Document: 359 U.S. 275 79 S.Ct. 785 3 L.Ed.2d 804 Naomi PETTY, Administratrix of the Estate Faye R. Petty, Deceased, Petitioner,v.TENNESSEE-MISSOURI BRIDGE COMMISSION, a Corporation, No. 233. Argued March 4, 1959. Decided April 20, Mr. Douglas MacLeod, St. Louis, Mo., for petitioner. James M. Reeves, Caruthersville, respondent. Justice DOUGLAS delivered opinion Court. 1 When Court in 1793 held that State could be sued federal courts by citizen another State1 (Chisholm v. Georgia, 2 Dall. 419, L.Ed. 440), Eleventh Amendment2 was passed precluding it. But this is an immunity which may waive at its pleasure (State Missouri Fiske, 290 18, 24, 54 78 145) as general appearance litigation court (Clark Barnard, 108 436, 447 448, 878, 882—883, 27 780) or statute. Ford Motor Co. Department Treasury, 323 459, 468—470, 65 347, 352—353, 89 389. The conclusion there has been waiver will not lightly inferred. Murray Wilson Distilling Co., 213 151, 171, 29 458, 464, 53 742. Nor from suit state do service where brought court. Chandler Dix, 194 590, 591—592, 24 766, 767, 48 1129. And public instrumentality created with right 'to sue and sued' particular setting restricted to suits proceedings special character state, federal, courts. Cf. Delaware River Joint Toll Bridge Commission, Pennsylvania-New Jersey Colburn, 310 60 1039, 84 1287. Suits against agencies based on maritime torts are no exception these rules. Ex parte New York, 256 490, 41 588, 1057. question here whether Tennessee have waived their under facts case. Congress, conditions specified 33 U.S.C. § 525, et seq., U.S.C.A. 525 gave consent construction bridges over navigable waters United States. Respondent 'body corporate politic' (13 Vernon's Ann.Stat., Tit. 14, 234.360) (P.L.1949, cc. 167, 168) acting urs uant Compact Clause Constitution. Art. I 10, cl. 3.3 compact prepared two States submitted Congress provided I, §§ respondent should power build bridge operate ferries across Mississippi points 3, it contract, own name.' granted compact, 63 Stat. 930, stating proviso: 4 'That nothing herein contained shall construed affect, impair, diminish any right, power, jurisdiction court, department, board, bureau, officer, official States, regard waters, commerce between foreign countries, bridge, railroad, highway, pier, wharf, other facility improvement, person, matter, thing, forming subject matter aforesaid agreement otherwise affected terms thereof.' (Italics added.) 5 petitioner's husband employed ferryboat operated common carrier point one Tennessee. He met his death when he trapped pilothouse sank, following collision boat. Suit Jones Act, 46 688, charging negligence. 6 District motion dismiss, holding agency immune tort. 153 F.Supp. 512. Appeals, agreeing view, affirmed. 254 F.2d 857. case certiorari. 358 811, 53, 55. 7 sanctioned Constitution presents question. supra, page 427, 1041. Moreover, meaning final say.4 ex rel. Dyer Sims, 341 22, 28, 71 557, 560, 95 713. rule different contention has, suit. Of course, alleged basis Amendment's statute, answered intended immunity. supra. is, here, claimed arise several called interpret unilateral action but consensual agreement, which, because made congressional approval, law. In making interpretation we must treat living interstate performs high functions our federalism,5 including operation vast enterprises.6 8 Appeals laid emphasis law Missouri, said, construes sue-and-be-sued provision authorizing negligence corporation. It likewise cited decisions strictly construing statutes permitting State. We assume arguendo considered since bi-state corporation joint Missouri. disagree given clause. For resolution turn might course adopt either both Commissioner Internal Revenue Stern, 357 39, 1047, 1126; Helvering Stuart, 317 154, 140, 87 154; Myers Matley, 318 622, 780, 1043. took such step here. approved clause make clear accepting they have. 9 This 1949, era corporations performing governmental favor field. Keifer & Reconstruction Finance Corp., 306 381, 59 516, 83 784, decided nearly 10 years before present made, authority charter government broad enough include torts, least duties relied upon 'have source contract even though guilty agents merely tort-feasors.' Id., 395, 521. There underlying bailment; employment. To draw distinction tort would 'make application steadily growing policy liability contingent irrelevant procedural factors. These, law, still deeply rooted historical accidents expanding conceptions morality regarding responsibility subordinated.' 396, case, like involves launching into industrial business view climate time had grown up around clause, cannot believe confine more narrowly than need rest alone. attached condition 'nothing * *.' stop catalogue all ends served proviso. See S.Rep. 1198, 81st Cong., 1st Sess.; H.R.Rep.No.1429, Sess. argued proviso included plain bonds issued were taxable go further however, find rational purpose Act specifically stated: obligations outstanding, income derived therefrom, amendments thereto, tax laws States.' Whatever effects presently concerned, result seems us clear. proviso, read light reserves act arising virtue fact stream involved. apt illustration involvement matters Act. O'Donnell Great Lakes Dredge Dock 36, 39—43, 488, 490—492, 596. enlarging only recognizing appropriate applications activities active matters. 11 who parties attached.7 So if doubt prior approval dissipates accepted acted 12 Finally can reason excepting 'employer' used them Safety Appliance 45 seq. (United California, 297 175, 56 421, 80 567) Railway Labor 151 California Taylor, 353 553, 77 1037, 1034). latter reviewed length legislation governing employer-employee employee relationships 'When wished exclude employees, expressly so provided.' 564, 1044. (46 688) exceptions sweep words 'Any seaman suffer personal injury employment may' etc. rationale makes impossible mark hold employer 13 Reversed. 14 BLACK, CLARK STEWART concur judgment understanding reach constitutional Amendment immunizes compacts requires Congress. 15 FRANKFURTER, whom HARLAN WHITTAKER join, dissenting. 16 Court, acknowledging applicability provisions Tennessee-Missouri states: 'The case.' 277, 787. finds 'sue creating Commission. Supreme said: 'A statutory 'may does authorize negligence.' Todd Curators University 347 Mo. 460, 465, 147 S.W.2d 1063, 1064. ruled significance emphatic waivers sovereign construed. Hill Beeler, 199 Tenn. 325, 286 868. below neither nor language render liable Three times during Term followed settled practice dealing doubtful statute deferring interpretations local rendered lower courts.1 now disregard accept missouri found Eighth Circuit. 17 Despite authoritatively waives provision, those constitute suit, courts, afforded Amendment. 18 legal consequences not, generalized proposition, originating What 713, support claim. That arose among eight control pollution Ohio System. Seven asserted West Virginia obligated funds administrative expenses Commission formed Compact. By self-serving duty Compact, resisted claims Here typical controversy undertaking peaceful solution designed III, 2. very nature necessary construe contractual assumed via-a-vis problem presented kinship Sims. individual authorized suits. Bot St ates deny having authorization justified denial finding Since comes being through gives rise 1041, require answer way blanket, nationwide substantive doctrine essentially interests stake. See, e.g., Board Com'rs Jackson County 308 343, 285, 313. A after all, contract. Ordinarily, attribute governs agreement. Similarly, freedom refuse Amendment, modified limited placed language, avoid undertook, enforce conventional 19 granting imposed suability consent. No insisted waiving price obtaining 389—391, 517—519, indicated fallen disfavor well good why done just passing bad write so. Surely obsolete did indication exacted referred attained acceptance lead strictness continue Northern Life Ins. Read, 322 47, 64 873, 88 1121. Court's understood therefore predicated legislative history.2 20 As evidence implied withdrawal States' tenuous, explicit imposition non-existent. Such deemed lie states 'shall etw een Read natural phrasing, indicate contemplation. addition, history hundred confirms emphasizes intendment language. 21 use clauses preserving 'jurisdiction court' dates back York 1834: 'Provided, therein impair manner islands form said agreement.'3 Substantially same early Acts consenting Compacts.4 An alternate similar some consents: 'Nothing affect regulate commerce, waters.'5 third variation been: impairing affecting region forms agreement.'6 ten Compacts thus yet us, essence conveying meaning, effect.7 Indeed, identical today rests appeared consents Compacts. One provision,8 not.9 demonstrates beyond peradventure unrelated 22 what alone accomplishes 'in clause,' 281, 790, violates relies. Had despite operating vessel water commerce. permitted permits 'affect,' enlarging, conducted nte rstate 23 requirement protection national withhold grant safeguards interests. undesirable Or interest derive necessity maintaining properly balanced system vetoing adversely imply changes concern, dislodging State's attributable administration (while necessarily leaving unaffected administration), complete requiring introduce wholly irrational disharmony policy. authorities proposition applies Commission,10 referring solely Believing 25 affirm Chisholm dared 'sovereign state' indignant moved vehement speed prevent subsequent affronts dignity states. More probably issue, however. proposed many financial difficulties defaulted debts. new amendment defense theoretical sovereignty also practical forestall creditors!' Irish Prothro, Politics American Democracy (1959), p. 123. Judicial extend equity, commenced prosecuted Citizens State, Subjects Foreign State.' 'No shall, without Consent enter Agreement true dispute concerns spoken. 30—32, 561—563, While show deference pronounced adjudications rulings binding. Ibid. Hinderlider La Plata 304 92, 104, 58 803, 808, 82 1202, spoke methods settling controversies original defined compact: compact—the means—adapts Union o vereign ageold treaty-making independent nations. Adjustment judicial quasi-judicial determination existing rights practiced Colonies, adoption Constitution, extensively half century first applied means boundary Rhode Island Commonwealth Massachusetts, Pet. 657, 723—725, 1233.' Port Authority, 42 174; Tunnel Agreement, 158; Kansas city Water Works 1058; York-Vermont 120; 61 752; Menominee 300. 'Historically prerequisite validity agreements appears republican transformation needed Crown. plainly objectives conditioning organ determining arrangements fall within prohibited class 'Treaty, Alliance, Confederation', come permissive 'Agreement Compact.' agreement: national, regional, Therefore, exercise supervision consent, conditions. Framers astutely mechanism affairs projected lines call for, capable of, treatment. They allowed adjustments duly safeguarded interest.' Frankfurter Landis, Constitution—A Study Interstate Adjustments, 34 Yale L.J. 685, 694—695. Sims 108, 641, 667; Tungus Skovgaard, 503, 523, 524; Sandy Hook Pilots Ass'n Halecki, 613, 517, 541. Sess; H.R.Rep. 1429, Cong.Rec. 14589—14590, 14982 14983. letters House Senate Committees considering bill Acting Secretary Commerce Thomas C. Blaisdell, Jr., expressed belief 'this Federal Government specific 'such negotiable free.' *' 3; 3. possibility sufficiently clear, added 930. 711. 483; 352 (added courts'); 553 861. 40 515. Similar 158. 180. 301; 121. themselves, although contain provisions. 66 74, 77—78; 68 690, 697. recently Oregon involving Klamath Basin, 497, itself contains rendering possible reserving jurisdiction, Yet 'Enlarging, diminishing 508. was, clearly enough, believed inconsistent each other. 49 1058, 1060. 568, 571. 567, instituted proscription 1034, intervened National Railroad Board, hence voluntarily

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