Document: 352 U.S. 59 77 S.Ct. 161 1 L.Ed.2d 126 The UNITED STATES, Petitioner,v.The WESTERN PACIFIC RAILROAD COMPANY et al. No. 18. Argued Oct. 15, 1956. Decided Dec. 3, Mr. Morton Hollander, Washington, D.C., for petitioner. Frederick Bernays Wiener, respondents Justice HARLAN delivered the opinion of Court. three respondent railroads each sued in Court Claims to recover from United States as shipper difference between tariff rates actually paid and those allegedly due on 211 Army shipments steel aerial bomb cases filled with napalm gel.1 Approximately 200 were made over lines Bangor Seaboard 1944; remainder carried by Western Pacific 1948 1950. 2 Napalm gel is gasoline which has been thickened addition aluminum soap powder. mixture inflammable but not self-igniting. In a completed incendiary ignited white phosphorus contained burster charge, turn fired fuse. These shipments, however, involved only casings gel; fuse had yet added. 3 carriers billed Government at high first-class established Item 1820 Consolidated Freight Classification 17 'incendiary bombs.' Pursuant § 322 Transportation Act 1942,2 bills presented; post-audit, General Accounting Office deductions against these respondents' subsequent other ground that question should have lower, fifth-class, rate applicable drums.3 initially lower rate. Respondents thereupon brought present suits rendered case Pacific, amount two cases. 4 defended grounds: (1) was inapplicable because absence deprived bombs essential characteristics bombs,' hence no additional sums due; (2) if this item held govern, would be unreasonable applied issue court proceedings suspended matter referred Interstate Commerce Commission; (3) any event estopped charging '1820' 5 Claims, relying its earlier decision Union R. Co. v. States, 111 F.Supp. 266, 125 Ct.Cl. 390,4 entered summary judgment respondents, judges dissenting.5 It bombs' within meaning thus entitled higher addition, while seemingly recognizing Government's right defense unreasonableness determined Commission, ruled running two-year period limitations provided 16(3) Act6 cut off referral Commission. Lastly, overruled estoppel Seaboard. Because importance questions administration Act, alleged conflict among courts limitations, we granted certiorari. 350 953, 76 342. I. 6 We are met outset whether properly doctrine primary jurisdiction case; is, it correctly allocated issues suit Commission court. view below, presented entirely separate questions. One construction tariff—whether shipments. second reasonableness tariff, so applied. assumed, case, supra, first these—whether applied—was simply initial cognizance court.7 second—the shipments—it seemed regard being competence Before neither side questioned validity court's views respects. Nevertheless, maintenance proper relationship matters affecting transportation policy continuing public concern, constrained inquire into aspect decision. concluded circumstances here construction, well applied, exclusive 7 jurisdiction, like rule requiring exhaustion administrative remedies, concerned promoting relationships agencies charged particular regulatory duties. 'Exhaustion' applies where claim cognizable instance an agency alone; judicial interference withheld until process run course. 'Primary jurisdiction,' hand, originally courts, comes play whenever enforcement requires resolution which, under scheme, placed special body; such pending body views. American Tank Car Corp. El Dorado Terminal Co., 308 422, 433, 60 325, 331, 84 L.Ed. 361. 8 No fixed formula exists applying jurisdiction. every reasons existence purposes serves will aided application litigation. often given expression emphasis laid desirable uniformity obtain specialized passed certain types See Texas & Abilene Cotton Oil 204 426, 27 350, 51 553. More recently expert knowledge particularly stressed. Far East Conference 342 570, 72 492, 96 576. factors part same principle, 9 'now firmly established, raising fact conventional experience or exercise discretion, created Congress regulating subject over. This even though facts after they appraised serve premise legal consequences judicially defined. Uniformity consistency regulation business entrusted secured, limited functions review judiciary more rationally exercised, preliminary resort ascertaining interpreting underlying better equipped than specialization, insight gained through experience, flexible procedure.' Id., pages 574—575, page 494. 10 does 'more prescribe mere procedural timetable lawsuit. allocating law-making power aspects' commercial relations. 'It transfers determine' some incidents relations.8 11 Thus effectuation statutory pass dispute here; this, turn, depends raises ought considered interests uniform scheme down Act. Decision governed Tie Timber 234 138, 34 885, 58 1255, attempted ship oak railroad ties 'lumber.' carrier rejected them, urging lumber. damage action testimony received question. Court, alone could resolve effect holding clear: must refrain making tariffs, but, circumstances, decline construe them well. A particularization emerged Great Northern Merchants Elevator 259 285, 42 477, 66 943. There one may 'solely law.' But words used peculiar technical sense, extrinsic evidence necessary determine their application, 'the inquiry essentially discretion matters,' then go reason plainly set forth: 'determination reached ordinarily upon voluminous conflicting evidence, adequate appreciation acquaintance many intricate indispensable, commonly found experts.' 291, 479. therefore decide determination term bomb' involves which' presupposes 'acquaintance transportation.' conclude does. 12 abstraction. embodies analysis costs incurred article how much should, therefore, carriage order produce fair reasonable return. Complex cost-allocation accounting problems solved setting initially. since expensive take elaborate safety precautions carry items safety, evidently there calculation handling, supervising insuring inherently dangerous cargo. words, obviously why for, say, follows intended covered intimate very themselves. Whether context, reading language abstract 'rules' construction. For basic far justifying extra-hazardous objects instant shipment. Do make also call gel? To answer close familiarity factors. Such possessed instance. And, scope without consideration terminology employed adjudication little semantics. 13 main thrust argument went hazardous contemplated construed cover them.9 Similarly, dissenting below emphasized bombs: 'If freight quality freight, quality, vanishes vanish it.' 131 921, 132 118. difficulty line do know freight' rate, still less weight assigned it. Courts cannot exactitude rate-making process. And undertake fix limits tariff's factors, extent absent tantamount engaging guesswork. incendiaries transported bombs, minus bursters fuses, meet requirements; incompleted bombs. 14 conclusion fortified artificiality distinction latter recognized all thesis general, too high. argues 'as applied' high—i.e., expenses shipping profit seems us another way saying wrong both instances shipment full lacking fuses. phrased determinative jurisdictional issue. hold otherwise abstraction called operation whim pleader.10 15 By means imply never courts. adhere distinctions based case. Certainly need refer body, prior releases opinions, already clarified Crancer Lowden, 315 631, 62 763, 86 1077. construing examination say merely where, here, problem relevant, intertwined issues, them. 16 hold, Commission's determination. II. come barred limitation not. 18 Section 16(3)(a) provides 'all actions law chapter recovery charges * shall begun years time cause accrues, after.'11 provision makes clear sues private years. However, Tucker 28 U.S.C. 2501, U.S.C.A. 'every unless petition thereon filed six accrues.' Relying broad act, has, 1926, consistently apply undercharges shipper. Southern Pac. 391; Air Line 83 1012, 113 437; 907, 114 714. timely brought,12 elapsed accrual action.13 did bar obtaining reference Commission.14 Presumably likewise regarded lying can raise defenses 19 assume, deciding, filing affirmative before overcharges carrier. Nevertheless think statute operates raised themselves brought. ask thereto Only clearest congressional force result allow impunity waiting suit. 20 deal incident proceedings. On face commencement reparation militates referrals. important, behind statutes relevance situation here. purpose keep stale litigation out They aimed lawsuits, lawsuits. Here time. use quite foreign preventing incongruous once lawsuit court, benefit law. If stale, deemed stale. 21 argued 'jurisdictional' absolutely hearing arising years, original Reliance A. J. Phillips Grand Trunk 236 662, 35 444, 774; William Danzer Gulf S.I.R. 268 633, 45 612, 69 1126; Midstate Horticultural Pennsylvania 320 356, 64 128, 88 96. dealt claims charges, referrals teaching instance, destroys remedy, waived parties. asserting recovery. seeking adjudicated defense. irrelevant not; remain suits. Nor Morrisdale Coal 230 304, 33 938, 57 1494, help respondents. again invoked plaintiff untimely filed. coal damages discriminatory allotment cars use. Stating propriety carrier's method allotment, action, redress evaded District rather having latter. tribunal, correct tribunal facts, extend brought, was.15 22 told protect itself, when believes reparations 16(3). relieved anticipatory expressly authorizing deduct overpayments if, finds overcharged.16 thought measure Government, carriers' presentation audit. theory invoke peril losing later Evidently unilateral set-off.17 23 relating tariff. III. 24 remains dismissed now further follow consequence what said, adherence shipments.18 25 Army's reliance ruling Official Committee, belonged, type withdrawn Committee; shown detrimental ruling; shipments; (4) acquiesced Committee's ruling. 26 erred disposing judgment. appears undisputed rescinded made.19 affidavits opposition motion were, our opinion, sufficient entitle opportunity prove detriment. significance light payment 'upon presentation' postponing final settlement Committee authority bind acceptance presents tried. Nor, unlike shipper, unavailable Government. 49 22, 22. Cf. Oregon-Wash. 255 339, 41 329, 65 677; N. 349, 332, 671.20 estoppel, intimation, course, able establish reversed remanded inconsistent opinion. ordered. Reversed remanded. 29 DOUGLAS dissents he principles 943, 30 REED BRENNAN took 1491, 1491. 54 Stat. 955, 66, 66. section provides: 'Payment mail persons property behalf common amended, Civil Aeronautics 1938, therefor, audit Office, hereby reserved overpayment subsequently carrier.' record just concede 1895 17, covering 'Empty Aerial Bombs,' apply, although classification agency. essence position nonincendiary, combination gasoline, thickener, casings. Since items, standing alone, fifth-class urges 'combination rule' articles Rule 17. similar seek 919, 115. dissenters Judge Madden Chief Jones. 384, 16(3), stated 268, Ct.Cl., 393: 'At outset, noted published classifications Commission.' Jaffe, Primary Jurisdiction Reconsidered, 102 Univ.Pa.L.Rev. 577, 583—584 (1954). response chemical engineers stating incendiary. become meaningful knows precise trying 'construction' 'reasonableness illustrated Claims' supra. There, fuses 'not affect identity articles' 'it (one fuse). solely 393, 394. concedes hazard 'goes reasonableness,' arguing 'also relevant interpretation, instrument, read known manner avoids unnecessary gross unfairness.' 16(3)(a), 16(3)(a). instituted 1954. accrued 1950, instead billed. As cases, (presumably 1944 made), readjusted impossible silent post-audit readjustment made. Although questioning soundness subjects agaisnt shippers, challenged cited mind provision, probably 16(3)(c), reads: 'For complaint commission *.' 'reasonableness' referrable not, bring Morrisdale. Both defense; applicability own nothing n. 2, Statistics furnished Comptroller show post-audited 17,220,783 carriers. revealed 1,102,654 magnitude figures underscores impossibility file I.C.C. thinks might sue asserted Hence doubt await 1943 confirmed 1945. 1944. prevent collecting quoted results 6(7) 380, 6(7), forbidding departures Pittsburgh, Cincinnati, Chicago St. Louis Fink, 250 583, 40 27, 28, 63 1151. considerations 387, providing 'nothing carriage, storage, handling free reduced States.'

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