Document: 359 U.S. 464 79 S.Ct. 904 3 L.Ed.2d 952 T.I.M.E. INCORPORATED, Petitioner,v.UNITED STATES of America. DAVIDSON TRANSFER & STORAGE COMPANY, Inc., Petitioner, v. UNITED Nos. 68, 96. Argued Jan. 20, 1959. Decided May 18, Mr. W. D. Benson, Jr., Lubbock, Tex., for petitioner T.I.M.E., inc. Bryce Rea, Washington, D.C., Davidson Transfer Storage Co. Morton Hollander, United States. Justice HARLAN delivered the opinion Court. 1 Petitioners are interstate motor common carriers, certificated by Interstate Commerce Commission (I.C.C.) under Motor Carrier Act 1935.1 Section 217 that Act, 49 U.S.C. § 317, U.S.C.A. requires such carriers to file their transportation charges as tariffs with I.C.C. These remain effective until suspended or changed in accordance specified procedures, and so long they forbidden charge collect any rate other than provided applicable tariff.2 2 cases present a single question Act: Can shipper goods carrier challenge post-shipment litigation reasonableness carrier's which were made tariff governing shipment? In No. transported several shipments scientific instruments States from Oklahoma California. One shipments, illustrative all involved this litigation, originated at Marion, Oklahoma, was carried over lines connecting Planehaven, At time, petitioning had on relating through Marion Planehaven $10.74 per hundredweight. Petitioner also subject $2.56 hundredweight El Paso, Texas, $4.35 Paso Planehaven. The thus exceeded combination $3.83. charged collected basis rate. On postpayment audit General Accounting Office 322 Transportation 1940, 54 Stat. 955, 66, office concluded rather shipment required refund difference between sum would have been due tariffs. This did protest. 4 Thereafter brought suit Tucker 28 1346(a)(2), claiming it entitled recovery rates. Government defended ground applicable, alternatively contended if therein unreasonably high insofar It asked T.I.M.E.'s be stayed permit bring proceeding before determine District Court an unreported held neither nor power pass upon Government's contention th pa st unreasonable. Accordingly, entered summary judgment 5 appealed, accepting Court's determination applicability rate, but contending erred refusing refer issue past shipments. Appeals reversed, holding reasonableness, fact gives no award reparations admittedly rates does not prevent body passing when arises courts. 252 F.2d 178. 6 96, four Poughkeepsie, N.Y., Bellbluff, Va., billed concededly filed post-payment part these unreasonable should refunded States.3 protest demanded, amounted $18.34, then recover refund. sole Court, without opinion, granted judgment, appeal could defend 'unreasonableness' grounds, directing referral question. 104 U.S.App.D.C. 72, 259 802. 7 We certiorari both because suggestion result reached Courts conflicted decision Montana-Dakota Utilities Northwestern Pub. Serv. Co., 341 246, 71 692, 95 L.Ed. 912, order settle questions statutory interpretation involved.4 358 810, 27, 55. 8 courts below right resist unreasonableness payment incurred one deriving law preserved 216(j) Act.5 Government, although defending decision, relies primarily proposition itself creates judicially enforceable free exaction even though reflect duly concedes whatever source asserted may be, cannot decided courts, takes position court properly referred I.C.C.for results adjudication used respective rights litigants. I. 9 cause action affords defense respect rests provisions s 216(b) (d) 316(b, d), provide carriers: 10 '(b) shall duty every (such) * establish, observe, enforce just reasonable rates, charges, classifications, regulations practices thereto *. 11 '(d) All service rendered reasonable, unjust thereof, is prohibited declared unlawful. *' 12 urges language imposes 'reasonable' asks us imply injured violation duty. agree. As recognized 251, 695, sort statute entrusts regulation administrative agency only 'criterion application determining lawful rate' 'justiciable legal right.' Federal Power like expressly declares 'unlawful,'6 create allegedly absence indication Congress intended despite federal entertain suits reparation controlling unreasonableness, declined accomplish indirectly allow directly. 13 true Parts I III respectively rail water litigate those based structure history Part II (the Act), however, lead conclusion here, intend give shippers enable them assert 14 very I, counterparts III, against damages violations mechanics enforcement conspicuously absent Act. Thus, whereas I7 provides 'any chapter (who) do act unlawful liable person persons thereby full amount sustained *,' h comparable provision. Again, I8 sue contains addition, §§ 13(1) 16 I9 proceed his provisions. 15 To hold nevertheless require complete disregard significant omissions establish implement similar find impossible impute intention sections established wholly omitted Further, has consistently nothing liability hearings preceded passage legislation 1949 adding limitations amounts paid excess proposals amend already found 8, 9, 13, noted proposal 'would add number new make vehicle act. exists parts *.'10 suggested changes adopted. And 1957 again recommended amendment remedy thereby,11 once more measure failed adoption. 17 light its history, plain right' alleged unreasonable, necessary look beyond right. II. 18 grant claimed must least read preserve pre-existing common-law kind. statute, 316(j), showing congressional confirm statement 216 'shall extinguish inconsistent herewith.' exorbitant protest,12 doctrine primary jurisdiction whether retrospectively challenged 'unreasonable' determined I.C.C., vindicated Commission. 19 saving clause judicial decisions interpreting 1935, course illuminates significance striking differences saw fit landmark case Texas Pacific R. Abilene Cotton Oil 204 426, 27 350, 51 553. There sued state exacted pursuant what charge. issues freight survived held, existence much broader scope here involved,13 scheme decide first instance either future, necessarily extinguished 'absolutely inconsistent' recognition Commission's jurisdiction. important note rest authority shippers, instead evidently dictated crucial 20 Since II, adjudicated seem follow surviving survive, since preserves scheme. urges, there actually recognizing survival right, demands can satisfied assailed independent adjudicate claim reparations, permitted effect exercise adjunct proceeding. 21 is, course, intent. think Congress, we assume unaware incompatible issue, sanction procedure proposed. anomalous omission two lawsuits one, parties complaint answer competent immediately ordinarily controverted suit. No convincing reason why Congess wished omit direct procedure, done, yet leave open circuitous route for. 22 utilization sought engage 'improvisation' cautioned Montana-Dakota, supra, chosen clearest improvisation, decline consider 'involves decide. *'14 page 255, 697. reliance Western 352 59, 77 161, 126, misplaced, case, involving aid undoubted. shipper's timely foreclosed affirmative relief barred limitations. bearing 23 pointed out findings embodied series beginning Barrows Porcelain Enamel Cushman Delivery M.C.C. 365, 1939, divisions Commission, eventually itself, Bell Potato Chip Aberdeen Truck Line, 43 337, announced possessed authority. But anterior now us, derived outside put proceedings, given cursory consideration else ignored.15 devoted themselves searching authorization participation, vindication might exist.16 able point addition ones, 24 years appeared litigable,17 most attention. Under circumstances c annot fairly said long-standing understanding. told aware view carrier, lie, failure legislate derogation implies approval acceptance it. appears each time views regard communicated committees connection request rejected.18 Had legislatively overrule doctrines enunciated Chip, so, doubt some weight our reliable inference permissibly drawn previously confirmed. 25 Finally, denial who injustice.19 during 24-year secure adjudications handful occasions, invitation pursue line culminating strongly suggests few occasions arisen where aggrieved carrier.20 Furthermore, overlooks apparently strike balance interests cut significantly into set own immediate effect, within 'zone reasonableness.' trucker raise 30 days' prior notice, may, initiative complaint, suspend effectiveness proposed additional seven months while scrutinized.21 Even avenue whereby increment previous notice suspension period. Thus possible will forced pay he period expires acted challenge, shipper, suffer 'lag.'22 26 For foregoing reasons fall. Reversed. BLACK, whom THE CHIEF JUSTICE, DOUGLAS CLARK join, dissenting. 29 serious existed See P.R. 436, 353, 553; Arizona Grocery Atchison, T. S.F.R. 284 370, 383, 52 183, 184, 76 348.1 Nor questioned confirmed policy illegal.2 clear attempted remedies directly conflict aims.3 Nevertheless today holds abolished implication left helpless therefore illegal essentially Court; believe virtually 553, which, think, supports opposite makes today. Moreover, reaching conclusion, overturns consistent Act—an large formulated men helped draft generally accepted alike. am unable understand strains hard reach bad result. largely patterned after 1887 regulating railroads, counterpart Act.4 suffered practices. appropriate Both authoried imposition attorneys' fees favor. Meeker Lehigh Valley 236 412, 432—433, 35 328, 336—337, 59 644. 31 considered actions caused implied exclusive supplanted being deemed remedies; exclusively vested hold, assumes, alone destroyed remedies. proceedings often refused dismiss pending issue. See, e.g., Mitchell Coal Coke Pennsylvania 230 247, 33 916, 57 1472; American Tank Car Corp. Dorado Terminal 308 422, 60 325, 331, 84 361; 62—70, 164—168, 126.5 seems kind, mere showed purpose deprive obtain resulting reaches leaves however been, word directed shows take away remedy. 32 contrary, steady interpreted leaving lay reasonably cf. 387—388, 185—186, 348, consisted parts, (1) court, (2) had, fact, otherwise charged. Enam. Deliv. submitted April 1938, handed down February 1939. Division specially administration concurred Commissioner Eastman served Coordinator System country years. He drafted 1935 probably knew mre about meant anybody now.6 Admitting Barrows, Significantly stated, 'This believe, supported reasoning Supreme P. Ry. 426 (27 553).' 367. reaffirmed early 1940 panel.7 September extensive hearings, amended broadened many respects.8 same regulation. achieve uniformity different efforts Commission.9 representative strenuously objected. Senate Committee show objections subjection actions, taxing encourage 'claim chasers.'10 members witnesses recognize court. Chairman stated 'He now. anything, matter (I)f you afraid railroad go stir up truckers), now.'11 truckers answered 'We fearful that, occurring truckers) constantly harassed.' member omm ittee added 'The objection existing get relief?'12 Committee, came down, 34 '(M)otor large, imperfect products, situation improving continually, room improvement remains. 'Where poorly worded imperfectly constructed, experienced traffic experts troublesome charged, business, obtaining compensation awards successful securing. 36 'In stages development, thought well spared burden claims Commission.'13 37 Accordingly Report paragraph bill subjected 38 'because Shippers water.' S.Rep.No. 433, 76th Cong., 1st Sess. 18. (Emphasis supplied.)14 39 clear, therefore, adopted, fully informed 40 After Divisions continued construe determinations 1942, example, presented 68—the joint through-rate exceeds aggregate intermediate points. facts 'were extent corresponding *.' Kingan Olson Trans. 10, 12. Finally whole reviewed 'precedent future guidance' emphatically approved cases. safeguards frivolous moot complaints need damages. 41 cited Congressional Committees again. 1947 1948 extended House bills uniform statutes arising forwarders reparations.15 Members written statements, briefs testimony, stressed considering described undertaken expense split procedure.16 Witnesses againstthe rule case.17 forwarders, whose status referring 'It today,' 'If finds past, obtained stands today.'18 opposed change felt easier suffered.19 When reported excluded. report explained available stood. stating originally included applied dropped, incorporated letter explaining pointing weaknesses making desirable. provisions, including charging enacted.20 While enact measures adjournment,21 passed following Reports years.22 42 Once more, late 1957, established. Again held; Secretary Commerce, others unequivocally testified courts.23 testimony presiding Subcommittee ask 'What propose have? That trying determine.' representative, opposing replied: adds cumbersome machinery litigation.'24 frequently occasion say interpretations agencies great weight.25 legislative attempting goes far, arguments them, toward approving original Eastan. Recently, stood years.26 Against reaffirmance dissent belief interpretation. stress here. Quite apart created rights, inapplicable 44 Admittedly similarities statute. unlike regulated wholesale purchasers resale, retail customers.27 was, nevertheless, benefit consumers prices. Whole-salers purchase price reduced prospectively reduction customers, consumers. indicated ex post facto wholesalers. 254, lent finding. Damages back years; prices wholesalers; benefited lower ones excessive amicus brief, argued likely windfall providing enrichment wholesaler. Citing brief F.P.C. argument, 697, 11, vigorous perhaps ways refunding found. pages 265, 266, 702. problem relevant designed protect shippers,28 are, instances, ultimate falls. instances. economics industry windfalls unlikely. 45 Similarly induced include authorizing wholesalers seek said, 'They State utility law, committee merely transactions.'29 report, easily understood evidence National Association Railroad Commissioners, Solicitor Committee: 46 'That entirely proper provision man station load ship somewhere fixed tariff. then; ought come thereafter him overpayment. perfectly proper. relates generating producing company distributing utility. public interest giving ahead receiving years, unreasonable.'30 47 emphasized, shown above, Montana-Dakota.31 Doubtless led minority majority 'Congress low.' 258, 698. points direction apply 48 deprived placed worse purchasers. 824d(e), authorizes five and, hearing keep accurate account money received. Should interest. hand, refunds completed expires. 216(g), 316(g), 316(g). protected quite language, scope, meaning. carefully limited advanced context conclusive interpretation, write administered went help deciding revision knowledge rulings carrier-fixed Cf. 348. 1949, indicate govern affirm judgments 543, amended, 301 et seq., seq. 216(e, g), 217(b, c), 316(e, 317(b, c). represented 'New York Surcharge,' recoup cost New tonmile truck tax. surcharge become October 1951. maximum inquiry 1952, shipment. subsequently ordered excision Davidson's 62 117. purely prospective affect becomes unnecessary alternative event deduct 216(j), 'Nothing section 205(a) 851, 824d(a), 'All rules affecting pertaining hereby unlawful.' 8. 9. 13(1), 16, 16. Hearings Foreign S. 1194, 80th 2d Sess., pp. 1, 5, 378, 85th 3, Such assumed see Aitchison, Fair Reward Just Compensation Co mmon Service, p. suggesting undue discrimination, exorbitance. continues substance provide, that: contained way abridge alter remedies.' noteworthy 'overcharges,' defined mean 'charges services lawfully Commission.' 304a, 304a. surprising, reflected provision, exist. Compare 16(3)(b), 'not overcharges' carriers. 302 87, 90—91, relied heavily dissenting Eastman, principal architect member, suggest maintainable. Rather 'valuable guides carriers.' M.C.C., purported 216(e) 204(c) (49 316(e), 304(c), 304(c)), appear terms orders operating solely prospectively. impose maintaining nondiscriminatory d). supra. Brunswick Auto Express States, 126 F.Supp. 215, 130 Ct.Cl. 339; Garner, D.C.E.D.N.C., 134 notes 'an interpretation' upon. testifying distinguish availability unavailability said: 'So far concerned, railroads. They desire lighten burdens regulation, strong need. practically noncompetitive, little danger exact charges. became condemn motor-carrier high. don't effect. follows Cmmi ssion chiefly arise, overcharges above published stands.' added.) 1310, 2016, 1869, 2009, 791—792. 132, Senator Reed truckers' '(I)f railroad, form collection regulations, exempted carrier?' stricken bill. Jaffe, Primary Jurisdiction Reconsidered, 102 U. Pa.L.Rev. 577, 589, commenting supra: sure, doubtful serve useful function. Rates continuous scrutiny. Administrative condemnation understanding injustice. And, Jackson observes overcharge usually along undiscoverable unreimbursable consumer.' competitive conditions trucking possibility problem. conducted industry, preceding 'I recall charges.' H.R. 5262, 6016, 74th 32. 1939 Senate, quoted 217(c), 317(c), Counsel oral argument expired completed, infrequently, ample adjudication. law. underlay sustained.' 184. 301—327, 301—327. 216(d) 316(d), reads part: engaged foreign commerce passengers property 216(b), 316(b), 316(b). states 382—384, Conversely instances seeking practice reserving later discussion Comm'n, 337 464—466, 69 1410, 1430—1431, 93 1451 (dissenting opinion). (opinion Court). Hearings, 756—757, 762, 785. Dixie Mercerizing ET WNC Transp. 491. gave treatment existed. 341—343, 'To violated prescribed duties immune civil similarly offending respond variance fundamental ubi jus ibi remedium 217(b), 22, declaring prohibiting discriminatory superseded abrogated heretofore recognized. 553); 258 (33 921, 1472). 'How, then, redress unwilling carrier? '* connection, abeyance questions. Eastern-Central Carriers Ass'n 321 194 (64 499, 88 668); Term. 422 (60 361); supra; Morrisdale 304, 314 938, 941, 1494); Southern Tift, 206 428, 434 709, 710, 1124).' 898. Reed, 132. Id., 129—133. 130. Ibid. 792. 2, 2324, 2295, Sess.; 571—H.R. 2759, 935, 290—2426, n. 15, 5—6; Subcommittee, 8—16. 47, 52. 41, 42. 42—47. H.R.Rep. 208, 4. Representatives debate adjournment. 766, 81st 1; 83, 2. 63 280. S.Rep. 377, 937, 939, 943, 12, 49, 116—117, 137. Fawcus Machine 282 375, 144, 145, 75 397; Skidmore Swift 323 134, 140, 65 164, 89 124; Cammarano 498, 524, 462. 87. 1063, 791a—825r, 791a—825r. 621, 20. Interterstate 5423, 1685. Brief Respondent 26—27; curiae, 13.

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