Document: 353 U.S. 436 77 S.Ct. 999 1 L.Ed.2d 963 PAN-ATLANTIC STEAMSHIP CORP., Appellant,v.ATLANTIC COAST LINE RAILROAD CO., et al. INTERSTATE COMMERCE COMMISSION, Appellant, v. ATLANTIC CO. Nos. 408, 424. Argued April 23, 1957. Decided June 3, Mr. David G. Macdonald, Washington, D.C., for appellant in no. 408. James A. Murray, No. Charles H. Weston, appellee United States both cases. W. Q. Keenan, New Haven, Conn., railroad appellees Justice DOUGLAS delivered the opinion of Court. Section 311(a) Interstate Commerce Act, 49 U.S.C. § 911(a), U.S.C.A. gives Commission power to grant 'temporary authority' a common carrier by water or contract institute service which 'there is an immediate and urgent need.' And section provides that temporary authority 'shall be valid such time as shall specify, but not more than aggregate one hundred eighty days.' 2 9(b) Administrative Procedure 5 1008(b), 'In any case licensee has, accordance with agency rules, made timely sufficient application renewal new license, no license reference activity continuing nature expire until have been finally determined agency.' 3 The question whether this provision Act authorizes extend granted under 180 days. 4 On May 5, 1955, Pan-Atlantic filed permanent certificate public convenience necessity water. Commission, upon finding need service, issued on 18, operate between various ports period did conclude proceedings before expiration 180-day period. Accordingly, prior Pan-Atlantic, it authorized continue perform further order beyond had determined. appellees, who are seven railroads, opposed extension then instituted suit District Court vacate Commission's continuance held 144 F.Supp. 53, feeling bound decision court Stone's Express, Inc., States, 122 955,1 though two three judges indicated were stare decisis control, they would sustain Commission. at page 54. here appeal. 28 1253, 1253. We noted probable jurisdiction. 352 914, 213, 121. 6 its assertion 7 'License' used includes 'the whole part permit, certificate, approval, registration, charter, membership, statutory exemption other form permission.' 2(e). A seem 'permit' 'certificate' Act. 'Licensee,' sentence we quoted. seem, therefore, include holds permit 311(a). It argued 'license' only those permanent. But see justification narrow reading. days covers 'activity nature.' 8 direction agencies. By terms there must outstanding; cover activities nature; existing operation; extended 9 Each these conditions satisfied present case; reason why provisions later may invoked protect person from damage he suffer being compelled discontinue business nature, start anew after administrative hearing concluded. That has consistent construction law;2 think correct one. contains rule supplements Initially, can do issue good once satisfied, interests economy efficiency authorized. 10 advises us combined required judicial review almost inevitably exceeds Courts permits. See Carolina Freight Carriers Corp., 315 475, 489—490, 62 722, 729—730, 86 L.Ed. 971. Unless vested 9(b), operation, matter how essential necessary, discontinued end reading law mutilate system Congress created Acts. Where remedy evil clear, remedial should given full effect. Wong Yang Sung McGrath, 339 33, 41, 70 445, 450, 94 616. harmonious requires latter read supplementing former construed applying well licenses. 11 Reversed. 12 BURTON, whom HARLAN WHITTAKER join, dissenting. 13 major purpose prevent evils deemed result ease entry overcompetition transportation industry. American Trucking Ass'ns, 344 298, 312—313, 73 307, 315—316, 97 337. prohibits operations except notice affected parties, evidentiary hearing, findings proposed determination. §§ 306—308, 309, 306 308, 309. Sections 210a(a)1 (applying motor carriers), 311(a)2 carriers) exceptions fundamental policy. They 'in discretion without hearings proceedings,' 'an need' within territory having 'capable meeting Any expressly subject unconditional maximum limit 14 'Such days, create presumption corresponding will thereafter.' 911(a). also, 310a(a). 15 was concerned situations might needed emergency basis meet specific problems. However, plainly aware over-all jeopardized unless authorize severely limited. intent unmistakable. In recommending enactment 210a(a), itself said: 16 'Cases arise, brought our attention, where interstate suddenly develops. bringing oil wells field flood calamitous visitation examples, others. 17 'We believe emergencies operating authority, proceedings. recognized care necessary legitimate carriers * *. (T)he strictly limited amendment.' (Emphasis supplied.) S. Doc. 154, 75th Cong., 3d Sess. 2—3. 18 realized many qualifying 201a(a) required. 'bringing field,' situations, require granting following 210a(a) operated incentive reach final respect 19 Thus, policies underlie 311(a): (1) providing discretionary handle authority; (2) prodding finish, determination service. Court, now holding 60 Stat. 242—243, 1008, eliminates second policy makes limitation meaningless. I intended accomplish result. 20 enacted 1946, designed promote general fairness regularity action. partakes requiring agencies act applications reasonable dispatch 'with due regard rights privileges all interested parties adversely persons.' also protects persons received licenses their summary revocation, hardships occasioned licensing able pass renewal.3 permits restricted number 21 third merely if 'a nature' action application. word 'renewal' obviously relates already inapplicable here. legislative history indicates words apply, 'new license,' refer same type class held.4 22 case, Pan-Atlantic's situation while pending, does come since sought old license. Court's contrary conclusion reached different senses—first, referring and, second, improbability interpretation emphasized considerations stemming 23 behind protecting regularly serious them finds renewal. As initial obtained opportunity heard, operates valuable avoids unnecessary injury resulting delay. So applied, prejudice others chance heard application, issuance instant done ex parte alleged need. Affected contest it. Moreover, knew accepted basis. To convert into doing so, acts deprives licensed competitors issues involved. 24 Temporary authorities competitive effects. Yet, permitted outstanding prolonged periods, produce changes comparable produced authority. high proportion instances 'temporary' effect years. 25 tested reasons policy, applicant obtains proceeding opposition. Grants constitute exception requirements. interpreted wiping out when conflicts objective National Transportation Policy. 26 There incongruity apply 'no This language mandatory. Although 210a 311 place entirely discretion, every involving formally completes even though, particular convinced longer necessary. 27 Even extending during pendency proceedings, applied Those sections special statutes dealing precise subject.5 response claim considerable weight, adopted largely expediency rather reasoned interpretation.6 Cf. Skidmore Swift & Co., 323 134, 140, 65 161, 164, 89 124. event, duty determine whether, law, override express limitations placed earlier Act.7 29 For reasons, affirm judgment became moot jurisdiction 350 906, 76 190, 100 795. Fed.Reg. 4150 rules governing extensions. 52 1238, amended, 310a(a), 1938 amendment Motor Carrier 1935. 54 943, 1940 Water year. exact counterpart 210a. entirety, reads follows: 'Sec. 9. '(b) Licenses.—In agency, dispatch, set complete conducted pursuant make decision. Except cases willfulness health, interest, safety otherwise, withdrawal, suspension, annulment lawful unless, institution therefor, facts conduct warrant called attention writing accorded demonstrate achieve compliance taken similar 'contained procedure State Ohio (Act 1943, sec. 1, amending secs. 154—167 (154 67) General Code; Amended substitute Senate bill 36).' Legislative History, S.Doc. 248, 79th 2d 35. statute class, *.' 120 Laws 1943—1944, p. 361, Gen.Code, 154—67. 955. 'The license' addition because some federal term. Licenses operation broadcasting stations, cannot 'for term years,' example. 307(d) Communications 1934, 48 1084, 47 307(d), 307(d). Repeals implication favored. Borden 308 188, 198—200, CO 182, 188—189, 84 181; Jackson, 302 628, 631, 58 390, 392, 82 488. An controls over statute. Washington Miller, 235 422, 428, 35 119, 122, 59 295; Rodgers 185 83, 87—88, 582, 583, 46 816. Finally, 244, 1011, 'Nothing repeal additional requirements imposed otherwise law.' announcement published September 1947, admitted question. 'There divergence legal Some lawyers Act; continuances doubt either provision, extends extend, CCH Fed.Carriers Reporter 23,040. addition, requested enact amendments meant what says does. I.C.C., 61st Ann.Rep. (1947), 148; 69th (1955), 132. Nor solution found fact about 19% authorizations If exists capable providing, necessity. not, revision.

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