Document: 372 U.S. 658 83 S.Ct. 984 10 L.Ed.2d 52 ARROW TRANSPORTATION COMPANY et al., Petitioners,v.SOUTHERN RAILWAY al. No. 430. Argued Jan. 10, 1963. Decided April 15, John C. Lovett, Benton, Ky., for petitioners. Ralph S. Spritzer, Washington, D.C., the United States, as amicus curiae, by special leave of Court. Dean Acheson, respondents. Mr. Justice BRENNAN delivered opinion 1 A schedule reduced rates proposed respondent rail carriers was suspended Interstate Commerce Commission maximum statutory period seven months pending a determination whether reduction lawful. The statute1 expressly provides that 'the change rate * shall go into effect,' if Commission's proceeding has not been concluded and an order made within suspension. did reach decision months, or following five during which respondents voluntarily postponed change, announced would be put in effect. Thereupon petitioners2 brought this action District Court Northern Alabama to enjoin from making effective decision. after examination pleadings brief hearing 'there is grave danger irreparable injury, loss damage may inflicted on (petitioners) effect will have no adequate remedy at law.'3 court held, however, § 15(7) vested exclusive power suspend limited time thereby precluded jurisdiction grant injunctive relief extending period. Appeals Fifth Circuit affirmed, stating, 'Congress, its wisdom, fixed It seems clear us courts extend period, they are amending statute matter beyond their power.' 308 F.2d 181, 186. We granted certiorari, 371 859, 121, 9 98.4 affirm judgment Appeals. I. 2 changes original Act 1887. That first appeared among 1910 amendments introduced Mann-Elkins Act.5 problem application new might stayed lawfulness emerged empowered Hepburn 1906 determine validity rates. In absence any suspension Commission, shippers turned relief. results were satisfactory. lower federal evinced doubt possessed equity such injunctions, availability depended view particular much controverted issue.6 more concerned, with certain practical consequences leaving question courts. Annual Reports three years before had directed attention fact entertained reaching diverse results, engendered confusion produced competitive inequities. large expense entailed prosecuting financing substantial bond proved prohibitive many small modest means. Even when shipper secured injunction, scope often protected only shipper, his weaker competitors mercy rate.7 Therefore, reported Congress, '* who can file does continue business under higher rate.' I.C.C. Report, 1908, p. 12. As equally serious consequence, regulatory goal uniformity jeopardized conclusions reached different Courts—even, it appears, reasonableness change. This resulted disparity treatment between shippers, carriers, sections country, causing turn 'discrimination hardship general public.' 1907, 10. 3 cannot said legislative history includes unambiguous evidence design extinguish whatever judicial existed prior However, we suppose vesting intended give backhanded approval exercise whole head. 4 Moreover, Congress engaged protracted controversy concerning Such futile unless also meant foreclose spanned nearly two decades. At outset 1910, proposal conferring strenuously opposed. contended postponement result revenue advantages fairly due them interim finally determined But opposition eventually took form efforts limit ordered Commission.8 authorized initial exceed 120 days discretionary additional six months.9 Ten later Esch-Cummins 1920 cut extension 30 days,10 thus reducing overall aware throughout consideration these measures some pay unlawful because time.11 To mitigate hardship, cases require keep detailed accounts charges collected refunds excess ultimately found unlawful.12 provisions present form, authority 1927.13 accounting refund law remained. Thus, observed before, limitation 'formed experimentation *.' Comm'n v. Inland Waterways Corp., 319 671, 689, 63 1296, 1306, 87 L.Ed. 1655. 5 believe given vest sole withdraw judiciary pre-existing previously indicated section board Railroad Comm'rs Great R. Co., 281 412, 429, 50 391, 396, 74 936, Chief Hughes Court: 'This entrusted only.'14 much.15 And commentators consistently supported soundness view.16 6 There is, course, close nexus primary rates, had, even already fullest recognition. Texas & Pacific Co. Abilene Cotton Oil 204 426, 27 350, 51 553.17 relationship suggests anomalous created dissonance recourse injunction nevertheless survive. plausible inference interfere timing out harmony levels fostered doctrine jurisdiction. 7 must admitted dealt affected relations express reference interests competing customers involved instant case. see warrant omission, difference result. Conflicts over familiar long 1910;18 indeed, struggle barge going almost since railroads came onto national scene. Indeed, another provision very same explicitly water carriers: Section 4(2) forbids carrier increase once service, 'after rests upon changed conditions other than elimination competition.' 49 U.S.C. 4(2). addition 8 Act, 8, creates private right damages—based conduct violative Act—which available, though occasion here decide question, competitor claiming grossly discriminatory. Our holding today therefore means available petitioners, just unavailable shippers. II. conclusion buttressed undesirable necessarily attend survival remedy. court's disposition seem least applicant's claim carrier's unreasonable. create hazard forbidden intrusion administrative domain.19 Judicial cognizance carefully defined avenues review.20 These considerations explain why decline refused do so, set aside Commission.21 If independent appraisal purpose deciding applications relief, failed correct situation so hazardous prompted Commission. procedure permit single judge pass final rate, entrusts judges reviewing completed task.22 Nor case suggested rely finding unreasonableness preceded order. through Suspension Board, involves informal hearing.23 Automatic acceptance way delegate greater process itself warrants. basis decree district judge, inconsistent 15 (1) struck down 'full hearing' Commission.24 III. petitioners contend event enforce National Transportation Policy.25 They argue carriers' line inevitably immediately driven business, contrary paramount concern policy portection threatened competition. Apart decisive showing suffer misfortune, nothing Policy, enacted 1927 revision 15(7), indicates revive extinguished Cf. States Borden 188, 198—199, 60 182, 84 181. anything, reinforces our conclusion. mandate achieve balance forms transportation but Commission.26 reasonable felt distortion, addressed directly enhancing powers policy. Surely silence alone imply revival well defeat rather promote objectives Policy. 11 Affirmed. 12 CLARK, whom THE CHIEF JUSTICE BLACK join, dissenting. 13 sounds death knell Tennessee River. war extermination lines began ago, and, Chairman Eastman Petroleum Products From New Orleans, La., Group, 194 31, 44 (1933), effected 'by (the railroads) cutting where (barge) competition existed, extent necessary paralyze it, maintaining high level elsewhere.' occasions protect practices, railroad activity received See Dixie Carriers, Inc. 351 56, 76 578, 100 934 (1956), Mechling, 330 567, 67 894, 91 1102 (1947). Arrow Transp. 176 F.Supp. 411 (D.C.N.D.Ala.1959). few ago there filed 746, Mechling Barge Lines, Inc., appellants old practices employed. Although admits 'It (of 15(7)) *,' strips prevent collection 'rates unjust unreasonable, violation constitute unfair destructive contravention Policy *' Commission;1 (2) frustration commanded preserve each medium against guard discrimination; (3) complete destruction gross discrimination localities along I agree suggestion curiae brief, 'a destroyed others injury terminated,' appropriate extraordinary 14 below reductions likely force disputed. found, 'grave effect' 'will law.' On face continuation operations—activity now gives blessing—by drastic all-rail multiple-car grain shipments while exbarge traffic. haul St. Louis Birmingham, $8.70 per ton mere $3.12, example illustrates reduction. Arrow's those points $5.48, including $2.20 71-mile leg Guntersville, Alabama, Birmingham 89¢ transferring rails leaves $2.39 barge. meet Southern's reduce $2.36 charge allocable travel, exactly 3¢ haul. note further Louis-Birmingham 92¢ Guntersville-Birmingham trip. effectuation elementary—economic important mode transportation. Still refuses allow inherent unconscionably practice damaging Arrow, generally, river ports, industries, public welfare itself—all inference. says 'that reasoning, light less 40% existing ones, coupled findings probable action, deference, entirely insupportable. say gave discretion short never ipso facto foreclosed exercising always possessed, i.e., status quo injury. character. exercised consideration, months. No criteria guidelines laid prerequisite being filing statement writing reasons suspension.' Hence broad, investigation. court, hand, act compelling circumstances maintain decision—an equitable recognized aid ancillary temporary supports interferes latter's jurisdiction, preventing resulting consideration. should most exigent circumstances, case, strong likelihood full measure finds powerless submit neither language nor removal circumstances. 16 Prior 'to direct excessively low rates,' Skinner Eddy Corp. 249 557, 566, 39 375, 379, 772 (1919), earliest suspensions occurred subsequent 1910. Rates Packinghouse Products, 21 68 (1911); Board Trade Chicago Illinois Central 26 545 (1913). until prescribe minimum 1920, 41 Stat. 484, 15(2); 263 515, 525, 189, 193, 417 (1924). enactment shows, evident decreases protection focused excessive increases ample deal, could rates.2 omission noted floor Senate day vote taken Senator Heyburn 'Little advisability amendment.' 45 Cong. Rec. 6792. complaints occupied significant portion docket concerned exclusively shippers' increases. hard me see, therefore, how faced apparently few, indeed any, previous 'such jurisdiction' 'were results' producing 'confusion inequities,' cases, far determined, involve destructively were, out, '(c)onflicts indication Finally, similar 'judicial power' head' now, statute, jurisdiction—a quite asked here. simple agency without long-recognized therewith strange dispose power. Hewitt-Robins, Eastern Freight-Ways, 84, 157, 142 (1962). attribute purblindness Congress. 17 hardly granting totally ousted traditional progress forum. support forum either law, Erhardt Boaro, 113 537, 565, 28 1116 (1885); Louisville N.R. Western Union Telegraph 207 F. (C.A.6th Cir., 1913), agency. Trans-Pacific Freight Conf. Japan Federal Maritime Bd., 112 U.S.App.D.C. 290, 295, 302 875, 880 (1962); Governors, etc. Transamerica 184 311 (C.A.9th 1950); West India Fruit Steamship Seatrain 170 775 (C.A.2d 1948); Isbrandtsen 81 544 (D.C.S.D.N.Y.1948). whenever wanted oust knew uncertain terms. See, e.g., Internal Revenue Code 1954, 7421; Norris-LaGuardia 29 §§ 101—115. considerations, retained 22(1) 24 387, 22(1), 'in abridge alter remedies common remedies.' 'remedies law' include injunctions. Knapp, Stout McCaffrey, 177 638, 20 824, 921 (1900). 18 1940, adopted (54 899, preceding 1) enjoined 'foster sound economic several carriers; encourage establishment maintenance services, discriminations practices; all end developing, coordinating, preserving system water, highway, rail, means, needs commerce *. All Act) administered enforced carrying above declaration policy.' 19 'developing, States' (emphasis supplied) completely thwarted River forced business. sad processes rendered miscarriage Government, duties entire short, presents peculiarly supplement now-exhausted consistent interest affirmative addition, inappropriate discuss constitutional questions raised evokes about constitutionality interpreted. Porter Investors' Syndicate, 286 461, 470—471, 617, 620, 1226 (1932); Tel. Kuykendall, 265 196, 201, 204—205, 553, 556, 975 22 dissent. 15(7): 'Whenever stating authority, complaint own initiative complaint, enter thereon delivering suspension, operation defer use longer otherwise effect; hearing, goes effect, make thereto proper initiated become effective. line, carriage; municipality, served Arrow; merchant, O. J. Walls, located municipality; consumer, D. Bagwell Farms Hatchery, receives truck Guntersville. cover shipment various Southeastern apply Mississippi Ohio ports. parties, recommendation tentative 'unjust Act,' 'constitute Policy.' After Division January 21, 1963, compensatory reasonable, Grain Multiple-Car Shipments—River Crossings South, Docket 7656. awaiting reconsideration four litigation irreparably injure respective interests, particularly threaten Petitioners substantially filing, unlawfully discriminate reductions, petitioners' view, benefit users equipped receive shipments, detriment receivers off routes, smaller rail-side purchasers lack facilities receipt storage shipments. Southern responds least, possible technological innovations efficiencies culminating inauguration aluminum freight cars designed especially carriage maintains both nondiscriminatory compensatory, necessitated vigorous unregulated motor routes serve. course hearings representatives Department Agriculture, Governors' Conference, Association Utilities Commissioners, Southeast. protested besides barge, Valley Authority, flour milling boards trade outside memorandum oral argument: convinced myself matter, consider matters deliberately denying plaintiffs. am ends justice best time, urge speed determining issue sure parties conclude speedily possible. lacking find sought; motion preliminary be, hereby denied. defendants' dismiss case.' Court's formal order, entered day, denied respondents' dismiss. One restraining August 3, 1962, issued. panel appeal. Thereafter, argument Appeals, Black issued Appeals' presentation petition certiorari. September 7, certiorari October 15. invited Solicitor General expressing views he curiae. opposed argued merits 36 552. decided disclose uncertainty Compare, Pac. Coast Lumber Mfrs.' Ass'n, 165 1908); Jewett Bros. Chicago, M. P.R. 156 160 (C.C.D.S.D.1907) with, Atlantic Line Macon Grocery 166 206 (C.A.5th 1909), aff'd grounds, 215 501, 184, 54 300; Wickwire Steel York Cent. H.R.R. 181 316 1910). contemporary lacked Drinker, (1909), 243. re Advances Rates—Western Case, 307, 313—314; Dixon, Quarterly Journal Economics, 593, 603; Crook, North American Review, December 1911, 858, 867. Administration originally recommended days; congressional proponents urged response unlimited power, Cong.Rec. 6409. Committee version bill 90 days, S.Rep.No.355, 61st Cong., 2d Sess. 9. For stages give-and-take term, 3373—3374, 3472, 4109—4110, 6500—6501, 6503, 6509, 6510—6511, 6783—6784, 6787—6788, 6900—6901, 6915—6921, 8239, 8473. 486—487. 418 added expiration 30-day fare, charge, classification, regulation, Statement Commissioner Clark, Hearings H.R.4378 House Foreign Commerce, 66th 1st 91, 2944; H.R.Rep.No.456, 20—21. President Taft's message adverted possibility outlast 380. recent summary three-fifths investigation proceedings seven-month percent year. Remarks Charles A. Webb, Expedition Proceedings, Panel Discussion, I.C.C.Prac.J. (1959). Professor Sharfman wrote invariably respect Sharfman, (1931), 203. 486—487, Act. 1447—1448. S.Rep.No.1508, 69th 4. Since included numerous statutes. 316(g), 318(c) (Motor Carrier Act); 907(g), (i) (Water 1006(e) (Freight Forwarders 47 (Federal Communications 824d(e) Power 717c(e) (Natural Gas 1482(g) Aviation Act). terms statutes virtually identical although length prescribed varies. apparent hold governs construction provisions. held intrastate duly state protesting discriminatory interstate commerce. Although, unlike conflict U.S., 426—430, 395—396, reasoning suggest conflict, inclination so. E.g., Kiser Ga. 236 573 (D.C.S.D.Ga.), aff'd, 239 718 Cir.); Freeport Sulphur Co 199 913, 916 (D.C.S.D.N.Y.); Luckenbach S.S. 179 605, 609—610 (D.C.D.Del.), vacated part moot, 364 280, 80 1611, 1719; cf. Manhattan Transit 174, (D.C.D.Mass.). Director Railroads Viscose 254 498, 502, 151, 153, 65 372, recognizing grounds Courts instituting commodity classifications terms: '(T)here specific therein dealing Commission—for suspending rule S.Ct., 153. Cantlay Tanzola, 115 72 (D.C.S.D.Cal.), rely, contrary. need because, pendente lite, restored schedule. said: 'The Congressional intent (underlying plainly carrier-made 'prior Commission'.' F.Supp., 83. Sharfman's '(u)pon failure automatically effective, bring decision.' 202. commentator's follows: 'In words, ten date longer, then complete, effect.' 604. current Brooks Daily, Review Thereof, 589, 599 (1960). supra, 429—430, 396; 504, 154, 372; 16, 605. Eastman's description evolution competition, 44. 440—441, 355; Baltimore O.R. America ex rel. Pitcairn Coal 481, 493—495, 164, 169, 292. pointed agencies, deny determinations what Davis, Administrative Law (1958), 442. 2325 requires convening three-judge pursuant 2284 temporarily execution 'of suggested—though challenged Court—that Clavton 26, independently bar sought F.2d, 185. restricts suits violations antitrust laws, seek subject supervision, Commission.' Its applicability would, depend claimed laws. Transfer Terminal 288 469, 53 444, 77 899. Carlsen 107 398 Bison 182 (D.C.N.D.Ohio); 605 (D.C.D.Del.). Amarillo-Borger Express, 138 (D.C.N.D.Tex.), 352 1028, 594, 598; 168 819 (D.C.S.D.N.Y.). Compare generally Goodman, History Scope Delay Changes Rates, 245 (1959), id., 589 Thus reflect decisions review agency's channels. Cf., Scripps-Howard Radio, Comm'n, 4, 62 86 1229; 775; etc., 311. deemed merely incidental courts' derogation manifested sort survived reason 'saving clause' 22(1). follow adoption clearly changes. This, indicated, rejected constructions saving clauses, supra; T.I.M.E., 359 464, 472 474, 79 904, 909—910, 952. 23 Carolina Natural 200 745, 750 regulations rules contemplate protest, transcript made, requested. CFR 1.42, 1.200; 441: 'Although hurried conferences provide safeguard arbitrary action.' Civil Aeronautics appears formal, 302.505; Air Forwarder Assn., C.A.B. 474. completion proceeding. Under intention Labor Relations example, 'appropriate order' Board's labor 160(j). Conference 880. 25 inserted Part Schaffer 355 83, 87—88, 78 173, 176, 117; 411, 416 (D.C.N.D.Ala.), curiam sub nom. State Corporation 361 353, 406, 362. here, considered lawful still (88%) package unlawful. finding, final, awareness 566—567, 378—379, prohibit practices. Not noted,

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