Document: 412 U.S. 800 93 S.Ct. 2367 37 L.Ed.2d 350 The ATCHISON, TOPEKA & SANTA FE RAILWAY COMPANY et al., Appellants,v.The WICHITA BOARD OF TRADE al. INTERSTATE COMMERCE COMMISSION, Appellant, v. TRADE. Nos. 72—214, 72—433. Argued Feb. 28, 1973. Decided June 18, Syllabus Interstate Commerce Commission (ICC), after hearings, approved imposition by appellant railroads of separate charges for inspection grain while in transit, a service that had previously been provided under the line-haul rates. Appellees thereupon brought this action District Court contesting validity ICC order. That court found not adequately justified departure from its longstanding rule such are unlawful unless carriers can satisfy burden rests upon them proving their rates insufficient to cover total transportation including portion thereof which proposed. ordered suspension in-transit otherwise and remanded case ICC. Held: is affirmed as remand reversed injunction suspending proposed charges. P. 2374—2384. D.C. 352 F.Supp. 365, part part. Mr. Justice MARSHALL, an opinion joined THE CHIEF JUSTICE, STEWART, BLACKMUN, concluded that: 1. ICC, prior cases on ground many involved rendered previous requirement impractical new when added would exceed ICC-prescribed maximum rate level, has stated reasons with sufficient clarity facilitate proper judicial review approval intransit Pp. 806—817. 2. Equitable considerations, doctrine primary jurisdiction applied facts case, required refrain expressing view what it believed was permitted national policy before could balance conflicting interests shippers, railroads, producers consumers changes, cf. Arrow Transportation Co. Southern R. Co., 372 658, 83 984, 10 52; hence, improper enjoin implementation 817—825. DOUGLAS concurred affirmance 1 WHITE, BRENNAN REHNQUIST, concurring reversal injunction, only granted statutory authority suspend freight seven months no power extend period. 828—829. 2 Earl E. Pollock, Washington, D.C., Atchison, Topeka Santa Fe Railway others. 3 Betty Jo Christian, I.C.C. 4 Daniel J. Sweeney, Chicago, Ill., Wichita Board Trade 5 William A. Imhof, Secretary Agriculture. 6 MARSHALL announced judgment Court, BLACKMUN join. 7 We noted probable these resolve two important questions relating role courts reviewing increases railroads. 409 1005, 432, 34 298 (1972). First, circumstances may find failed explain apparent settled precedent? Because problem determining policies agency following, prelude whether acting accordance Congress' will, recurring one, issue raises general problems action. second question more limited one: order increase final Commission, sort error must proceedings Commission? hold did precedent manner permit policies, but that, nevertheless, kind does justify entering against pending Commission's remand. therefore vacate entry order.1 8 * In cases, establish charge transit.2 inspect grain, railroad cars loaded stopped placed track facilities. A sample taken, official grade determined. Once known commercial value established, shipper orders car proceed appropriate market. Intransit inspections have substantial advantages shippers over at destination. If were be different than expected arrival destination, sending another market might quite expensive. purchasers, instead source less marked nonetheless significant. deteriorate thus leaving purchaser lower quality he expected. And possibility bias inspector greater if made source. 9 'the orderly marketing present practices requires commodity moving channels subjected some form sampling determine or quality.' 339 364, 385 (1971).3 However, also need take place transit. practice developed federal law purpose grading. 39 Stat. 483. But diversion motor trucks difficult enforce requirements. When used, generally made. Thus, simplify movement Congress abolished inspections. Pub.L. 90—487, 82 761. addition, convenience increased widening reliance low-cost mechanical samplers installed elevators. necessary grain. It resulted decrease number available use.4 Relying variety studies conducted each kept out use roughly three days, cumulative impact delays due reduce fleet several thousand cars. 11 Finally, considered fairly reflected cost inspection. Again, relied detailed established detaining car, switching off main line, clerical costs conducting 'not excessive amount . basis convincing evidence record showing sustained performing service.' 340 I.C.C., 71 72. 12 Shippers who objected sought order, three-judge convened. conclusions supported evidence, they challenged here. held failure follow 'its long will allow accessorial performed without additional measured overall services reasonableness resulting therefrom.' 368. although analyzed inspection, attempt consider continuing existing rate, included Instead, attempted distinguish invoked, relying Agriculture United States, 347 645, 74 826, 98 L.Ed. 1015 (1954), convinced instant proceeding 'distinguished' indicated.' F.Supp., 369. 13 Although given leeway re-examine reinterpret holdings, sufficiently clear done so case. able discern actions now pursuing, complete task review—in regard, consistent mandate Congress. Since we cannot tell opinions those are, agree finding just reasonable sustained. II 14 Judicial decisions necessarily scope. Such 'are disturbed except unsupported hearing, constitutional limits, other reason abuse power.' Manufacturers 246 457, 481, 38 383, 389, 62 831 (1918).5 As observed, 'The process making essentially empiric. stuff fluid changing—the resultant factors valued well weighed. delegated enforcement permanent expert body charged duty being responsive dynamic character problems.' Kansas City 314 534, 546, 366, 372, 86 432 (1942). 15 delegation not, course, unbounded, course followed See Inland Waterways Corp., 319 671, 691, 63 1296, 1307, 87 1655 (1943); Burlington Truck Lines, Inc. 371 156, 167 169, 239, 245—246, 207 (1962). Cf. NLRB Wyman-Gordon 394 759, 767, 89 1426, 1430, 22 709 (1969) (opinion Fortas, J.). simple examination reviewed frequently reveal pursuing. 'simple fundamental administrative law,' SEC Chenery 332 194, 196, 67 1575, (1760,) 1577, 91 1995 (1947), set forth clearly grounds acted. For '(w)e know decision means becomes ours say right wrong.' States M., St. P.R. 294 499, 511, 55 462, 467, 79 1023 (1935). Phelps Dodge Corp. NLRB, 313 177, 197, 61 845, 853, 85 1271 (1941); 318 80, 94, 454, 626 (1943). rely rationale adopted guarantee integrity process. Id., 88, S.Ct., 459. Metropolitan Life Ins. 380 438, 443—444, 1061, 1064—1065, 951 (1965). Only way 'guard danger sliding unconsciously narrow confines into spacious domain policy.' supra, U.S., 852. 16 An 'may articulate reference decisions,' 443 n. 6, 1064. '(a)djudicated do, serve vehicles formulation therein. H. Friendly, Federal Administrative Agencies 36—52 They provide guide future cases. Subject qualified stare decisis process, precedents.' 765 766, 1429 This corollary requiring underlying behavior embodies agency's informed pursuing carry committed 17 There is, then, least presumption carried best adhered to. From flows norms. 653, 831. flatly repudiate norms, deciding, example, changed mean longer effectuate congressional policy. Or zone applied, because appears discriminating invocation serves useful purposes, peculiarities suggest Whatever however, understand judge consistency mandate. 18 further complication arises when, here, distinguishes earlier invoked rule. initial step, often one specify factual differences between Those legislative makes relevant scope all too easy adequacy asserted distinction light court, rather agency, seeks implement; all, appellate respect first instance. Yet inadequate, inadvertently adopt stance ordinarily takes courts, thereby invade aside exclusively agency,' choice particular broad enough requirements oversight asserts distinctions sympathetically read context entire So discerned, exercise function directives. 19 These principles gain content repudiated distinguished establishing 'it While fair summary practice,6 conceals rule, protect distinct classes: continue utilize service—in still inspected transit—and not. To decide explained class turn, why invoking class. 20 Unloading Lumber New York Harbor, 256 463 (1943), dealt proposal separately unloading, inextricably bound up service. 648—649, said, 'It follows respondents segregate component (line-haul) service, therefor, adequate aggregate through reasonable.' 468. explicit situation receiving same received do pay unreasonable amount. Duluth Dockage Absorption, 44 300 (1917); Terminal Charges Pacific Coast Ports, 255 673, 682 demonstrate both line haul plus reasonable. 21 giving relate aspect '(t)he applicable to, from, (the) points thousands and, complexities structure, vary large degree.' applying 'effectively precludes ever stop regardless charge.' Second, said any coupled level determined Commission. instance combined prescribed Grain Products, (205 301 (1934) 215 (1936)).' 386—387. Products increases.'7 See, e.g., Ex parte 265 267, Increased Freight Rates, 1970 1971, 125 (1971). proceedings, focus revenue needs Across-the-board percentage individual result, there specific routes fact unreasonable, because, operating rapidly elsewhere. 'does effect approving excess rate.' Coal Illinois Alton East Louis, 274 637, 670 (1949). Tennessee Produce Chemical Alabama G.S.R. 277 (1950); Brimstone Canal 276 104, 48 282, 72 487 (1928). contexts, treated modified corresponding date' increase. Agsco Chemicals, G.S.R.Co., 725, 733 (1961). Public Service Comm'n North Dakota Great Northern 739, 750 23 current challenge succeeds, recover reparations. prescribe future. 49 U.S.C. §§ 8, 9, 13(1), 15(1); 687, 1305, show unreasonable. Louisville N.R. 238 1, 35 696, 59 1177 (1915); Shaw Warehouse 288 F.2d 759 (CA5 1961).8 contrast, goes effect, proof shall carrier § 15(7).9 24 litigation referred intended importance implementing increasing supply modification usual allocation going forward. Instead produce reasonable, leave determination later seeking reparations point 25 stake, identified concerns behind course—in pressing supply, much require assessment surely Unfortunately, though, change claim stake. reparations, proof: appear affect likelihood prevail. 506, 465, (1935), seem harder fell outside within it. believed, specified carriers; return confining eliminating threat long-drawn-out injunctive theirs. Part III, infra.10 26 gave alter Nor significant proof. sense, was, noted, 'discriminatory per se.' 27 even departed protecting effective alleviating car-shortage problem, seek according appear, thus, discriminates hopes very shippers; seems tried citing smaller 28 Some so. Others opportunity Now propose eliminate provided, yet proposing similar reduction either then compensate charge, Transit Charges, Territory, 664, 683 (1968); Loading Less-Than-Carload Lighters Norfolk, Va., (1924); B. Q.R. 186 320, 824, 46 1182 (1902). 29 Nothing suggests should At time include Perhaps imperative justifies alteration dealing inspections, raise above maximum. class, apparently simply refuse preexisting exigency alone. offered larger respect. maximum, below bearing force now-reduced services.11 30 really attributable providing Tr. 231—232, 258—266. perhaps suggesting reflects concern 'increased' services. 31 652, 831, 'following procedure adapted unique case.'12 But, make job. Even most sympathetic reading possible, discover expressed permitting maintain intend provide. III 32 After holding matter ordered, suspended ineffective until Court.' No given; nature harm would, presumably, injure irreparably. belief 52 (1963), distinguishable. 33 enter injunction. operation shippers' suit. terms 2324: pendency enjoin, aside, annual, itself stay restrain suspend, whole part, hearing action.' forbidding implement strictly speaking, various ..' 74. consequence rely, subsequent proceeding, benefit purported increases.13 Arizona Grocery T. S.F.R. 284 370, 183, 76 348 (1932). 1(5), 10(1). discontinued, reopen inquiry. Carriers put declared 6(3), 15(1). Suspension preclude rate. conferred 2324 charge. Rather, ancillary equitable powers protective jurisdiction. 671 22, 991; Order Ry. Conductors Pitney, 326 561, 567, 66 322, 325, 90 (1946). Pittsburgh W. Va. 281 479, 488, 50 378, 381, 980 (1930); 1651(a). Scripps-Howard Radio, FCC, 316 4, 875, 1229 (1942), inferred 'If errors correction legislature resort idle ceremony irreparably made.' 10, 880. surprising exercised extent substantially interfere agency. existence mean, regard division review.' Ibid. Proper erroneous Court's 36 problem. changes months, proceeds proposal. period suspension, go end period.' 15(7). Arrow, parties affected reductions period, effect. Congress, rates, doing same. Here, concluded, thought entered 15(7) specifically govern situation. provision statutes depriving preserve status quo avoid irreparable review. influencing definition relation drawn delineate guidelines power, considerations group encompassed term 'primary jurisdiction.' National often-competing interests. close understanding draw experience illuminate, play Merchants Elevator 259 285, 42 477, 943 (1922); Western 59, 77 161, 126 (1956). Ordinarily, preliminary permits, expresses view. issues determination, element estimate probability ultimate success merits party challenging Virginia Petroleum Jobbers Assn. FPC, 104 U.S.App.D.C. 106, 110, 921, 925 (1958). Depending type finds issuance indicate believes policy, expression precisely designed avoid. supra; Brotherhood Locomotive Engineers M.—K.—T. 363 528, 533, 80 1326, 1329, 1379 (1960). issuing undercut served contemplates action.14 indicated opinion, clarification justification precedent. completion warranted entertained doubt about Virginian 272 47 222, 228, (1926).15 unclear, interferes Commission.16 669—670, 990—991. 40 result issued prevails merits. supra. deal here dispute carriers. increases, allocated suspension. collect suspends them. income gained lost forever. protection keep accounts ultimately unjustified, refund. circumstances. 9. unlikely damaged increase.17 41 public stake litigation, private 385. Inspections now, approves charges, them, someone else engaged extra absorbed someone, farmers, 1299. groups country deciding interest fact, easily courts. farmers balanced sorts goods shipped rail. premise alleviate freight-car shortage. shortage transporting wide range products economy products. instance, estimated interfering Commission.18 43 discussion shows, likely reconsideration clarify imply orders, great care full consideration above. off-hand Court. (1926). Here where lies infringing small. records amounts collected protects damage, availability steps taken shippers. event, did. 45 ordered. Action POWELL took DOUGLAS, dissenting decree authorizing Though I concur dissent since my correct 52, purports control decision. made, has, believe, impose immediate grain-marketing system. volume business merchants, employment inspectors, prices paid farmers. None incidences remedied scheme, none enabled bring suit Hence, view, trade interim lest system suffer severe attrition during principle sits equity, Morgan, 307 191, 795, 799, 1211, equity ample nationally remedy regime. Jurisdiction 'to enforce, annul suspend' 1336(a). years, involved* reviewable. Procter Gamble 225 761, 56 1091. 'negative' concept abandoned Rochester Tel. 125, 145, 754, 764, 1147. provisions 1336(a), grant relief. Under Act 'governing principle' 'that granting relief conditions public—whose affect.' Steel 306 153, 157, 415, 418, 557. exists 15(1) unjust relating, 'a joint fare, 1336(a) equity. 51 whom REHNQUIST join, erred inadequately tariff beyond statute permits 53 latter, forbids requisite unreasonableness instance; refuses so, powerless suspend. postpone effectiveness does, commands absent nevertheless me contrary retains 'ancillary Ante, 819. see it, contravened precepts (1963). 54 somewhat said. found, questioned majority essential it; premarketing transit otherwise, law; regular territory, Eastern territory; territories free stop, territory;1 recent developments territories. Furthermore, unquestioned principal motivation imposing revenues collection promote efficient utilization discouraging proved extremely wasteful utilization. finding, undisturbed, fee discourage contribute cars, hence help relieve grain-car With findings examined detail imposed Its conclusion overturned itself, combination new, exceeded Docket 17,000 pt. 7, 205 (1934); (1936), raised increases. 17,000, Rate Structure Investigation, major effort, comprehensive investigation agricultural products, resulted, among things, prescribing levels movements time, structure 1934 1936 determinations special attention. 1967, 280, (1968). tariffs filed, theretofore allowable, nor allowable key ignore furnished scrutinized. 683—684 (1968), example relatively restatement rule.2 controlling place, magnitude justifying countless practical matter, prohibit frustrate nonrevenue goal improving 57 fundamentally, event deemed satisfied; ensured prohibiting movement—its charge—exceeded privilege 58 approach straightforward adequate. Keeping mind customary let us assume, privileges 120. Assume us—that charging may, 100, privilege. publishes 100 entitles want heretofore ruled calculus concluding reasonableness. 120 reasonably worth 20, occasion considering again services? ignored far differently. examining legality careful precluded 'from following case'; findings, approve unloading courses. technical complex matters like these, discretion formulating solutions.' stand satisfied exaction remaining covered 673 Reconsignment Case No. 3, 455 (1919); (1924). 60 cited proposition Grand Forks Chamber 321 356 id., 360—362, so-called Group together (1936). 739 (1972); State Docks Dept. Alabama, (1963); 725 Neither comforted Cincinnati N.O. T.P.R. Civil 6992 (S.D.Ohio, Jan. 12, 1970), affirmed, (grounds save now), disallowance cotton disapproved stringent standard prove restated prevailing rubric: rendering, for, (one knoweth what) proposes for. Both consistently separated typical cost, etc., On contrary, directed picture conclude (a) looked questions, reasonable; (b) services, sans unreasonable.' continued: 'Whether 'what represented separated,' search terminology answer question: Does composed represent (the severed non-severed)—the same.' (Emphasis added.) 64 few paragraphs later, repeated alternate approach. summarily. 400 932, 235, 240 (1970). 65 permissible years ago, true, subject occasions dead letters stand-point remain foundation railroad. disagreeing re-examined Commission-prescribed combined. Surely presents inadequate promising effort solve critical problem—the shortage—by deter indispensable even, unusually modern conditions. reasons, respectfully dissent. stayed condition 801, 24, —- hereby direct regarding disposition amounts. already eastern territory. $7.42 $14.33. slight currently occur western country's produced exposition, treat involving charge; real railroads' instances. report Division 364 'adopt(ed) affirm(ed) reached' report. 69, 70 description car-utilization Allegheny-Ludlum 406 742, 745 746, 92 1941, 1944—1945, 453 U.S.C.A. 706(2). terms: '(T)he divorced both, insofar concerned, interdependent. (Citations omitted.) preferable elements into, constituting, analyzed, indeed separated, rendered, assessed.' rephrased rule: Cincinnati, aff'd, continued, obscurely: nonsevered)—the 654, 832, sufficiency it.' Currently almost every route, 71. Often results competition modes transport forces WHITE argues equal flaw his argument never suggested says 'previously found—that services.' Without premise, fails. proof, conclusive proceeding. Mitchell Coke Pennsylvania 230 247, 258, 916, 1472 (1913); Atlantic Line 383 576, 590—594, 1000, 1009—1012, 109 (1966). proceedings. urged support essence, breadth application. language characteristic 259, 1969, 714, 715, 792 And, increase, serious arise Electric 338 (S.D.N.Y.1969); Power 337 (D.C.D.C.1969), aff'd equally divided 73, 212 Yet, us, Brief 35; Agriculture18; 32, contended length lacked litigation. parties, interpret resting similarity runs difficulties above, pp. 813—814. remand, fully followed, representative routes. Most problems, confined single route. 664 prerequisites satisfied. theory discussed refusal open suspen sion meaning. M.-K.-T. (1960), shows injunctions infringe 'examination unlike (agency) dispute, dissimilar purpose, grievance (agency).' 1330. Not exceedingly complex, explicitly Then, damage enough, justified. Semmes Motors, Ford Motor 429 1197, 1205—1206 (CA2 1970); Checker Motors Chrysler 405 319, 323 1969). assess infra, analysis turns involves job performance predicate Where purely procedural, severely. there, come evidence. sometimes impinge sphere blatantly lawless mere procedural raising intervene Oestereich Selective Bd., 393 233, 414, 402 Fein System, 1062, Different play, too, task. find, phrased error, relates presentation claims Act. Subsequent legislation propriety Whether legislation. object some-what different. damaged, out-of-pocket expenditures, refunds loss suffer. factor weight suits carriers, considered. injury, district considers request Review court. defendant. 2321, 2322. Railroads appeared intervene, 2323, chose plaintiffs could, compel unwilling appear. Fed.Rule Civ.Proc., 19(a). though nation-wide, willingly. presence interested court's Like lacks 'be, hereby, discontinued.' 401. en banc affirming I.C.C noted: emphasized district. presently East. become effective. South chiefly ports export tonnage. little, any, opposition establishment southern Practically controversy concerned district.' sustained, grounds, (unreported) (SD Ohio traffic, diminution, revenues. 'Similar here.'

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