Source: https://supreme.justia.com/cases/federal/us/371/285/
Timestamp: 2019-04-25 19:51:09+00:00

Document:
The United States sued in a Federal District Court to enjoin the Georgia Public.Service Commission from prohibiting common carriers from contracting with agencies of the Federal Government for the mass transportation within that State of the household goods of civilian employees of the Federal Government at rates other than those prescribed by the Georgia Commission. A three-judge District Court convened to hear the case denied an injunction, and the United States appealed directly to this Court.
1. This case is one "required" to be heard by a three-judge District Court, and a direct appeal to this Court was properly taken under 28 U.S. C. § 1253. Pp. 371 U. S. 287-288.
2. Federal procurement statutes provide for the negotiation of special rates for transporting household goods of federal employees at government expense, and the State could not defeat the purpose of this legislation by prohibiting the common carriers from transporting such goods intrastate at rates other than those prescribed by the Georgia Public Service Commission. Public Utilities Commission of California v. United States, 355 U. S. 534. Pp. 371 U. S. 288-293.
Civilian employees of the Federal Government were reassigned from Savannah to Atlanta, Georgia, and the General Services Administration sought to arrange by competitive bidding for the intrastate mass shipment of their household goods between those cities. Georgia law, however, does not permit a rate for transporting household goods of more than one family; it requires carriers to quote schedules of approved rates, the total charge to be the sum of the charges figured for individual families. [Footnote 1] Five carriers submitted bids quoting rates lower than those allowed by the Georgia tariff. After the competitive bidding was over and the contract awarded to the lowest responsible bidder, the Georgia Public Service Commission threatened these five carriers with revocation of their intrastate operating certificates should they perform at the rates quoted GSA. The successful bidder thereupon notified GSA that it was unable to perform the contract. Appellee instituted proceedings against the carrier, looking toward the revocation of its certificate. The United States sought to intervene in that proceeding, but it was not allowed to do so. Appellee also refused to allow a GSA official to testify as to the circumstances of the shipping contract that the Commission claimed conflicted with Georgia law.
policy. The issue as finally joined raises squarely those questions. The District Court held that there was no conflict between Georgia's regulatory scheme and the federal one, concluding that the case is governed by Penn Dairies, Inc. v. Milk Control Comm'n, 318 U. S. 261. See 197 F.Supp. 793. The case is here on direct appeal (28 U.S.C. §§ 1253, 2101(b)); we postponed consideration of the question of jurisdiction until a hearing on the merits. 369 U.S. 882.
calling of a three-judge court. See Sterling v. Constantin, 287 U. S. 378, 287 U. S. 393-394; Railroad Comm'n v. Pacific Gas Co., 302 U. S. 388, 302 U. S. 391.
The District Court, acting on motions for summary judgment filed by each of the parties, said that, were the property being transported "strictly governmental property," the case would be governed by Public Utilities Comm'n of California v. United States, 355 U. S. 534. But since the property involved here is household goods, not military supplies, the court concluded that the case is controlled by Penn Dairies, Inc. v. Milk Control Comm'n, supra.
"by the mode of transportation . . . which results in the lowest over-all cost to the Government and which provides the required service satisfactorily. [Footnote 4]"
carriers for "rates" [Footnote 5] on military traffic and "Special arrangements pertaining to other freight traffic." [Footnote 6] Examples could be multiplied, but enough has been said to show that the new Military Traffic Management Regulation continues in effect the provisions of the earlier regulation in force when the Public Utilities Comm'n of California case was decided.
"the principles of the Armed Services Procurement Act of 1947, with appropriate modifications principally designed to eliminate provisions applicable primarily to the military."
determinations and decisions required in connection therewith. . . ."
"(b) Makes purchases and contracts for property and services by advertising, and determines that the rejection of all bids is in the public interest."
"(c) Determines the type of negotiated contract which will promote the best interests of the Government. . . ."
"to evaluate mass movements of household goods and personal effects and, when feasible, to negotiate with carriers to effect the most economical basis for the movement of such household goods and personal effects. [Footnote 10]"
"Except when the exigency of the movement precludes such action, all requests for rates for mass movements . . . shall be made by formal advertising [for bids]. . . . [Footnote 11]"
"All purchases and contracts for property and services shall be made by advertising, as provided in section 253 of this title, except that such purchases and contracts may be negotiated by the agency head without advertising if --"
"(2) the public exigency will not admit of the delay incident to advertising;"
"(10) for property or services for which it is impracticable to secure competition;"
"(14) for property or services as to which the agency head determines that bid prices after advertising therefor are not reasonable . . . or have not been independently arrived at in open competition: Provided, That . . . (B) the negotiated price is the lowest negotiated price offered by any responsible supplier. . . ."
"The Administrator shall, in respect of executive agencies, and to the extent that he determines that so doing is advantageous to the Government in terms of economy, efficiency, or service, and with due regard to the program activities of the agencies concerned --"
"(4) with respect to transportation and other public utility services for the use of executive agencies, represent such agencies in negotiations with carriers and other public utilities and in proceedings involving carriers or other public utilities before Federal and State regulatory bodies. . . ."
But that provision does not say that state-fixed rates govern the federal procurement official unless he can get them changed. It is comparable to § 22 of the Interstate Commerce Act, 49 U.S.C. § 22, which allows the United States to obtain preferred rates.
"The object of the section was to settle, beyond doubt, that the preferential treatment of certain classes of shippers and travelers . . . is not necessarily prohibited."
Nashville R. Co. v. Tennessee, 262 U. S. 318, 262 U. S. 323. And see Southern R. Co. v. United States, 322 U. S. 72; United States v. Interstate Commerce Comm'n, 352 U. S. 158.
By § 481(a) the Administrator is authorized to seek before state agencies preferential treatment for federal shipments. But there is not a word suggesting that, failing in that regard, he is bound to accept the state-fixed rate. The Act and the Regulation speak too clearly in terms of the "lowest over-all cost" to the Government, either through competitive bidding or negotiation with carriers, for us to conclude that the only relief against state fixed rates is an administrative remedy before the state agency either through negotiation or litigation. Congress has not tied the hands of the federal procurement officials so tightly.
supra. The Georgia policy, which is opposed to this federal policy, must accordingly give way. For, as we noted in Public Utilities Comm'n of California v. United States, supra, at 355 U. S. 544, a State is without power by reason of the Supremacy Clause to provide the conditions on which the Federal Government will effectuate its policies. Whether the federal policy is a wise one is for the Congress and the Chief Executive to determine. See Perkins v. Lukens Steel Co., 310 U. S. 113, 310 U. S. 127 et seq. Once they have spoken, it is our function to enforce their will.
See Ga. Household Goods Tariff No. 1-B, GPSC-MF No. 3, Rules 8 and 15. The latter provides in part that "Property of two or more families or establishments will not be accepted for transportation as a single shipment."
Promulgated March 1958, as amended to October 10, 1960.
Id., c. 101, ¦ 101001.
Joint Travel Regulations, c. 8, April 1, 1959, as amended to October 1, 1961, ¦ 8001.
Military Traffic Management Regulation, amended to November 5, 1959, c. 201, ¦ 201001(b).
General Services Adm. Order, ADM 5450.3, change 4, ¦ 141a; TPS 7460.1, Attachment, ¦ 3, March 15, 1960.
ADM, supra, ¦ 141b; TPS 7460.1, ¦ 4.
63 Stat. 813, as amended, 37 U.S.C. § 253(c).
60 Stat. 806, as amended, 5 U.S.C. § 73b-1.
The governing law in this case is Title III of the Federal Property and Administrative Services Act of 1949, [Footnote 2/1] but that Act simply "extends to the General Services Agency the principles of the Armed Services Procurement Act of 1947." [Footnote 2/2] In Paul v. United States, ante, p. 270, I have stated why I think those principles clearly contemplate that government procurement is to be conducted within the framework of valid state regulatory legislation. For the reasons there stated, I also dissent from the Court's judgment in this case.
"(a) The Administrator shall . . ."
(Emphasis added.) The Court seizes upon the words "in negotiations with carriers" as evidence that Congress authorized the Administrator to by-pass state rate schedules when placing contracts for intrastate transportation.
63 Stat. 393, as amended, 41 U.S.C. §§ 251-260.
H.R.Rep. No. 670, 81st Cong., 1st Sess. 6.
63 Stat. 383, as amended, 40 U.S.C. § 481(a).
"Negotiation with all for-hire carriers of cargo or their ratemaking agencies for classifications, rates, charges, rules and regulations on military traffic. . . ."
"the provision of advice and expert testimony on behalf of executive agencies in proceedings before Federal and State regulatory bodies involving transportation, public utilities [and] communications. . . ."
General Services ADM Order, Adm. 5450.3, Change 4, July 31, 1959, § 1, ¦ 141(b).

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