.Supp. 1016, 118 Ct.Cl. 18. Accord, Co. 120 307. Somewhat later, instant Corporation. Relying decision, again demurred. time, however, overruled demurrer ground complaint contained detailed allegations which, if true, demonstrated arbitrary rational connection basis, authorized commissioner hear case similar ones, solely determine Government's liability, leaving determination amount recovery, any, proceedings. Corp. U.S., 104 576, 122 670.8 heard cases filed his report. Claims, two judges dissenting, six us entitled just compensation. 138 281, 310, 312, 134 1, 53, 56.9 A trial denied. 146 476, 130. We granted petition certiorari consider constitutional issue 352 964, 77 354, 320. 7 Before reaching merits, face suggestion Special Jurisdictional 1952, 66 Stat. 605, more than waive statute limitations laches. Respondents contend congressional established loss was, fact, caused L—208. conclude language legislative history demonstrate no entire reads follows: 8 'Be enacted Senate House Representatives America Congress assembled, be, hereby is, given hear, determine, render judgment, notwithstanding limitations, laches, lapse claim owner placer operation incurred allegedly because closing curtailment prevention restrictions imposed effective thereof: Provided, actions shall one year date becomes effective.' 9 contains prejudging validity merits. hand, expressly permits filing actions, Act, 'notwithstanding time * *.' (Emphasis supplied.) motivating purpose is indicated fact recently run these case, upheld pleadings 670. explained follows Report recommending bill: 10 'At claimants who may have good adjudication does prosecute running limitations. Many ruling undoubtedly felt file useless allowed them.' H.R.Rep.No. 2220, 82d Cong., 2d Sess. 2. also, S.Rep.No. 1605, 11 discloses repeated failures induce act upon merits claims.10 view history, hard believe successful taken place, did, opposition11 included concession liability. above-quoted Committee Report, readily understood extension, year, claim, determined Claims. reasons, fairly interpreted amounting 12 Turning clear record occupy, use, manner connected Cf. Pewee Coal Co., 341 114, 71 670, 95 L.Ed. 809. All sought cessation consumption uses. mere form express prohibition rather scarce convert into 'taking' Obviously, prohibited, make form, direction shows expected release substantial amounts industries, experienced transfer whose product gravely supply. encourage voluntary real-location resources unessential essential. 13 effort.12 arbitrary, distinction law between where consciously exercises power use. base assertion arbitrariness circumstances. example, urge preamble recited sole If alone purpose, contend, already been achieved obtaining equipment—it prohibited previously acquired. users reasonable course action. could properly rely profit motive liquidate inventories, thought people interested purchasing used probably event, L 208 soon sales users.13 14 dominant, sole, consideration issuance authority compel dominating work but support finding impact situation. government service copper miners. available chose move. Although indicates number transferred disappointingly small, yet some others moved wartime services. careful official subject well-considered decision accomplish proper result. There officials responsible motivated anything appropriate concern 15 Thus reasoned existing circumstances, unrestricted wasteful must temporarily suspended. Traditionally, treated particular governmental restriction being question turning circumstances case. Pennsylvania Mahon, 260 393, 416, 43 158, 160, 67 322. doing so, recognized can diminish value constitute taking. E.g., Kansas City Life Ins. 339 799, 70 885, 94 1277; Causby, 328 256, 1062, 90 1206. However, deprives most profitable necessarily enough establish owner's Mugler State Kansas, 123 623, 664, 668, 669, 273, 298, 300, 301, 31 205. context war, reluctant find degree saying requires resulting income. Hamilton Kentucky Distilleries & Warehouse 251 146, 40 106, 64 194; Jacob Ruppert, Caffey, 264, 141, 260; Bowles Willingham, 321 503, 641, 88 892; see Caltex (Philippines), 344 149, 73 200, 97 157. plain. War, particularly modern times, demands strict nearly resources. makes otherwise insufferable. But economic restrictions, temporary character, insignificant when compared widespread uncompensated freedom traditionally demands. 16 do here placed justify departure trend above decisions. sought, regulation, conserve limited supply hoped divert Both purposes objectives; both matters extent disposal men. Accordingly, since damage incidental reasonably effort, judgment reversed. 17 Reversed. 18 FRANKFURTER, dissenting. 19 resulted various monetary relief suits checkered career court, consequence, passed remedial legislation has served continued recover. controversy appreciation legislation, understanding background meaning, suit 20 From shortly our entry Second World country subjected increasingly stringent operations. Because regarded non-essential industry, restricted in, then virtually excluded from, machinery, spare parts producing Finally, apparently attempt (as recited) materials, Fed.Reg. 7992 7993, id., at 9613—9614, 12007—12008, ordered operators quantities strategic materials cease sixty days. 1945, 8110. 21 1950, affected shutdown asserting 'arbitrarily law' therefore Amendment claimant while six-year (28 U.S.C. § 2501, 28 U.S.C.A., 2501) begin rescinded, dismissed failure state Amendment. Consol. Approximately month end statutory period, three contending virtue violation complaints run) laid considerably extenstive factual basis contentions unauthorized 670,1 denied motion dismiss suits. distinguished facts unconstitutionality, contrast Maryland, sufficient rebut presumption constitutionality attaching rehearing months later. Ibid. 22 Within weeks Senator McCarran Nevada introduced bill (S. 3195, Sess.) grant jurisdiction, 98 Cong.Rec. 5394. After bill, Judiciary May 28, recommended 'favorable measure Senate' report, S.Rep. '(i)n situation fully appreciated,' p. 2, set forth large portions earlier report (on H.R. 4393 79th Congress) setting great detail following contentions: 23 '1. unique productive industry. 24 '2. Issuance administrative error, statistical misconception, may, furthermore, illegal. 25 '3. net results accomplishing avowed primary channeling 'essential' negligible. 26 '4. gold-mining irreparable.' Id., 3. 27 conclusion stated (id., 7) 'The committee carefully studied relating arose proclamation convinced dealt fashion occasioned ample evidence least done allow day recompense seem justified.' 29 debate 6322. Representatives, referred considered Judiciary, (H.R.Rep.No. substantially identical 8931, signed President 1952. provides 30 'That 605. Thereupon consolidated involved plaintiffs proceeded alternative States: first, them compensation; second, created liability provable closing. (two dissenting) decided compensable plaintiffs' terms: 'In unnecessary discuss relative jurisdictional 605.' 1956, 53. 32 Since decide cannot disposed non-constitutional frivolous met questions requiring construction Constitution reached. reason Claims' heed fundamental rule surmised. initiated framed terms. injected having handed decisions become preoccupied with, oriented toward, aspects claims. Understandable though approach govern ultimate administration system, scope call 33 course, eliminates bar substantively establishes congressionally acknowledged recovery. face, susceptible either interpretation. statute—i.e., type year—is consistent ends. authorize availability defense. And recognition what regard outright appropriation claimants: often remain (such here, liability-creating action) quite wishes judicially funds withdrawn Treasury benefit claimants. 34 sheds little light canvass Act. At outset noted attending relevance admissible statute's consent calendar reflect weight less argued summary docket. suppose receive study committees reports it. Here even draw indisputable much recommendations; grievances continually pressed L—208,2 problem members thoroughly conversant. 35 Nothing clearer reading committees' unjustly Government. ours justified thinking so. quote extensively casting serious doubt propriety legality detailing seriousness industry's losses. To sure, drawn condemnation competing interpretations statute. imply conviction pay order; serve nothing justification making exception Specific statements compound ambiguity. prospective claimants, discouraged failed assert discovering too late (through decision) might recovered. 2; H.R.Rep.No.2220, conclusions 'the order' justified,' S.Rep.No.1605, supra, 7; provide inferring intended recovery exist. most, then, said concerning inconclusive. 36 equivocal ambiguous, another line inquiry pursued. statutes Congress, construed An examination tends corroborate wording clue ascertainable meaning. phrase 'to claim,' approximate equivalent, common statutes, including defenses. See, e.g., Sept. 25, 1032, California 119 174, 177, 127 624, 628; 15, 1946, 1227, Zephyr Aircraft 990, 997, 523, 551; cf. Mille Lac Band Chippewas, 229 498, 500, 811, 812, 57 1299. Again, significant respects create none existed before, see, 1935, 49 2078, Stubbs 86 152; 1938, 52 1399, Creech 102 forum principles, 11, 1948, 62 1350, Hempstead 572, 291. 37 clarified employing qualifying phrases clauses. absence qualifications found interpretation specific waived 1952), occasion pains emphasize extend waiver. Aug. 24, 1949, 63 1169, Breinig Bros., 110 269, 124 645; 18, 1951, 65 A124, Watson 425, 135 145. Moreover, uncommon specifically 'an inference liability' A206, A207, Griffith 278; A191, Booth 140 —-, 235. 38 Of significance Congress' limit application statute, employ techniques intention might, virtual confession 1929, 45 2345, Garrett 304. 1928, 2001, Alcock 74 308. Or done, spell precisely task litigated. A103, Kramer 149 152, 137 537; 5, County Com'rs 105 995, 39 seeking turn backgrounds. has, able admit emergency necessitated hasty experimental disproportionate hardships, Nolan Bros. 41, 89 (Act 23, 1937, 50 533); Mansfield 2148). Significance attached wrongful. Hawkins 96 357, 369—370 Feb. 1936, 2217) (statement 'unmoral, inequitable, unjust'). Contrariwise, clear, approached caution, page 573, 305; asserted strictly construed. pages 178—179, 629—630; Cumming, 130 452, 455, 583, 584, 1029. Thus, leaves very balance. answer easy excuse passing over deciding questions. startling doctrine construe avoid difficult well obviously interpreting these, possessed specialized competence. When alternatives initial final possibility review Court, choice seems clear. I send back authoritative 41 HARLAN, 42 dissent accomplished views normal regulatory allocate war. holds character actually designed cause shift control allocation supply, purported do. holding, emphasizes 'manpower' objective simply am unable reconcile Court's findings Finding 46 states reallocation forced closure dominant L—208.' (Italics reflected struck finding, submitted hearing officer, sentences: 44 'Another fulfillment requirements maintenance 'Both objectives (the 'manpower') pursuant order.' findings, concluded opinion: 47 'From itself (L—208) surrounding promulgation, deprive properties.' 48 conclusions, me convincingly supported record, free acknowledges lacked manpower. Viewing light, agree 'regulation' incident happened suffer financial loss. Instead, effected promulgated II terms shut cost. totally deprived beneficial property. Any way (that gold) remove chimerical. Not completely property, acquired wanted complete immobilization discharge hardrock plain practical matter led consequences different followed States. 51 took ceremonial step planting American flag premises, 116, 671, 809, surely technicalities dictate substance. my viewed freeing work, lie fallow duration Had adopted latter hardly debatable supra. recognizes, severely diminishes 'taking.' 1206; Richards Washington Terminal 233 546. general regulated extent, goes far will taking.' 415, principle calls 'taking,' conceive greater impairment 53 None relied precludes acknowledging confiscatory nature according Except extraordinary destroyed armed forces exigencies theatre 157, excused providing 'taken' good. Cases Yakus 414, 660, 834; Lichter 334 742, 68 1294, 1694, involving prices, rents, profits, wide mark. administering nationwide system narrowly confined singled-out category individual concerns. Furthermore, regulations exploitation business. Government, edict, stand 54 Also beside point cases. 194, 21, 1918, 1045, 1046, burden onerous sale ofliquor passage, export local beverage purposes. dealing liquor, adverted halted 'in guard promote efficiency' workers. 155, 107. factor premise 260. injurious, conducted thorough analysis 'Issuance error illegal.' 55 resolved formulae, shown, plainly outside past rightfully sanction measures conditions total mobilization, ramifications touching everyone another. proceeds indirection, accomplishes equivalent seizure courts themselves permitting formalities obscure actualities. Holmes observed 160: 'We danger forgetting strong desire improve condition warrant achieving shorter cut paying change.' 56 treat every realistic sense confiscation absolved 'take' International Paper 282 399, 406, 176, 75 410; Hatahley 351 173, 76 745, 100 1065. add deterred similarly situated sizable amounts. certainly allowance treasury, up instance. affirm judgment. Issued 7992—7993. Amended, 9613—9614; 9810—9811; 12007—12008. Revoked, text note 4, infra. 1101, 'No person life, liberty, process law; nor compensation.' U.S.Const. Amend. V. 7992—7993, provided account mines; '§ 3093.1 L—208—(a) Definitions. 'nonessential mine' means enterprise produced, lode placer, located territories possessions, unless holder serial Rating P—56. '(b) Restrictions production. (1) down, shortest possible mine. '(2) event days consume, material, facility, break ore proceed about '(3) waste mine, below ground, conduct except repair, access '(4) provisions apply produced 1200 tons commercial rate production exceed per month, 1000 cubic yards treatment month. '(5) mill, machine shop, facilities manufacture articles delivered bearing rating A—1—k higher, milling ores '(c) ratings. No rating, heretofore assigned, acquire operation, maintenance, repair Director General Operations Branch, Board. preserve, Operations, receiving accordance paragraph (c) above, assign ratings obtain (b)(3) above. '(e) Records. years, accurate records inventory, acquisition, consumption, ore. '(f) Reports. execute questionnaires prescribe. '(g) Audit inspection. kept shall, request, audit inspection duly representatives '(h) Communications. filed, appeals, communications to: Ref.: 208. '(i) Violations. wilfully violates provision who, conceals furnishes false information department agency guilty crime, punished fine imprisonment. addition, deliveries of, processing using, assistance. '(j) Appeal. considers compliance therewith exceptional unreasonable hardship him appeal letter, triplicate, pertinent relief. thereupon deems appropriate. '(k) Applicability regulations. transactions thereby applicable '(P.D.Reg. F.R. 6680; W.P.B.Reg. 561; E.O. 9024, 329; 9040, 527; 9125, 2719; sec. 2(a), Pub.Law 76th Pub.Laws 507, 77th Cong.) 'Issued 8th 1942. 'Ernest Kanzler, 'Director Operations.' Section 6(e), added original 9613, provided: listed Schedule P—56, accept delivery thereof, Operations. date, whichever Reference: 208, official, indicating item rental. Upon receipt list, furnish forms filled desires of.' 690, Central Eureka 691. shown companies, petitions continue operations, failing show proximate loss: Alabama-California Chollar Gould Savage Fino Bills 78th 1st Session (1943), efforts recision 3009, 6181, Banking Currency never reported out; 3682, 9653, out. same session S. 27, 34, vis-a -vis creditors. favorably reported, 5187, S.Rep.No.271, Sess., amendment, Senate, 6094—6095. House, Mining, 6180, Representative Engle. 5093, 6587. (1945), Engle calling 4393, 91 9726. turn, Subcommittee. Subcommittee hearings full approval. (This quoted length Reports Houses favoring Act.) Committee. 81st (1949), 45, 39, favorably. S.Rep.No.79, objected to, Donnell, 2764; Hendrickson, 13297; Schoeppel, 14722; Williams, 1278; 14691; Senators Hendrickson 16592, consequently came vote. White 7851, 4066, type, Consent Calendar. 6322—6323, 8931. evidenced recent estimate potential prevail, measured 'terms thirty million dollars.' Ordinarily remedy injunction, Youngstown Sheet Tube Sawyer, 343 579, 72 863, 1153. Our question. 1100, governed companion Cong.; 344, 950, 80th Cong.

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