Document: 397 U.S. 532 90 S.Ct. 1288 25 L.Ed.2d 547 AMERICAN FARM LINES, Appellant,v.BLACK BALL FREIGHT SERVICE et al. INTERSTATE COMMERCE COMMISSION, Appellant, v. BLACK Nos. 369, 382. Argued Feb. 25, 1970. Decided April 20, Joseph A. Califano, Jr., Washington, D.C., at appellant American Farm lines. Arthur J. Cerra, for appellants Interstate Commerce Commission and the United States. William H. Dempsey, appellees. Mr. Justice DOUGLAS delivered opinion of Court. 1 The has statutory power to grant motor carriers temporary operating authority 'without hearings or other proceedings' when relates a 'service which there is an immediate urgent need' where 'no carrier service capable meeting such need.'1 Act § 210a, 52 Stat. 1238, as amended, 49 U.S.C. 310a. ICC processes applications under rules promulgated in 1965. CFR pt. 1131.2 Among things, those require that applicant accompany his application with supporting statements shippers contain information 'designed establish need cannot be met by existing carriers.' Id., 1131.2(c). Each statement 'must least' 11 items information3 including following: 2 '(8) Whether efforts have been made obtain from motor, rail, water carriers, dates results efforts. 3 '(9) Names addresses who either failed refused provide service, reasons given any failure refusal.' Appellant Lines (AFL) filed authority.4 was accompanied Department Defense (DOD). Temporary Authorities Board denied on ground 'applicant not established exists proposed.' Divison I (acting Appellate Division) reversed granted AFL authority. Protesting sought review this action States District Court Western Washington. A single judge temporarily restrained operation order thereupon ordered postponement its grant. At time numerous petitions reconsideration were pending before stay did direct hand respect them. record indeed court until much later. Meanwhile, reopened proceeding receive further DOD. This took form verified Vincent F. Caputo, DOD Director Transportation Warehousing Policy, submitted purported reply reconsideration. Based upon statement, entered new granting application. order. Thereafter three-judge conducted full hearing merits.5 admitted stage first 'may based evidence support conclusion,' but argued no infirmity set aside both orders. 298 F.Supp. 1006. Both appealed we noted probable jurisdiction.6 396 884, 173, 24 159. 4 * alleged error case strict compliance own rules. question, unlike some our own, do involve 'jurisdictional' problems only certain forth 5 Caputo asserted part tremendous volume traffic moved territories involved had 'in most expeditious manner possible,' that, since air transport prohibitively expensive 'except extreme emergencies,' 'imperative' service. rest merely desire efficient addition rested coordinate arrival times shipments factory production schedules shiploading airlift overseas shipments. particular inadequacies pointed out, namely, delays inherent joint-line regular-route use drivers. assert none provided sufficiently meet needs; rather it claimed providing satisfactory question so few number additional services required DOD's transportation needs. 6 Concededly, give secure complete list names terms subsections (8) (9), Such listing information, involved, would monumental undertaking. 7 these specifics prejudice making precise informed objections AFL's briefest perusal objecting carriers' replies, cover 156 pages printed appeals, belies contention. Neither devoid it, along replies protesting could finding In view, exacted standard procedural wholly unnecessary adequate Commission's decision. 8 entitled measure discretion administering deems necessary resolve quickly correctly problems. It adopted confer important benefits individuals; opposition said intended primarily facilitate development relevant deciding 9 We agree purpose 'necessary information' 'to reach equitable decision' applications. Policy Release January 23, 1968. stated requests turned down 'if adequately comply (the) rules.' Ibid. (Emphasis added.). indivduals face otherwise unfettered Vitarelli Seaton, 359 535, 79 968, 1012; nor agency rule exercise independent so. ex rel. Accardi Shaughnessy, 347 260, 74 499, 98 L.Ed. 681; Yellin States, 374 109, 83 1828, 10 778. Thus reason exempt general principle '(i)t always within administrative relax modify orderly transaction business ends justice it. reviewable except showing substantial complaining party.' NLRB Monsanto Chemical Co., Cir., 205 F.2d 763, 764. And see Grace 184 126, 129; Sun Oil Co. FPC, Cir. 256 233; McKenna 104 U.S.App.D.C. 50, 259 780. deal here similar Estes Express 292 842, aff'd, 394 718, 89 1469, 22 673. There upheld even though may literal (9) That result line 210a(a) designed swift procedurally simple ability respond functional approach served treating inflexible conditions tools aid exercising 'an incapable need. Unlike rules, present ones are mere aids agency's discretion. II After issued order, they passed upon, suit after over month rehearing received statement. 12 held pendency proceedings deprived jurisdiction reopen record. 13 Congress respects regulatory systems up court. provision National Labor Relations Act, 61 147, 29 160(d) 160(e), provides subsequent changes will direction included Federal Trade 38 719, 15 45(c) Clayton 734, 21(c). like courts appeals orders designated federal agencies. 28 2347(c) (1964 ed., Supp. IV). But requirement Act.7 empowers 'at rehearings decision, reverse, change, same.'8 14 limited qualified s 17(6) (7). said, 'Rehearing, reargument, if sufficient therefor appear.' 17(7) original appears 'unjust unwarranted,' 'reverse, modify' same. These broad powers plainly add findings firm them desirable, absent collision interference Unless otherwise, '(w)here motion fact final denied.' Outland CAB, 109 90, 93, 284 224, 227. multi-party proceedings, one, seek judicial others 'That tribunals does mean, course, act cross purposes.' Wrather-Alvarez Broadcasting, Inc. FCC, 101 324, 327, 248 646, 649. concept 'of indivisible must all one tribunal fit' schemes, ibid., fit one. 16 reconsider prior decision necessarily collide review. For while properly relief against issuance mean loses process. thereafter inconsistently Court's jurisdiction.' Inland Steel 306 153, 160, 59 415, 419, 557. When stayed court, what done. interfere slightest court's protective What came ready hear arguments merits Moreover, light stay, express terms, directed perform operations second effective Commission.9 Since never lost pass rehearing, forbid acting petitions, permission make rulings. 17 remedy deficiency commenced fully honored therefore acted harmony jurisdiction. 18 Reversed. 19 BRENNAN, whom STEWART WHITE join, dissenting. 20 affirm judgment '(e)ven consider (the statement) requirements categories Rule C.F.R. 1131.2(c).' 1006, 1011. 21 Insofar regulations emphasize concerning shipper, implement 310a, also fundamental scheme national policy. Ever enactment 1887 379, policy reflected congressional determination public interest regulating competition among carriers. See, e.g., September 18, 1940, 1, 54 899, preceding 1. Regulation entry into industry feature pattern regulation. Trucking Associations, 344 298, 73 307, 97 337 (1953); Pan-Atlantic Steamship Corp. Atlantic Coast Line R. 353 436, 440, 77 999, 1002, 963 (1957) (Burton, J., dissenting). Motor Carrier Part because 'the unstable economically, dominated ease competitive fluid rate picture' 'as became overcrowded small economic units proved unable satisfy minimal standards safety financial responsibility.' Therefore, 'Congress felt compelled authorization interestate preserve system overcompetition.' supra, 312—313, 316. To ensure fair regulation entry, §§ 305—309 ordinarily authorized adversary proceedings. Section 210a narrow exception basis permits conducting proceeding;1 1131.2—1131.3 taken written application, shippers, responses protestants. considered Drum, 368 370, 375, 82 408, 410, 360 (1962), expressly 'bespeaks concern diversions harm bulk depend access market.' section explicit point points territory having need.' supplied.) 23 protect again forcefully expressed 1968 amendment 203(b)(5) 448, 303(b)(5) IV), curtails substantially agricultural cooperatives haul nonmembers' freight. Senate Committee Appeals Ninth Circuit Northwest Agricultural Cooperative Assn. ICC, 350 252 (1965), 'and publicity attendant thereto has, practical matter, construed invitation expand their hauling nonfarm-related nonfarm members, groups organizations device institute unlawful activities.' S.Rep.No. 1152, 90th Cong., 2d Sess., 6. report states, 2: 'The relative decline Nation's common recent years matter serious concern. Several studies reveal considerable formerly handled and, same time, share proportionately generated expanding economy. 26 'This essentially growth unregulated private carriage. attributable unauthorized illegal operators inimical interest, left unchecked, ultimately undermine system.' 27 recognizes duty effect 1131.4(b)(2) '(a)n justifying determined exist soon reasonably service.' key supplied response Reasonable disclosure whatever inadequacy thus crucial importance. Disclosure makes possible protestants frame specific addressed concrete situations, thereby 1131.3(a)(2) protests protestant can offer *.' come follows details generalities called for. disclosure, results, shipper needed refusal this, without flouts Rules 1131.2(c)(8) hypertechnical matters housekeeping convenience. They go heart issue proceeding. significance whether, words, 'confer individuals.' elicit determining whether policies factual situation warrants Nor case, assumes, erred failing 'strict' hold compliance, appellees required. reasonable apply case.2 found relied issuing 'fails show seeks provide, identity F.Supp., conclusion my examination argues action, effort items. However, apart doubtful premise circumstances statute authorize proof effort, argument foreclosed ICC's attempt elsewhere.3 See SEC Chenery Corp., 332 194, 196, 67 1575, 1577, 1760, 91 1995 (1947); Burlington Truck Lines, 371 156, 168—169, 239, 245 246, 207 (1962). 30 different argument. concedes literally content constitutes resonable compliance. insists, therefore, prejudiced lack information. rests extensive explanation advantages single-line refutes 1131.4(b)(4) states: 31 'Generally, lieu interchange connecting-carrier warrant effectuate clearly multiple-line of, in, needs receivers between commodity commodities involved.' 32 enough simply desires interested economy efficiency; spell out detail just are, why applied enable Consequently, means least permit 1131.4(b)(4). view fails test. indicate specifically being satisfied joint- certificated how brought attention unsatisfactory discover improve performance 33 begins noting ships 'tremendous volume' freight nine-state area five-state '(a) requires transported origin destination possible.' adds '(t)his defense speed many, many instances current certified due factors,' facts 'majority' 'virtually all' regular routes 'often' circuitous, 'some drivers instead two-man teams. then gives three examples inadequate two slower than cited currently carrier. met. third example states instances, available routes, irregular faster. identify instances; state carrier; knowledge way 'immediate entire segment carry regards focused assessment 34 goes known explain 35 next refers situations calling reliable delivery times, unreliable. Again, fatal inadequate. explains often inbound factories. As example, cites proven able schedules, aware 'timed' deliveries. load. whose unsatisfactory; say service; conformed requirements. true deliveries transshipment outside sometimes formulate truckload diverse commodities, cited. 36 Finally, five outstanding AFL, each experience shows Department's identified; improving reported; 'experience' bases specified. 37 sum, supply inability Of innumerable unavailable every improved limitation demanded better opportunity rebuttal determination. course irrelevant largest consists almost entirely lacking' Government position shipper. Riss & Inc., Extension—Explosives, 64 M.C.C. 299, 328 (1955), Freight, Extension—Commodities Bulk, 84 403, 407 (1961). purports find 842 (D.C.E.D.Va.1968), aff'd per curiam, 673 (1969), glossing sustained applicant's services. differences instructive. supported separate reported he previously obtained applicant, elsewhere further, knew special characteristics applicant. covered route Columbia Richmond, Virginia, statements. striking contrast, covers area. more provided. Accordingly, affirm. part: 'To need, may, contract vehicle, be. *' defines term follows: 'An relocated plan, method distribution, unusual presently discontinuance comparable permanent processed.' federation marketing created 1964 members. By virtue 921, 303(b)(5), members obtaining certificate convenience necessity ICC. 1965 certification cooperative extent nonmember incidental principal activities. 252. year, began transporting 1968—1969 continue serving restricted events. First, competing obtaned injunctions prohibiting consecutive movements going pick returning member's Munitions Carriers Conference, 415 747. Second, amended restrict exemption nonmembers exceed 15% total annual interstate transportation, measured tonnage. 74,155,685 pounds December 1966 June 1968, May Class B explosives moving government bills lading Kentucky, Indiana, Illinois, Missouri, Arkansas, Louisiana, Texas, Oklahoma, Kansas hand, California, Nevada, Utah, Arizona other. estimated oral mid-1971. Meanwhile extend 963. chronology events shown n. 9, infra. appealing setting once proposed law respecting reviewed appeal distinguished district courts. H.R.Rep.No.1619, 80th 4. deleted measure. approved 2342 Baldwin Scott County Milling 307 478, 484, 943, 1409. October 2, On date 'until Commission.' November 5, 'not perform' 12, advised action. commencement notice 31, supplemental complaint challenging 6, 1969, March 26, now reviewed. 'emergency' 1131.2(d). case. claim case; insistence is, occasion mooted briefs Service Dulles, 354 363, 1403 (1957), depart 1012 (1959); 681 (1954); 778 (1963); Bridges Wixon, 326 135, 65 1443, 1452, 2103 (1945). '(t)hat (DOD) attempted type knows needs.'

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