Document: 383 U.S. 576 86 S.Ct. 1000 16 L.Ed.2d 109 INTERSTATE COMMERCE COMMISSION, Petitioner,v.ATLANTIC COAST LINE R. CO. et al. No. 14. Argued Dec. 6, 1965. Decided March 22, 1966. Robert W. Ginnane, Washington, D.C., for petitioner. J. Edgar McDonald, New York City, respondents. Mr. Justice WHITE delivered the opinion of Court. 1 This case is before Court a determination when and in what proceedings common carrier by rail may challenge an order Interstate Commerce Commission awarding reparations to shipper claiming injury because carrier's violation Act. 2 A shipper, Thomson Phosphate Company, filed complaint with alleging that certain rates charged respondent railroads were unjust unreasonable seeking reimbursement those transportation charges extent they unlawful. Act §§ 8 9, 24 Stat. 382, as amended, 49 U.S.C. 9 (1964 ed.) The sustained issued report finding assailed was entitled reparations. Co. v. Atlantic Coast Line Co., 303 I.C.C. 25 (Div. 2, 1958). When respondents refused certify shipper's statements showing shipments made during period involved, reopened proceeding amount due. After such additional proceedings, found $8,889.76 interest, entered authorizing directing pay sum specified date, later amended August 28, 1961. 311 315. Respondents comply brought suit United States District Middle Florida under § 17(9) Act, 385, 17(9), 28 1336 1398 enjoin, set aside, annul orders Commission. claimed, inter alia, erred not Thomson's claims barred Act's limitation provision, 16(3), 384, 16(3) Thomson, which party carriers' action, Southern against other enforce Commission's reparation award pursuant 16(2) ed.). By stipulation, has been held abeyance pending outcome case, presently this 3 moved dismiss injunction contending are reviewable carriers required await enforcement action attack order. denied motion and, on merits, limitations. 213 F.Supp. 199. sole issue raised appeal whether had jurisdiction. Appeals affirmed, sustaining jurisdiction 334 F.2d 46. We granted certiorari importance question administration 379 957, 85 658, 13 553. reverse hold issues order, accompanied cease-and-desist obtain review only court where commences its action—or seeks see Consolo Federal Maritime Comm'n, 607, 1018. I. 4 contains detailed provisions governing presentation adjudication Section basic provision creating liability declares any violates 'shall be liable person or persons injured thereby full damages consequence * *.' complainant given alternatives Commission, procedures established 13(1), bringing federal disctrict court. But primary doctrine requires initial submission questions raise 'issues policy ought considered interests uniform expert regulatory scheme laid down (the) Act.' Western Pac. 352 59, 65, 77 161, 166, 126; Texas & American Tie Timber 234 138, 34 885, 58 L.Ed. 1255. Accordingly, who his will nevertheless repair decision issues, like reasonableness rates, call into play. occurs, ordering reference exclusive civil enforce, arising out referral, 1336(b) ed.), within 90 days entry final 1336(c) 5 Our concern here, however, alternative procedure provided involves culminates award. 16(1) provides if determines it make he day named.' If fails designated time, then right file either state Moreover, Congress have procedural advantages designed discourage 'harassing resistance order.' St. Louis S.F.R. Spiller, 275 156, 159, 48 96, 97, 72 214; also Meeker Lehigh Valley 236 412, 433, 35 328, 336, 59 644; Baldwin Scott County Milling 307 478, 943, 83 1409. broad choice venue. court, Lewis-Simas-Jones 283 654, 661, 51 592, 595, 75 1333, free from costs, except accrue appeal, introduce at trial findings prima facie evidence facts therein stated. *' In addition, allowed reasonable attorney's fee prevails, advantage accorded shippers elect proceed first instance.1 6 likewise general judicial orders. after application rehearing, reargument, reconsideration otherwise disposed of, suspend, aside decision, requirement.2 7 Jurisdiction both suits vested district courts 1336(a) Venue determined 1398(a) which, '(e)xcept law,' limits residence principal office. quoted exception, venue restriction does apply commenced 16(2), section own provision. Procedures 'other than payment money,' 2321 governed 2321—2325 Such actions must States, 2322; parties interest appearing intervene right, 2323; no interlocutory permanent restraining unless heard three-judge 2325,3 direct 1253 Comm., 337 426, 69 1410, 93 1451, determine unlawful but do cease desist charging becuase discontinued, 'are sufficient public justify accelerated procedure,' U.S., 442, S.Ct., 1419. Thus, though govern orders, 2325 applicable matter adjudicated single judge. Because seek 'for above-described apply. directs thereunder all respects damages,' exception special we previously referred. II. From foregoing summary observed awards quite distinct different restrictions procedures. conferred well lost impaired 17(9). asked harmonize language purposes two provisions.4 10 At outset, should emphasized here concerned narrow, important, category cases. First, conceded usually originates practices continue use, immediate 17(9); ordinarily validity statutory founded. respecting charges, example, authority 15(1) prescribe just subjects $5,000 per penalties non-compliance, 16(8) typical reviewed since suit, Stickney 164 F. 638 (C.C.D.Minn.), aff'd, 215 98, 30 66, 54 112; Comm. Delaware, L. W.R. 220 235, 31 392, 55 448; 454, 1425, 1451 (Frankfurter, J., dissenting). Second, even joined latter subject means securing available, regardless sought 1410; 1018, carrier, Pennsylvania 363 202, 80 1131, 1165. cited cases could directly through interposition defense. 11 Thus supra, Government reparations, did violate dismissed complaint. As there upon base would sustained. Similarly, adequacy award, being one pressed Baltimore Ohio Brady, 288 448, 457—458, 53 441, 443, 888; D. Piazza West Line, 210 947 (C.A.2d Cir. 1954), cert. denied, 348 839, 42, 99 661. 12 involved Claims collect due tariff. defended ground unreasonable, referred doctrine, 62 70, 164—168, 126. without issuing aside. On Claims' refusal further suspend afford review, therefore suspended proceedings. holding failure sustain Court's again precluded review. essential compel allowance respondents' action. asks us limit their situations available permitted. It argues opportunity occurred afforded defense sustained, contends, deprived many bestowed 16(2). And historical development said establish contemplate bar short-circuit suit. Finally, urges longer effect little continuing significance comparable private involved; therefore, appropriate compensated rather 14 argue that, contrary, past practice decisions method reviewing occurred5 challenged open limiting result disparate treatment shippers, conflicting suits, thus cardinal principle uniformity rates. 15 appear more fully below, take middle course. conclude defending underlying precludes obtaining forum chosen shipper. find obstacle cross-proceeding selected so desire. III. threshold contention conclusive proceeding. correct point, interpretation 17 To support view scope refer principally Mitchell Coal Coke 230 247, 33 916, 57 1472. dispute 'administrative' concerning Regarding weight resulting said: 18 'Such far administrative conclusive, relate present can operation, affected rate ruling avail themselves They quasi fact damage,—as money taking property, is, act, hearing 258, 921. 19 Accord, Morrisdale 304, 938, 1494. 20 draws express distinction between quasi-judicial 430, 335, 644, '(i)t cuts off (and) interposes contestation See 435, 1416, (§ 'railroads complete adverse orders'). earliest Hepburn concluded legal theory applied erroneous, disputed unreasonable. Hay Grain 214 297, 29 678, 1004. Arizona Grocery Atchison, T. 284 370, 52 183, 76 348. seemingly contradictory contemporaneous require explanation, believe course era 21 our brief re sume immediately apparent not, strictly speaking, actions. yet entered. applicability involving present, 22 Initially formulated premised early assuring reasoned discriminatory, essentially particularly prior resort conclusions might reached courts; prevailing preference compared unsuccessful See, e.g., Abilene Cotton Oil 204 440—441, 27 350, 355, 553; ex rel. Pitcairn 481, 493—495, 164, 169—170, 292; 255—260, 919—922, Of preliminary achieving de novo reason pointed 'conclusive' ensuing 23 rendered same indicate sense actually using term. Under original itself entail penalty. judicially enforceable instance 'the shall matters stated.' 16, 384 (1887), 860 (1889). Though retaining awards, 1906 included nonreparation money, self-enforcing incurring noncompliance, competent Illionis Central 452, 155, 280, changes effected making interpreted reducing evidence. stated consider exceeded constitutional power delegated, exercise reasonable, 'usurp merely functions setting lawful conception wisely exercised. Power mere expediency wisdom having it, question.' 470, 160. Through frequent repetition, Comm Union 222 541, 547—548, 32 108, 110—111, 56 308; Procter Gamble 225 282, 297—298, 761, 766—767, 1091, principles elaborated Illinois gradually became restated 'that conclusively *,' Louisville Nashville 235 314, 320, 113, 114, 245. Jersey 257 256—257, 42 80, 81—82, 66 217; 263 515, 525—526, 44 189, 193—194, 68 417 n. 7. generally, Rochester Tel. Corp. 125, 139—140, 754, 761—762, 1147. parallel development, placed increasing reliance factor demonstrating requirement indeed treatment. Compare Cocal 494, 169, 292, 921, 1472, quoted, p. 590. read together background becomes clear That record familiar standards while rights introducing jury fact.6 16(2)'s consonant doctrine. seems Weber, 85, 90—91, 18, 20, 141; Sloss-Sheffield Steel Iron 269 217, 46 73, 70 242; News Syndicate 179, 39, 225; Adams Mills, 286 397, 409—410, 589, 592—593, 1184.7 urged companion accepted F.2d, 49, 12, several lower courts, Process Gear 250 569, 571—572 1957), 356 959, 78 996, 1066; Midland Excelsior 177, 181—182 (C.A.8th 1936); O.R. 61 242, 246, 248 (C.A.4th 1932), rev'd grounds, City Danville Chesapeake 620, 625, 627—628 (D.C.W.D.Va.1940); Hillsdale 237 272, (D.C.E.D.Pa.1916). adhere now. IV. Having ample secure now affording vitiate congressional expressed encouraging prompt awards. effectuate policy, substantive benefits pertaining venue, freedom fee. contends permitting bring materially impair derived dispensations although degree impairment less claimed neverthless substantial. 26 argument accept, proceeds follows: soon passage date compliance, priority. Although 2322 2323 compulsion protect destroy foundation way, frequently office 1398(a), removed resides road runs—alternatives likely offer convenient choice. similar analysis forced lose costs fee, judge 440—443, 1418—1420, 1451; 1165, possible, apart problems,8 press independent consolidated Fed.Rule Civ.Proc. 42(a), counterclaim intervention Switzer Bros., Inc. Locklin, 207 483 (C.A.7th 1953); Moore, Practice 13.05 (2d ed. 1964), 24.17 1963). Then fees attributable clearly applicable. arguable—an decide—that benefit combined Since believes makes claim undercut summary, principal, sole, force forgoing defend accepting distant obviously counter said, expected expense loss advantage. these discounted. limited desire witnesses documentary rebuttal opposing produced play factors relating convenience relative burden proof important contexts. Mercantile National Bank Dallas Langdeau, 371 555, 520, 523; Schnell Peter Eckrich Sons, Inc., 365 260, 81 557, 546. V. contend confining problems greater severity safeguarding privileges. note Phillips Grand Trunk 662, 444, 774, complainants basis argued upholding preclude another successfully invoking separate proceeding, contrary objective true formally neither nor party. Cf. Jones, 336 641, 651—653, 670—671, 787, 793—794, 802 803, 938; 205, 1133, permit nonparticipating disapproved litigation compainant railroad. separately 206 700, 1128. Thereafter, some settled, Phillips, rely shippers. Therefore, ruled if: 'there unreasonableness begun others, (the shipper) could, claim, over parties. ultimately valid, position Commission—or judgment jurisdiction, seasonably presented.' 666, 445. contemplates served. still disparity multiple commence disagree conflicts completely avoided long unvarying 1004; 348; 1184; P. Brown Sons Lumber N.R. 299 393, 265, 301; H. K. Porter Vermont Railway, 366 274, 1341, 1342, (dictum). event, occur. sustains generally persuasive courts. occur arise when, decide matter; resolved here. reach strikes grounds redetermining defective. proper remand 302, 680, Behlmer, 175 648, 209, 309; compare 802—803, Carlo Bianchi 373 709, 718, 1409, 1415, 652, modify 16(6), 16(6) naturally request reopen 1409; cf. Gulf, M. Merchants' Specialty 50 (C.A.5th 1931). cases, refusing finally necessity Here too elaborate below cross-action ensuring affect maintain VI. Recent recognized determining 'right obligation' 'legal consequences' flow therefrom reviewable. 1165; Telephone 131, 132, 143, 757, 758, 763, 'is equally relates future follows referral Commission.' 1133. attacked unquestionably 36 now, three preceding sections serve guideposts question. contrast, dealt control allowing substantially select Third, contention, If, consistent history establishing adopt 37 During years existence Until 1906, noncompliance expose sanctions; validity. imposed '(t)he enjoin then, ratemaking disobedience punishable,' Los Angeles S.L.R. 273 299, 309, 47 413, 414, 71 651; 40 Cong.Rec. 5133 (remarks Senator Foraker). genesis procedding injunctive remedy faced threat irreparable exposure mounting until interested choose Ex parte Young, 209 123, 147—148, 448—449, 714. equitable nature remarked denying 'negative orders' command threaten sanctions. 651, diem presented cause Pittsburgh W.V.R. 646, 648—649 (D.C.W.D.Pa.1924); 261, (D.C.D.Del.1935), dismissed, 87 605 (C.A.3d 1937); contra, 193 664 (Commerce Ct. 1911). stressed absence review—in equity terms, inadequacy remedies law. pp. 587—588. 38 beginning demonstrate, test reviewability pregnant concept negative sway, mean resurrect strict approach. establishes main 'self-enforcing' exposing recalcitrant substantial monetary penalties. legislative permits absolutely inference intended simplified provide assistance H.R.Rep.No.591, 59th Cong., 1st Sess., 5; 2256 Congressman Hepburn). certainly affords requiring defer maximize remedial 39 Lest misunderstanding, emphasize reasons unavailable began inapplicable court.9 Obviously right. think whole case. argues, nevertheless, permitted brought. apparently Congress, 1964 reference, 1398(b) placing S.Rep.No.1394, 88th 2d Sess. (1964), 1964—2 U.S.Code Cong. Admin.News, 3235, providing incident Brief (No. 451 O.T.1959), 7—9, 21—22. indicated section, justifiable preventing us, Indeed, deferred For herein, entertaining reversed. 41 Reversed. DOUGLAS concurs result. 43 BLACK took part consideration relevant text discussed above reads '§ 8. Liability law 'In chapter do, done, done matter, thing prohibited declared unlawful, omit chapter, counsel fixed every recovery, taxed collected 9. Remedies damaged; election; 'Any damaged hereinafter for, behalf recovery jurisdiction; pursue remedies, each methods herein adopt. 13. Complaints investigations '(1) Complaint carrier; reparation; investigation person, firm, corporation, company, association, mercantile, agricultural, manufacturing society organization, body politic municipal complaining anything omitted contravention thereof, petition, briefly facts; whereupon statement forwarded called satisfy complaint, answer writing, time alleged relieved particular complained of. specified, investigating duty investigate manner deem proper. 16. Orders commission thereof Award 'If, title, named. '(2) Proceedings orders; costs; 'If complainant, whose made, located operating runs, State parties, forth causes damages, premises. stated, plaintiff subsequent appeal. prevail suit.' 8, 13(1) (2), (2) Judicial relief decisions, etc., denial disposition etc. 'When division, individual Commissioner, board respect assigned him appellate requirement, part, side otherwise.' added 1940, Transportation basically exhaustion appeared 590, phrased terms only. ease Code pertinent part: 1336. '(a) Except 1398. law, wherein 2321. Procedure generally; process 'The collection fines, forfeitures, chapter. 2322. 'All title States. 2323. Duties Attorney General; intervenors General represent Supreme represented counsel, 2325. Injunctions; 'An enforcement, operation execution, therefor judges 2284 title.' 1336(a), 2321—2323, readily opinion, Consolo, patchwork interpretation. entire surely ripe consideration, competing considerations yesterday overriding today. Frequent practice, Illustrated adopted availability defenses statute limitations asserted try first. core concerns course, rebut admissibility fair based evidence, Spiller 253 117, 126, 446, 64 810. containing admitted produces rejected judgment. 434, 439, 337, 339, 659; Jacoby 242 89, 94, 51, 165 644. seem beyond prevailed below. 'or runs expressly coincide districts listed, elects residence, office, originally primarily prompted enactment 1336(b), referring Admin.News 3235—3239. first, difficulties broader objections perhaps overcome transfer 1404 waiver, 13.16, 45 1964) (venue counterclaims interveners). 'Except 3, place business interpret precluding law' 1398(a). rare state, federal, possible cross-action.

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