Document: 357 U.S. 77 78 S.Ct. 1063 2 L.Ed.2d 1174 CITY OF CHICAGO, a Municipal Corporation, Petitioner,v.The ATCHISON, TOPEKA AND SANTA FE RAILWAY COMPANY; The Baltimore and Ohio Railway Company, et al. PARMELEE TRANSPORTATION CO., al., Appellants, v. Nos. 103, 104. Argued March 5, 6, 1958. Decided June 16, [Syllabus from pages 76-78 intentionally omitted] Mr. Joseph F. Grossman, Chicago, Ill., for the petitioner. Amos M. Mathews, respondents. Justice BLACK delivered opinion of Court. 1 Chicago is one Nation's great rail centers. Each day thousands railroad passengers travel through that City on continuous journeys State to another. Since lines all railroads which carry into out come an end in City's eight terminals, frequently arrive at station different where they are board their outgoing train must transfer with baggage order continue trip. Because serious problems scheduling passenger convenience involved this interchange, railroads, as group, have long provided another by systematic highly organized motor carrier operation. Generally receive coupon covering service, without special charge, part ticket. For many years had arrangement Parmelee Transportation Company under it carried between stations. Apparently finding its service no longer desirable, notified 1955 would discontinue using vehicles October 1, 1955. Subsequently engaged Railroad Transfer Service, corporation specially request purpose, exclusive agent five-year period commencing termination Parmelee's service. 3 At time gave notice effect detailed plan regulation licensing public hire. Among other things, operation any vehicle, including vehicle stations, was prohibited unless been licensed City. Any person who operated these license subject arrest punishment. 4 After announced intended use facilities Service instead those Parmelee, Council proceeded amend Code so certain important changes regard vehicles. A new section, 28—31.1, added. In substance, issue Commissioner Licenses first determined necessity required additional interterminal event, reserved final discretion determine how many, if any, licenses were be issued. making his determination authorized consider demand proposed economic feasibility, safety and, generally, facts he might think relevant.1 If § 28—31.1 validly applied company secure certificate plus approval before could lawfully railroads. On hand, permitted operating leave since exception necessary renewal existing license. licensed, course, section became effective. 5 As scheduled, began stations 1955.2 However, refused apply necessity, taking position either inapplicable or, applicable, invalid. rejected contention threatened fine Transfer's drivers unlicensed then filed suit United States District Court asking judgment declaring or complaint asserted city's requirement inconsistent provisions Interstate Commerce Act, 49 U.S.C.A. seq., well Clause Constitution insofar transferring interstate road agreement answer but moved summary judgment. intervene defendant. 6 district judge, pointing there genuine issues fact, granted motion dismissed complaint. But Appeals Seventh Circuit reversed. 240 F.2d 930. It agreed operation, held repugnant face laws States. We petition certiorari, 353 972, 1057, 1135, postponed assuming jurisdiction appeal until further consideration hearing merits, 971, 1134. Counsel asked discuss following jurisdictional questions: 7 '1. Whether Co. has standing seek review here writ certiorari. 8 '2. 'final' permit way 28 U.S.C. 1254(2) (28 1254(2)). Cf. Slaker O'Connor, 278 188, 189 (49 158, 159, 73 L.Ed. 258); South Carolina Electric & Gas Flemming, 351 901 (76 692, 100 1439).' 9 First. proper appeal. Under 1254(2), may cases state statute invalid Constitution, treaties 189, 258, construed substantially identical predecessor 1254(2)3 requiring case taken. followed comment, itself, per curiam 901, 76 1439. relying language legislative history predecessor, forcefully argue finality erroneous should overruled. find unnecessary however pass because we convinced below relevant standard. 10 By decision resolved disputed questions parties. From beginning only whether applicable consistent federal law. unconstitutional. There nothing more litigate; remained remand formally enter plaintiff. Compare Pope Atlantic Coast Line R. Co., 345 379, 381—383, 749, 750—751, 97 1094. 11 Second. enough, purposes standing, actual controversy us direct substantial personal interest outcome. Undoubtedly affected adversely contends valid city ordinance asserts right free unlawful competition. Transfer, suggests lawful. argues party complain about lawful competition, citing Alabama Power Ickes, 302 464, 58 300, 82 374, Tennessee Valley Authority, 306 118, 59 366, 83 543. do not controlling here. seems argument confuses merits litigate them. Bell Hood, 327 678, 66 773, 90 939. hardly depend eventually can operate necessity.4 12 Third. still preliminary point decided. courts passed validity authoritatively ruled terminal came within provisions. asks vacate directions hold efforts obtain adjudication exhausted. circumstances believe procedure warranted. 13 full point, both unanimous Transfer. That made move matter remitted courts. referring declared brief Appeals: 'A accurate description business hard find.' fair summarization. see ambiguity calls interpretation Toomer Witsell, 334 385, 68 1156, 92 1460. Remission involve delay expense, chance result reached below, applicability, appear slight. 14 Fourth. agree requires operate. terms 31.1 gives Licenses, ultimately virtually unlimited terminals. Although counsel denies will power exclude operations wholly primarily considerations (cf. Buck Kuykendall, 267 307, 45 324, 69 623), clear claims least some decide transport our 24 Stat. amended, preclude exercising veto over such when performed chosen agents. Section 1(4) Act reads: 15 'It shall duty every common chapter * establish reasonable routes carriers (and) provide make rules regulations respect *.' 3(4) provides: 16 'All shall, according respective powers, afford reasonable, proper, equal interchange traffic connecting lines, receiving, forwarding, delivering property 17 Complementing provisions, 15(3) specifically empowers Commission whenever desirable interest.5 18 understand sections authorize take steps persons impose affirmative obligations them respect. See Pennsylvania 323 612, 65 471, 89 499; Central Terminal Association St. Louis, 288 469, 473, note 53 444, 446, 899. obligated furnish terminals instance, apparent often statutory requirements observed. basis authority require Cartage, Rail Steamship Lines New York, 269 I.C.C. 199. Here furnished heavy flow numerous than century. transportation now practical means moving terminal. authorized, actually required, facility lines. 19 Moreover, 302(c) provides contractor choosing, regarded same comprehensive scheme applies transportation.6 While yet adopted interstation obviously section. meantime Commission's generally govern And even action number itself self-executing application. 20 various set forth above manifest congressional policy smooth, efficient regulation. view local authorities retained agents engage passengers. authorizes themselves select fit purpose authorities. 21 National rather control Congress. extraordinary Congress extend freedom restraints movement Serious impediments uninterrupted deny own selected example, undoubtedly better understanding handle expeditiously each officials. close schedules, volume irregular ebb flow, need cooperative dependable operator suitable equipment willing work harmony unsuitable officials prevent providing break-down result. minimum forced deal once again operator. power, far concerned, all. 22 fully aware streets involved, cannot commerce streets. Of course retains considerable regulate operated. denied, obey signals, speed limits general regulations. Similarly registration exact fees Fry Roofing Wood, 344 157, 204, 168; Capitol Greyhound Brice, 339 542, 70 806, 94 1053. All here, construe holding, integral Act. Castle Hayes Freight Lines, 348 61, 75 191, 99 68. 23 Fifth. completely submit administrative procedures incident thereto bringing action. Smith Cahoon, 283 553, 562, 51 582, 585, 1262; Public Utilities California States, 355 534, 539—540, 450, 470. Staub Baxley, 313, 319, 277, 280, 302. Affirmed. 25 HARLAN, whom FRANKFURTER BURTON join, dissenting. 26 my acted prematurely striking down relates I accept premise choose please perform services, Nevertheless, 'teminal' opportunity act Not known ordinance, operations, trespasses upon paramount concerns. Proper legitimate interests enforcing enactment entitles opportunity. 546 (dissenting opinion), 454, 27 No provision purports pre-empt Chicago's This therefore particular legislation conflict logically practically stand together, cf. Cloverleaf Butter Patterson, 315 148, 786, 62 491, 86 754; First Iowa Hydro-Electric Cooperative Federal Comm., 328 152, 906, 1143, nor overall similarity displace entirety fairly deduced. Hines Davidowitz, 312 52, 61 399, 85 581; Commonwealth Nelson, 350 497, 477, 640. does Commission, seemingly get one, Status 95, appears regulatory policies respecting performing services. Inc., sole question thus struck down, 'inconsistent' foster transportation. determining annulled borne mind foreclosed regulating matters concern merely incidental, burdensome, commerce. Cooley Board Wardens, How. 299, 996, recognized incidents is, matter, beyond effective reach Congress, undesirable absence needed states municipalities act. Thompson, 313 109, 930, 1219; see, also, H. P. Welch Hampshire, 79, 438, 500; Eichholz Comm. Missouri, 268, 641. So much indeed today says 'considerable authority' vehicles, meet registered And, Court's examples exhaust scope insure safe Nor perceive why exercise permitting guise promoting transportation, limit 'economic' grounds contract 623. 29 know ordinance. grant license, present controversy. enough denial runs afoul policy. true broad authority, justify assumption exercised permissible bounds, especially acknowledged properly withhold 'solely primarily' adequate affect competitive situation. Only refraining passing it, long-standing tradition interfere administration enactments. See, e.g., Federaltion Labor, Local Union No. etc. McAdory, 325 1384, 1725; Utah Wycoff 237, 236, 291. Spector Motor McLaughlin, 101, 101. 30 fact expense not, judgment, by-passing municipal accepted risk failed instance. said expose hazards interval, possesses ample interference activities pending 31 Some ago, situation closely analogous us, approved three-judge declining entertain attacking constitutionality Missouri highways obtaining State, ground complainant permit. Columbia Terminals Lambert, D.C., F.Supp. 28; 309 620, 60 84 983, 984. guiding principle appropriate disposition premature challenges ordinances. posture litigation, follow somewhat Our mandate enable stay retain case, prompt initiate proceedings outcome proceedings. full, read: '28—31.1. Convenience Necessity. issued except annual replacement unless, after manner specified hearings 28—22.1, commissioner report council recommend 'In due given following: service; increase vehicular pedestrian area operation; '3. ability licensee rendering fares charges revenue sufficient pay costs equitable wages compensation licensee's employees return investment devoted '4. deem relevant. 'If council, fix maximum exceed recommended Commissioner.' Code, c. 28, 28—31.1. accordance limited exclusively transporting carries 240(b) Judiciary 1925, 43 104 appeal, certiorari denied. 'to execute enforce' pertinent part, 'Notwithstanding 303 title, (Chapter carriers) apply— '(1) incidental (regulation Chapter service) performance areas transfer, collection, delivery services; considered regulated title *. '(2) (whether contractual arrangement) of, as, services incidental.' 302(c), 302(c).

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