Source: http://www.mindserpent.com/court/1937_helvering.html
Timestamp: 2019-01-21 09:41:38
Document Index: 133805415

Matched Legal Cases: ['§ 32', '§ 31', '§ 153', '§ 103', '§ 4', 'Art. 1', '§ 8', '§ 584', '§ 8', '§ 8', 'art, 247', 'art. 1', '§ 8']

[301 U.S. 619, 619]
GUY T. HELVERING, Com'r of Internal Revenue, and
William M. Welch, Collector of Internal Revenue
for the District of Massachusetts, and
Edison Electric Illuminating Company of Boston, Petitioners.
301 U.S. 619, 301 U.S. 672, 81 L. Ed. 1307 (1937)
Statutes, § 32 - validity - who may question.
1. The constitutionality of the provisions of Titles II and VIII of the Social Security Act of August 14, 1935 [49 Stat. at L. 620, chap. 531. 42 U. S. C. chap. 7 (Supp.)], may properly be determined in a suit brought against the corporation by a stockholder to restrain the corporation from making the payments, and deductions from wages, required by the provisions of Title VIII.
States, § 31 - old age pension provisions of Social Security Act as encroachment on reserved powers.
2. The scheme of old age benefits created by the provisions of Title II of the Social Security Act of August 14, 1935 [49 Stat. at L. 620, chap. 531. 42 U. S. C. chap. 7 (Supp.)], providing for the payment of such benefits, and authorizing future appropriations, to an account to be set up by the Treasury for such purpose, sufficient to provide for the contemplated benefits, is within the power of Congress to spend money in aid of the general welfare, and therefore is
1. On judicial questions regarding Federal Social Security Act and state legislation adopted in anticipation of, or after the passage of, that act, to set up "state plan" contemplated by it, see annotation in 100 A.L.R. 697; 106 A.L.R. 243: 108 A.L.R. 613; and 109 A.L.R. 1346.
[81 L. Ed. 1307]
not in contravention of the limitations of the Tenth Amendment.
3. Congress may spend money in aid of the general welfare.
Courts, § 153  power to review legislative determination that expenditure is in aid of general welfare.
4. Discretion to determine whether an expenditure of public money is in aid of the general welfare belongs to Congress and is not a matter with which the courts are concerned, unless the choice is clearly wrong, a display of arbitrary power, not an exercise of judgment.
Courts, § 103  inquiry into wisdom of legislation.
5. The concern of the courts is with the power to enact a statute, not with its wisdom.
Internal Revenue, § 4  tax imposed by Social Security Act as within powers of Congress.
6. The tax imposed on employers by Title VIII of the Social Security Act of August 14, 1935 [49 Stat. at L. 620, chap. 531, 42 U. S. C. chap. 7 (Supp.)], is an excise tax and thus within the power conferred upon Congress by Art. 1, § 8, of the Constitution, to lay and collect duties, imposts, and excises.
Constitutional Law, § 584  due process  effect of exemptions of Social Security Act.
7. The exemptions of Title VIII of the Social Security Act of August 14, 1935 [49 Stat, at L. 620, chap. 531. 42 U. S. C. chap. 7 (Supp.)], which by its terms is inapplicable to certain types of employment. such as agricultural labor, domestic service in private homes, service for the national or state governments, and service performed by persons who have attained the age of sixty-five, are not so arbitrary as to render the tax thereby imposed on employers violative of the due process requirement of the Fifth Amendment.
[No. 910.]
ON WRIT of Certiorari to the United States Circuit Court of Appeals for the First Circuit to review a decree reversing a decree of the District Court of the United States for the District of Massachusetts, dismissing a bill by a stockholder to restrain a corporation from making the payments and deductions required by the Federal Social Security Act. Decree of the Circuit Court of Appeals reversed, and that of the District Court affirmed.
See same case, below, 89 F. (2d) 393.
Assistant Attorney General Robert H. Jackson and Special Assistant to the Attorney General Charles E. Wyzanski, Jr., both of Washington. D. C., argued the cause, and, with Attorney General Homer Cummings. Solicitor General Reed, Special Assistants to the Attorney General Sewall Key, A. H. Feller, and Arnold Raum and Messr's. Charles A. Horsky, Thomas H. Eliot, Alanson Willcox, and Robert P. Bingham, all of Washington, D. C., filed a brief for petitioners:
Title VIII. is a valid exercise of the power to tax conferred on Congress by article 1, § 8, clause 1.
Brushaber v. Union P. R. Co., 240 U. S. 1, 21, 60 L. ed. 493, 503, 36 S. Ct. 236, L.R.A.1917D. 414. Ann. Cas. 1917B, 713; Pierce Oil Corp. v. Hopkins, 264 U. S. 137, 68 L. ed. 593, 44 S. Ct. 251; Bell's Gap R. Co. v. Pennsylvania, 134 U. S. 232, 239, 33 L. ed. 892, 895, 10 S. Ct. 533; United States v. American Exch. Irving Trust Co. (D. C.) 43 F. (2d) 829; United States v. First Capital Nat. Bank (C. C. A. 8th) 89 F. (2d) 116; Miami Valley Fruit Co. v. United States (C. C. A. 5th) 45 F. (2d) 303, certiorari denied in 283 U. S. 841, 75 L. ed. 1451, 51 S. Ct. 488; United States v. Erb (D. C.) 8 F. Supp. 947; Springer v. United States, 102 U. S. 586, 26 L. ed. 253; Pollock v. Farmers' Loan & T. Co., 157 U. S. 429, 579, 39 L. ed. 759, 818, 15 S. Ct. 673; Barwise v. Sheppard, 299 U. S. 33, 36, ante, 23, 25, 57 S. Ct. 70; Florida v. Mellon, 273 U. S. 12, 17, 71 L. ed. 511, 514, 47 S. Ct. 265; Knowlton v. Moore, 178 U. S. 41, 83-108, 44 L. ed. 969, 986-995, 20 S. Ct. 747; Poe v. Seaborn, 282 U. S. 101, 117, 118,
[81 L. Ed. 1308]
75 L. ed. 239, 246, 247, 51 S. Ct. 58; Bromley v. McCaughn, 280 U. S. 124, 138, 74 L. ed. 226, 230, 50 S. Ct. 46; Child Labor Tax Case (Bailey v. Drexel Furniture Co.) 259 U. S. 20, 66 L. ed. 818, 42 S. Ct. 449, 21 A.L.R. 1432; Hill v. Wallace, 259 U. S. 44, 66 L. ed. 822, 42 S. Ct. 453; Patton v. Brady, 184 U. S. 608, 620, 46 L. ed. 713, 719, 22 S. Ct. 493; Knight v. Jackson, 260 U. S. 12, 15, 67 L. ed. 102, 104, 43 S. Ct. 1; Carley & Hamilton v. Snook, 281 U. S. 66, 74 L. ed. 704, 50 S. Ct. 204. 68 A.L.R. 194.
The appropriations authorized by title II. may not be challenged by a taxpayer under title VIII.
Frothingham v. Mellon, 262 U. S. 447, 67 L. ed. 1078, 43 S. Ct. 597; Wheless v. Mellon, 56 App. D. C. 98, 10 F. (2d) 893.
The expenditures authorized by title II. are within the authority of Congress under article 1, § 8, clause 1.
United States v. Butler, 297 U. S. 1, 65-67, 80 L. ed. 477, 488, 489, 56 S. Ct. 312; United States v. Realty Co. 163 U. S. 427, 440, 11 L. ed. 215, 219, 16 5. Ct. 1120; Legal Tender Case, 110 U. S. 421, 440, 28 L. ed. 204, 211, 4 S. Ct. 122; United States v. Teller, 107 U. S. 64, 68, 27 L. ed. 352, 354, 2 S. Ct. 39; Frisbie v. United States, 157 U. S. 160, 166, 39 L. ed. 657, 659, 15 S. Ct. 586; United States v. Cook, 257 U. S. 523, 527, 66 L. ed. 350, 351, 42 S. Ct. 200; German Alliance Ins. Co. v. Lewis, 233 U. S. 389, 58 L. ed. 1011, 34 S. Ct. 612, L.R.A.1915C, 1189; McCray v. United States, 195 U. 5. 27, 49 L. ed. 78, 24 S. Ct. 769, 1 Ann. Cas. 561; Lottery Case (Champion v. Ames) 188 U. S. 321, 47 L. ed. 492, 23 S. Ct. 321; Williams v. Heard, 140 U. 5. 529, 537, 35 L. ed. 550, 553, 11 S. Ct. 885; Nebbia v. New York, 291 U. S. 502, 537, 78 L. ed. 940, 957, 54 S. Ct. 505, 89 A.L.R. 1469; United States v. Curtiss-Wright Export Corp. 299 U. S. 304, 328, 329, 81 L. ed. 255, 267, 57 S. Ct. 216; United States v. Realty Co. 163 U. S. 427, 444, 41 L. ed. 215, 221, 16 S. Ct. 1120; Head Money Cases (Edye v. Robertson) 112 U. S. 580, 595, 28 L. ed. 798, 802, 5 S. Ct. 247; O'Gorman & Young v. Hartford F. Ins. Co. 282 U. S. 251, 258, 75 L. ed. 324, 328, 51 S. Ct. 130, 72 A.L.R. 1163; Metropolitan Casualty Ins. Co. v. Brownell, 294 U. S. 580, 79 L. ed. 1070, 55 S. Ct. 538; West Coast Hotel Co. v. Parrish, 300 U. S. 379, ante, 703, 57 S. Ct. 578, 108 A.L.R. 1330; Borden's Farm Products Co. v. Baldwin, 293 U. S. 194, 209, 79 L. ed. 281, 288, 55 S. Ct. 187; Alaska Packers Asso. v. Industrial Acci. Commission, 294 U. S. 532, 547, 79 L. ed. 1044, 1052, 55 S. Ct. 518.
The benefits under title II. are, like pensions, to be given or withheld in the discretion of Congress.
Walton v. Cotton, 19 How. 355, 15 L. ed. 658; United States v. Teller, 107 U. S. 64, 68, 27 L. ed. 352, 354, 2 S. Ct. 39; Frisbie v. United States, 157 U. S. 160, 39 L. ed. 657, 15 S. Ct. 586.
In classifying for the purposes of taxation, account may be taken of benefits received.
Norwood v. Baker, 172 U. S. 269, 43 L. ed. 443, 19 S. Ct. 187; Union Refrigerator Transit Co. v. Kentucky, 199 U. S. 194, 204, 50 L. ed. 150, 153, 26 S. Ct. 36, 4 Ann. Cas. 493; Chicago, B. & O. R. Co. v. Chicago, 166 U. S. 226, 41 L. ed. 979, 17 S. Ct. 581.
Since title VIII. and title II. severally constitute valid exercises of congressional power, they are not invalid when considered jointly.
Norman v. Baltimore & O. R. Co., 294 U. S. 240, 303, 79 L. ed. 885, 899, 55 S. Ct. 407, 95 A.L.R. 1352; M'Culloch v. Maryland, 4 Wheat. 316, 4 L. ed. 579; Knights v. Jackson, 260 U. S. 12, 15, 67 L. ed. 102, 104, 43 S. Ct. 1; Patton v. Brady, 184 U. S. 608, 620, 46 L. ed. 713, 719, 22 S. Ct. 493; J. W. Hampton, Jr. & Co. v. United States, 276 U. S. 394, 72 L. ed. 624, 48 S. Ct. 348; University of Illinois v. United States, 289 U. S. 48, 77 L. ed. 1025, 53 S. Ct. 509; Veazie Bank v. Fenno, 8 Wall. 533. 19 L. ed. 482; Clark v. Poor, 274 U. S. 554, 71 L. ed. 1199, 47 S. Ct. 702; Gillum v. Johnson, 7 Cal. (2d) 744, 62 P. (2d) 1037, 1044, 63 P. (2d) 810. 108 A.L.R. 595;
[81 L. Ed. 1309]
Southern Boulevard R. Co. v. New York (C. C. A. 2d) 86 F. (2d) 633; Ashwander v. Tennessee Valley Authority, 297 U. S. 288, 330, 80 L. ed.; 688, 702, 56 S. Ct. 466; Carter v. Carter Coal Co., 298 U. S. 238, 291, 80 L. ed. 1160, 1178, 56 S. Ct. 855.
These taxes do not contravene the Fifth Amendment.
Roberts & S. Co. v. Emmerson, 271 U. S. 50, 54, 55, 70 L. Ed. 827-834, 46 S. Ct. 375, 45 A.L.R. 1495; Premier-Pabst Sales Co. v. Grosscup, 298 U. S. 226, 80 L. ed. 1155, 56 S. Ct. 754; Brushaber v. Union P. R. Co., 240 U. S. 1, 60 L. ed. 493, 36 S. Ct. 236, L.R.A.1917D, 414. Ann. Cas. 1917B, 713; Flint v. Stone Tracy Co., 220 U. S. 107, 55 L. ed. 389, 31 S. Ct. 342; Ann. Cas. 1912B, 1312; Knowlton v. Moore. 178 U. S. 41, 44 L. ed. 969, 20 S. Ct. 747; Spreckels Sugar Ref. Co. v. McClain, 192 U. S. 397, 48 L. ed. 496, 24 S. Ct. 376; Colgate v. Harvey, 296 U. S. 404, 419-422, 80 L. ed. 299, 305-307, 56 S. Ct. 252, 102 A.L.R. 54; Magoun v. Illinois Trust & Say. Bank, 170 U. S. 283, 42 L. ed. 1037, 18 S. Ct. 594; Salomon v. State Tax Commission, 278 U. S. 484, 73 L. ed. 464, 49 S. Ct. 192; Hylton v. United States, 3 Dall. 171, 1 L. ed. 556; State Bd. of Equalization v. Young's Market Co., 299 U. S. 59, ante, 38, 57 S. Ct. 77; Clark v. Titusville, 184 U. S. 329, 46 L. ed. 569, 22 S. Ct. 382; Baltic Min. Co. v. Massachusetts, 231 U. S. 68, 81, 58 L. ed. 127, 132, 34 S. Ct. 15; Metropolis Theatre Co. v. Chicago, 228 U. S. 61, 57 L. ed. 730. 33 S. Ct.
Mr. Edward F. McClennen, of Boston, Massachusetts, argued the cause, and, with Messrs. Jacob J. Kaplan, E. Curtiss Mower, Jr., Edward Williamson, Roger E. Ela, Leonard Kaplan, and Robert Vance Brown, also of Boston, Massachusetts, filed a brief for respondent:
The attempted levy is to provide old age benefits such as are described in title II.
Grosjean v. American Press Co., 297 U. S. 233, 80 L. ed. 660, 56 S. Ct. 444; Trusler v. Crooks, 269 U. S. 475, 70 L. ed. 365, 46 S. Ct. 165; United States v. Butler, 297 U. S. 1, 80 L. ed. 477, 56 S. Ct. 312, 102 A.L.R. 914; Hill v. Wallace, 259 U. S. 44, 66 L. ed. 822, 42 S. Ct. 453; Child Labor Tax Case (Bailey v. Drexel Furniture Co.) 259 U. S. 20, 66 L. ed. 818, 42 S. Ct. 449, 21 A.L.R. 1432; Carter v. Carter Coal Co., 298 U. S. 238, 80 L. ed. 1160, 56 S. Ct. 855; United States v. Constantine, 296 U. S. 287, 294, 80 L. ed. 233, 238, 36 S. Ct. 223.
The imposition is not an excise as that word is used in the only clause of the Constitution which empowers the Congress to levy taxes.
Massachusetts v. Mellon, 262 U. S. 447, 67 L. ed. 1073, 13 S. Ct. 597; Florida v. Mellon, 273 U. S. 12, 71 L. ed. 311, 47 S. Ct. 265; Pollock v. Farmers' Loan & T. Co., 157 U. S. 429, 39 L. ed. 759, 15 S. Ct. 673; A. Magnano Co. v. Hamilton, 292 U. S. 40, 78 L. ed. 1109, 54 S. Ct. 599; Bromley v. McCaughn, 280 U. S. 121, 74 L. ed. 226, 30 S. Ct. 46; New York Trust Co. v. Eisner, 256 U. S. 343, 65 L. ed. 963, 41 S. Ct. 506, 16 A.L.R. 660; Billings v. United States, 232 U. S. 261, 58 L. ed. 596, 34 S. Ct. 421; McCray v. United States. 195 U. S. 27, 49 L. ed. 78, 24 S. Ct. 769, 1 Ann. Cas. 561; Thomas v. United States, 192 U. S. 363, 48 L. ed. 481, 24 S. Ct. 305; Cornell v. Coyne, 192 U. S. 418, 48 L. ed. 504, 24 S. Ct. 383; Spreckels Sugar Ref. Co. v. McClain, 192 U. S. 397, 48 L. ed. 496, 24 S. Ct. 376; Patton v. Brady, 184 U. S. 608, 46 L. ed. 713, 22 S. Ct. 493; Treat v. White, 181 U. S. 264, 45 L. ed. 853, 21 S. Ct. 611; Knowlton v. Moore, 178 U. S. 41, 84, 44 L. ed. 969, 986, 20 S. Ct. 747; Nicol v. Ames, 173 U. S. 509, 43 L. ed. 786, 19 S. Ct. 522; Springer v. United States, 102 U. S. 586, 26 L. ed. 253; Michigan C. R. Co. v. Collector (Michigan C. R. Co. v. Slack) 100 U. S. 595, 25 L. ed. 647; Scholey v. Rew, 23 Wall. 331, 23 L. ed. 99: Veazie Bank v. Fenno, 8 Wall. 533, 19 L. ed. 482; Pacific Ins. Co. v. Soule, 7 Wall. 433, 19 L. ed. 95; License Tax Cases, 5 Wall. 462, 18 L. ed. 497; Hylton v. United States, 3 Dall. 171, 1 L. ed. 556; Cook v. Pennsylvania, 97 U. S.
[81 L. Ed. 1310]
566, 24 L. ed. 1015; Opinion of Justices, 282 Mass. 619, 186 N. E 490; Opinion of Justices, 266 Mass. 592, 595, 165 N. E. 904, 63 A.L.R 959; Opinion of Justices, 196 Mass. 624, 85 N. E. 545; Louisville Joint Stock Land Bank v. Radford, 295 U. S. 555, 601, 602, 79 L. ed. 1593, 1611, 55 S. Ct. 854, 97 A.L.R. 1106, 28 Am. Bankr. Rep. (N. S.) 397; United States v. Butler, 297 U. S. 1, 80 L. ed. 477, 56 S. Ct. 312, 102 A.L.R. 914; Railrad Retirement Bd. v. Alton R. Co., 993 U. S. 330, 79 L. ed. 468, 55 S. Ct. 758; Citizens Sav.& L. Asso. v. Topeka, 20 Wall. 655, 22 L. ed. 455; Calder v. Bull, 3 Dall. 386, 1 L. ed. 648; United States ex rel. Miles Planting & Mfg. Co. v. Carlisle, 5 App. D. C. 138, 146; Grosjean v. American Press Co., 297 U. S. 233, 250, 80 L. ed. 660, 668, 56 S. Ct 444 .
If for general revenue  and even if not  the attempted levy is so capricious and so lacking in uniformity as not to be in character a tax.
Knowlton v. Moore, 178 U. S. 41, 14 L. ed. 969, 20 S. Ct. 747; Head Money Cases (Edye v. Robertson) 112 U. S. 580, 594, 28 L. ed. 798, 802, 5 S. Ct. 247; Brushaber v. Union P. R. Co., 240 U. S. 1, 60 L. ed. 493, 36 S. Ct. 236, L.R.A.1917D. 414. Ann Cas 1917B. 713; Van Oster v. Kansas, 272 U. S. 465, 71 L. ed. 357, 47 S. Ct. 133, 47 A.L.R. 1044; Jeffrey Mfg. Co. v. Blagg, 235 U. S. 571, 59 L. ed. 364, 35 S. Ct. 167, 7 N. C. C. A. 570; New York C. R. Co. v. White, 243 U. S. 188, 61 L. ed. 667, 37 S. Ct. 247; L.R.A. 1917D. 1. Ann. Cas. 1917D. 629, 13 N. C. C. A. 943; Florida v. Mellon, 273 U. S. 12, 71 L. ed. 511, 47 S. Ct. 265; Grosjean v. American Press Co., 297 U. S. 233, 251, 80 L. ed. 660, 669, 56 S. Ct. 444; Colgate v. Harvey, 296 U. S. 404, 422, 424, 80 L. ed. 299, 307, 308, 56 S. Ct. 252, 102 A.L.R. 54; Concordia F. Ins. Co. v. Illinois, 290 U. S. 535, 78 L. ed. 1411, 54 S. Ct. 830; Stebbins v. Riley, 268 U. S. 137, 69 L. ed. 884, 45 S. Ct. 424, 44 A. L. R. 1454; Louisville Gas & E. Co. v. Coleman, 277 U. S. 32, 72 L. ed. 770, 48 S. Ct. 423; Schlesinger v. Wisconsin, 270 U. S. 230, 70 L. ed. 557, 46 S. Ct. 260, 43 A.L.R. 1224; Bromlèy v. McCaughn, 280 U. S. 124, 139, 74 L. ed. 226, 50 S. Ct. 46; Mayflower Farms v. Ten Eyck, 297 U. S. 266, 272, 80 L. ed. 675, 678, 56 S. Ct. 457; Opinion of Justices, 85 N. H. 562, 154 A. 217.
To provide old age benefits such as are described in title II. is not a purpose for which the Congress has power to tax.
Linder v. United States, 268 U. S. 5, 17, 69 L. ed. 819, 823, 45 S. Ct. 446, 39 A.L.R. 229; United States v. Doremus, 249 U. S. 86, 95, 63 L. ed. 493, 497, 39 S. Ct. 214; United States v. Jin Fuey Moy, 241 U. S. 394, 401, 60 L. ed. 1061, 1064, 36 S. Ct. 653; A. L. A. Schechter Poultry Corp. v. United States, 295 U. S. 495, 79 L. ed. 1570, 55 S. Ct. 837, 97 A.L.R. 947; United States v. Butler, 297 U. S. 1, 80 L. ed. 477, 56 S. Ct. 312, 102 A.L.R 914; Railroad Retirement Bd. v. Alton R. Co., 295 U. S. 330, 79 L. ed. 1468, 55 S. Ct. 758; Child Labor Tax Case (Bailey v. Drexel Furniture Co.) 259 U.	S. 20, 66 L. ed. 818, 42 S. Ct. 449, 21 A.L.R. 1432; Hill v. Wallace, 259 U. S. 44, 66 L. ed. 822, 42 S. Ct. 453; Hammer v. Dagenhart, 247 U. S. 251, 62 L. ed. 1101, 38 S. Ct. 529, 3 A. L. R. 649. Ann. Cas. 1918E, 724; Carter v. Carter Coal Co., 298 U. S. 238, 80 L. ed. 1160, 56 S. Ct. 855; Railroad Retirement Bd. v. Alton R. Co., 295 U. S. 330, 362, 368, 375, 381, 79 L. ed. 1468, 1482, 1486, 1489, 1492, 55 S. Ct. 758; W. H. H. Chamberlin v. Andrews, 299 U. S. 515, 81 L. ed. 380, 57 S. Ct. 122, 271 N. Y. 1, 2 N. E. (2d) 22, 106 A.L.R. 1519; Collector v. Day, (Buffington v. Day) 11 Wall. 113, 124, 20 L. ed. 122, 125.
In Steward Machine Co. v. Davis, 301 U.S. 548, 57 S.Ct. 883, 81 L.Ed . , decided this day, we have upheld the validity of Title IX of the act ( section 901 et seq. (42 U.S.C.A. 1101 et seq.)), imposing an excise upon employers
[81 L. Ed. 1311]
of eight or more. In this case Titles VIII and II (sections 801 et seq., 201 et seq. (42 U.S.C.A. 1001 et seq., 401 et seq.)) are the subject of attack. Title VIII lays another excise upon employers in addition to the one imposed by Title IX (though with different exemptions). It lays a special income tax upon employees to be deducted from their wages and paid by the employers. Title II provides for the payment of Old Age Benefits, and supplies the motive and occasion, in the view of the assailants of the statute, for [301 U.S. 619, 635] the levy of the taxes imposed by Title VIII. The plan of the two titles will now be summarized more fully.
Section 202 and later sections (42 U.S.C.A. 402 et seq.) prescribed the form of benefits. The principal type is a monthly pension payable to a person after he has attained the age of 65. This benefit is available only to one who has worked for at least one day in each of at least five separate years since December 31, 1936, who has earned at least $2,000 since that date, and who is not then receiving wages 'with respect to regular employment.' Sections 202(a), (d), 210(c), 42 U.S.C.A. 402(a, d ), 410(c). The benefits are not to begin before January 1, 1942. Section 202(a), 42 U.S.C.A. 402(a). In no event are they to exceed $85 a month. Section 202(b), 42 U.S.C.A. 402(b). They are to be measured (subject to that limit) by a percentage of the wages, the percentage decreasing at stated intervals as the wages become higher. Section 202(a), 42 U.S.C.A. 402(a). In addition to the monthly benefits,
[81 L. Ed. 1312]
provision is made in certain contingencies for 'lump sum payments' of secondary importance. A summary by the Government of the situations calling for such payments is printed in the margin. (1)
[301 U.S. 619, 637] This suit is brought by a shareholder of the Edison Electric Illuminating Company of Boston, a Massachusetts corporation, to restrain the corporation from making payments and deductions called for by the act, which is stated to be void under the Constitution of the United States. The bill tells us that the corporation has decided to obey the statute, that it has reached this decision in the face of the complainant's protests, and that it will make the payments and deductions unless restrained by a decree. The expected consequences are indicated substantially as follows: The deductions from the wages of the employees will produce unrest among them, and will be followed, it is predicted, by demands that wages be increased. If the exactions shall ultimately be held void, the company will have parted with moneys which as a practical matter it will be impossible to recover. Nothing is said in the bill about the promise of indemnity. The prediction is made also that serious consequences will en- [301 U.S. 619, 638] sue if there is a submission to the excise. The corporation and its shareholders will suffer irreparable loss, and many thousands of dollars will be subtracted from the value of the shares. The prayer is for an injunction and for a declaration that the act is void.
The corporation appeared and answered without raising any issue of fact. Later the United States Commissioner of Internal Revenue and the United States Collector for the District of Massachusetts, petitioners in this court, were allowed to intervene. They moved to strike so much of the bill as has relation to the tax on employees, taking the ground that the employer, not being subject to tax under those provisions, may not challenge their validity, and that the complainant shareholder, whose rights are no greater than those of his corporation, has even less standing to be heard on such a question. The intervening defendants also filed an answer which restated the point raised in the motion to strike, and maintained the validity of Title VIII in all its parts. The District Court held that the tax upon employees was not properly at issue, and that the tax upon employers was constitutional. It thereupon denied the prayer for an injunction, and dismissed the bill. On appeal to the Circuit Court of Appeals for the First Circuit, the decree was reversed, one judge dis-
[81 L. Ed. 1313]
senting. Davis v. Edison Electric Illuminating Co., 89 F.(2d) 393. The court held that Title II was void as an invasion of powers reserved by the Tenth Amendment to the states or to the people, and that Title II in collapsing carried Title VIII along with it. As an additional reason for invalidating the tax upon employers, the court held that it was not an excise as excises were understood when the Constitution was adopted. Cf. Davis v. Boston & Maine R. Co. (C.C.A.) 89 F.(2d) 368, decided the same day.
A petition for certiorari followed. It was filed by the intervening defendants, the Commissioner, and the Collector, and brought two questions, and two only, to our [301 U.S. 619, 639] notice. We were asked to determine: (1) 'Whether the tax imposed upon employers by section 804 of the Social Security Act (42 U.S.C.A. 1004) is within the power of Congress under the Constitution,' and (2) 'Whether the validity of the tax imposed upon employees by section 801 of the Social Security Act (42 U.S.C.A. 1001) is properly in issue in this case, and if it is, whether that tax is within the power of Congress under the Constitution.' The defendant corporation gave notice to the clerk that it joined in the petition, but it has taken no part in any subsequent proceedings. A writ of certiorari issued. 301 U.S. 674, 57 S.Ct. 792, 81 L. Ed. .
Congress may spend money in aid of the 'general welfare.' Constitution, art. 1, § 8; United States v. Butler, 297 U.S. 1, 65, 56 S. Ct. 312, 319, 102 A.L.R. 914. Steward Machine Co. v. Davis, supra. There have been
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great statesmen in our history who have stood for other views. We will not resurrect the contest. It is now settled by decision. United States v. Butler, supra. The conception of the spending power advocated by Hamilton and strongly reinforced by Story has prevailed over that of Madison, which has not been lacking in adherents. Yet difficulties are left when the power is conceded. The line must still be drawn between one welfare and another, between particular and general. Where this shall be placed cannot be known through a formula in advance of the event. There is a middle ground or certainly a penumbra in which discretion is at large. The discretion, however, is not confided to the courts. The discretion belongs to Congress, unless the choice is clearly wrong, a display of arbitrary power, not an exercise of judgment. This is now familiar law. [301 U.S. 619, 641] 'When such a contention comes here we naturally require a showing that by no reasonable possibility can the challenged legislation fall within the wide range of discretion permitted to the Congress.' United States v. Butler, supra, 297 U.S. 1, at page 67, 56 S.Ct. 312, 320, 102 A.L.R. 914. Cf. Cincinnati Soap Co. v. United States, 301 U.S. 308, 57 S.Ct. 764, 81 L.Ed. , May 3, 1937; United States v. Realty Co., 163 U.S. 427, 440, 16 S.Ct. 1120; Head Money Cases, 112 U.S. 580, 595, 5 S.Ct. 247. Nor is the concept of the general welfare static. Needs that were narrow or parochial a century ago may be interwoven in our day with the well-being of the nation. What is critical or urgent changes with the times.
The purge of nation-wide calamity that began in 1929 has taught us many lessons. Not the least is the solidarity of interests that may once have seemed to be divided. Unemployment spreads from state to state, the hinterland now settled that in pioneer days gave an avenue of escape. Home Building & Loan Association v. Blaisdell, 290 U.S. 398, 442, 54 S.Ct. 231, 241, 88 A.L.R. 1481. Spreading from state to state, unemployment is an ill not particular but general, which may be checked, if Congress so determines, by the resources of the nation. If this can have been doubtful until now, our ruling today in the case of the Steward Machine Co., supra, has set the doubt at rest. But the ill is all one or at least not greatly different whether men are thrown out of work because there is no longer work to do or because the disabilities of age make them incapable of doing it. Rescue becomes necessary irrespective of the cause. The hope behind this statute is to save men and women from the rigors of the poor house as well as from the haunting fear that such a lot awaits them when journey's end is near.
Congress did not improvise a judgment when it found that the award of old age benefits would be conducive to the general welfare. The President's Committee on Economic Security made an investigation and report, aided by a research staff of Government officers and employees, and by an Advisory Council and seven other advisory [301 U.S. 619, 642] groups. (2) Extensive hearings followed before the House Committee on Ways and Means, and the Senate Committee on Finance. (3) A great mass of evidence was brought together supporting the policy which finds expression in the act. Among the relevant facts are these: The number of persons in the United States 65 years of age or over is increasing proportionately as well as absolutely. What is even more important the number of such persons unable to take care of themselves is grow-
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ing at a threatening pace. More and more our population is becoming urban and industrial instead of rural and agricultural. (4) The evidence is impressive that among industrial workers the younger men and women are preferred over the older. (5) In times of retrenchment the older are commonly the first to go, and even if retained, their wages are likely to be lowered. The plight of men and women at so low an age as 40 is hard, almost hopeless, when they are driven to seek for reemployment. Statistics are in the brief. A few illustrations will be chosen from many there collected. In 1930, out of 224 American factories investigated, 71, or almost one third, had fixed maximum hiring age limits; in 4 plants the limit was under 40; in 41 it was under 46. In the other 153 plants there were no fixed limits, but in practice few were hired if they were over 50 years of age. (6) With the loss of savings inevitable in periods of idleness, [301 U.S. 619, 643] the fate of workers over 65, when thrown out of work, is little less than desperate. A recent study of the Social Security Board informs us that 'one-fifth of the aged in the United States were receiving old-age assistance, emergency relief, institutional care, employment under the works program, or some other form of aid from public or private funds; two-fifths to one-half were dependent on friends and relatives, one-eighth had some income from earnings; and possibly one-sixth had some savings or property. Approximately three out of four persons 65 or over were probably dependent wholly or partially on others for support.' (7) We summarize in the margin the results of other studies by state and national commissions. (8) They point the same way. [301 U.S. 619, 644] The problem is plainly national in area and dimensions. Moreover, laws of the separate states cannot deal with it effectively. Congress, at least, had a basis for that belief. States and local governments are often lacking in the resources that
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are necessary to finance an adequate program of security for the aged. This is brought out with a wealth of illustration in recent studies of the problem. (9) Apart from the failure of resources, states and local governments are at times reluctant to increase so heavily the burden of taxation to be borne by their residents for fear of placing themselves in a position of economic disadvantage as compared with neighbors or competitors. We have seen this in our study of the problem of unemployment compensation. Steward Machine Co. v. Davis, supra. A system of old age pensions has special dangers of its own, if put in force in one state and rejected in another. The existence of such a system is a bait to the needy and dependent elsewhere, encouraging them to migrate and seek a haven of repose. Only a power that is national can serve the interests of all.
Whether wisdom or unwisdom resides in the scheme of benefits set forth in Title II, it is not for us to say. The answer to such inquiries must come from Congress, not the courts. Our concern here as often is with power, not with wisdom. Counsel for respondent has recalled to us the virtues of self-reliance and frugality. There is a possibility, he says, that aid from a paternal government [301 U.S. 619, 645] may sap those sturdy virtues and breed a race of weaklings. If Massachusetts so believes and shapes her laws in that conviction, must her breed of sons be changed, he asks, because some other philosophy of government finds favor in the halls of Congress? But the answer is not doubtful. One might ask with equal reason whether the system of protective tariffs is to be set aside at will in one state or another whenever local policy prefers the rule of laissez faire. The issue is a closed one. It was fought out long ago. (10)
[301 U.S. 619, 646] Fifth: The tax is not invalid as a result of its exemptions.
Mr. Justice McREYNOLDS and Mr. Justice BUTLER are of opinion that the provisions of the Act here chal-
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lenged are repugnant to the Tenth Amendment, and that the decree of the Circuit Court of Appeals should be affirmed.
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(1) (1) If through an administrative error or delay a person who is receiving a monthly pension dies before he receives the correct amount, the amount which should have been paid to him is paid in a lump sum to his estate (section 203(c) 42 U.S.C.A. 403(c)).
(2) Report to the President of the Committee on Economic Security, 1935.
(3) Hearings before the House Committee on Ways and Means on H.R. 4120, 74th Congress, 1st session; Hearings before the Senate Committee on Finance on S. 1130, 74th Congress, 1st Session.
(4) See Report of the Committee on Recent Social Trends, 1932, vol. 1, pp. 8, 502; Thompson and Whelpton, Population Trends in the United States, pp. 18, 19.
(6) Hiring and Separation Methods in American Industry, 35 Monthly Labor Review, pp. 1005, 1009.
(7) Economic Insecurity in Old Age (Social Security Board, 1937), p. 15.
(8) The Senate Committee estimated, when investigating the present act, that over one half of the people in the United States over 65 years of age are dependent upon others for support. Senate Report, No. 628, 74th Congress, 1st Session, p. 4. A similar estimate was made in the Report to the President of the Committee on Economic Security, 1935, p. 24.
(9) Economic Insecurity in Old Age, supra, chap. VI, p. 184.
(10) IV Channing, History of the United States, p. 404 (South Carolina Nullification); 8 Adams, History of the United States (New England Nullification and the Hartford Convention).