Legal Document

389 U.S. 179 88 Supreme Court Reporter 401 19 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 398 FEDERAL TRADE COMMISSION, Petitioner,v.FLOTILL PRODUCTS, INC., eta l. Number 20. Argued Oct. 16, 1967. Decided Dec. 4, Howard E. Shapiro, Washington, D.C., for petitioner. William Simon, respondents. Mr. Justice BRENNAN delivered the opinion of Court. 1 The question in this case is whether an enforceable cease-and-desist order Federal Trade Commission requires concurrence a majority full Commission, or only quorum that participated decision to issue order. 2 has five Commissioners, 15 Code KF62 § 41.1 A heard oral argument involving complaint respondent made payments lieu brokerage violation 2(c) Robinson-Patman Act and granted promotional allowances 2(d) Act. §§ 13(c) (d). Two Commissioners retired before rendered its decision. Although one vacancy was filled interim, three because new Commissioner, not having argument, declined participate. All participating concurred 2(d). However, two also 2(c). On petition review under 21(c) 45(c), three-judge panel Appeals Ninth Circuit enforced Commission's as it related but refused enforce order, judge dissenting, violation. In refusing part held 'absent statutory authority instruction contrary, members member commission must concur enter binding on behalf commission.' 358 Reporter, 2nd 224, 228.2 rehearing en banc court sustained four. F.2d, at 234. Because conflict with decisions other courts appeals, see Atlantic Refining company versus FTC, 344 599 (C.A.6th Cir.), LaPeyre 366 117 (C.A.5th we certiorari, Flotill Products, 386 1003, 87 1343, 18 431. We reverse. 3 does specify number who may constitute quorum.3 provided by rule first promulgated 1915; current version Rule 1.7.4 No challenge FTC promulgate 1.7 case; indeed, expressly disclaimed any '* * doubt validity practice conducting hearings less than membership,' 230. Before us review, therefore, holding which follows disclaimer: 'We say be supported FTC. too few.' Ibid. 4 rationale could act contrary.' 228. cited no affirmatively supporting proposition; simply rejected—on ground inapplicable 'a statutorily created administrative tribunal like Commission,' 229—the stated Customs Patent Frischer & Bakelite Corp., 39 247, 255, collective bodies courts, even though they exercise judicial authority, sufficient perform function body.'5 Further, rejected bare conclusion' Sixth supra, Commission. 5 Insofar Appeals' implies proposition state common-law rule, manifestly error. almost universally accepted precise converse—that is, absence contrary provision, constituted simple body empowered body.6 Where enabling statute silent question, justified adhearing rule. 6 Respondent undertake support stated. Rather concedes have argues exception allegedly recognized common law should applied agency exercising quasijudicial functions; cites statement Frischer, '(w)here are concerned, been uniformly held, so far can ascertain, clear all legally thereof shall valid judgment entered except such follow decision.' But doubtful premise there courts,7 itself recognized, seen, apply agencies quasi-judicial functions. Ibid.8 It inhibited from following unless Congress declared otherwise. Since declaration expressed Act, our task narrowed determining read implication. 7 found implicit wrote into later statutes creating agencies: when wanted authorize powers situations, did lack words do expressly. Cf. National Labor Relations Board, 29 153(b); Interstate Commerce 49 17(1) (sic); Power 16 792,' 229.9 another statute, reorganizing Maritime enacted unanimous Reorganization Plan 1961, 75 Statutes-at-Large 840; reasoning thus would equally justify inference sanctioned FTC's adherence since lacked abrogate This diversity congressional treatment problem clearly forecloses reliance upon particular choice basis says nothing matter. 8 seems view inferring within four corners itself. '(I)t difficult believe conceived five-member politically balanced make-up, permitting speak failed specifically provide legislation.' 229. stresses structural characteristics Commission—that multi-membered whose serve long, staggered terms, more whom belong same political party. fails take account fact these features federal regulatory agencies, acts, where deal how many agency, diversely. Nothing structure commands intended restrict voting requirements normally imposed adhered similarly structured agencies. 9 Respondent's final action 1961 disapproving submitted President Kennedy.10 Under plan 'authority delegate, published functions division individual hearing examiner, employee board, including respect hearing, determining, ordering, certifying, reporting otherwise acting work, business, matter *.' further 'the retain discretionary right Commissioner *' vote bring review.' 1(a), (b). purport pursuant proceeding. Nevertheless, provision assuring minority means compel expression membership. persuasive, however. provisions were most reorganization plans about time.11 As noted, acts those treat differently authorized makes highly improbable phrased procedures set forth manifest principle contends. Indeed, quite clear—both language discussions Congress—that concerned establishing procedure delegation enable respective operate efficiently.12 There little desirability judicious use delegation. proceeding originally arose fortuitous circumstances reduced available render Clearly, covered Plan. 10 inconsistency sometimes allowing quorum, cases requiring concurrence, several saying all—refutes suggestion regarded single Surely, if time specially calling unanimity voting, might expect some addressed during half century existence.13 Thus, conclusion drawn, content acquiesce long-established 11 therefore reverse insofar 'remanded proceedings determine join section findings,' remand direction proceed merits respondent's aside ordered. 12 Reversed remanded direction. 13 MARSHALL took consideration case. oldest September 26, 1914, chapter 311, 1, 38 717, amended, 41. See generally Cushman, Independent Regulatory Commissions 177—228 (1941); Henderson, (1924). had denied reconsideration filed urging, among things, invalidity ground. 1963—1965 Clearing House Reg.Rep.Transfer Binder 17,046. regard 41 remaining commissioners' vacancy' regulating quorum. contrast, 1934 Securities Exchange 78d, silent, major See, e.g., 42 2031 (Atomic Energy Commission); 1321(c) (Civil Aeronautics Board); 47 154(h) (Federal Communications 792 46 1111, amended 17(3) (Interstate 153(b) (National 50 U.S.C.App. 1217(b) (Renegotiation 1330(c) (United Tariff Commission). 'A constitutes transaction business.' 1.7, Procedures Rules Practice Regulations (1967) (now Statement Organization 32 Fed.Reg. 8442). superseded July 1967, identical wording; refer ruling date. original stated: 'Three F.T.C. 595 (Rule adopted June 17, 1915). n. 71: 'The then (or least members) Three appeals appeal Drath 99 U.S.App.D.C. 289, 239 452; Cir.); Cir.). both Fifth erroneously providing, itself, 'for panels members.' 122; 607. contained subject 795—798. present provides 1330(c). Missouri Pac. R. Kansas, 248 276, 93, 63 L.Ed. (1919); Ballin, 144 507, 36 321 (1892); Brown District Columbia, 127 579, 1314, 262 (1888); Mountain Tel. People ex rel., 68 Colo. 487, 499—500, 190 Pacific KF135 P2 513, 517—518 (1920); Martin Lemon, 26 Conn. 192 (1857); Kaiser Real Estate Comm'n, 155 715 (D.C.Mun.App.1959); Davidson State, 221 North Eastern 814 (Ind.1966); Louisville Jefferson County Planning Zoning Ogden, 307 Ky. 362, 210 South Western 771 (1948); Codman Crocker, 203 Mass. 146, 89 Northeastern N59 177, 25 L.R.A.,N.S., (1909); Oakland Board Conservation Dev., 98 N.J.L. 806, 122 126 534 (1923); Hill Ponder, N.C. 58, 62, 5, (1942); Slavens State Bd. Examiners, 166 Ohio St. 285, 141 887 (1957); rel. Green Edmondson, 23 85 (Common Pleas 912); Bray Barry, 91 R.I. 34, 41—42, 160 577, 581 (1960); C. Olsen Tax 109 Utah 563, 570—571, 168 324, 328 (1946); 80 Harv.L.Rev. 1589—1590 (1967); N.Y.U.L.Rev. 135, 136—138 (1967). Snider Rinehart, 18, 23—24, 31 716, 718 Constitution, Jefferson's Manual Representatives, H.R.Doc. 529, 89th Cong., Sess., 52—57, 409, 508—510. authorities fail so. Four dealt divided vote. Madlem's Appeal, 103 Pa. 584 (1883); Putnam Rees, 21 (1843); Northern Concord Co., N.H. (1870); Ayres Bensley, Rptr. California (West’s) 632 (1867). Another, addition dealing court, involved constitutional judges sitting. Mugge Tate, Jones 51 Fla. Southern S69 603 (1906). others likewise point. Deglow Kruse, 57 434, 477 (1898) (two concur); Denver R.G.R. Burchard. 35 539, 558, 86 749, 755 (1906) (constitutional requirement seven concur). whole court's discussion point, Johnson Brannon, Ga. 271 (1846), '(t)he law, organizing Inferior Court, justices court. hold necessary their action.' Id., 274. holding. addition, Paine Foster, Okl. 213, 53 1896), 257, 59 252 (1899). Its was, however, predicated five-judge lower judgment. 259, 260, 60 24 (dissenting opinion). prescribed six Justices 28 1. has, latter concerning 46(d); Claims, 175(f) (1964 ed., Supp. II); Appeals, 215. Accord, Lemon; Comm'n; Ogden; Dev.; Examiners; Barry; 6. fact, ICC NLRB express through quorum; FPC stipulates commissioners equivalent Appeals. Atomic 2031, Renegotiation 1217(b), hand Like Civil 1321(c), 154(h), 792, 1330(c), subject. These nonetheless CAB, FCC, SEC, judicially approved. Braniff Airways, Incorporated 399, 406, 379 453, 460 (dictum); WIBC, 104 126, 128, 259 941, 943 Gearhart Otis, 121 186, 189, 348 798, 801 supra (Tariff approved supra. earliest noting apparently Luria Bros., 62 243, 646, 655, decided 1963. 1965 Forster Mfg. 361 340 (C.A.1st Geo.Wash.L.Rev. (1966); 1589 837, 133z—1 133z—15, became operative disapproved days submission President. Resolutions disapprove pass Senate. 107 Cong.Rec. 10844—10856 (House); id., 11721—11740 (Senate). 87th 1st Sess. (1961) (SEC); 2, 147 (FCC); 3, 152 (CAB); 159 (FTC); 172 (NLRB); 7, 187 (FMC). Plans Congress, 10463 (No. 2); 11003 1); 13078 5). effective. 840. nn. 10—11, true 'official' acknowledgment rendering tow-to-one come until 9. beginning periodically unfilled vacancies significant lengths time, course know about. Thus between 1918, January 1919, simultaneous vacancies; duration 1921 1922, August 1935, October 1949 1950. If, suggests, prospect split inconsistent nature indeed strange Congressmen conversant rules parliamentary governing Manual, 6, well methodology making years taken steps prevent Commission—reduced double plus abstention—from rending

Classification Label: 8