Legal Document

400 U.S. 62 91 Supreme Court Reporter 203 27 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 PORT OF BOSTON MARINE TERMINAL ASSN. et al.v.REDERIAKTIEBOLAGET TRANSATLANTIC. Number 99. Argued Oct. 22, 1970. Decided Dec. 8, Syllabus Petitioner Terminal Association, a maritime terminal operators conference operating under an agreement approved by the Federal Maritime Commission (FMC), pursuant to § 15 of Shipping Act, 1916, revised tariff on file with agency shifting incidence wharf demurrage charge from consignees carriers. When several carriers refused pay charge, which had not previously been FMC, Association sued association that represented them and their agents (Shipping Association). The District stayed proceedings allow obtain FMC ruling validity change. After hearing, concluded, June 23, 1967, its prior approval was necessary Act. On September 19, filed Appeals petition for review court dismissed lateness. 4, 1968, respondent, carrier assessed charges, made application reconsideration (on basis decision this rendered after FMC's ruling), returned as untimely rules. Thereupon contending agent inadequately it in proceeding brought sought allowed intervene still-pending action Court. That court, concluding primary jurisdiction subject matter dispute did have decision, judgment against respondent. Respondent appealed. reversed merits, respondent party therefore free seek independent collateral agency's order. Held; 1. responsible Act supervising conferences marine uniquely qualified consider disputes involving overall policies, over question whether administrative amendment required. Pp. 68-69. 2. correctly concluded no authority constituted final order such, Administrative Orders Review exclusively reviewable Appeals. 69-71. 3. Respondent, having hearing also every opportunity participate before timely Appeals, cannot collaterally attack 71-72. 4. case Court, time expired, precluding any judicial merits decision. Pacific KF135 P2 210. 420 Reporter, 2nd 419, reversed. John M. Reed, Boston, Mass., petitioners. Daniel Friedman, Washington, D.C., Commission, amicus curiae, special leave George KF105 F3 Galland, Mr. Justice MARSHALL delivered opinion 1 underlying here is vessel owners or will charges1 cargo left wharves at Port Boston. But central we face resolution binding We believe error holding Commission's determination binding. Accordingly, reverse. 2 Boston Marine acting agreement2 1962 Commission.3 Prior 1964, administered tariff,4 charges consignee whenever remained pier more than five days.5 In year, without shifted so daily fee one-half cent per 100 pounds charged carrier-vessel failure remove resulted strike longshoremen. 3 1965 there longshoremen's caused be beyond five-day—free time—limit. Several vessels charges; state damages declaratory relief Association,6 organization representing agents. Following removal defended grounds within scope could become effective approval.7 4 full evidentiary issued report because 'constitute new modification existing calling * rate-fixing scheme contemplated original agreement.'8 change structure insofar affected when started but held unreasonable meaning 17 46 Code KF62 816,9 assess time10 start strike. 5 petitioned Columbia Circuit review. since expiration 60-day period specified 28 2344 (1964 ed., Supp. V), untimely. Rederiaktiebolaget Transatlantic, one carrier-vessels reconsideration. Transatlantic claimed agent11 thus standing request rehearing. urged inconsistent Court's intervening Volkswagenwerk Aktiengesellschaft versus 390 261, 88 929, 19 1090 (1968), approval. not, however, pass claim Rules Practice Procedure.12 6 direct denial Instead, moved intervene13 still pending argued provided inadequate representation would liable substantial portion agent. Intervention granted. refused, Transatlantic.14 7 only defendant appeal, successful First Circuit. and, therefore, accepted Transatlantic's position reversed,15 indeed Volkswagenwerk. 8 argues erred outset referring Commission. recognized early development agencies coordination between traditional machinery these if consistent coherent policy were emerge. See Texas & P.R. company Abilene Cotton Oil Co., 204 426, 350, 51 L.Ed. 553 (1907). doctrine has key switches through current passed.16 action, proceedings, certain issues responsibility governmental supervision control particular industry activity involved. Whitney National Bank Jefferson Parish New Orleans, 379 411, 425, 85 551, 560, 13 386 (1965). Far East Conference States, 342 570, 574—575, 72 492, 494—495, 96 576 (1952). 9 This almost classic engaging doctrine. Plainly, primarily operators. Just years earlier, very established basic pattern conference's operation, same present dispute. light policies concerning conferences' relationship both consignees. err determining, purposes litigation, Article III single, isolated case-and-controversy record private suit neither nor Government party, lack requisite capacity. Tampa Phosphate R. Seaboard Coast Line 418 387, 402—404 (concurring opinion) (C.A.5 1969). II 10 explicit: 'The appeals exclusive determine such orders *.' 2342 V). Consolo 383 607, 613, 86 1018, 1023, 16 131 (1966); 577, 495, 11 It true 31 830, states 'except herein otherwise provided' procedures governing suits 'enforce, suspend, set aside, whole part, (Federal Commission)'17 shall similar respect Interstate Commerce 1964 Congress courts refer questions arising referral. 1336(b).18 12 pointed out,19 requirement provisions applicable cases 'such provision conducted rather district courts.' U.S., 1023. D. L. Piazza West Line, Inc., 210 947 (C.A.2), cert. denied, 348 839, 75 42, 99 661 (1954). Moreover, legislative history statute providing referred even hint thought while considering problem. And make procedure adopted vitiate Act—a designed ensure Attorney General represent interest reviewed. 2348 provides method reviewing argument lacked finality effect anyone resembled interlocutory denying motion dismiss complaint hollow ring another era.20 Agency coercive are common. Frozen Food Express 351 40, 44, 76 569, 571, 910 (1956). relevant considerations determining process decisionmaking reached stage where disrupt orderly adjudication rights obligations determined legal consequences flow action. ICC Atlantic 576, 602, 1000, 1015, 109 Rochester Telephone Corporation 307 125, 143, 59 754, 763, 83 1147 (1939). 14 Here possible disruption process; nothing else do. certainly expected consequences. proffered justify bound Although named fact numerous claims status.21 asserted support resumed proceeding. There alleged 'at all times' filing 'had counsel for' inadequate. Even formal interests clearly stake. then chose do so. Certainly, posture, force redetermination issue different inappropriate forum. Western 352 59, 69, 77 161, 167, 126 Since run, return 18 Reversed. involved 'wharf demurrage,' remains days, n. 5, infra. Agreement 8785. out protected price fixing engaged 39 Statutes-at-Large 733, amended, 814. rate 1/2 cents pounds. Under pre-1964 tariff, factors shipper prevented removal, considered reasonable delay up days loaded taken away consignee. members including Furness, Withy Ltd., defendants. (1968). Assn. Assn., F.M.C. 409, 414 (1967). 'No common water foreign commerce demand, collect rate, fare, unjustly discriminatory shippers ports, prejudicial exporters compared competitors. Whenever Board finds demanded, charged, collected may alter extent correct unjust discrimination prejudice discontinue demanding, charging, collecting charge. 'Every other person chapter establish, observe, enforce just regulations practices relating connected receiving, handling, storing, delivering property. regulation practice determine, prescribe, enforced jury practice.' 816. shift conflict duties regular legally tariff. found pre-existing duty deposit arrange access sufficient time, i.e., it. stated '(i)t Agent, Co.' 'Furness, member which, lines, (before Commission).' further sums 'from petitioner disputed provisions.' Petitions required '30 issuance Regulations 502.261. Fed.Rule Civ.Proc. 24(a). entered specify parties-defendant directly did, provide agent, $10,708.87. $8,154.85 amount. 419 (C.A.1 1970). Civil Aeronautics Modern Air Transport, 179 622, 625 (C.A.2 1950); K. Davis, Law §§ 19.01 19.07 (1958); Jaffe, Primary Jurisdiction Reconsidered. Anti-Trust Laws, 102 U.Pa.L.Rev. 577 entrusted administering undergone many reorganizations concomitant name changes creation 1916. 'When Claims refers determination, civil enforce, enjoin, annul, referral.' 1336(b). Volkswagenwerk, erred, attacked 266—267, 932—933. 20 See, e.g., Muskrat 219 346, 250, 55 246 (1911). generally supra, 21.01—21.10. 21 11, supra.

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