Document: 411 U.S. 182 93 S.Ct. 1455 36 L.Ed.2d 142 Earl L. BUTZ, Secretary of Agriculture, et al., Petitioners,v.GLOVER LIVESTOCK COMMISSION COMPANY, INC. No. 71—1545. Argued Feb. 27, 1973. Decided March 28, Rehearing Denied June 4, See 412 933, 2746. Syllabus Respondent stockyard operator, who after a hearing had been found to have short-weighted livestock and underpaid consignors on the basis false weights, was ordered by Judicial Officer acting for Agriculture cease desist keep correct records, its registration under Packers Stockyards Act suspended 20 days. The Court Appeals upheld all but suspension, which it inappropriate in view other sanctions, contrary Secretary's practice except 'intentional flagrant' violations. Held: In setting aside suspension order, exceeded scope proper judicial review administrative since full authority make order as deterrent violations whether intentional or negligent, issuance against respondent, ignored previous warnings short-weighting, not an abuse discretion. Pp. 185—189. 454 F.2d 109, reversed. Keith A. Jones, petitioners. R. Eilbott, Jr., Pine Bluff, Ark., respondent. Mr. Justice BRENNAN delivered opinion Court. 1 Department that registrant Act, 1921, 42 Stat. 159, 7 U.S.C. § 181 seq., wilfully violated §§ 307(a) 312(a) 208(a) 213(a), incorrect weighing livestock, also breached 401, 221, entries weights. An entered directing respondent from accounts, suspending Upon decision Eighth Circuit upheld, supported substantial evidence, findings short-weighting cattle, sustained cease-and-desist accounts. Appeals, however, set 20-day suspension. Glover Livestock Comm. Co. v. Hardin, 109 (1972). We granted certiorari consider whether, doing so, sanctions. 409 947, 288, 34 217 conclude impermissible intrusion into domain circumstances this case, reverse. 2 operates Arkansas. As registered 'market agency' 303 203, is authorized sell consigned commission, subject regulatory provisions implementing regulations.1 Investigations respondent's operations 1964, 1966, 1967 uncovered instances underweighing livestock. informally warned situation, when 1969 investigation revealed more underweighing, present proceeding instituted Administrator Administration. 3 Following submission briefs, examiner 'intentionally weighed at less than their true issued scale tickets accountings paid weights.'2 recommended, addition 30-day Act. 4 matter then referred Officer. After oral argument, filed accepting examiner's adopting his recommendations records. recommended imposed reduced stated: 5 'It pleasant task impose sanctions given we should only issue act lesser period complainant examiner.' 30 Agri.Dec. 179, 186 (1971). 6 agreed 204 suspend 'any violation Act,' F.2d, 113, procedure here satisfied relevant requirements Administrative Procedure 558, 'the evidence indicates (respondent) acted with careless disregard statutory thus meets test 'wilfulness." 115. court nevertheless concluded 'unconscionable' case. gave two reasons. first, relying four decisions, suspensions negligent be flagrant,' therefore case policy "achiev(ing) . uniformity similar violations." second reason '(t)he coupled damaging publicity surrounding these proceedings would certainly seem appropriate reasonable respect seeks eliminate.' Id., 114, applicable standard such cases required according 'fundamental principle where Congress has entrusted agency responsibility selecting means achieving relation remedy peculiarly competence." American Power SEC, 329 90, 112, 67 133, 146, 91 L.Ed. 103 (1946). Thus, choice sanction overturned unless might find 'unwarranted law without justification fact ..' 112 S.Ct., 146; Phelps Dodge Corp. NLRB, 313 177, 194, 61 845, 852, 85 1271 (1941); Moog Industries, Inc. FTC, 355 411, 413—414, 78 377, 379—380, 370 (1958); FTC Universal-Rundle Corp., 387 244, 250, 87 1622, 1626, 18 749 (1967); K.Davis, Law 30.10, pp. 250—251 (1958). acknowledged definition permissible review3 apparently regarded law' 'without fact.' cannot agree action can faulted either record. 8 read Appeals' suggest because 'uniformity violations' somehow mandated search vain requirement statute.4 may 'for specified period' any provision 204. Nothing whatever confines application flagrant conduct' denies Rather, breadth grant strongly implies congressional purpose permit deter repeated negligent. Hyatt United States, 276 308, (CA10, 1960); G. H. Miller & 260 286 (CA7, 1958); re Silver, 21 Agric.Dec. 1438, 1452 (1962).5 employment within rendered invalid particular severe cases. FCC WOKO, 223, 227—228, 213, 215—216, (1946); U.S., 251, 1626—1627; supra, 296; Hiller 429 856, 858—859 (CA2, 1970); Dlugash 373 107, 110 1967); Kent 425 1346, 1349 (CA5, 1970). 9 Moreover, error premise conduct.'6 practice, rather, employ judgment best serves achieve objectives statute. plainly intended broad give Therefore, mere unevenness does render law.' 10 Nor perceive record conclusion so fact' 'as constitute (the Secretary's) discretion.' 115, 147; 414, 380; Barsky Board Regents, 347 442, 455, 74 650, 657, 98 829 (1954). rested necessity light warnings. facts concerning were based ample evidence. circumstance, overturning statute domain. 11 Similarly, insofar that, about charges, sufficiently redressed violations, clearly function review. fashioning Secretary, court. decide pertinent facts, made 'an allowable (his) remedy.' Jacob Siegel 327 608, 612, 66 758, 760, 90 888 12 Reversed. 13 STEWART, whom DOUGLAS joins, dissenting. 14 remarkable thing presence For involves no well-settled principles familiar little significance Why mystery me—particularly time thought many burdened too heavy caseload. Rule 19, Rules Supreme States. 15 did nothing penalty alleged discriminatory arbitrary. approaching task, appellate displayed impeccable understanding review: 16 'The our limited correction errors examination sufficiency supporting factual conclusions. must if Also, substitute Officer's various inferences drawn evidence.' 110—111. 17 'Ordinarily courts modify ancillary features orders are shaping remedies special competence vested deal matters, long selected exceed agency's power bears sought eliminated, reviewing interfere.' 114. Had used talismanic language 'arbitrary, capricious, discretion, otherwise accordance law,' 706(2)(A), I doubt denied. But mistake using wrong words, saying 'unconscionable,' fact.'1 19 Today holds law', limits. ignores valid motivated Appeals—the like treated alike. Professor Jaffe put matter: ultimately conditioned determined major proposition constitutional country architects guarantors integrity legal system. island entire itself. It one rooms magnificent mansion law. very subordination jurisdiction proclaim each brought harmony totality law; hand, book large, conceptions 'common ultimate guarantees associated Constitution.'2 reversal today wholly defensible accomplishes unfortunate results. First, moves decision-making step closer unreviewability, odd result serious concern being expressed fairness justice.3 Second, notice upon federal judiciary wary indeed venturing arbitrariness. 22 Because think followed conduct, affirm judgment. 201—217a. Specifically, registrants prohibited engaging unfair, unjustly discriminatory, deceptive device connection receiving, marketing, buying, selling commission otherwise, feeding, watering, holding, delivery, shipment, weighing, handling livestock,' 'keep memoranda fully correctly disclose transactions involved business 221. regulations CFR pt. 201. App. 35. interfere. (A)ppellate (may not) enter spacious public agencies.' cited 1962 appears reference violations.' 1438 (1962). That support decision, said expressly decision: 'False thereof .' 'even instructions weighings, negligence allowing weighings over extended brings situation reach (sustaining sanctions) still below.' (emphasis added). clear merely 'intentionally' underweighed 'We then, examiner, act.' (Emphasis added.) 'Wilfully' could refer conduct seems clear, finding 'intentional.' See, e.g., Martella, 1479 (1971); Meggs, 1314 Producers Marketing Assn., 796 Trimble, 29 936 (1970); Anson, 28 1127 (1969); Williamstown Stockyards, 27 252 (1968); Middle Georgia Sales Co., 23 1361 (1964). These involve producers' none there flagrant. There diverse Wallis, 37 (1970). borrowed phrasing Court's 112—113, 103. Jaffe, Control Action 589 590 (1965). generally K. Davis, Discretionary Justice: A Preliminary Inquiry (1969), reviewed Wright, Beyond Justice, 81 Yale L.J. 575.

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