Document: 355 U.S. 534 78 S.Ct. 446 2 L.Ed.2d 470 PUBLIC UTILITIES COMMISSION OF the STATE CALIFORNIA, Appellant,v.UNITED STATES of America. No. 23. Argued Jan. 7, 1958. Decided March 3, Rehearing Denied April See 356 925, 713. Messrs. J. Thomason Phelps and Everett C. McKeage, San Francisco, Cal., for appellant. Mr. John F. Davis, Washington, D.C., respondent. Justice DOUGLAS delivered opinion Court. 1 Section 530 California Public Utilities Code, Cal.Stat.1955, c. 1966, provides in part: 'Every common carrier subject to provisions this part may transport, free or at reduced rates: 3 '(a) Persons United States, * *. 4 'The commission permit carriers transport property rates state, county, municipal governments, such extent conditions as it consider just reasonable. Nothing herein shall prevent any from transporting no lower than which lawfully be assessed charged by other highway defined Highway Carriers' Act.' (Italics added.) There is a large volume military traffic between points California. For many years States has negotiated special agreements with governing transportation government property. Property armed services usually been transported substantially equal those applicable regular commercial shipments. 5 The filed suit declaratory relief, 28 U.S.C. § 2201, U.S.C.A. three-judge District Court, asking that declared unconstitutional insofar prohibits approved Commission requesting relief injunction. 6 Court rendered judgment 141 F.Supp. 168. case here appeal, §§ 1253, 2101(b), 2101(b). We noted probable jurisdiction. 352 924, 77 221, 159. 7 are met outset contention there 'actual controversy' within meaning 2201. If so, fatal constitutional, well statutory, defect because manner judicial power Art. III, 2, cl. 1, Constitution. Aetna Life Ins. Co. Hartford, Conn. v. Haworth, 300 227, 57 461, 81 L.Ed. 617. argument allegation had done threatened do anything adverse its agent. 8 Prior 1955, provided every 'may *.'1 In was amended eliminate provision substitute already permit' 'to reasonable.' As also above, amendment further prevented 'at *.'2 authorized deviate prescribed minimum connection forces States. To continuation exemption on August 16, canceled deviation authorization September effective date 530. On request Department Defense postponed effectiveness cancellation until December 5, 1955. November 29, denied extension, stating: 9 Item 20 Minimum Rate Tariff permits Armed Forces constitutes an exception established prior So long remains effect, not only permitted but without rate regulation clearly contemplated under recent legislative enactment. intent legislature should carried out delay. Accordingly, petition postponement will denied. This action way preclude filing applications exceptions they 10 result denial, could longer approval. 486 requires file their Commission. 493 engage schedules have filed. 494 'shall charge, demand, collect, receive different compensation persons specified *.' (A like contained XII, 22 Constitution.) Moreover Code penalties violations orders issued thereunder. 2107, 2112. These shippers well. stated 'If officer were negotiate 'reduced rates' permitting defendant determine whether 'considered' contract 'just reasonable', he thrown into county jail.' page 186. 11 plainly indicated enforce Act; prohibition statute so broad deny right ship rates, unless first gives is, therefore, quite Service Utah Wycoff Co., 344 237, 73 236, 97 291, where sought federal court against state order guard possibility,' id., 244, 240, would assume Here limits controversy present concrete—whether obtain service can 12 group cases involving doctrine primary jurisdiction complainant seek administrative proceeding before remedy supplied courts. Far East Conference 342 570, 72 492, 96 576; Western Pacific R. 59, 161, 126. related situations we insisted aggrieved party pursue his agency bringing complaint court, true interpretation law known actual, opposed theoretical, impact litigant authoritatively determined undertakes sit judgment. Alabama State Federation Labor, etc. McAdory, 325 450, 65 1384, 89 1725; Leiter Minerals, Inc., 220, 287, 267. 13 inapposite. know applies shipments unlawful approves rates. question subjected discretionary authority terms which, grace, make arrangements it. That issue constitutional one hardly expected entertain. If, Aircraft & Diesel Equipment Corp. Hirsch, 331 752, 67 1493, 91 1796, Allen Grand Central 347 535, 74 745, 98 933, might leave remnant question, pursued. But fasten procedure onto litigant, defied protecting asserted right. posture kin hold 'failure apply license ordinance face violates Constitution does review conviction ordinance.' Staub City Baxley, 313, 319, 277, 281, cited; Thomas Collins, 323 516, 315, 430. 14 It argued 1342, bars grant case. courts enjoin, suspend restrain operation of, compliance with, affecting chargeable public utility made rate-making body political subdivision, where: 15 '(1) Jurisdiction based solely diversity citizenship repugnance Federal 16 Assuming, arguendo, Act sovereign who it, violation mandate granted here. case, challenge 'order' submit wants rid system subjects procurement form supervision. 17 come merits. Congress comprehensive policy procurement. (Supp. V) 2301—2314, 2301—2314. While competitive bidding general policy, 2304 'the head purchase contract, if— 18 '(2) exigency delay incident advertising; 19 '(10) impracticable competition;3 '(12) whose determines publicly disclosed character, ingredients, components; 21 regulations, promulgated carry these statutory provisions,4 numerous extensive.5 One 'volume shipments' referred earliest practicable time appropriate management office determination reasonableness current and, when appropriate, negotiation adjusted modified rates.'6 Army regulations provide 'least costly means selected meet requirements still consistent policies expressed Congress, contingent upon ability safe, adequate, efficient transportation.'7 Navy freight 'appear excessive' more equitable rates.'8 Air Force negotiations adjustments modifications 'commercial carriers' after unreasonableness, unjustness otherwise apparent unlawfulness *.'9 23 seems clear regulations—which force law, Leslie Miller, Arkansas, 187, 257, 231; Standard Oil Johnson, 316 481, 62 1168, 86 1611—sanction negotiating shipment entrust officers discretion existing rates10 accepted undertaken. exercised used if approves. impose restraint control 24 lay side sustain nondiscriminatory taxes activities contractors others business most increase costs operation. See, e.g., Esso Evans, 345 495, 800, 1174; Smith 111, 157, 107; King Boozer, 314 43, 3; James Dravo Contracting 302 134, 58 208, 82 155. need mention where, absent conflicting regulation, seeks safety contractor Baltimore Annapolis Lichtenberg, 176 Md. 383, A.2d 734, appeal dismissed, 308 525, 60 297, 84 444; Stewart Sadrakula, 309 94, 431, 596. Penn Dairies Milk Control Comm., 318 261, 63 617, 87 748, likewise put side. much mooted, conflicted fixing price milk purchased. concluded 'imposes national officers.' Id., 270, 621. Here, however, places Government. conflict us clear. plain Arizona California, 283 423, 451, 51 522, 524, 75 1154, over plans specifications dam, supra, standards regulating contractors, Johnson Maryland, 254 51, 41 126, exact requirement employee driving mail truck. Supremacy Clause, VI, designed resolve. Chief Marshall said McCulloch Wheat. 316, 427, 579, 25 'It very essence supremacy remove all obstacles own sphere, modify vested subordinate exempt operations influence.' 26 seriousness California's officials dramatically shown record. 27 practice Government separate vary class 'paper rate'11 'freight kinds' cover hundreds diverse items supply division vessel needed place particular time. making findings applied here, type arrangement abolished: 'This necessary shipping classify thousands operations, segregate accordance published tariffs classifications, rearrange boxing crating classifications fill voluminous documents. additional process cause delays high thirteen hours truckload carload. sort seriously hamper disrupt mission made.' 29 Moreover, exist traffic, that, each shipment, delayed shipped higher 30 General Edmond Lasher Army, Assistant Transportation, testified trial: 31 'for Washington level various states, let say 48 varieties methods follow, find ourselves morass never fight our way, win war.' 32 Affirmed. 33 HARLAN, whom THE CHIEF JUSTICE BURTON join, dissenting. 34 I think moves unnecessary haste striking down intended deal rate-cutting practices handling heavy State. practices, tells us, depressing influence revenues lead deterioration economic position industry whole. possibility, Legislature extending dealing Maintenance proper balance concerns area proceed caution deciding regulatory unconstitutional. reach conclusion giving opportunity interpret implement enactment fairly judge truth trespass paramount interests. dissent several grounds given below. I. 35 Although doubt foreclose private carriers, purpose must manifest. excerpts statutes quoted Court's provide, my view, inadequate foundation directed by-pass minimum-price regulation. difficult believe important decision taken obscure manner. contrast situation presented express Interstate Commerce Act, 49 22, declares inapplicable covering intrastate pursuant indication operate framework secure best possible. relied manifestation congressional displace same found wanting respect Dairies, Comm. Pennsylvania, 275, 623, said: 36 'An unexpressed set aside states internal affairs lightly inferred ought implied command, read light history, ambiguous. Considerations favor repeal implication (citing cases) least persuasive nullification Congressional legislation.' II. 37 absence nullify decisions fact henceforth advantageous sufficient itself vitiate statute. incidence taxation falls alone rise immunity E.g., 269, 620; upheld Pennsylvania setting prices dealer selling consumption camps. see distinction buy bought. And surely, effect concerned, nothing turns character commodity shipped, hydrogen bomb. Apart discriminatory application considerations pertinent validity depends entirely noneconomic Government—that interferes performance governmental functions personnel employees. 126; 1154. III. 38 aspects finds constitutionality simply reflect anticipatory views how work practice. insufficient basis serious final deferred intends accommodate interest stable structure unimpeded functions. view possible imposing increased burden require invalidation statute, mind answer statute's pending recourse courts, Indeed, intention enable even binding possibility administratively exceptions. Cf. supra. 39 requiring through instance, path followed pass constitutionality. course ultimate responsibility Rather implemented overcome objections After proceedings, compelled uninformed actual now have. More abstract potential impingement upon, mere interference some function justified thwarting legitimate policy. 40 Some examples factors stressed indicating obstructive suffice, think, demonstrate acted prematurely passing stage: (1) contended disproportionately imposed 'commodity' normally articles peculiar transportation, thus 'class' countered suggestion authorize retroactive achieve presently unscheduled items. (2) alleged excessive vital army required advance varied shipment. Again suggests solution. (3) told security prejudiced forced reveal content schedules, lieu following entire specifying content. obviously concern recognized State, emphasizes Commission's cope problem, exempting usual procedures 'security responsible authority. (4) widespread use expressly Appellant, although frankly stating major vehicle price-cutting prevent, raises comparable method less productive problems portrayed evaporate. (5) adverts criminal punishing certain parties officers. enough dispose problem prosecution ever brought, emphatically discards. not, course, venture predict able restricting purely opportunity, exist. what envisioned all, sensitive urged supplies. likely nonmilitary commodities agencies; yet too annuls 42 Unless something remote hindrance justify statutes, fail why tariff automatically ineffective extend immunities, especially undoubted directly matters according assessment competing interests involved. heretofore gone extreme decision, anomalous Term witnesses diminution intergovernmental tax immunities produce decision. Detroit Murray Corp., 489, 458. IV. 43 scrupulously withhold hand voiding legislation appeared reasonable certainty clarifying construction implementation challenged Past principle variety action. Railroad Texas Pullman 312 496, 501, 61 643, 645, 85 971; Spector Motor Service, McLaughlin, 101, 105, 152, 154, 101; 228—229, 292, 471, 1394, 246—247, 241 242, 291. Motor, stated: '(A)s questions become intertwined preliminary doubts about local decide guesses regarding law.' 154. language point here: 44 lies sound abuse pronouncement left uncertainty, cannot resolve, facts. exercise controlling significance avoid needless obstruction domestic forestalling construing applying statutes.' 45 good reason departing wise remitted test there, known. Government, during period amended, thereby avoided. therefore vacate below frame remand stay proceedings run full course. accommodation involved makes disposition Cal.Stat.1951, 764, p. 2045. 3515 defines 'highway carrier' 'every petroleum irregular route carrier.' subsection maximum competition hands concerned.' S.Rep. 571, 80th Cong., 1st Sess., 8. Senate Report goes state: experiences war contracts since fields stevedoring, repairs, chartering vessels, single source supply, competitive-bid-advertising frequently always section construed liberally confined legality reversal bona fide determinations impracticability ground exists.' seem, fixed agency, H.R.Rep. 109, pp. 8—9. W. Kenney, Acting Secretary Navy, submitted draft bill: bill War Departments award defense dictates rather rigid limitations formal advertising, bid, procedures.' Hearings House Committee Services H.R. 1366, Vol. 425. 3012(g), 3012(g) provides, (of Army) prescribe functions, powers, duties title.' 6011, 6011 8012(f), 8012(f) respectively. Procurement Regulations, CFR, 1957, Cum.Pocket Supp., 1.108 et seq., 1.306—10. Regulation 55—142, dated 19, 1956. Shipping Guide, Part I, 1800(d)(3)(20). Manual 75—1, 80501(b), July 10, Stat. 379, exempts Act. respecting land-grant imposes obligation pay rates,' 65, 'Under theory elsewhere, existence times item conceivable point. rate.' Since channels stability trade, seldom peculiarly suited adapted commerce considerably Very little

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