Document: 337 U.S. 55 69 S.Ct. 959 93 L.Ed. 1207 Ex parte Joseph COLLETT, petitioner. Jessie A. KITPATRICK, petitioner,v.The TEXAS AND PACIFIC RAILWAY CO. The UNITED STATES of America, petitioner, v. NATIONAL CITY LINES, Inc., et al. Nos. 206, Misc., 233, and 269, Misc. Supreme Court the United States May 31, 1949 Motion for Leave to File Petition Writ Mandamus prohibition. or Certiorari. Certiorari Under 28 U.S.C. § 1651, U.S.C.A. 1651. Concurring opinion. For majority opinions see 55, 944; 75, 953; 78, 955. Mr. Lloyd T. Bailey, Chicago, Ill., Robert P. Hobson, Louisville, Ky., respondent. Chief Justice VINSON delivered opinion Court. 1 In this case we must decide whether venue provisions Judicial Code1 render applicable doctrine forum non conveniens actions under Federal Employers' Liability Act.2 Petitioner instituted such an action against Louisville Nashville Railroad in October, 1947, court below, District Eastern Illinois. No trial was had before September 1, 1948, effective date present Code.3 Thereafter filed a motion transfer Kentucky. 2 below found that all 35 witnesses petitioner himself live Irvine, Kentucky, which also scene accident; Irvine is 420 miles, 'approximately twenty-four hours * by public transportation,' from East St. Louis, where sits, but only 26 miles Richmond 48 Lexington, two cities Kentucky sits. Furthermore, determined jury schedules at both Lexington made early possible. Thus concluding would serve convenience parties witnesses, be interest justice, granted Railroad's motion. then directly 'motion leave file petition order show cause why writs mandamus (against below) prohibition Court) should not issue, same.' makes no allegation abused its discretion; his sole contention exceeded Court's authority. Since issue seemed importance administration justice,4 assigned hearing on 335 897, 295. 3 Prior current revision Title Code, coveniens available Act suits. Baltimore & Ohio R. Co. Kepner, 1941, 314 44, 62 6, 86 28, 136 A.L.R. 1222; Miles Illinois Central Co., 1942, 315 698, 827, 1129, 146 1104; Gulf Oil Corp. Gilbert, 330 501, 505, 67 839, 91 1055. new however, provides 'For district may any civil other division it might have been brought.' This 1404(a). reviser's notes, accompany each section here read as follows: 'Subsection (a) drafted accordance with conve iens, permitting tranfer more convenient forum, even though proper. As example need provision, prosecuted Employer's New York, although accident occurred employee resided Ohio. subsection requires determine necessary further, justice do so.'5 precise us whether, despite these expressions, law remains unchanged. so contends. 4 First. relied language 1404(a), supra, regarded 'unambiguous, direct, clear.' We agree. reach 'any action'6 unmistakable. phrase used without qualification, hint some excluded. From statutory text alone, impossible excising action.' 5 suggestion offers regard action' embraces those special requirements are prescribed §§ 1394—1403 Revised 28,7 since sections immediately precede within Venue Chapter, 1391—1406, inclusive, Code. To accept contention, required completely disregard Congressional admonition 'No inference legislative construction drawn reason chapter placed *.'8 petitioner's argument proves too much: 1391—1393, Chapter refer action', applying established neightboring they were obviously intended Congress general ordinary actions. It seems reasonable hold 1404(a) terms applies generally, i.e., 6 Second. Although wishes restrict literal meaning he expand sense 'may brought' beyond exact scope words. Obviously, express gives clue 'might Yet essence position transferring suit, effects repeal Act, him right sue 'in defendant shall doing business time o commencing action.'9 7 Section defines proper forum; Code deals properly brought. deal separate distinct problems.10 does limit otherwise modify elsewhere bring suit particular district. An still brought court, state federal, previously. 8 therefore, Act. agree intention, demonstrated failure list meticulously prepared schedule statutes repealed.11 cannot effectuates implied repeal. inapplicability suits derives Kepner decision. And there expressly stated 'If deemed unjust, remedy *.' page 54, 10, 28. That discusses sure, did could suggest answer necessarily addressed section. words selected denote nothing, one way other, respecting conveniens, occasion section, impliedly; chose remove judicial gloss via another statute. Discussion repeals is, irrelevant. 9 Third. Petitioner's chief proceeds side boundaries history. short history clear. 'The plain statute overcome through strained processes deduction events wholly ambiguous significance, furnish dubious bases every direction.' Gemsco Walling, 1945, 324 244, 260, 65 605, 614, 89 921. canon has received consistent adherence our decisions.12 10 Nevertheless, rest decision solely. support position. based twin premises: 'controversial change' incorporated Code; change. 11 establish former premise, cites number statements leaders charge revision. example, Representative Keogh, Chairman House Committee Revision Laws initiated work, said Judiciary Subcommittee, policy adopted avoid wherever possible whenever adoption what described substantive changes law.'13 Senator Donnell, Senate Subcommittee considering floor '* purpose Bill primarily revise codify enact into positive corrections committee substantial non-controversial nature.'14 But statements, clearly, unequivocal promises made. legislation announced well codification. obvious retained considered 'controversial' spokesmen. 12 offer definition 'controversial,' point concrete regards measure. Jennings Bill,15 consideration spring revision.16 meet same problem, alleged abuses selection forums suits.17 far drastic than large part repealed delimited federal courts.18 eliminated railroad business. Initially, applied plaintiffs, final draft generally restricted all, including passengers, who railroads personal injuries. Inasmuch none contained evident considered, 'non-controversial' 'controversial.'19 13 Moreover, if distill usable concept change,' application destroy case. concedes fact arouse controversy; submits contrast. His actual vague speculation done fully realized henceforth requisite assumption, appreciate significance when ratified therein, contrary facts shown record. lack controversy reflected aware agreement inertia ignorance. 14 scarcely hasty, ill-considered legislation. contrary, close prolonged study. Five years attention supports Code.20 start, obtained most eminent expert assistance available. spadework entrusted law-book-publishing firms, staffs unique experience codification revision.21 They formed advisory committee, distinguished judges members bar, services consultants.22 appointed Conference.23 assist matters relating jurisdiction Court, Stone consisting Justices Frank-furter Douglas.24 15 experts assisted drafting mean blindly approved outsiders did. demonstrated, statement Robsion, conducted 1947. 'We last year just them line you codifiers persons go over bill us.'25 16 almost imply very careful vitiates system integral typical procedure; function it.26 A f discount pro tanto, greater expertise meticulous devoted thereto, longer complex legislation, absurd, least because make mockery techniques interpretation heretofore courts. 17 Committees attempt conceal proposed revisions. laws preparation preliminary drafts sought give widest circulation. certain member legislature got one; sent attorney; judiciary; appropriate committees leading State local bar associations; every-one ever evidenced work all.'27 Indicative success publicizing specific treatment applicability legal periodicals.28 18 initial appearance Second Draft meeting May, 1945. Its remained accompanied note, recited new. memorandum Mar. 7, author Moore's Practice, stating recognition given conveniens. *'29 balance note substantially note; cited case, demonstrating notes subsequent step. 19 printed late 1945 use Laws. draft, appear related subsection. which, noted above, wide 20 July 24, 1946, ordered Report submitted Keogh Laws, 28.30 consisted full printing notes. appears Report, together note. There further Seventy-Ninth Congress. 21 Eightieth Congress, Legislative Reorganization 1946,31 passed Robsion Chairman. At Sub-committee, Professor James William Moore Yale University, consultant revisers, summarizing proposals, testified 'changes importance' specifically mentioned 1404.32 April, reported unanimous recommendation passed.33 again reprinted entitled 'Examples Changes Law,' appeared preceding Session referred 1391—1406.34 22 After painstaking consideration, references initially 1947.35 Senate, Tax occasioned discussion; pass unnoticed. Attention called witness hearings issue.36 change included amendments; enacted June, 1948.37 23 Thus, stage procedure, directed change, instances mention first formal accompanying fail appear. same, reference showing Now enacting defy flatly reject thesis obscured enactment meaningless. blind ourselves hearings, experts, reports, their incorporation reports—to consideration. 24 Fourth. suggests transferred prior Clearly, remedial provision pending vested mode procedure Crane Hahlo, 1922, 258 142, 147, 42 214, 216, 66 514.38 25 Fifth.. denied view take denial grounds also. 'Mandamus, injunction extraordinary remedies. remedies, reserved really causes.' Fahey, 332 258, 259, 1558, 1559, 2030.39 What course opposed knew If sustain after little remain. 27 Denied. BLACK DOUGLAS dissent reasons dissenting National City Lines, 29 RUTLEDGE. 30 I concur result. feel impelled say things. 31 One my taken broadly include effect partial 45 56, DOUGLAS, provisions, 12, Clayton 22, involved 334 573, 68 1169, 92 1584. 32 history, demonstrates mere removal gloss. think now impugn validity decisions Miles1 characterizing 'judicial gloss' upon pertinent Those true reflections congressional intent respective and, accordingly, nature repeals, extent plaintiffs deprived rights pre-existing causes tried 33 second place, changes, entirely Congress' power make, neither insubstantial nor non-controversial, original Nor either noncontroversial seem treated bill.2 noted, moreover, decisions, like Lines 34 These me 'fully informed 1404(a).' This, matter affecting manner conducting Accordingly, notwithstanding doubts far, acquiesce decisions. Pub.L.No.773, 80th Cong., 2d Sess., June 25, seq.: 'An revise, codify, title 'Judicial Judiciary." Stat. 65, amended 36 291, 53 1404, 51—59, 51—59. Pub.L.No.773. 38, five dealing relationship FELA reported. Four held applicable. Hayes R.I. P.R. (and seven cases), D.C.1948, 79 F.Supp. 821; White Thompson, 80 411; Nunn 745; Scott York 81 815; cf. Brainard Atchison, S.F.R. 211; Perry 82 912 (in both, denied, exercise 'discretionary powers'); Chaffin Chesapeake O.R. 957; Richer 971. inapplicable Pascarella D.C. 95. H.R.Rep.No.308, 1st Sess. 132 (1947); H.R.Rep.No.2646, 79th 127 (1946). clear substituted 'suit,' formerly various statutes, light Rules Civil Procedure, rule 2, U.S.C.A.: 'There form known 'civil action." 1394 'by national banking association enjoin Comptroller Currency'; 1395, proceedings 'for recovery pecuniary fine' forfeiture property' varying circumstances; 1396, 'Any collection internal revenue taxes'; 1397, 'of interpleader'; 1398, enforce, suspend set aside whole Interstate Commerce Commission'; 1399, partition lands, tenants common joint tenants'; 1400, 'relating copyrights' patent infringement'; 1401, stockholder behalf corporation'; 1402, 'against States'; 1403, 'to condemn real estate States.' 33, 'Under States, residence defendant, arose, action. *' 56. brief historical sketch, 49—50, 8, state, different sections. Brief C. L.R. Amicus Curiae, pp. 11—2, Kilpatrick Texas Ry. 953. See, e.g., N.Y. Practice 182, 187. Pub. No. 773, 39, 992. changed basic requirements. 1394, 1396 respectively, prescribe Currency, involving fines forfeitures, taxes copyright suits; following therefore listed repealed: 110; 104, 107, 108; 105; 109 35, 105, 107—110, 35. E.g., Packard Motor Car Labor Relations Board, 485, 492, 789, 793, 1040; American Trucking Associations, 1940, 310 534, 543, 60 1059, 1063, 84 1345; cases cited. revisions same. Continental Casualty 527, 530, 393, 395, 426; Bate Refrige ating Sulzberger, 1895, 157 45, 508, 519, 39 601; Bowen, 1880, 100 513, 631. Hearings H.R. 1600, 2055, (1947). He proceeded hypothesis restatement existing law, endanger accomplishment inclusion highly controversial law.' And, response Chairman's question, 'And matters?' Rep. replied unanimity opinion.' Ibid., 11. 94 Cong.Rec. 7928 (1948). illustration 'various made.' 1639, Sess.: 'A amend venue. ultimately House, except sentence prohibiting courts courts; added paragraph statute, 51 112, 112: damages wrongful death r injuries interstate carrier competent jurisdiction, county (parish), person suffering injury arose: Provided, served process issuing out aforementioned, then, place institution H.R.Rep.No.613, 9—10 (part 1) four Bill, 4, April 18, Congressman Devitt, favor 1600 2055 (Code), Cong. 3214 favoring published divided June. three parts). On vote 342 23. 8392. Ten days later, 203 188. 9193—4. 6—12, 17—22, 31—8 3—6 1), 1—2, 2) opposition minority stated, restricts deprives prerogatives require lawsuits necessary, transcends governing courts.' Doubt expressed constitutional affect letter Acting Assistant Attorney General, S. 1567 1639 (Jennings Bill), 215 July, Thereafter, Committee, both. Senators composed Sub-committee holding hearings: Sen. E. H. Moore, January, 1948; McGrath. between proposals attention. See 2d. 111—2 favorably, albeit sufficiently deleted. Sen.Rep.No.1559, (1948); 7927 1943, appropriated $100,000 connection edition correction errors 57 230. 2—3 'This public-spirited group (the committee) Judge Floyd president Chicago Bar Association; Hon. Justin Miller, associate Appeals Columbia; John B. Sanborn, judge Circuit Eighth Circuit; Walter Armstrong, Memphis Dickinson, Philadelphia assistant General States. ably J. Parker, senior circuit fourth circuit, rendered valuable service consultant. consultants field procedure: Alexander Holtzoff, Judge, Prof. W. University.' 7—8, 12—4, 17—8, 24—6 Maris Chairman, Judges Galston F. Smith committee. Loc. cit. supra 22. 1944 Conference 24; id. 17—8; 1948 41. 'Congressional government government. serious discussion, sanction conclusions rapidly legislates committee-rooms; determinations majorities, resolutions specially-commissioned minorities; truth session exhibition, whilst committee-rooms work.' Woodrow Wilson, Government xvi, (15th ed. 1900). changed. workshops core process. center activity law-making supervisory functions largely performed.' Gallo-way, Crossroads Bryce, Commonwealth c. XV (New Ed.1931); Chamberlain, Processes, cc. V—VI (1936); Kefauver Levin, Twentieth-Century 114—53 Luce, IV—VIII (1922); Walker, Process, Expressly reciting notes: Braucher, Inconvenient Forum, Harv.L.Rev. 908, 933 (July, 1947); Note, Limitations Choice U. Chi.L.Rev. 332, 341, n. 54 (Winter (March), 1948); Comment, Forum Non Conveniens, Doctrine, 56 L.J. 1234, 1249, 115 (Aug., 1947). Barrett, Doctrine Calif.L.Rev. 380, 421 (Sept., Minn.L.Rev. 633, 636, (May, 1948). Cf. Note Ind.L.J. 82, 87, (Oct., 1947) (quoting referring notes). Of being revised publicized discussions bearing instant issue; Wechsler, Jurisdiction Law Contemp.Prob. 216 Zinn, Notes, 3—4, (1944) (earliest reference); Proposed 424 doubt mind memorandum. 2141 (2d 1948), 'provides forum' (italics original), footnote (107) citing declaring includes subject infringement statute.' articles Conference, Reviser: Galston, Introduction F.R.D. 201, 206 Barron, Revision, 439, 442 (1949). 812, 826—827 6. 8392 3214, 73—4 37 7927—30, 8297, 8438, 8498—8501 While lacks relevance intention expression presentation up-to-date report noting ov additional amendments already become law. Pub.L.No.72, 81st 65—127, 1949. 95 3892—9 (April 1949), 5929—30 (May 6396—7 16, 1949); H.R.Rep.No.352, 11—20, 38—51 (1949); Sen.Rep.No.303, 1406 adding 'shall dismiss, justice' transfer', Law, whatever suggested 38 Gwin 1902, 184 669, 526, 46 741; Exchange Bank Peters, 1892, 144 570, 767, 545; Sherman Grinnell, 1887, 123 679, 278; McBurney Carson, 1878, 99 567, 569, 378. Mars, 320 710, 64 86, 88 417; Roche Evaporated Milk Ass'n, 319 21, 63 938, 87 1185, Alkali Export Ass'n 325 196, 1120, 1554, 28; 1104. 'At great care exercised approval.' S.Rep.No.1559, 2. [Senate Judiciary] nature.' 7928. similar expressions Representatives, told aspects' 1947 code subsequently deleted concerning 8390. contemporaneously citations

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