Document: 337 U.S. 426 69 S.Ct. 1410 93 L.Ed. 1451 UNITED STATESv.INTERSTATE COMMERCE COMMISSION et al. No. 330. Argued March 2, 1949. Decided June 20, Appeal from the United States District Court for of columbia. Messrs. Stanley M. Silverberg and David O. Mathews, Washington, D.C., appellant. [Argument Counsel page 427 intentionally omitted] Mr. Daniel W. Knowlton, appellee Interstate Commerce Commission. Windsor F. Cousins, Philadelphia, Pa., appellees railroads, interveners. Justice BLACK delivered opinion Court. 1 It is contended here that as a shipper barred challenging in federal courts an Commission order which denies Government recovery damages exaction allegedly unlawful railroad rate. Other contentions if sustained would deny all power to entertain action by any denying shipper. 2 During war, existing tariffs many railroads embodied wharfage charges compensate moving goods cars piers cars. When took over certain at Norfolk, Virginia, it began perform these services itself requested make allowance expenses incurred performing services. The refused allowance. Upon this refusal themselves. 3 filed with complaint against charging pay unperformed was unjust, unreasonable, discriminatory, excessive, violation sections Act.1 Complaint asked find unlawful. Further relief asked, under Act,2 be awarded (reparations) on account alleged exactions. found were not unjustly or otherwise Act. Accordingly, denied reparations ordered dismissed. v. Aberdeen & Rockfish R. Co., 269 I.C.C. 141 (1947). 4 brought set aside order. charged Commission's conclusions supported its findings, findings substantial evidence, based misapplication law 'otherwise arbitrary, capricious without support contrary evidence.' made defendant. also defendant because statutory requirement 'shall * States.' 28 U.S.C. § 46. Railroads collected intervened defendants authority 45a. Attorney General appeared both plaintiff Without reaching merits case, composed three judges dismissed cause theory could maintain suit itself. court indicated belief three-judge jurisdiction suit. 78 F.Supp. 580. case direct appeal 47a, amended 1253, U.S.C.A. 1253. 5 In intervenor Court's dismissal reasons given court. Alternative are urged. We hold error should have been considered merits. 6 First. There much argument citation cases establish long-recognized general principle no person may sue himself. Properly understood sound, only adjudicate justiciable controversies. They do engage academic pastime rendering judgments favor persons Thus John Smith might present controversy determine. But one named another Smith. This illustrates must look behind names symbolize parties determine whether presented. 7 While States, al., involves controversies type traditionally justiciable. basis question illegally exacted sums money States. Unless statute, less entitled than other invoke administrative judicial protection. To collect illegal exactions instituted proceedings before pursuit same objective challenged legality action. therefore step settle who legally money, railroads. valid defeat Government's claim money. issued arbitrarily evidence. charge alone enough controversy. Chicago Junction Case, 264 258, 262—266, 44 317, 318-320, 68 667. Consequently, established cannot create himself has application here. 8 Second. provisions Act making actions orders, show congressional purpose bar such orders. Legislative history cited contention. If contention accepted, Congress deprived powers self protection accorded shippers. agree intended impossible press just vindicated challenge See San Jacinto Tin 125 273, 279, 850, 853, 31 747. 9 their did intend claims shipper, emphasize anomaly having appear sides However anomalous, situation results statutes defining General's duties. requires duty 'to when shall sue, decide what responsible suits appropriate cases.' 854. California, 332 19, 26-29, 67 1658, 1662-1663, 91 1889. Nothing indicates amend prior had imposed primary responsibility seek redress Government. 10 Although formal appearance does surface anomaly, his representation way prevent full defense contains adequate orders when, here, they real interest. For, defends not, r ilroads authorized interpose defenses can interposed availed themselves authorization. vigorously defended allowances validity every stage litigation. 11 Third. 41(28)3 provides 'The district original Of enjoin, aside, annul, suspend whole part Commission.' legal consequences upheld will finally relieve obligations charges; thus falls squarely within subject review 41(28). Rochester Telephone Corp. 307 125, 131-132, 142-143, 59 754, 757, 762-763, 83 1147; El Dorado Oil Works 328 12, 18-19, 66 843, 846, 90 1053. 12 contend, however, Act, 49 9, bars reparation initiated Section part: 13 'Any claiming damaged common carrier either commission bring competent jurisdiction; but right pursue said remedies, each elect two methods procedure herein provided he adopt.' 14 this. A alternative. He courts. election. elects 'bring suit' unsuccessful, retains customary appellate review. 'make to' Commission, did, denied, language seeking Under final reviewable even though entered arbitrarily, supporting defiance law. 15 Such sweeping finality out harmony legislative pattern relationships.4 See, e.g., Shields Utah-Idaho Cent. 305 177, 181—185, 160, 162 164, 111; Stark Wickard, 321 288, 307—310, 64 559, 569—571, 88 733. And consistently held upon exceeded lawful powers. Louisville N.R. 227 88, 91—93, 33 185, 186—187, 57 431; 266, 320, suggest abandonment consistent holdings. thereafter precluded initiating proceeding other. assumed after elected initiate damages, later damages. forfeiture thing; 41(28) obtain another. 9's controls forum begun tried judgment order; purport give complete merely proceed rather So we nothing reviewing allegations standards due. 16 Furthermore, section's careful provision improper awards argues interpretation section shippers whatever. suggested recover decided him. award favorable binding railroad. 'only establishes rebuttable presumption. cuts off defense, interposes obstacle contestation issues, takes fact jury. Nor wise work denial due process law.' Meeker Lehigh Valley 236 412, 430, 35 328, 335, 644, Ann.Cas.1916B, 691. see Pennsylvania Co. Weber, 257 85, 90—91, 42 18, 141. hardly seems possible intent guarantee adverse while all. 17 What dispose required holding Standard 283 235, 51 429, 75 999, followed it. reparations. Judicial four grounds: (1) 'negative' form, beyond appraisal 'negative order' doctrine. doctrine wholly abandoned 1147. (2) decision evidence meet test. (3) third ground test damage (4) tribunal 9. 18 usually protect arbitrary And, shown, there first satisfied product exercise negative philosophy, then peak, clearly class except already immune rooted now rejected doctrine.5 19 Another reason construction Standard's adjudicated since involved reasonableness rates called jurisdiction. importance factor emphasized applying Baltimore O.R. Brady, 288 448, 458—459, 53 441, 443, 77 888. First pointing 'requiring powers,' said: 20 'It remembered that, electing call determination waived claim. carriers Undoubtedly end trial jury saved heard asserted them. election claimant reasonably deemed him.' 21 Terminal Warehouse 297 500, 507—508, 56 546, 548—549, 80 827. 22 Thus, crucial Brady those commenced Texas P.R. Abilene Cotton 204 426, 27 350, 553, Ann.Cas. 1075, file where necessarily 'reasonableness' calling jurisdiction.6 involve 'reasonableness.' For railroads' published unless 'unreasonable.' Consequently 'right election' between 'deemed *.' supra, 458, 888.7 23 Ashland Coal Ice 325 840, 65 1573, 89 1966, relied doubtful sought affirming per curiam pages Opinion urged fair inference although grounds there. One 'nothing acted conclusions, transcended constitutional powers.' sustaining proper accordance 61 708, 713. 24 accept nor rested requiring urge. Our acceptance mean submitted reviewed court, Skinner Eddy 249 557, 562 563, 39 375, 377, 63 772, plus get 548 549, On discarded doctrine, unsupportable totally illogical limitation command review.8 269—270, 321, 667; Southern Tift, 206 428, 440, 709, 712, 1124, 846. Accordingly impair 25 Fourth. stated dismissing shipper's 'order' remaining entertaining judge appealed directly 26 Urgent Deficiencies derived hear 'order,' authorizes rendered Court.9 require derive 1910 enactment creating Court, providing judgments.10 That modify appeals Supreme cr ating expedition types national widespread interest, such, example, rate saw necessity accelerated nullifying effect prolonged litigation.11 necessary affecting public generally kinds involving 'local isolated questions arise ordinary courts.'12 Act's excluded enforce 'any payment money.'13 Provisions 1913 abolished transferred judges. considering bear mind expeditiously importance.14 passing money.15 relating likely sufficient justify use procedure. Griffin, 303 226, 233, 234—237, 58 601, 604, 605—607, 82 764. cf. 18—19, 1053; Jones, 336 641, 647, 787, 791. enforcement one-judge courts, 29 root concerns §§ 8, Had civil 16(2), 16(2). respects like *'—that is, judge. goes Appeals. available equally adjudication awarding reparation, reparations, basically parties, disputes, statutes. think instances tribunal. 30 frequently pointed emportance limiting expressly confines.16 confident interpret expediting basic purpose. Fifth. remains disposition case. Three This, cause. Stainback Mo Hock Ke Lok Po, 368, 381, 606, 613. bill true, stand. 264—266, 319—320, Since pass complaint, remanded 32 Reversed remanded. FRANKFURTER, whom JACKSON BURTON join, dissenting. 34 Four times recognize carriers; resisted review; Twice decisions argument: expounded, 804, 1424, few weeks before. want jurisdiction, attempts summarily affirmed argument, so definitely settled matter. Allison 296 175, 387, 862; years ago. own, suddenly shifted position maintained nearly twenty urges Indeed, very time arguing Columbia successfully precisely private Eastern Michigan. Great Lakes Steel 81 450. controlling series disregard.1 vouchsafed explanation contemporarneously pro eedings resulting reviewable, yet seeks instance. lies resisting shippers, No doubt enlightenment sometimes comes through self-interest. long matured cases, ought shift rightly protests yield new reverse couse decision. mutilate scheme disregarding distribution fit 36 suppose uniform thorough consideration scheme, constitute body overruled, apart legislation confirmed reenactment change. Transportation 19402 reenacted relevant ruled unsuccessfully bound go adhered precise issue 'When circumstances, (apart whatever requirements Constitution situations) depend particular Congressional authorized.' National Labor Relations Board Cheney California Lumber 327 385, 388, 554, 739. notion Cary Curtis, How. 236, 576, unfolding during hundred exceptional 'the sanction afforded proceedings' implied guaranty Ng Fung Ho White, 259 276, 284—285, 492, 495, 938. Therefore, true 151 seq., 'Congress remedy provide, sought, extent afforded, means effective.' Chief Hughes, speaking Amalgamated Utility Workers Consolidated Edison 309 261, 264, 60 561, 84 738. 37 reticulated rights created judiciary keep out. More particularly, detail aspects come Commission; alternative some instances; specifically resort chosen devised respected, open 38 summary precede det iled analysis far disposition. At arose practice Atlantic ports absorb cost handling furnished them destined shipment overseas. applied so-called wharves, excluding, wharves operated owned Government, leased commercial peacetime operations terminal facilities Up 15, 1942, Transport Trading Corporation, agent War conditions cancel leases Corporation and, operation movement military freight, almost entirely outbound. theretofore absorbed, declined request Army Army, controlled piers. 40 Claiming grant own piers, Act.3 Act.4 unjust discriminated performed expense, continuance violations 1(5)(a), 1(6), 15(13) Division Commissioner 263 303. reversed dismissed, Commissioners 683. reargument five dissenting.5 report, reverted only. 147. 41 Invoking 1913, complaint. October 22, Stat. 219—221, 1336, 2101, 2284, 2321—2325, (1948 ed.), 2321—2325. duly constituted sitting, affirmed, insofar ascertain review, rigorously borne conferred Congress. assume conferred, presumably start answer problem solved. oversight where, fact, explicitly withheld immaterial closely related access 43 dealing episodic bit applies. oldest regulatory which, successive amendments enlargements, comprehensive, self-contained regime administration adjudication. dislocated exigencies situation. heretofore exclusively invoked sole comprehensive brief rejects compelling considerations rejection demand further structure details jurisdictional essential lay bare equity 45 liability caused absence specific enforceable 'arising regulating commerce.' 1337 1337. stop mere declaration liability. defined course procedure; particularized remedies pursued. 'In specification normally excludes another.' Switchmen's Union North America Mediation Board, 320 297, 301, 95, 97, 61. more tariff discriminatory rate, procedures forth These provisions: hereinafter for, 379, 382, amended, With qualifications shortly noted, follows hand, prefers course—the route—to files 46 As adjustment, defines procedure;6 role relation 167 17(9).8 fixes filing brought, stating award. 1940, 219 221, conferring vested incorporated 17(9). previous procedural became Title Code. 47 By enforcement, carefully apportioned order, enjoined, enforced enforce, 'but otherwise.' 54 916, 17(9), clear 16, available, 17. fall 17, Orders furnishes details; method available. previously unreviewable. 50 Cong.Rec. 4536, 4542. Cf. 241, 431, 999; 647—648, constituting determines circumstances had. field law, fairly technical, gradually ascertained context kind characteristics reviewable. 48 phrase 17(9) 28, 1940 ed., 1336 2324 embody formerly turn taken 539. 2321 Revised Code 'for money' according 'there judicially Act.' Los Angeles S.L.R. 273 299, 309, 413, 414, 71 651. valuation order—neither virtue result reached partly equity, found, consideration, o der' authorization applicable So, also, refusing increase mail compensation 764, Northern 277 172, 466, 72 838. Griffin action, Act—and this, reaffirmed day, quite obsolete Finally—and decisive—on occasions proceeded I.C.C., F.2d 847, 1424; 862, curiam, 387; 1966. precludes extraordinary Act—direct judges, precedence appeal—were into play strictly limited situations. summarized covering 'of decisions' involved, actual concern An underlying wider can, course, permits future why provisions. incorporating Deficiencies' mode concerned different Reparation dealt intended, for. equity. 1887, 384—385. suggestion carrier's guaranteed Seventh Amendment, 5149—50, promptly successful 855, 859—860, occasion giving past violations, rate-making authority. Cincinnati, N.O. T. Pac. 479, 896, 243. Hepburn 1906. 584, 586—587. enacted Then, time, jurisdicti n annual, Commission,' 'jurisdiction suits' (was thereby) circuit located. 592; H.R. Rep. 591, 59th Cong., 1st Sess. 4—5(1906); 4093, 58th 3d 5(1905); 52 1910, identical newly provided: 'Nothing contained construed enlarging possessed inserted 'that creation greater similar matters.' 923, 61st 2d 7(1910); S. 355, 4, Pt. 4—5(1910); Doc. Vov. 54, 2(1910). old centralized enlargement revested meantime: '(the jurisdiction) (was) several 219. Indisputably putting side words 17(9): device claims; treated throughout affords 16. section, force made. Rejection outside express terms fairness loses, wins. Leaving temporarily, written forecloses whose raises insuperable difficulties once leave text large limit whereas 633, 16(3)(f), 16(3)(f). obstructions imply disallowing seen allow granting legislate finding? receives sues thereon, 16(2) prima facie 491, Are rule judicially, done so, fails Commission? May introduce court? carrier, 'cuts obstacles 1916B , unsuccessful save up until gets advantages hearing destroyed. scope jurisdiction? Would liability, amount recovered, justification law? none Yet, suppose, guides particularities authorizing held: 'Section permit award, him relief, remediless.' Ohio 55 Money scheme. Mitchell Coke 230 247, 921, 1472. reduced, higher past. strange failed persuade Especially whereby able explicit reasonable Even alternate securing claim, rational again try luck gave choice forum: cou d ask 'not remedies'; 'must asks him, revision constitutionally free choice. never suggested, sixty active litigation problem, framework it, naturally so. Due regard reasons: owe 'under suspend, obvious 'otherwise' permitted exists independently prohibits attempt independent provide Because provisions, differs Utah Idaho 111. confronted aid inapposite ground. determining placed hazards criminal sanctions. Equity ancient functions staying multiplicity prosecutions avoid irreparable harm. 183, 163, 306, 99, Here remotest matter dollars cents—not prosecution—and insistence modes recovering total traditional equitable relief. 314—315, 416, determined nature special Instead finds distric petition (1940 ed.). carries 41—47, c. 157 1948 reject latter derivable ed.).10 Moreover, party chooses intervene. 2322, 2323 2323. consent authorize requisite 2321—2325 952, 1530, reversed. thereto. escape conclusion somehow acknowledged sovereign immunity, moreover, avoided directing unconstitutionally, unconstitutional statute. determination, do, facts. difficulty immunity forcibly demonstrates 62 leaves room doubt. (though argued went shippers) arithmetical overcharge, illusory. argued, unfair, prejudicial 1075 operation. opportunity Sufficient respect runs, reading 'initiating' argue rewrite written. 'initiating'; pursue.' concedes gone instance distinction transportation judgment? acting purely judicially—merely facts—but realm expertness, legal, Adjudication likewise disprove discovery sham. often carrier; serve Part I rail-carriers, base illegality His secure reserving ways. begin obtained Commission.11 preoccupation sense determination. Cases—decided case—have recognized number them.12 267, 924, 1472; Morrisdale 304, 938, 941, 1494, Hoboken 123, 133, 947, 953, 1123, 168 A.L.R. 497; Thompson Texas, Mexican 134, 151, 937, 1132, Bell Potato Chip Truck Line, M.C.C. 337, 343. desires avail regarding practice, manifested complaints asking ad damnum. period July, 1947, February, 1949, II, January 1, 1948, requesting practice.13 507—8, But, foreclosed pursuing expectations failed. double grant. 'had hands suit, statute both.' 508, 549. reenforced cases. distinct court's 'a order'; displaced left intact decision, main basis' 'was (that) reparations' 140, n. 23, 762. 'statutory scheme' case: 'Having appellant was, (§ 9), procedure.' Cardozo Company case; pursued Company. doing difference earlier plaintiff, take form direction prayer body, etc., instead plenary end, indirection.' 999. view phase decisive us now—'the reparations'—the impliedly overruled today overrules case.14 dislocations decisions? policy, revealed injustice flowing administration, disclosure materials current well vigorous protest agency week ago greatly interpretation. arguendo addressed question. 836. appeal, confine read written, tribunals closed 70 late date applies need issues completely dispelled 1424. practices unreasonable unduly prejudicial—the exact claimed going month before, preliminary unambiguously reliance Id., 664, 307, 474, indubitably fell 'primary-jurisdiction' distinguishable distinctions advanced insisted restricted situations 'primary jurisdiction' inoperative cases—that unqualified precluding Commission—was compelled Gover ment incontestable oral needless granted motion affirm. interest changed, 6(8), 15(13), (6), 15(13). exactions, returned ownership abandoned. substance 1946 appears 208, 219—220. Administrative Procedure 237, 243, 1001(d), 1009, provides: 'Sec. 2(d). Order Adjudication.—'Order' (whether affirmative, negative, injunctive, declaratory form) including licensing. 'Adjudication' formulation order.' 10. Except preclude committed discretion— '(a) Right Review.—Any suffering wrong adversely affected aggrieved meaning thereof.' 289 607, 609, 1273, repudiation speaks finality. Its negative—negative substance—are other.' Authorities statement referred approval 139, 761, 1147, Armour Alton 312 195, 498, 85 L. d. 771; 562, 772. invoked. cautiously say initial showing hardship refuse Both run counter Particular await 266—267, objection, assumpsit, emerge American Tank Car 308 422, 432, 325, 331, 361. adopted Procter Gamble 225 282, 1091, 1912. rought unreasonable. annul dismissal, enjoin collection charges, repay wrongfully ruling sharp criticism Corrective proposed, exhaustive committee hearings held, debate floor spite strenuous efforts repudiate act. debates subject, critics contradiction afford Not quarter century consideration. nevertheless 1938, effectively host decisions. footnote Butler's concurring 146, 148, 765, today's barring stand line any. H.R.Rep.No.1012, 62d 1—4 (1912); Hearings Committee Appropriations 7898, 63d 140—148 (1913); subcommittee 305—343 Foreign 25596 25572, 1—298 4532 4537, 4542—4545 (1913). 219, 220; 2325 2325. (1946 President's Message Congress, 7567 7568 (1910). Sen.Rep.No.355, 1—2 1091; 1075. 293—299, 300 significant code money.' 2321, 2321. 234 764; Ayrshire Collieries 331 132, 136—137, 1168, 1170, 1391; 378, 612; Phillips 246, 250, 480, 483, 800. Compare Brief pp. 7—22, 450, 14—39, 749, Term, conflict. Motion Defer Consideration Statement Jurisdiction, 1530. 899, seq. 8. Stat 383, 13, 13. export public, not. concessions Government; charged, together provided, still below upper limits reasonableness; absorbed competitive conditions. 683, 384, Report legislation; added appropriation bill. 4527—8. Fitzgerald, sponsor amendment, abolish party.' 4532, enlarge exist, amendment defeated debate. 4543 44. simply abolishes vests exercises enact substantive decrease commission, decrase designated created.' 4536. 'district Commission," confer 228, 602. quoted carried day 41(28), (1948). Instead, agreed applicable. significantly 41(6), 1339 arising postal laws, source comparable 41(8), warp rely conceivably gives embarrassing face interpreted least mutilating Act—that Act—rather edition. April being abeyance, thirteen complainant January, II abeyance practice. damages; 342—343. overcharge carrier. 361, 843; 1053, bearing here—namely contract. Entangled however contract ascertainment appropriate. deprive circumstance calls suspension introduced pending 'While accepted response Procedurally difference, therefore, allowed elegance formed suspended obtaining 771, or, conformity issue. After applicable, fr m figures instance, most instances, Their free, declaration. advantage preventing limitations running awaiting Also, described, apparent precautions frivolous moot complaints. attempting devise rule, pertinent point speaking, adversary unreasonableness, discrimination, undue prejudice institution predicated unlawfulness limitations. connection, noted questions.' ever Least great care 791, unrelated anything, reinforced put strictest scrutiny. examination examined really overruled. objected, essentially, reexamination. ,'the presents debatable facts conclusively shows purpose, constitutes affirmative commands. obviously overrule establish.' 147—148, proved affirm reparation.

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