Document: 334 U.S. 573 68 S.Ct. 1169 92 L.Ed. 1584 UNITED STATESv.NATIONAL CITY LINES, Inc., et al. No. 544. Argued April 28, 1948. Decided June 7, Rehearing Denied 21, Appeal From the District Court of United States for Southern California. Mr. Charles H. Weston, Washington, D.C., appellant. C. Frank Reavis, New York City, appellees. Justice RUTLEDGE delivered opinion Court. 1 In v. Scophony Corporation, 333 795, 855, we recently considered meaning and effect § 12 Clayton Act,1 providing venue service process in civil antitrust proceedings against private corporations. This case brings before us another phase section's like proceedings. The principal question, only one find it necessary to consider, is whether choice forums given plaintiff by subject qualification judicial application doctrine forum non conveniens. 2 suit was brought nine corporations2 alleged violation §§ Sherman Act. 26 Stat. 209, 15 U.S.C. 1, 2, U.S.C.A. 2. basic charge that appellees conspired acquire control local transportation companies numerous cities located widely different parts States,3 restrain monopolize interstate commerce motorbusses, petroleum supplies, tires tubes sold those companies, contrary Act's prohibitions.4 Injunctive other relief an equitable nature sought.5 3 filed various motions, including involved this appeal. It sought dismissal complaint on ground California not a convenient trial. motion supported showing inconvenience defendants trial district, but also Northern Illinois, Eastern Division (Chicago), would be most them. affidavits, executed officers, attorneys employees corporate defendants.6 Counteraffidavitswere opposition behalf Government.7 4 After oral argument, h e findings fact conclusions law together with written opinion, substantially accepting appellees' sustaining motion. 7 F.R.D. 456. Accordingly entered judgment dismissing complaint, without prejudice institution similar named 'in more appropriate forum.' decision review direct appeal pursuant statutes applicable such cases.8 5 disputed has jurisdiction sense power hear determine cause or within provisions 12.9 Nor can questioned any personally court's made accordance either 12, Act.10 question presented concerning whether, having personal defendants, court authorized decline exercise its upon finding, abuse discretion, scope non-statutory commonly, though too accurately, labeled 6 serve no useful purpose detail reasoning authorities which ruled cases as this, therefore further groundings proceeded holding inconvenient. For view prevailed during life thirty-four years, venues expressly qualified under alternatives conferred. None decisions relied suggested, much less decided, exists. first impression, seeking departure from long-established practice. Moreover, analogies drawn types been applied11 cannot survive face explicit terms patent intent Congress enacting it. gave attention history there related pertinent now issues then consideration.12 Reference Part I, at pages 802, 859, will avoid necessity repeating here extenso. But present applicability accentuated recalling reaffirmed ruling Eastman Kodak Co. Photo Material Co., 273 359, 47 400, 71 684, namely, Act had enlarged provision Act, note, give right bring districts where defendant 'resides found,' authorized, district wherein * transacts business.'13 8 case, emphasized, rejected argument addition 'or business' (333 859) than redundant reformulation 'is found'; instead added words broader technical found' acquired prior decisions.14 done, stated, because have rendered meaningless defeated plain remedial 12.273 page 373, 403, 684. That section, held, supplemented 'the Anti-Trust redress injuries resulting illegal restraints trade, relieving injured person resorting wrongs committed nonresident corporation, however distant, resides may 'found'—often insuperable obstacle—and enabling him institute frequently his own residence, corporation business, 'found." (Emphasis added.) 374, 9 view: 'Thus, substituting practical, business conceptions previous hairsplitting legal technicalities encrusted 'found'-'present'-'carrying-on-business' sequence, yielded effective Congress' purpose. Thereby relieved persons through violations laws 'often obstacle' distant done places their residence. A foreign longer could come perpetrate outlawed, retreating even headquarters defeat delay retribution due.' 808, 862. 10 These are altogether inconsistent idea plaintiff's given, asking securing suit, selected statutory limits inconvenient 11 No discretionary exercised twenty years enactment narrower range afforded 7. uniform practice established conclusive, true later until deviation case. When came problem making nation's policy provisions, body confronted plaintiffs selecting suits; nor concerned means suits might plaintif convenience. concern quite opposite. provide relief, both substantively procedurally, policy.15 Insofar convenience bringing conducting involved, make these or, said remove thrown way existing restrictions. 13 To broadened reasons about action, narrowed again vague power16 comprehended conveniens incongruous, say least. change did authorize newly specified districts, merely order them transferred back intended take place statute plaintiff.17 14 conclusion strongly legislative relating foregoing constructions. Section limited venue, noted, found.' As originally introduced House, two sections (then 5) 10)18 perpetuated provisions.19 During discussion floor, however, Representatives demanded plaintiffs. demand sections, went forward reference one, other, both. aim advocates tried inflicted forbidden injuries.20 At they were exact formulation language accomplish several formulas being propsed time time.21 convinced restricting adequate assure action arose, insisted result.22 16 committee sponsoring bill n objection purpose; indeed members approved it.23 opposed amendment, thought object fully achieved found.'24 Over difference forward, well over formulations proposed addition. Some achieve primary aim.25 Indeed some so broad inclusion jeopardize passage entire bill.26 17 result satisfy who substitute amendment offered floor 4. agent' after original version. 51 Cong.Rec. 9466. passed House Senate unchanged. Id. 9467. thus became form, class covered terms. Cf. note 18. 18 Since affected 4, remained unresolved. Suggestions once amending into conformity 9467, 9607. Although proposals put id. 9607, conforming adopted House. Ibid. 19 referred Committee Judiciary. reported out altered substitution agent,' leaving latter clause untouched.27 reports debated throw little light underlying committee's alteration failure alter uniform, except general statement 'concerns enforce corporations liberalizes extent subject.'28 finally Judiciary,29 conference form. version enacted.30 20 short outcome expanded ways, viz.: (1) adding agent'; (2) business.' Thus strict uniformity sections' achieved. whatever differences be, each designed aid giving wider venues, thereby secure effective, convenient, enforcement prohibitions. 21 Moreover discussions Congress, particularly disclose matter right, discretion. There was, fact, common agreement among opponents amendment.31 suggested courts since universally agreed conferred, amendments going far.32 22 indifferent possibilities change. Exactly opposite true. choice. They wide force far removed company incorporated, headquarters, carried business. adopting willing free rein haul hither yon caprice. Cong. Rec. 9466, neither allow hamper claiming immunity course conduct violated outlawed consequences. framing include plaintiffs' election, mind company's inconvenience, fixed claim advantages beyond seek conferred designedly Government suitors.33 23 room left discretion apply deprive section. result, concluded, utterly conferring Tivoli Realty Interstate Circuit, Cir., 167 F.2d 155; Ferguson Ford Motor D.C.S.D.N.Y., 77 F.Supp. 425. 24 considerations urged supporting power's existence become irrelevant. mandate regarding binding federal courts. Const.Art. III, Our supervise administration justice courts, cf. McNabb States, 318 332, 63 608, 87 819, does extend disregarding validly enacted permitting it, matters venue. 25 strong albeit interested persons, when presentation alone. On hand, advanced reasons, apart power, applying doctrine.34 need consider facts sufficiently outweighed justify dismissal.35 Two important Government, bear affect if concluded anti-trust inevitably lengthen litigation already overextended required final disposition, violate declared expediting type litigation.36 27 merit support reached statute. Antitrust suits, all expedition them, notoriously often perhaps unavoidably long out. complex seldom require three five conclude,37 possibly consent decrees entered. Often taken longer. inject overlengthened procedure what amount additional preliminary r ial add approximately year essential disposing cases, reaching merits.38 instances arise absence almost event. And doubted sum total injustice great follow, public, allowing inescapable incident power. found exist, likely injection issue create disadvantage concerned. 28 consideration reinforced another, difficulty charged nationwide nearly effect, scattered location incorporation, offices, carrying participating scheme. reinstate transfer another. court, doctrine, specify shall reinstituted tried. terminate pending proceeding, here, commencement forum,' consequences follow begin again. 29 Further, commenced again, precipitate same consequent second forum. Conceivably occur succession, depending number variety, proximity, degree concentration locations relative available variously situated defendants. Accordingly, unknown practical establish merry-go-round issue, used defer indefinitely merits. very possibility tactic greatly Indeed, type, uncertainty effort go toward defeating serious widespread offenses offenders.39 30 activities constituting core concentrated near Illinois claim, exist event highly uncertain difficult one.40 31 urge deserve mention. One criminal prosecution (together seven individuals, officers them), simultaneously growing transactions, shortly dismissal.41 ordered Rule 21(b) Federal Rules Criminal Procedure.42 founded showing, practically identical Consequently, stand, while transactions affecting district. 32 Great emphasis placed impelling reason Court's finding. But, above think 12. least doubtful case.43 event, validity us. We express questions. do goes nullify appellee's hardship arising transfer. comes down, peculiar circumstances, dubiously reviewable order, perforce should dismiss sustain dismissal. 33 controlling involving parties, overriding depriving anything perfunctory dismissal.44 34 Hardly override confer Courts so, privilege choosing Yet results, influential, undoubtedly cause. If material, possible applicable. 35 appellees,45 insofar arises avoidable incurred volut arily good entirely distinct suit. 36 Finally, recent extending application.46 Whatever extension, principle universal applicability, uniformly recognize. invariable, limiting stated. whenever vested causes invested complaining litigants made, effect. Baltimore & O.R. Kepner, 314 44, 62 6, 86 136 A.L.R. 1222; Miles Central R. 315 698, 827, 1129, 146 1104. usually crux problem. answered indecisive inquiries jurisdictional 'special' 'general' one. determined ends particular rather relevant materials, vest qualify selection. 37 factors clear thej udgment reversed. 38 Reversed. 39 JACKSON, concurring. 40 I agree arrive shorter route. 41 just occasion decide, divided Court, Gulf Oil Corporation Gilbert, 330 501, 67 839, 91 1055, Koster (American) Lumbermens Mutual Casualty 518, 828, 1067. held that, ordinary generally, complaints prevent imposition circumstances showed option statutes. pointed special statute, implied. distinctions between overly simple viewpoint dialectician. working tools everyday craftsmen point governs here. 42 unusual cases. Had stopped there, permissible devise limitations process. stop there. Not times check oppression compelling defend remote habitat. 5, (1890), 10, (1894), 25, (1914). 43 scheme statutes, see Attorney General lay he properly He ahead allowed others not. Before parties served i.e., 'inhabitant,' 'transacting business,' 'found' must appear summoned 44 provided defendant, subjected himself obtain protections afford. 45 entitled resisted contested doing shown action. Instead, desire submit use position whole This, think, done. 46 protect abuse, equivalent not, seem me preclude concur result. 48 FRANKFURTER, dissenting. 49 equity Law, indicted Law. interest justice' below obedient 21(b)1 Procedure, following section 687, formulated law. 327 823 seq With convincing particularity set forth transfer.2 granted us, justice, companion district.' 456, 465. 50 Is incongruous transactions?3 Of leave entertain vexatious oppressive choose pursues claim. limitation administer ought lightly jurisdiction. manner appropriately read illustrated our Commonwealth Massachusetts State Missouri, 308 60 39, 84 3, recognized 'considerations convenience, efficiency invoked concededly justiciable controversy. 19, 43, 3. acts duty imperative refusing commands 52 Defendants doubt attempt resort tactics motions unfairness Neither potentialities wholly hand requirements met. See, e.g., Railway Shopmen's Strike Case (United Employees' Department American Federation Labor) 283 F. 479. All tend partisans, confidence fair better rested exacting standards quality judiciary. judges calibre able thwart obstructive denied attempted zealous Government. 53 nothing comparable led conclude Employers' Liability seq., railroad privileged especially, concurring Cent. 705, 831, 54 am basis judgment. 55 BURTON joins dissent. 'Sec. proceeding whereof inhabitant, business; wherever 736, 22, 22. These, states incorporation follows: Principal National City Lines, Inc. Delaware Chicago " Pacific Oakland, Calif. Standard San Francisco Engineering Corp. Phillips Petroleum Bartlesville, Okla. Motors Detroit, Mich. Firestone Tire Rubber Ohio Akron, Mack Manufacturing Forty-four sixteen included. California, Florida, Maryland, Michigan, Nebraska, Texas Washington. larger transpora tion systems Baltimore, St. Louis, Salt Lake Los Angeles Oakland. largest concentrations smaller eleven cities; (excluding Angeles); Michigan four. operating defendant. appellee fall groups. largest, called supplier group, includes six last above. Except Federal, engaged producing distributing commodities purchased sale monopolized restrained. owned subsidiary Standard, managing investments Standard. listed collectively Lines. operations directed Chicago. subsidiaries. own, substantial interests companies. charges furnish capital Lines acquiring systems, understanding busses, products, sellers. prayer complete divestiture financial Lines; partial Lines' companies; voiding contracts injunction purchases suppliers competitive bidding plan included decree. attenuated summary creating conspiracy took chiefly Chicago; chief witnesses documentary evidence there; extended presence hardship; 'resides' office (cf. 2); trials cities, text infra 41, magnify hardship. See stresses transact 'found,' district; volume sales allegedly restrained greater Coast elsewhere; portions evidence, documentary, produced etc. 823, 1167, 29, 29; 938, 345, 345. conceded Motors, Firestone, apparently concluding infra. 5. Whenever act pending, summoned, reside not; subpoenas end marshal thereof.' 210, (i.e., 'this act') refers specifically actions concerned, jurisdiction, presently part tests prescribed presented, met, 1. I. hardly regarded procedural substantive abuses. Levy, Law An Imperfect Supplement Va.L.Rev. 411. 'Wisely, catalogue grant denial remedy. leaves resorts, experience tendency renounce one's many 'If combination weight requisite results forecast state, name. considered, pressed, litigant. weigh obstacles trial.' 508, 843, 1055. disadvantages suffered resided conducted forced wrongdoing process, transport incur Likewise hereinafter cited treat instituting trying hint contemplated phases separated places. notes began Senate, conference. Similarly, changed provides recovery treble damages suits. applies 'any corporation.' literally enough compe hended wording respect slightly substance identical, preexisting E.g., Representative Dickinson 'be reach every contingency, concerns sued commit wrong, complained committed, agents, employees, acting master setting aside law, easily obtainable *.' 9190. Later stated wanted 'give widest liberty damage arose.' 9417. Summers spoke effect: 'Mr. Chairman, believe connected legislation. philosophy legislation regard arises.' 9414, 9415, 9608. 'Why word words, 'doing violating language. dozen suggestions amendment.' 9414—9417, 9663, 9682. Scott. What gentleman's 'found'; import section? Dickinson. understand familiar cover my amendment. meets situation, prosecute successfully definite, runs read, constructions.' 9415. Cullop. May suggest arisen home itself, construe language, ambiguous uncertain. you residence migratory. You get traveling throughout country hold your territory. Carlin. Why habitat corporation? successful matter. best reason, think. gentleman Virginia (Mr. Carlin) disclosed why combating want resident Trenton, N.J., sue 9416. 9466 9607—9608, 9663—9664. Floyd 'to getting changed.' Floyd. broadest kind 'I drafted bill, debate narrow drawn.' Cullop's suggestion state removal 9662—9664. opposing argued, inter alia, friend legislation, sure Indiana (Representative Cullop) is, fighting legislation—the trusts combines country—by loading down questionable destroy end.' 9663. substituted language: 'Or Sen.Rep. 63d Cong., 2d Sess. 73. 14214. 14596, 15943, 16048—16052. stockholder deleted references 28. Sen.Doc. 583, 9. 584, 26. examples choose: ask strike committee, simply definite certain individual, arise. Stephens Texas. thoroughly 9414. Wisconsin Stafford) liberalizing individual damaged anywhere—anywhere catch offender, sitting by.' quoted Webb. 16274. 9607; 32. conceive desired, resides.' enlarges interpretation applied permits brought, absolute plaintiff, agent, defining character agent.' remarked 'language conform enable (the General) suits.' 23, supra. mere balance convenience' favor insufficient earliest Scottish English although test formulated. example, 'vexatious Court,' 'only annoy defendant.' Braucher, Inconvenient Forum, Harv.L.Rev. 908, 909—911. may, request General, precedence expedited, assigned hearing practicable day implemented authorizing appeals 29. Schine Chain Theatres, 110, 947; Griffith, 100, 941, instituted 1939 remanded begun 1915, decided 1927. unwarranted stage, consumed solely 1947. Motions dismiss, affidavits show August September. October December January 20, 1948; noted probable February 9, heard today resolve issue. intervention appeal, beend iscounted, largely joined stipulating 'as proper action' filing move new stipulation complexities repeated Chicago, select open irrelevant doctrine's established, group subsequent bound, likely, execute stipulation. points out, proceedings, multistate defined locus. situations, generally chosen diffusion declining conveniens, accept Thus, incorporated hence 'reside' Delaware. invariable fifty-four maintained election 155. takes place. Locus coming gist proscribed. indictment returned 1947; 14, 1947, defendants' grante. dismissed 15, provides: 'Offense Committed More Districts Divisions. division, appears information particulars offense division satisfied commission charged.' 687. text. questions reserved, prosecutions. Procedure March 1946. stretching utilizing history, rules twenty-two significance precise adoption 21(b), type. 682, 682. Semel 158 231, 232. do, sense, dismissal, convince demonstrate self-evident retransferred outlook pleasure. argues likelihood actions. distinctly footnote value quote brief: 'When believes sometimes seeks corrective after, with, return indictment, rarely ultimately erroneous, and, unlikely obtains decree file pleas nolo contendere. verdicts guilty returned, (Local (of International Brotherhood Teamsters, etc.,) 291 293, 298, 299 (54 396, 399, 78 804)), customarily dispose entry decree.' 1055; 1104; Williams Green Bay W.R. 326 549, 66 284, 90 311. 'The motive 'But impose unnecessary hardships entail unjustifiable expense procedure, especially rule discussion, avoid. Altogether spell vexatiousness oppressiveness Supreme warned eschew character.' 393, 402, 403. L. Hand, J., Aluminum America, 148 416, 429: 'In Hutcheson, 312 219, 61 463, 85 788, pari materia cross Anti-trust Acts, illuminating earlier court.'

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