Source: https://www.law.cornell.edu/supremecourt/text/264/375
Timestamp: 2016-04-30 06:38:54
Document Index: 178927367

Matched Legal Cases: ['§ 8337', '§ 991', '§ 991', 'art, 253', '§ 1663', 'art, 253', '§ 24', '§ 991']

PANAMA R. CO. v. JOHNSON. | US Law | LII / Legal Information Institute
Supreme Court aboutsearch liibulletin subscribe previews PANAMA R. CO. v. JOHNSON.
264 U.S. 375 (44 S.Ct. 391, 68 L.Ed. 748)
[HTML] Mr. Richard Reid Rogers, of New York City, for plaintiff in error.
This was an action by a seaman against his employer, the owner of the ship on which he was serving, to recover damages for personal injuries suffered at sea while he was ascending a ladder from the deck to the bridge in the course of his employmentthe complaint charging that the injuries resulted from negligence of the employer in providing an inadequate ladder and negligence of the ship's officers in permitting a canvas dodger to be stretched and insecurely fastened across the top of the ladder and in ordering the seaman to go up the ladder. The employer was a New York corporation. The ship was a domestic merchant vessel which at the time of the injuries was returning from an Ecuadorian port. The action was brought on the common-law side of a District Court of the United States, and the right of recovery was based expressly on section 20 of the Act of March 4, 1915, c. 153, 38 Stat. 1185, as amended by section 33 of the Act of June 5, 1920, c. 250, 41 Stat. 1007 (Comp. St. Ann. Supp. 1923, § 8337a), which reads as follows 'Sec. 20. That any seaman who shall suffer personal injury in the course of his employment may, at his election, maintain an action for damages at law, with the right of trial by jury, and in such action all statutes of the United States modifying or extending the common-law right or remedy in cases of personal injury to railway employees shall apply; and in case of the death of any seaman as a result of any such personal injury the personal representative of such seaman may maintain an action for damages at law with the right of trial by jury, and in such action all statutes of the United States conferring or regulating the right of action for death in the case of railway employees shall be applicable. Jurisdiction in such actions shall be under the court of the district in which the defendant employer resides or in which his principal office is located.'
The case arose under a law of the United States and involved the requisite amount, if any was requisite;
so there can be no doubt that the case was within the general jurisdiction conferred on the District Courts by section 24 of the Judicial Code (Comp. St. § 991), unless, as the defendant contends, it was excluded by the concluding provision of the act, which says:
Although not happily worded, the provision, taken alone, gives color to the contention. But as a general rule, where existing legislation on a particular subject has been systematically revised and restated in a comprehensive general statute, such as the Judicial Code, subsequent enactments touching that subject are to be construed and applied in harmony with the general statute, save as they clearly manifest a different purpose. An intention to depart from a course or policy thus deliberately settled is not lightly to be assumed. See United States v. Barnes, 222 U. S. 513, 520, 32 Sup. Ct. 117, 56 L. Ed. 291; United States v. Sweet, 245 U. S. 563, 572, 38 Sup. Ct. 193, 62 L. Ed. 473. The rule is specially pertinent here. Beginning with Judiciary Act of 1789 (
1 Stat. 73), Congress has pursued the policy of investing the federal courtsat first the Circuit Courts, and later the District Courtswith a general jurisdiction expressed in terms applicable alike to all of them and of regulating the venue by separate provisions designating the particular district in which a defendant shall be sued, such as the district of which he is an inhabitant or in which he has a place of businessthe purpose of the venue provisions being to prevent defendants from being compelled to answer and defend in remote districts against their will. This policy was carried into the Judicial Code, and is shown in sections 24 and 51 (Comp. St. §§ 991, 1033); one embodying general jurisdictional provisions applicable to rights under subsequent laws as well as laws then existing, and the other containing particular venue provisions. A reading of the provision now before us with those sections, and in the light of the policy carried into them, makes it reasonably certain that the provision is not intended to affect the general jurisdiction of the District Courts as defined in section 24, but only to prescribe the venue for actions brought under the new act of which it is a part. No reason why it should have a different purpose has been suggested, nor do we perceive any. Its use of the owrd 'jurisdiction' seems inapt, and therefore not of special significance. The words 'shall be' are stressed by the defendant, but as they are found also in the earlier provisions, which uniformly have been held to relate to venue only, they afford no ground for a distinction.
As there could be no cases of 'admiralty and maritime jurisdiction,' in the absence of some maritime law under which they could arise, the provision presupposes the existence in the United States of a law of that character. Such a law or system of law existed in colonial times and during the Confederation, and commonly was applied in the adjudication of admiralty and maritime cases. It embodied the principles of the general maritime law, sometimes called the law of the sea, with modifications and supplements adjusting it to conditions and needs on this side of the Atlantic. The framers of the Constitution were familiar with that system and proceeded with it in mind. Their purpose was not to strike down or abrogate the system, but to place the entire subjectits substantive as well as its procedural featuresunder national control, because of its intimate relation to navigation and to interstate and foreign commerce. In pursuance of that purpose the constitutional provision was framed and adopted. Although containing no express grant of legislative power over the substantive law, the provision was regarded from the beginning as implicitly investing such power in the United States. Commentators took that view. Congress acted on it, and the courts, including this court, gave effect to it. Practically therefore the situation is as if that view were written into the provision. After the Constitution went into effect, the substantive law theretofore in force was not regarded as superseded or as being only the law of the several states, but as having become the law of the United Statessubject to power in Congress to alter qualify or supplement it as experience or changing conditions might require. When all is considered, therefore, there is no room to doubt that the power of Congress extends to the entire subject and permits of the exercise of a wide discretion.
But there are limitations which have come to be well recognized. One is that there are boundaries to the maritime law and admiralty jurisdiction which inhere in those subjects and cannot be altered by legislation, as by excluding a thing falling clearly within them or including a thing falling clearly without. Another is that the spirit and purpose of the constitutional provision require that the enactmentswhen not relating to matters whose existence or influence is confined to a more restricted field, as in Cooley v. Board of Wardens, 12 How. 299, 319, 13 L. Ed. 996shall be coextensive with and operate uniformly in the whole of the United States. Waring v. Clarke, 5 How. 441, 457, 12 L. Ed. 226; The Lottawanna, 21 Wall. 558, 574, 577, 22 L. Ed. 654; Butler v. Boston & Savannah Steamship Co., 130 U. S. 527, 556, 557, 9 Sup. Ct. 612, 32 L. Ed. 1017; In re Garnett, 141 U. S. 1, 12, 11 Sup. Ct. 840, 35 L. Ed. 631; Southern Pacific Co. v. Jensen, 244 U. S. 205, 215, 37 Sup. Ct. 524, 61 L. Ed. 1086, L. R. A. 1918C, 451, Ann. Cas. 1917E, 900; Knickerbocker Ice Co. v. Stewart, 253 U. S. 149, 164, 40 Sup. Ct. 438, 64 L. Ed. 834, 11 A. L. R. 1145; Washington v. Dawson & Co., 264 U. S. 219, 44 Sup. Ct. 302, 68 L. Ed. ; 2 Story, Const. (5th Ed.) §§ 1663, 1664, 1672.
The statute is concerned with the relative rights and obligations of seamen and their employers arising out of personal injuries sustained by the former in the course of their employment. Without question this is a matter which falls within the recognized sphere of the maritime law, and in respect of which the maritime rules have differed materially from those of the common law applicable to injuries sustained by employees in nonmaritime service. But, as Congress is empowered by the constitutional provision to alter, qualify or supplement the maritime rules, there is no reason why it may not bring them into relative conformity to the common-law rules or some modification of the latter, if the change be country-wide and uniform in operation. Not only so, but the constitutional provision interposes no obstacle to permitting rights founded on the maritime law or an admissible modification of it to be enforced as such through appropriate actions on the common-law side of the courtsthat is to say, through proceedings in personam according to the course of the common law. Chelentis v. Luckenbach Steamship Co., 247 U. S. 372, 384, 38 Sup. Ct. 501, 62 L. Ed. 1171; Knickerbocker Ice Co. v. Stewart, 253 U. S. 149, 159, 40 Sup. Ct. 438, 64 L. Ed. 834, 11 A. L. R. 1145. This was permissible before the Constitution, and it is still permissible. Judicial Code, §§ 24 and 256; Waring v. Clarke, 5 How. 441, 460, 12 L. Ed. 226; New Jersey Steam Navigation Co. v. Merchants' Bank, 6 How. 344, 390, 12 L. Ed. 465; Leon v. Galceran, 11 Wall. 185, 188, 191, 20 L. Ed. 74; Schoonmaker v. Gilmore, 102 U. S. 118, 26 L. Ed. 95; Knapp, Stout & Co. v. McCaffrey, 177 U. S. 638, 646, 20 Sup. Ct. 824, 44 L. Ed. 921; Carlisle Packing Co. v. Sandanger, 259 U. S. 255, 259, 42 Sup. Ct. 475, 66 L. Ed. 927; Red Cross Line v. Atlantic Fruit Co., 264 U. S. 109, 44 Sup. Ct. 274, 68 L. Ed. .
The course of legislation, as exemplified in section 9 of the Judiciary Act of 1789, sections 563 (par. 8) and 711 (par. 3) of the Revised Statutes, and sections 24 (para. 3) and 256 (par. 3) of the Judicial Code (Comp. St. §§ 991 3, 1233), always has been to recognize the admiralty jurisdiction as open to the adjudication of all maritime cases as a matter of course, and to permit a resort to common-law remedies through appropriate proceedings in personam as a matter of admissible grace. It therefore is reasonable to believe that, had Congress intended by this statute to withdraw rights of action founded on the new rules from the admiralty jurisdiction and to make them cognizable only on the common-law side of the courts, it would have expressed that intention in terms befitting such a pronounced departurethat is to say, in terms unmistakably manifesting a purpose to make the resort to common-law remedies compulsory, and not merely permissible. But this was not doen. On the contrary, the terms of the statute in this regard are not imperative but permissive. It says 'may maintain' an action at law 'with the right of trial by jury,' the import of which is that the injured seaman is permitted, but not required, to proceed on the common-law side of the court with a trial by jury as an incident. The words 'in such action' in the succeeding clause are all that are troublesome. But we do not regard them as meaning that the seaman may have the benefit of the new rules if he sues on the law side of the court, but not if he sues on the admiralty side. Such a distinction would be so unreasonable that we are unwilling to attribute to Congress a purpose to make it. A more reasonable view, consistent with the spirit and purpose of the statute as a whole, is that the words are used in the sense of 'an action to recover damages for such injuries,' the emphasis being on the object of the suit rather than the jurisdiction in which it is brought. So we think the reference is to all actions brought to recover compensatory damages under the new rules as distinguished from the allowances covered by the old rules, usually consisting of wages and the expense of maintenance and cure. See The Osceola, 189 U. S. 158, 23 Sup. Ct. 483, 47 L. Ed. 760; The Iroquois, 194 U. S. 240, 24 Sup. Ct. 640, 48 L. Ed. 955; Chelentis v. Luckenbach Steamship Co., 247 U. S. 372, 38 Sup. Ct. 501, 62 L. Ed. 1171. In this view the statute leaves the injured seaman free under the general law sections 24 (par. 3) and 256 (par. 3) of the Judicial Codeto assert his right of action under the new rules on the admiralty side of the court. On that side the issues will be tried by the court, but if he sues on the common-law side there will be a right of trial by jury. So construed, the statute does not encroach on the admiralty jurisdiction intended by the Constitution, but permits that jurisdiction to be invoked and exercised as it has been from the beginning.