Source: http://supreme.nolo.com/us/310/534/case.html
Timestamp: 2019-04-21 07:24:09+00:00

Document:
United States v. American Trucking Associations, Inc.
1. The power of the Interstate Commerce Commission under the Motor Carrier Act, 1935, § 204(a), to establish reasonable requirements with respect to the qualifications and maximum hours of service of employees of motor carriers is confined to those employees whose duties affect safety of operation. Pp. 310 U. S. 546, 310 U. S. 553.
2. When acceptance of the literal meaning of words in a statute leads to results which are absurd or futile or plainly at variance with the policy of the legislation, the legislative purpose will be followed. P. 310 U. S. 543.
3. Even though, superficially, the meaning of statutory words appears plain, aids to their interpretation may be resorted to in pursuit of the purpose. P. 310 U. S. 543.
4. To accept literally the word "employee" in § 204(a) of the Motor Carrier Act would place upon the Interstate Commerce Commission the function of regulating the qualifications of large numbers of employees whose duties do not affect safety of operation, contrary to the settled practice of Congress, evinced in other Acts, with respect to regulation of hours and qualifications of transportation employees, and contrary to the policy of most of the States, as shown by Acts in force when the federal Act was passed. P. 310 U. S. 544.
5. Indication of any intention of Congress, by § 204(a), to grant the Interstate Commerce Commission other than the customary power to secure safety is absent from the legislative history of the Motor Carrier Act. P. 310 U. S. 546.
6. The construction of § 204(a) by the Interstate Commerce Commission and by the Wage and Hour Division of the Department of Labor as relating solely to safety of operation is of great weight. P. 310 U. S. 549.
to determine qualifications and maximum hours of service for all employees of contract and motor carriers subject to the Motor Carrier Act, and commanding it to take jurisdiction and proceed with such determination. The suit was brought against the United States and the Commission, under § 205(h) of the Act, by the above-named Trucking Associations and five common carriers by motor. The Administrator of the Wage and Hour Division of the Department of Labor intervened on the side of the defense.
This appeal requires determination of the power of the Interstate Commerce Commission under the Motor Carrier Act, 1935, to establish reasonable requirements with respect to the qualifications and maximum hours of service of employees of motor carriers, other than employees whose duties affect safety of operation.
"SEC. 204(a). It shall be the duty of the Commission --"
"(1) To regulate common carriers by motor vehicle as provided in this part, and to that end the Commission may establish reasonable requirements with respect to continuous and adequate service, transportation of baggage and express, uniform systems of accounts, records, and reports, preservation of records, qualifications and maximum hours of service of employees, and safety of operation and equipment."
"(2) To regulate contract carriers by motor vehicle as provided in this part, and to that end the Commission may establish reasonable requirements with respect to uniform systems of accounts, records, and reports, preservation of records, qualifications and maximum hours of service of employees, and safety of operation and equipment."
"(3) To establish for private carriers of property by motor vehicle, if need therefor is found, reasonable requirements to promote safety of operation, and to that end prescribe qualifications and maximum hours of service of employees, and standards of equipment . . ."
"SEC. 13(b). The provisions of section 7 shall not apply with respect to (1) any employee with respect to whom the Interstate Commerce Commission has power to establish qualifications and maximum hours of service pursuant to the provisions of section 204 of the Motor Carrier Act, 1935; . . ."
"section 204(a)(1) and (2) is limited to prescribing qualifications and maximum hours of service for those employees . . . whose activities affect the safety of operation."
of transportation or inherent in that industry strikes us as an enlargement of our jurisdiction unwarranted by any express or implied provision in the act, which vests in us all the powers we have. [Footnote 10]"
"with respect to qualifications and maximum hours of service of all employees of common and contract carriers except employees whose duties are related to safety of operations; (3) to disregard its report and order in Ex parte MC-28. [Footnote 12] The Commission reaffirmed its position, and denied the petition. The appellees petitioned a three-judge district court to compel the Commission to take jurisdiction and consider the establishment of qualifications and hours of service of all employees of common and contract carriers by motor vehicle. [Footnote 13] The Administrator of the Wage and Hour Division was permitted to intervene. [Footnote 14] The district court reversed the Commission, set aside its order, and directed it to take jurisdiction of the appellees' petition. 31 F.Supp. 35. A direct appeal to this Court was granted. [Footnote 15]"
of what qualifications an employee shall have and how long his hours of work may be. Upon the proper adjustment of these factors within an industry and in relation to competitive activities may well depend the economic success of the enterprises affected, as well as the employment and efficiency of the workers. The Motor Carrier Act lays little emphasis upon the clause we are called upon now to construe, "qualifications and maximum hours of service of employees." None of the words are defined by the section, 203, devoted to the explanation of the meaning of the words used in the Act. They are a part of an elaborate enactment drawn and passed in an attempt to adjust a new and growing transportation service to the needs of the public. To find their content, they must be viewed in their setting.
"contemporaneous construction of a statute by the men charged with the responsibility of setting its machinery in motion, of making the parts work efficiently and smoothly while they are yet untried and new. [Footnote 38]"
". . . until the Congress shall have given us a more particular and definite command in the premises, we shall limit our regulations concerning maximum hours of service to those employees whose functions in the operation of motor vehicles make such regulations desirable because of safety considerations. [Footnote 40]"
Senate at least was aware of the Commission's investigation of its powers even before its interpretation was announced. [Footnote 41] Under the circumstances, it is unlikely indeed that Congress would not have explicitly overruled the Commission's interpretation had it intended to exempt others than employees who affected safety from the Labor Standards Act.
It is contended by appellees that the difference in language between subsections (1) and (2) and subsection (3) is indicative of a congressional purpose to restrict the regulation of employees of private carriers to "safety of operation" while inserting broader authority in (1) and (2) for employees of common and contract carriers. Appellants answer that the difference in language is explained by the difference in the powers. As (1) and (2) give powers beyond safety for service, goods, accounts and records, language limiting those subsections to safety would be inapt.
operation or standards of equipment," italicized in the note, were added by amendment in the House after the passage of S. 1629 in the Senate with the addition of the disputed clause to § 204(a)(1) and (2). [Footnote 44] It is evident that the exempted vehicles and operators include common, contract and private carriers. It seems equally evident that, where these vehicles or operators were common or contract carriers, it was not intended by Congress to give the Commission power to regulate the qualifications and hours of service of employees other than those concerned with the safety of operations.
Our conclusion, in view of the circumstances set out in this opinion, is that the meaning of employees in § 204(a)(1) and (2) is limited to those employees whose activities affect the safety of operation. The Commission has no jurisdiction to regulate the qualifications or hours of service of any others. The decree of the district court is accordingly reversed, and it is directed to dismiss the complaint of the appellees.
The CHIEF JUSTICE, MR. JUSTICE McREYNOLDS, MR. JUSTICE STONE, an MR. JUSTICE ROBERTS are of opinion that the decree should be affirmed for the reasons stated in the opinion of the district court, 31 F.Supp. 35.
S.Doc. No. 152, 73rd Cong., 2d Sess., Regulation of Transportation Agencies, p. 350. See p. 25 for discussion of the preliminary steps of motor carrier regulation. Hearings on Regulation of Interstate Motor Carriers, H.R. 5262 and H.R. 6016, before the House Committee on Interstate and Foreign Commerce, 74th Cong., 1st Sess.; Hearings on S. 1629, Senate Committee on Interstate Commerce, 74th Cong., 1st Sess.
§ 202; Maurer v. Hamilton, 309 U. S. 598.
§§ 202, 216, 217, 218.
Services, § 203(a) (19); brokers, § 203(a) (18), § 204(a)(4); security issues, § 214; insurance, § 215; accounts, records and reports, § 220.
Maurer v. Hamilton, supra; Regulation of Transportation Agencies, supra, Highway and Safety Regulations, p. 32; Hearings on S. 1629, supra, pp. 122-123, 184.
Ex parte No. MC-2, 3 M.C.C. 665, 667.
Interpretative Bulletin No. 9, Wage Hour Manual (1940) 168.
§ 204(a)(1), (6) and (7)(e); Rules of Practice I.C.C. April 1, 1936, Rule XV.
§ 205(h), Motor Carrier Act; Urgent Deficiencies Act, 38 Stat. 220, 28 U.S.C. §§ 47, 47a.
Cf. Securities Exchange Comm'n v. U.S. Realty & Improvement Co., ante, p. 310 U. S. 434.
Judicial Code § 238; 38 Stat. 208, 219-20; 49 Stat. 543, § 205(h).
"But no general rule can be laid down upon this subject further than that that exposition ought to be adopted in this, as in other, cases which carries into effect the true intent and object of the legislature in the enactment."
Pennington v. Coxe, 2 Cranch 33, 6 U. S. 59; James v. Milwaukee, 16 Wall. 159, 83 U. S. 161; Atkins v. Disintegrating Co., 18 Wall. 272, 85 U. S. 301; White v. United States, 191 U. S. 545, 191 U. S. 551; Ozawa v. United States, 260 U. S. 178, 260 U. S. 194; United States v. Stone & Downer Co., 274 U. S. 225, 274 U. S. 239; Gulf States Steel Co. v. United States, 287 U. S. 32, 287 U. S. 45; Royal Indemnity Co. v. American Bond & M. Co., 289 U. S. 165, 289 U. S. 169; Lincoln v. Ricketts, 297 U. S. 373, 297 U. S. 376; Foster v. United States, 303 U. S. 118, 303 U. S. 120.
Cf. Davies, The Interpretation of Statutes in the Light of their Policy by the English Courts, 35 Columbia Law Review 519; Radin, Statutory Interpretation, 43 Harvard Law Review 863; Landis, A Note on "Statutory Interpretation," 43 Harvard Law Review 886; R. Powell, Construction of Written Instruments, 14 Indiana Law Journal 199, 309, 324; Jones, The Plain Meaning Rule, 25 Washington University Law Quarterly 2.
Taft v. Commissioner, 304 U. S. 351, 304 U. S. 359; Helvering v. City Bank Co., 296 U. S. 85, 296 U. S. 89; Wilbur v. United States, 284 U. S. 231, 284 U. S. 237; Crooks v. Harrelson, 282 U. S. 55, 282 U. S. 60; United States v. Missouri Pacific R. Co., 278 U. S. 269, 278 U. S. 278; Van Camp & Sons v. American Can Co., 278 U. S. 245, 278 U. S. 253; Caminetti v. United States, 242 U. S. 470, 242 U. S. 490; Pennsylvania R. Co. v. International Coal Co., 230 U. S. 84, 230 U. S. 199.
Armstrong Co. v. Nu-Enamel Corp., 305 U. S. 315, 305 U. S. 332; Sorrells v. United States, 287 U. S. 435, 287 U. S. 446; United States v. Ryan, 284 U. S. 167, 284 U. S. 176.
Ozawa v. United States, 260 U. S. 178, 260 U. S. 194.
Helvering v. Morgan's, Inc., 293 U. S. 121, 293 U. S. 126; Johnson v. Southern Pacific Co., 196 U. S. 1, 196 U. S. 14; Popovici v. Agler, 280 U. S. 379; Smiley v. Holm, 285 U. S. 355; Williams v. United States, 289 U. S. 553; Maurer v. Hamilton, supra, pp. 309 U. S. 612, 309 U. S. 615.
Boston Sand & Gravel Co. v. United States, 278 U. S. 41, 278 U. S. 48.
Helvering v. New York Trust Co., 292 U. S. 455, 292 U. S. 465.
Cf. Committee on Ministers' Powers Report (Cmd. 4060, 1932), p. 135.
United States v. Jefferson Electric Co., 291 U. S. 386, 291 U. S. 396; United States v. Arizona, 295 U. S. 174, 295 U. S. 188, 295 U. S. 191; Keifer & Keifer v. RFC, 306 U. S. 381, 306 U. S. 394; Ozawa v. United States, supra.
38 Stat. 1164, 1169, 1170-1184.
52 Stat. 1007, § 601(a)(5). This authority has apparently been exercised only as to pilots and copilots. Dept. of Commerce, Bureau of Air Commerce, Civil Air Regulations, No. 61, Scheduled Airline Rules (Interstate), as amended to May 31, 1938, §§ 61.518-61.5185.
That the word "employees" is not treated by Congress as a word of art having a definite meaning is apparent from an examination of recent legislation. Thus, the Social Security Act specifically provides that "The term employee' includes an officer of a corporation" (42 U.S.C. § 1301(a)(6)), while the Fair Labor Standards Act specifically exempts "any employee employed in a bona fide executive, administrative, professional, or local retailing capacity. . . ." (29 U.S.C. § 213(a)(1)). In the Railroad Unemployment Insurance Act, Congress expressly recognized the variable meaning of employee even when defined at length and used only in a single act: " . . . `employee' (except when used in phrases establishing a different meaning) means . . ." (45 U.S.C. § 351(d)). In a statute permitting heads of departments to settle claims up to $1,000 arising from the negligence of "employees of the Government," Congress gives recognition to the fact that the term is not, on its face, all-inclusive by providing: "`Employee' shall include enlisted men in the Army, Navy and Marine Corps." (31 U.S.C. §§ 215, 216.) See also the varying definitions of "employees" in the following statutes: Railroad Retirement Act, 45 U.S.C. § 228a(b)(c); Interstate Commerce Act, 49 U.S.C. § 1(7); Emergency Railroad Transportation Act, 49 U.S.C. § 251(f); Communications Act, 47 U.S.C. § 210; National Labor Relations Act, 29 U.S.C. § 152(3); Maritime Labor Relations Act, 46 U.S.C. § 1253(c); Classification Act of 1923 (Civil Service), 5 U.S.C. § 662; U.S. Employees' Compensation Act, 5 U.S.C. § 790; Longshoremen's and Harbor Workers' Compensation Act, 33 U.S.C. § 902; Boiler Inspection Act, 45 U.S.C. § 22; Railway Labor Act, 45 U.S.C. § 151(5).
Where the term "employee" has been used in statutes without particularized definition, it has not been treated by the courts as a word of definite content. See Metcalf & Eddy v. Mitchell, 269 U. S. 514, 269 U. S. 520 (consulting engineers performing services for states, municipalities, and water districts held not to be "employees" under statute exempting "officers and employees under . . . any State, . . . or any local subdivision thereof" from the income tax); Waskey v. Hammer, 223 U. S. 85 (mineral surveyor, appointed by the surveyor but paid by private persons, is within prohibition of statute prohibiting "employes in the General Land Office" from purchasing public land); Nashville, C. & St.L. Ry. v. Railway Employees' Dept., 93 F.2d 340 (furloughed railroad workers entitled to priority in rehiring held "employees" within meaning of Railway Labor Act), discussed in 51 Harv.L.Rev. 1299; Latta v. Lonsdale, 107 F. 585 (attorney not "employee" within meaning of statute giving "employees" preference against assets of insolvent corporations); Vane v. Newcombe, 132 U. S. 220 (contractor who built lines for telegraph company not "employee" within statute giving employees liens against corporate property); Malcomson v. Wappoo Mills, 86 F.192 (same); cf. United States v. Griffith, 55 App.D.C. 123; 2 F.2d 925 (War Department clerk receiving disability compensation held employee of government within common law rule of the District of Columbia that employee of a litigant cannot be a member of jury); see also Hull v. Philadelphia & Reading Ry. Co., 252 U. S. 475; Louisville, E. & St.L. R. Co. v. Wilson, 138 U. S. 501; Campbell v. Commissioner, 87 F.2d 128; Burnet v. Jones, 50 F.2d 14; Burnet v. McDonough, 46 F.2d 944.
S. 1629, 74th Cong., 1st Sess.
S.Doc. 152, 73rd Cong., 2nd Sess., p. 352, § 304(a)(1).
"The regulation of the hours of service of bus and truck operators is far more important from a safety standpoint than the regulation of the hours of service of railroad employees, because the danger is greater. . . . This could be accomplished by inserting in section 304(a)(1) and (2), lines 9 and 15, page 8, following the word 'records' in both lines, the words which appear in S. 394, as follows: 'qualifications and maximum hours of service of employees.'"
The clause in question came from § 2(a)(1) of S. 394, 74th Cong., 1st Sess., a subsection otherwise substantially like the corresponding subsection in S. 1629.
". . . the committee amended paragraphs (1) and (2) [of § 204] to confer power on the Commission to establish reasonable requirements with respect to the qualifications and maximum hours of service of employees of common and contract carriers, . . . This suggestion came to us, I think, from the chairman of the legislative committee of the Interstate Commerce Commission. . . ."
"In order to make the highways more safe, and so that common and contract carriers may not be unduly prejudiced in their competition with peddler trucks and other private operators of motor trucks, a provision was added in subparagraph 3 giving the Commission authority to establish similar requirements with respect to the qualifications and hours of service of the employees of such operators. . . ."
"No regulation is proposed for private carriers except that an amendment adopted in committee authorizes the Commission to regulate the 'qualifications and maximum hours of service of employees and safety of operation and equipment' of private carriers of property by motor vehicle in the event that the Commission determines there is need for such regulation. Other amendments adopted by the committee confer like authority upon the Commission with respect to common and contract carriers."
Safety of operation and equipment was in the original bill.
H.R.Rep. No. 1645, 74th Cong., 1st Sess.
Norwegian Nitrogen Co. v. United States, 288 U. S. 294, 288 U. S. 315.
Hassett v. Welch, 303 U. S. 303, 303 U. S. 310.
"Paragraph (1) of section 34 of the bill is based on the provisions of subparagraphs (1), (2), and (3) of section 204(a) of the Motor Carrier Act. In the original draft, there was inserted at the beginning of the paragraph the clause 'in order to promote safety of operations,' thus making clear that the Commission's power to regulate qualifications and maximum hours of service of employees is confined to those who have anything to do with safety of operation. This is a question with respect to which considerable doubt seems to have arisen under the wording of the present law. Upon the strenuous objection of the truckers claiming conflict between this law and the Fair Labor Standards Act, the bill [i.e., the committee amendment] restores the law to the present provisions of the Motor Carrier Act."
"While the subsection [in the Senate bill] follows the existing language of section 204 . . . , a controversy has arisen in regard to the meaning of that language. . . . This controversy has now reached the Supreme Court. We think it may well be determined in this new legislation. In our judgment, if restrictions on hours of labor for social and economic reasons are to be imposed, this should be done by Congress, and no duty in that respect should be delegated to the Commission, which has no experience which particularly fits it for the performance of such a duty. Our authority over qualifications and hours of service of employees should, therefore, be confined to the needs of safety in operation. . . ."
On April 26, 1940, the House conferees reported to the House a compromise bill agreed on by the conference committee which left § 204(a)(1), (2), and (3) of the Motor Carrier Act unamended. 86 Cong.Rec. 7847; H.R.Rep. No. 2016, 76th Cong., 3d Sess. On May 9, 1940, the House, because of disagreement with sections of this bill not here relevant, voted to recommit the bill to the conference committee. 86 Cong.Rec. 8986.
"(b) Nothing in this part, except the provisions of section 204 relative to qualifications and maximum hours of service of employees and safety of operation or standards of equipment shall be construed to include (1) motor vehicles employed solely in transporting school children and teachers to or from school; or (2) taxicabs, or other motor vehicles performing a bona fide taxicab service, having a capacity of not more than six passengers and not operated on a regular route or between fixed termini; or (3) motor vehicles owned or operated by or on behalf of hotels and used exclusively for the transportation of hotel patrons between hotels and local railroad or other common carrier stations; or (4) motor vehicles operated, under authorization, regulation, and control of the Secretary of the Interior, principally for the purpose of transporting persons in and about the national parks and national monuments; or (4a) motor vehicles controlled and operated by any farmer, and used in the transportation of his agricultural commodities and products thereof, or in the transportation of supplies to his farm; or (4b) motor vehicles controlled and operated by a cooperative association as defined in the Agricultural Marketing Act, approved June 15, 1929, as amended; or (5) trolley busses operated by electric power derived from a fixed overhead wire, furnishing local passenger transportation similar to street railway service; or (6) motor vehicles used exclusively in carrying livestock, fish (including shell fish), or agricultural commodities (not including manufactured products thereof); or (7) motor vehicles used exclusively in the distribution of newspapers; nor, unless and to the extent that the Commission shall from time to time find that such application is necessary to carry out the policy of Congress enunciated in section 202, shall the provisions of this part, except the provisions of section 204 relative to qualifications and maximum hours of service of employees and safety of operation or standards of equipment apply to: (8) The transportation of passengers or property in interstate or foreign commerce wholly within a municipality or between contiguous municipalities or within a zone adjacent to and commercially a part of any such municipality or municipalities, except when such transportation is under a common control, management, or arrangement for a continuous carriage or shipment to or from a point without such municipality, municipalities, or zone, and provided that the motor carrier engaged in such transportation of passengers over regular or irregular route or routes in interstate commerce is also lawfully engaged in the intrastate transportation of passengers over the entire length of such interstate route or routes in accordance with the laws of each State having jurisdiction; or (9) the casual, occasional, or reciprocal transportation of passengers or property in interstate or foreign commerce for compensation by any person not engaged in transportation by motor vehicle as a regular occupation or business."

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§ 202
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 § 601
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