Document: 330 U.S. 649 67 S.Ct. 931 91 L Ed. 1158 LEVINSONv.SPECTOR MOTOR SERVICE. No. 22. Reargued Oct. 21, 22, 1946. Decided March 31, 1947. Mr. Harry L. Yale, of Chicago, Ill., for petitioner. [Argument Counsel from page 650 intentionally omitted] Jeter S. Ray, Washington, D.C., Administrator the Wage and Hour Division, Dept. Labor, amicus curiae, by special leave Court. Daniel W. Knowlton, United States Interstate Commerce Commission, Roland Rice, respondent. Justice BURTON delivered opinion 1 This case presents question whether Commission has power, under § 204 Motor Carrier Act, 1935,1 to establish qualifications maximum hours service with respect any 'checker' or 'terminal foreman,' a substantial part whose activities in that capacity consists doing, immediately directing, work one more 'loaders' freight an interstate motor carrier as such class is defined Ex parte MC—2, 28 M.C.C. 125, 133, 134,2 although rest his do not affect safety operation carrier.3 2 We hold power 13(b)(1) Fair Labor Standards Act4 therefore expressly excludes employee right increased pay overtime prescribed 7 Act.5 3 In this action, brought Municipal Court pursuant 16(b) Act,6 petitioner recovered judgment against employer, respondent, $487.44 unpaid compensation petitioner's services, computed accordance Act. addition, included $487.44, liquidated damages, $175 attorney's fee, making total $1,149.88 costs. The defense was that, 13(b)(1), provisions did apply service. On ground, reversed Appellate Illinois cause remanded directions enter judgment, costs, 323 Ill.App. 505, 56 N.E.2d 142. Supreme affirmed. 389 Ill. 466, 59 817. granted certiorari because importance interpreting Act 326 703, 66 30. It argued at October Term, 1945, and, on January 2, 1946, restored docket reargument before full bench Term. so 21 addition briefs arguments behalf parties, we have had benefit those presented, our request, amici curiae. These were Department who supported position petitioner, other hand, which claimed it possessed, he Solicitor General, also filed memorandum. petition took what described 'a somewhat between Administrator.' 4 respondent Missouri corporation, licensed engaged commerce freight. does appear common carrier, contract private property. result, however, turn upon differences classifications. employed 1, 1940, through 6, 1941, capacities designates generally foreman.' While evidence conflicting some duties, there ample sustain basis consisted Commission. accepted Court's description activities.7 been delimited series well-considered decisions, dating extension its jurisdiction, 1935, include carriers. 5 history development congressional program commerce, up including enactment 1935 1938, tells story. 6 comparable fields, Congress previously equipment, limited imposed penalties violations requirements.8 Acts, rely increases rates enforce limitations set requirement higher than regular tends deter employers permitting service, encourage employees seek it. remedial measure adapted needs economic social rather police regulation rigid enforcement required program. Overnight Co. v. Missel, 316 572, 577, 578, 62 1216, 1219, 1220, 86 L.Ed. 1682. By 40 states attempted regulate carriers vehicle. Some established drivers helpers. Increased movements then made necessary approved August 9, Part II 49 Stat. 543. vested reasonable requirements equipment 204(a)(1)(2). Similar, but identical, language used property 204(a)(3). superseded 'any code fair competition industry embracing carriers.' 204(b). Section 203(b) listed many types exempted general signficantly applied all them qualifications, equipment.9 8 even significant 1942, several years after slightly, expressly, expanded jurisdiction over these subjects thereby restricted, corresponding degree, application compulsory Act.10 9 Court, American Trucking Ass'ns, 310 534, 60 1059, 1068, 84 1345, recognized emphasis given clause 'qualifications service' §§ 204(a) 203(b). That decision reviewed legislative held 'that meaning section 204(a)(1) (2) operation. no others.' Id., 553, 1069. dealt devoted themselves exclusively their respective assignments, hand clerks other. demonstrated related former latter.11 discuss relation who, present case, are divide affecting 10 Southland Bayley, 319 44, 63 917, 87 1244, similar reasoning Commission's find need action having found it, 3(b)(1) mere possession exercised not, necessarily excluded employees, whom existed, benefits involves situation here doing loaders property, advisable, yet, work. 11 logic Congress, primary consideration, preserved intact developing since 1936. To this, prohibited overlapping might done otherwise. permitted both Acts apply. There inconsistency enforcing purposes same time, within limitations, requiring compliance excess limits Such overlapping, authorized Congress12 remains us give effect attached importance, exclusion certain When examined point view alone, much light thrown interpretation applications 12 reports regulations issued authority deal thoroughly expertly transportation entitle especially weight committed solely 13 principal bearing controversy, following:13 14 December 23, 1. MC—4 interstate, vehicle, outlined long term constituting Parts, I, II, III IV regulations. 15 29, 1937. 665. MC—2 vehicles, V 16 July 1938. 162. modified glass. 17 12, 557. current experience, drivers. 18 3, 533. 203(b), remained subject 204, equipment. 19 27, 1939. 203. further 20 May 481. MC—28 interpreted giving prescribe common, vehicle only affected said: 'Our experience study connection administration qualify (i.e., drivers), promote Quite contrary would be true if called Id. 485. 22 Clerks, salesmen executives named being jurisdiction. Referring others, 23 'That undoubtedly extends vehicles. may well likewise vehicles foreign commerce. If carriers, believe they file appropriate petition, asking hearing determined.' 488. 24 669. MC—4. 'Motor Safety Regulations, revised,' 'reasonable said revised should approved, adopted prescribed.' t 683. revisions strengthened drivers, eyesight, physical condition, age, ability read speak English. They extended 'exempt carriers' enumerated excepting referred subparagraph (4a) relating farmers.14 25 June 15, 497. MC—C—139. Upon Associations, Incorporated, et al., reaffirmed 1939, MC—28, stated negative side proposition established. 'does empower operation.' 26 1940. MC—3. Following hearings, findings important here. First, found, 204(a)(3), 'there Federal commerce.' 42. With comparatively few exceptions, farm trucks trucks, prescribed, orders supra, MC—4, 27 significance considering classes instances where driver's driving operations transportation. For example, trucks. exempts most purposes, Nevertheless, retains duties unrelated operation; large extent, travel public highways; year-round confined harvest season; nevertheless, whenever truck operated highway, hazards involved faced devote entire time kinds. modifications, thereupon different from, to, general. Instead standard minimum age 18, when gross load combined exceed 10,000 pounds. declined approve 16, states. eliminated usual examinations. relaxed rule passengers. keeping log showing written record trips stops each driver. retained, restriction day place prohibition duty week, limit d driving, distinguished 50 week. MC—3, 27—28, 43. recognized, bakery driver-salesman devotes effort selling baked goods truck. relinquish driver-salesmen nor refrain regulating time. providing 'spends percent less performing loading, unloading,' week 168 consecutive hours, provided 'his week.' see 31 (recommending hours). use percentage adjustment permissible suggestion must denied matter law whenever, 50% working safety, commerce.15 essential wherever hazardous engage shall qualified enforced. means retaining using, relinquishing, partial-duty loaders, affects operations, operations. 29 Recognizing potential others proceeding, invited 'believe commerce' institute proceedings order determined. 44. 30 4, 1941. Nos. foregoing together Amer. latest informative decision, mechanics, helpers therefore, engaging 204(a).16 As announced following fact case: 'Findings fact.—* * 32 '2. above defined,17 directly 33 '4. covered three preceding (mechanics, helpers), perform 138—139. 34 squarely state affirmatively finding 'devote absence discussion classification, basis, additional amounts another way saying loader's nothing indicate uses element representative continuing period during loader devoting himself job loader. amounts, merely character main purpose proceeding determine any, 35 finding, material view. recognizes tacitly full-duty 'non-safety' make 'large part' activities. constitute larger safety-affecting shown courts below clerical checking, etc., 'substantial very kind suggested word 'large' lower courts' 'substantial' connection, disappears completely seen itself substitutes conclusion quoted below. 36 indefiniteness terms obvious, words chosen dealing subject. Arbitrary sharp lines distinction lend readily supplying extra margin security natural engineering. fundamental test simply employee's supra. verb 'affect' incapable exact measurement. Furthermore, final discretionary deemed needed. issuing regulations, can supply whatever definiteness occasion require. From sharply drawn 37 Turning conclusions reached roceeding following: 38 'Conclusions laws.—* 39 passengers '3. numbered except 41 'A will No time.' MC 139. 42 law, claim finality However, practical responsibility entitled consideration. Conclusion close 3. apparent phrase 'employees vehicles' intended match vehicles.' still clear finds paragraphs. Here again classification activity. closely follows reference time' loaders.' 43 Addressing ourselves questions presented us, reaffirm 1244. recognize agency charged establishment reason considered helpers, employed. harmony general, establishing loaders. 44 harmoney ommerce 481, Associations determined all, precise share activities, particular assumed, single 45 noted, defining work, whole, fact, nature 'We conclude hence 204(a).' 134, 'loader' consumed vehicles—for example—loading distributing secure heavy parcels board contribute possible trip. half example—in placing convenient places terminal, checking bills lading, etc. indicates concern smaller fraction proportion either determines actual line consistent throughout case. results operation, regardless days asserting mechanics resembles imposes 'driver' 'on duty' kind, 'week' aggregate, operating hours. 665, 557, charter driver chartered bus often spend little one-half actually driving. 679. All neces arily every hour while matter, times protected when, course driver, acts operation.18 46 forth supervision field demonstrate extent serves safeguarding high degree competence specialized justifies reliance findings, recommendations. 47 Before examining new issue facts virtue unique 13(b) (1) exception measured Division. Labor.19 Instead, scope attempt impinge accepts expressive pre-existing congressionally project. thus requires interpret subsequent applicable act. puts first, Congress. Administrator's MC—C—139, 48 Accordingly, approach developed apart principle obvious carrier. obviously dramatically moment loaded transporting. establish, established, tested revised, limitation aggregate number safely drive duty', though carrier.20 partialduty necessary, condition precedent, exercised, exercise, existence enough. cover indication example. His serious consequences. service.21 Regulations concerned. mentioned above.22 exclude qualifications. English, imp rtant part, modification fit fact. takes form eliminating remain limiting requirement, body demonstration active powers part-time follows, principle, exists too precisely manner. 51 standpoint, drives continuously creates greater hazard man daily continuous adequately entitles him rate per workweek. loading mixed adequate, activity Similarly, render unfit last though, balance 52 employment worked unquestionably Under 139, him. So enough immediate direction doe spent consequence, comes express excluded, automatically, 53 intent recognition conflict reduce 54 taken mention. doubt arose desire wide comply character. Generally, expansion jurisdictions whereas cuts down seeking method resolving administrative difficulties determining exemption fix specific decisive. 20% substantiality.23 55 resolve difficulty manner, proposed Act.24 He soon abandoned answer Interpretative Bulletin Office Administrator, November, 1943, 1944—1945 WH Man. 520, 523, follows: 57 '(b) noted drivers' helper, mechanic contract, spends workweek non-exempt (such producing, processing, manufacturing goods, warehouse type operations) contained 13(b)(1). Division intend available exempt forms exemption.' paragraph legal entitled, insofar concerns Act.25 58 conflicts, conflicts directly, commerce.26 ever recurring expands so.27 Our commerce; Act; performance hearings subject, conclude, issue, accordingly, him, service; 13(b)( ) rendered inapplicable 61 Affirmed. RUTLEDGE, dissenting. says, concerning employees' 543, 546, U.S.C.A. 304(a), Act's pay. Indeed latter reinforce former. Ordinarily, statutes inherently conflictng, construing room create unnecessarily them. 64 Nothing forbids inhibits statute, repeatedly, broadly liberally applied, achieve prime objects raising standards living.1 however contains exempting provisions, narrowly construed accomplish statutory purposes.2 65 Among reads: 'The title *.' 1060, 213(b)(1). now it.3 Read literally, decision,4 Appeals case.5 For, factually speaking, amount small safety. Ten minutes unqualified harm highway month year constant one. seem effective control substantially sort Anything open door greatest danger traffic casual, 68 circumstances effects exclusive controlling Time duration scope, existence, risk. 69 I accept 'safety first' power. And acceptance kinds five weekly. 'Substantial effect' relation, negatively Driving mechanical repair examples. Loading another, depending done.6 functions. 70 Notwithstanding finding,7 short regularly casually, fall means, instance, person ten mechanically repairing remaining 40-hour falls authority. circumstances, cannot minute trivial inconsequential view, understand result employees,8 71 dissent. incorporated exclud seven fifty An exactly literal true, lead result. But frequently told rigidly statute ruinous achieving purposes.9 construing, variety reasons. 72 shows, my mind expansive destructive ruling10 produce. clearly acted Commission11 fulltime principally engaged. assigned weekly provisions. nullify broad inclusive numbers whom, exercising representations sound exemption. 73 Moreover, construction easy mode evasion requirements. employer minded could assign nonsafety desired remove portions Committing coverage situations determination employer's good faith invite litigation motive, tending strongly defeat rights think consequences statute's 74 lies section, corollary assumption complete mutual exclusiveness applicability one, problem mind. becomes, situations, accommodation two manner without nullifying Congress' manifest intention.12 75 spirit into account, inescapably compelled choose equally untenable alternatives great bulk rightfully extends. Although among specifically regulations,13 administering formulates applying albeit conclusive. Administrator,14 ruling, resulting workable solution Acts. 'who processing operations).' 76 history, definite, easily invitingly conducive litigation. reasons, totally comprehended nearly 77 them, compels qualification, exempted, mutually exclusive, essentially inconsistent, primarily or, think, command, others. 78 agree accepting conclusion, own determination, adopts criterion 'substan ial narrower inconsistent ruling power.15 support created voice persuasive, conclusive adopting effect,' ruled narrowly. Indeed, brief maintains much.16 Accordingly independently formal adequate function conferred allows 79 views expressed opinion, course, Pyramid Freight Corp. Ispass, 695, 954, separate dissent companion 80 BLACK MURPHY join parts are: 'Sec. Commission— '(1) end baggage express, uniform systems accounts, records, reports, preservation '(2) '(3) therefor *' (Italics supplied.) U.S.C. 304(a)(1)(2)(3), 304(a)(1—3). Loaders.—* particularly terminal employ men variously dockmen, hereinafter sole unload transfer warehouse. makes entirely properly highways country. placed other, tendency tip rounding curves. rear raise front wheels safe difficult. Further, distributed axles 'Proper machinery, steel, like commodities transported, normal package handled. packing cases weighing 150 200 pounds thereof, lighter end, majority, sufficient size justify handle proper necessary.' 133—134. Throughout i served 207. controversy status himself. 'partial-duty loader,' designation loader' preference 'part-time avoid implication factor deciding individual '§ 13. 1935; 213(b)(1), 7. (a) shall, otherwise production commerce— longer forty-four first date forty-two second date, forty expiration unless receives specified onehalf employed.' 1063, 207(a), 207(a). 16. Any violates act liable compensation, equal damages. court awarded plaintiff plaintiffs, allow fee paid defendant, costs action.' 1069, 216(b), 216(b). See note definition 'loaders.' 'Plaintiff (petitioner) contends checker, loader, interpretation. duties—not name position—are determinative. 'Defendant Terminal 600 West 25th Street, scene phases business—inbound freight, outbound local Trucks carrying originating locally cities States, unloaded gangs defendant's employees. A gang usually men—a caller, sorter packer. checker directs gang's Day night foremen supervise gangs. Incoming deposited according destination dock various sections checker; removed outgoing weight; weighted 'bottom freight' 'balloon top. plan followed interest Testimony pertinent merits supervised directed unloading disposition incoming collecting out-going watched loading. dispute testimony arises quantity plaintiff's duties. Plaintiff says handled night, mostly days; place, direct charge. inbound divided day—inbound A.M. midnight. '* force, for, certainly plaintiff, planned Considering Carriers determinant performs substantial.' Levinson Spector Service, 507, 508, 509, L.Ed.2d 142, 143, 144. controls evidentiary cargo law. (Appellate) court, came dockmen helpers.' 473, 474, 817, 820. Appliance 1893, 531; 1903, 943; April 14, 1910, 298; February 28, 1920, 499; Title 45, seq., seq.—Railroads, 26, relate railroads enforced Hours Service 1907, 1415, 61, railroad movement trains. includes operators, train dispatchers riding Seamen's 1915, 1164, 673, prescribes sea anchor sailors, firemen, oilers sailing managing vessels. establishes seamen crew requirements, sanitary facilities relative transporting school children teachers school; taxicabs, bona fide taxicab six route fixed termini; (3) owned hotels hotel patrons stations; (4) operated, authorization, regulation, Secretary Interior, persons about national parks monuments; controlled farmer, agricultural products supplies farm; (4b) cooperative association Agricultural Marketing 1929, amended; (5) trolley busses electric derived overhead wire, furnishing passenger street-railway (6) livestock, fish (including shell fish), (not manufactured thereof); (7) distribution newspapers; nor, carry out policy enunciated 202, to: (8) wholly municipality contiguous municipalities zone adjacent commercially municipalities, control, management, arrangement carriage shipment municipality, zone, irregular routes lawfully intrastate length laws State jurisdiction; (9) occasional, reciprocal r occupation business.' 545, 303(b), 303(b). 202(c) inserted Transportation 920, pickup delivery areas. automatically put beyond regarded amended 300, U.S.C.Supp. V, 302(c), forwarders, added 'the equipment' amendment interests provision deprived recently acquired Transp. 1682, clerk performed incidental none connected infra. Shortly became effective, motion, instituted resulted examiners' divisional comprehensively covering investigated. Further investigations Bureau pending. One what, Order 30, 204(a)(1)(2) (3). 666. led holding 125. Orders 1936, O der November 204(a). summarized text announced. par. 4(b), 1943. discussed 24, Ibid. Richardson James Gibbons Co., Cir., 132 F.2d 627, 628, affirmed Gasoline upheld testified 'twenty-five cent seventy-five distributor-operator' liquid asphalt, 'was approximately thirty asphalt seventy same.' 628. Apparently 70% particular, contrast 13(a)(1) provides delimitation Administrator: executive, administrative, professional, retailing capacity, capa ity outside salesman (as Administrator); 1067, 213(a)(1), 213(a)(1). also, 213(a)(7), 213(a)(10) 214. Vehicle, CFR, Cum.Supp., 190—General Definitions; 191—Hours Service; 192—Qualifications Drivers; 193—Driving Vehicles; 194—Necessary Accessories; 195 Accident Reports; 196—Inspection Maintenance. Parts 191 192. Discussed pages 17, unloading, like, operate 191.1(e).' (Such beginning duty, *.') 191.3(b). 541.(f), 541.1(a)(4), 541.4(b), 541.5(b). Ralph Knight, Inc. Mantel, 135 514. March, 5(b), 186, 189. 1935. confers extend restrict impose legally binding interpretations meaning. bulletin follow until authoritative rulings courts. nevertheless bulletins weight.' recommendation 1349 introduced proposing amendments Bill, recommended passage Senate Committee Education expand reducing amending read: Hearings Subcommittee Labor. September 25, pp. 249, seq.; Sen. Rep. 1012, 79th Cong., 2d Sess., 11, 17; 5, 135. Amendment, floor Senate, 92 Cong.Rec. 2704, 3154, 3155, 3247, H.R. 4130, reported House Representatives 2300, minority report Committee. 7, 19. Representatives, 864, 905. adjourned taking but, adjourned, neither pending proposal. Tennessee Coal, Iron & R. Muscoda Local 123, 321 590, 597, 698, 702, 88 949, 152 A.L.R. 1014; A. H. Phillips, Walling, 324 490, 493, 807, 808, 89 1095, 157 876. Calaf Gonzalez, 127 934, 937. supra; terms. Cf. 11. (Emphasis added.) argument cause. work.' Thus, directing articles carried unequal small. worker obey superior's placement, infra noe 15; ways. E.g., operations.' factor. Note 'It qualified. 12. 'All ascertainment literalness strangle meaning.' Utah Junk Porter, 328 39, 889, 892; Markham Cabell, 404, 409, 193, 195; Church Holy Trinity 143 457, 511, 226. 15. originally 549, 1345. shows free operators agencies drivers,' 48, 49, 919, understanding 'had already n. solved reading delegation Both legislation.' 47, 13(a)(1), 13(a)(7), 13(a)(10), 213(a)(1, 10), nonexempt Subsequently explained mean twenty Bulletin, Manual (1943 ed.) Later changed text, October, (1944—1945 523. purports adopt apparently time,' 8, differs ruling. majority opinion. namely, operation,' drivers.' findings. difference conclusions, counsel difficulty, embarrassment, argument. argument, maintained: seems (or foreman), expected fitted, service.' Reliance Appeals. 5. Able sought restricting satisfactorily explained, how outer boundary class.

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