Document: 329 U.S. 230 67 S.Ct. 252 91 L.Ed. 209 UNITED STATESv.CARMACK. No. 40. Argued Oct. 18, 1946. Decided Dec. 9, Rehearing Denied Feb. 3, 1947. See 834, 627. [Syllabus from pages 230-232 intentionally omitted] Mr.John J. Cooney, of Washington, D.C., for petitioner. Mr. R. Kelso, Cape Girardeau, Mo., respondent. Justice BURTON delivered the opinion Court. 1 This proceeding was instituted by United States to condemn land as a site post office and customhouse in City Missouri, reliance upon several federal statutes, including general Condemnation Act August 1, 1888, Public Buildings May 25, 1926.1 The were selected Federal Works Administrator Postmaster General acting jointly under Act. principal issue is: Was authorized foregoing statutes acquire condemnation held trust used such public purposes those local park, courthouse, city hall library? 2 In 1941, petitioned District Court Eastern Missouri about one one-half acres, near center together with improvements thereon except library building. part four acre park be condemned included building county courthouse hall, memorial fountain, small monument portion bandstand. apparently removed its owners on 30 days' notice States. 3 petition parties defendant County, numerous officials all known unknown heirs or others who might claim an interest this especially through conveyed it, trust, 1807 Commissioners or, 1820 inhabitants Town Girardeau. Respondent only file answer. Finding that she had no permitting her maintain defenses asserted, entered preliminary decree favor On respondent's appeal Circuit Appeals remanded cause further proceedings consistent holding respondent special entitling object property being taken purpose destructive use which it been dedicated ancestors. Carmack v. States, 8 Cir., 135 F.2d 196. 4 1944, retrial before different judge, recognized entitled contest and, at direction Appeals, heard evidence whether not acted capriciously arbitrarily selecting site. It 'the selection described petition, facts re erred to, amounts law arbitrary unnecessary act' dismissed petition. Certain Land Situate 55 F.Supp. 555, 564. affirmed judgment ground did have sufficient statutory authority 'to take particular sought condemned.' then expressly found consider 'capriciously arbitrarily.' Carmack, 151 881, 882. Because importance construction authorizing uses, we granted certiorari. 327 775, 66 959.2 5 Both Act3 acquisition office, courthouse. Neither named designated case. stated sites already conflicting federal, state subject condemnation. supplemented right procure real estate erection other uses,' adding power judicial process exercised officer Government 'whenever his is necessary advantageous do so.' Act, incident original $150,000,000 program, gave Secretary Treasury (later substituting Administrator) purchase, condemnation, otherwise, * he may deem necessary, *.' specified 'buildings whole postoffice purposes, Administrator, regulations prescribed him, shall act towns cities buildings are constructed therein: *.'4 These Acts natural means Congress adopt putting constitutional powers into scale commensurate size nation need time. imposed any limitations exercise procuring deemed enable perform certain functions.5 Far time circumstances led enactment these 1888 1926, must slow read them today unexpressed restricting very ones whom chose rely. 6 eminent domain essential sovereign government. If has determined within powers, appropriate land. Otherwise, owner land, refusing sell consenting so unreasonably high price, enabled subordinate personal will. Fifth Amendment, turn, provides him important protection against abuse Government.6 7 While early days filed cases State courts, Court, Kohl 367, 23 449, disposed idea necessary. case, become leading case domain, Strong also said: 'It seriously contended during argument government without lands own proper functions. Such independent existence perpetuity. cannot preserved if obstinacy private person, authority, can prevent instruments alone governmental functions performed. vested Constitution demand their needed forts, armories, arsenals, navy-yards light-houses custom-houses, post-offices, court-houses, uses. uses made barren unwillingness property-holders sell, action prohibiting sale government, grants rendered nugatory, dependent practical will State, even citizen. be. No doubts governments domain,—a distinct paramount ultimate ownership. grows out necessities being, tenure held. exercised, though grant either mediately immediately, consideration they would escheat failure heirs. offspring political necessity; inseparable sovereignty, unless denied fundamental law. But more than conceded That sphere theirs. True, limited. subjects committed it; but over full complete sovereignty extends. 9 'If power, itself. neither enlarged nor diminished State. Nor prescribe manner exercised. consent never condition precedent enjoyment.' (Italics supplied.) supra, 371, 372, 374, 449. 10 approved privately owned perpetual leasehold, Cincinnati, Ohio, naming here seeks, interpretation exclude Girardeau officials. She depends fact subdivision impressed century ago. principle supremacy, well expressed argues subordination decisions representatives individual grantors carrying admittedly function.7 11 makes little difference instead fee. resisting obtain, voluntary conveyance, whatever title convey. weakness City's exchange arises restrictions conveyance it. Through inclusion, defendants, claimants rely site, dispose suggested defects. By giving disputed title, provide securing better world obtained conveyance. 12 themselves relation Constitution, find substantial reason making broad language effective limit. limited taking question presents difficulty because establish offices express.8 13 considerations declare laws pursuance thereof, supreme land9 make recognize when equally supreme. Bradley clearly, while circuit, Stockton Baltimore & N.Y.R. Co., C.C., 32 F. 19: 'The based doctrine states highest dominion comprised limits, lands, avail frustrate supremacy given constitution matters scope sovereignty. matter words, things. should still higher state, order fully carry objects constitution, Whatever conclusions theoretical anything else, received postulate invested execute purposes.'10 14 Amendment says 'nor use, just compensation.' tacit recognition preexisting rather new power.11 imposes obligation pay compensation takes another's accordance Accordingly, thus independently controlled subdivision, recognizes ca e condemned.12 15 establishes clearly field establishing offices. contends best sites. judgment, good faith, proposed spite express direct We agree contentions. terms select did. find, both Acts, lawfully selected. 22 suggested, two closely balanced alternatives, constituted administrative legislative decision review merits. choose reject action. sites, interfere exclusion policy. necessarily implied Acts.13 16 determine could set aside courts unauthorized bad faith arbitrarily' adequate determining unreasoned.14 record here. procedure followed showed extraordinary effort arrive fair reasoned conclusion.15 inspector, report, recommended second choice demonstrated reasonableness choice, superiors, first selections.16 His estimate divided community sentiment, apparent preference indicates absence capriciousness arbitrariness Government's final site.17 popular referendum vote 1612 1344 transfer Government, present City, confirms estimate. right, obligation, necessity disposing single thereon. inevitably confront some chosen. opportunity connection was, therefore, reasonable capricious consideration. 17 record, petitioner fin ing trial 'amounts appears, context, finding largely comparative undesirability lack reason.18 desirability determination finding.19 Even word 'arbitrary', intended ordinary meaning alone, unable conclude us law, sense that, us, invalidate made. 18 reversed opinion. 19 Reversed. 20 DOUGLAS concurs result substantially agrees reserves inferred statute, challenged taking. '* every been, hereafter be, hereby is, same process, whenever so, Sec. 25 Stat. 357, 40 U.S.C. § 257, U.S.C.A. 257. 'To suitable accommodations courthouses, offices, immigration stations, customhouses, marine hospitals, quarantine classes control Agency Territories, possessions directed acquire, additions Provided, insofar relates 341, 341. codified 44 630—631, modified Reorganization Plan I, §§ 301—303, 53 1426—1427, following section 133t, 133t. also, 342—350, balance likewise relied Declaration Taking February 26, 1931, 46 1421, 258a—258e, 258a—258e; Third Deficiency Appropriation fiscal year 1937, 50 755, 773; 1938, 52 818; 1939, 561, 133 et seq., I submitted July 813, 133s, 133s. turns effect deeds, executed ancestors 1820, pursuant long put use. Her interest, turning upheld trial, 196, reach our decision, reexamine Board Regents Normal School Dist. Painter, 102 Mo. 464, S.W. 938, L.R.A. 493; Mott Morris, 249 137, 155 434; 258, 258. rem, jurisdiction court does turn participation Cf. Dunnington, 146 338, 352, 79, 83, 36 996; Suits 234 443, 445. note supra. For three quotations, see Noth ng history indicate give agents less fullest possible H.R. Rep. 132, minority views pp. 6, 7, 10, 1223, 69th Cong., 1st Sess.; S. 197, Cong.Rec. 4023—4028, 8356, 8357, 8359, 8494, 8567. 'No person deprived life, liberty, property, due law; U.S.Const. Amend. V. Albert Hanson Lumber Co. 261 581, 587, 43 442, 444, 809, emphasis all-inclusiveness 1888. Art. 8, Cls. 18. VI. An 140 699, 1028, 35 603, meantime, Bradley's statement quoted approval Cherokee Nation Southern Kansas Ry. 641, 656, 965, 970, 34 295; Gettysburg Electric 160 668, 681, 427, 429, 576; Luxton North River Bridge 153 525, 529, 530, 891, 892, 38 808. When wished done provision. Weeks Forestry March 1911, 961, 962, 1215, 45 1010, 48 955, 516, Migratory Bird Conservation 1929, 1222, 715f, legislature acceptance deprive civil criminal 963, 480, 1224, 715g, 715g. Upper Mississippi Wild Life Fish Refuge June 1924, 650, 724, 724. jurisdiction, distinguished matter. desires exclusive acquired located Cl. 17, Power To Legislation Places purchased Legislature Same Erection Forts, Magazines, Arsenals, dock-Yards, needful Buildings; dismissed, 603. Joint Resolution September 11, 1841, 468, Rev.Stat. 355, formerly required legislatures purchases expending funds them. Since 1940, where 'exclusive partial' jurisdiction. Unless until accepts since presumed conclusively accepted. 54 19, 1083, 255, 255. event, consented seventeenth clause, eighth article purchase acquired, maintaining postoffices, Mo.R.S.A. (1939), 12691. Cooper, D.C. 104, 116, sub nom., Shoemaker 147 282, 361, 37 170; Rugheimer, 369, 371. When, however, transfers another, ownership merely holds like arise Lawrence, 119 453; instant deal employed authorize sovereign's behalf authorization carries excluded implication. A distinction exists others, utilities, themselves. are, nature, powers. They include greater implied, exercising equal superiority reflects superiority. Jotham Bixby 317, 319, C.M. Patten 61 vacated moot, 289 705, 687, 77 1462; Condemnations Improvement Rouge River, 266 105; Tiffin, 190 279, 281. 'Arbitrary' defined Funk Wagnalls New Standard Dictionary English Language (1944), '1 *; principle; *' Webster's International Dictionary, 2d Ed. (1945), '2. Fixed arrived caprice, adjustment reference principles, circumstances, significance, decisive unreasoned; 'Capricious' apt change suddenly; freakish; whimsical; humorsome.' Fox Film Corp. Trumbull, 715, 727; Puget Sound Light Utility Whatcom 123 286, 290, certiorari denied, 315 814, 62 798, 86 1212; Eighty Acres Williamson 26 315, 319. See, Parcels Denton Caroline Md., 379; Parcel Middletown, Castle 718, 721. Post Office Department 22, 369; 347, 347. Among steps following: 12, project Acting recommendation Commissioner Fourth Assistant General; 23—26, 29—31, Inspector Site Agent visited Girardeau; 20, recommendations, showing inspected proposals, eliminated grounds, carefully considered remainder report 3. enlarge site; second, controversy; third, between two. Further studies Washington Associate Architect Agency, Fiscal Manager Administration Superintendent Division Quarters Department. All wishing heard. Council passed ordinance proposing submitting proposal election. 4, majority voting wards exchange, wide 1344. notified Mayor exchange. Actin advised Attorney contracted After referring secure willingness legal asked proceeding. November 1941. after 1943, secured formal joint action, signed personally General, suit. trial. actions refer whereas refers customhouse. variation pressed litigation material main construction. narration instance indication cases. forth help demonstrate face them, classed 'capricious arbitrary,' definition words. 'For First Choice recommend government-owned retained adjoining offered H. Bermermann $15,000, counter offer Ella M. Drum $600. 'This believed location most outstanding city, competing desirable transaction. Second city-owned developed attractive setting building, doubt resulting mutual benefit Government. bid offer, expected Committee counter-offer respect definite area 175 x 215 grounds surrounding approaches, removal trees demolition mayor council verbally agreed my valued approximately $225 per front foot, value $100 counter-offer. Council's dispute, settled friendly proceedings, willing desirous trade.' actively favored Council, almost unanimously business men Main Street. 'Because divergence opinion, Chamber Commerce recent meeting decided official comment location. postmaster, financial locations, conscientiously interested civic development, regards recommends trade allow retain improvement surroundings.' plaintiff stand fall question, Did presented, site—was necessary? term 'arbitrarily capriciously' mean 'without founded nature things; according judgment'; act. 'That Committee, information possession availability shows unquestionably now, selected, available.' 557, 563. ex rel. T.V.A. Welch, 546, 715; Rindge Los Angeles 262 700, 708 710, 689, 693, 1186; Joslin Mfg. Providence, 678, 684, 1167; Bragg Weaver, 251 57, 58, 62, 63, 64 135; Sears Akron, 246 242, 251, 245, 248, 688; Adirondack People York, 176 335, 349, 460, 465, 492; 298, 390, Rum Boom Patterson, 98 403, 406, 206. also: statute require proof 'necessity,' depend solely 'opinion' officer. controlling here.' Montana, 134 194, 319 772, 63 1438, 87 1720.

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