Published online by Cambridge University Press: 27 April 2009
Readers of the New York Times were not accustomed to encountering in its pages a Cabinet official picking a fight with the Supreme Court, but that is what they did on May 8, 1938. Chief Justice Charles Evans Hughes, writing for a majority of the Supreme Court, had recently ruled that Secretary of Agriculture Henry A. Wallace had used the wrong procedures to set the rates that “commission men” charged farmers for marketing cattle, pigs, and sheep at Kansas City's stockyards. It was the second time the case had come before the Court. On the previous occasion, the justices had sent the case back to the lower courts to determine whether the secretary had personally studied the factual record before issuing the rates. In fact, Wallace had given the matter “more personal attention than any previous Secretary of Agriculture had ever given to any case under the Packers and Stockyards Act or for that matter any half dozen cases,” so when the case returned to the Court, the justices had to shift their ground. Now they objected that the Department of Agriculture had not revealed its case to the commission men, leaving them with no way of addressing the government's arguments. Wallace fumed that Hughes had implied that “the present Administration” was to blame for the procedures he followed, when in fact earlier, Republican administrations had established them. Besides, the procedures had already been revised in light of the Supreme Court's first decision in the case.
1. Wallace, Henry A., letter to the editor, New York Times, 8 05 1938Google Scholar; Morgan v. United States, 304 U.S. 1 (1938) (Morgan II).
2. Press Release, “The Kansas City Commission Rate Case: A Radio Talk by Henry A Wallace,” 28 April 1938, Wallace to Hughes, 3 May 1938, box 2835, entry 17, U.S. Department of Agriculture, Record Group 16, National Archives 2 (Agriculture Records); Wallace to Sherman Minton, 9 May 1938, Congressional Record, 75th Cong., 3d sess., 1938 (Appendix), 83: 1922–23; “Address of Justice Hughes at Law Institute,” New York Times, 13 May 1938.
3. “Wallace Assails Hughes Decisions,” Washington Evening Star, 13 May 1938; “Wallace's Court Hint Is Studied,” Washington Evening Star, 19 May 1938; “The People's Defense,” newspaper clipping, 10 June 1938, box 2836, entry 17, Agriculture Records; Morgan v. United States, 304 U.S. 23 (1938).
4. Benjamin V. Cohen to Wallace, 9 May 1938, Jerome Frank to Wallace, 9 May 1938, box 2835, entry 17, Agriculture Records.
6. On these developments, see Shepherd, George B., “Fierce Compromise: The Administrative Procedure Act Emerges from New Deal Politics,” Northwestern University Law Review 90 (1996): 1582–1583, 1588–630.Google Scholar
7. Morgan II, 304 U.S. at 19.
8. The phrase is Laura Kalman's: Abe Fortas: A Biography (New Haven, 1990), 130.Google Scholar
9. Emerson, Thomas I., Young Lawyer for the New Deal: An Insider's Memoir of the Roosevelt Years (Savage, Md., 1991), 30Google Scholar; Herring, Pendleton, Public Administration and the Public Interest (1936; New York, 1967), 118–119Google Scholar; Macmahon, Arthur W. and Millett, John D., Federal Administrators (New York, 1939), 319–320Google Scholar; Kluttz, Jerry, The Federal Diary, Washington Post, 30 07 1943Google Scholar; “Transcript of the Proceedings before the Attorney General's Committee on Administrative Procedure,” 28 June 1940, 86–87 (Thomas T. Cooke), box 1, entry 385, U.S. Department of Justice, Record Group 60, National Archives 2 (Justice Records).
10. Howard D. Dozier, “Memorandum for Mr. Wilson, Department of Justice,” 12 January 1937, box 11256, entry 114AC, Justice Records; “F. O. Morgan et al v. United States et al.,” 6 June 1936, ibid.; Appellants' Brief, 85, Morgan II, 304 U.S. 1 (1938).
11. Dozier, “Memorandum for Mr. Wilson”; A. W. Miller to G. N. Dagger, 12 January 1937, box 11256, entry 114AC, Justice Records; J. R. Mohler to Dagger, 12 January 1937, ibid.; Morgan II, 304 U.S. 1 (1938); Robert H. Jackson, “Morgan v. United States,” box 258, Robert H. Jackson Papers, Manuscripts Division, Library of Congress; “F. O. Morgan et al v. United States et al.”; “Transcript of the Proceedings,” 87 (Cooke).
12. Wendell Berge to Seth Thomas, 22 June 1936, box 11254, entry 114AC, Justice Records; Berge to Harold M. Stephens, 2 November 1934, box 11255, ibid.; Morgan v. United States, 298 U.S. 468, 474 n. 1 (1936) (Morgan I).
13. Swaine, Robert T., The Cravath Firm and Its Predecessors (New York, 1948), 2:328–29, 564–67Google Scholar; “Act Could Be Construed as Too Vague a Delegation of Authority,” Washington Post, 4 May 1935; “Hughes Hushes Lawyer, Loud Against New Deal,” New York Times, 12 March 1936.
14. “Ford Retains Lawyer Who Helped Kill nra to Lead His Fight Against the Labor Board,” New York Times, 28 December 1937; “F. H. Wood Is Dead; Noted Attorney, 66,” New York Times, 29 December 1943.
15. Morgan I, 298 U.S. at 478–79, 481.
16. Id. at 478–79, 481–82.
17. Interrogatories, F. O. Morgan v. United States, n.d., box 11255, entry 114AC, Justice Records.
18. Answers to Interrogatories, F. O. Morgan v. United States, 4 March 1937, box 114AC, Justice Records; Robert H. Jackson to Mastin White, 25 February 1937, ibid.; Wallace quoted in Morgan II, 304 U.S. at 18.
19. Morgan v. United States, 23 F. Supp. 380, 382 (W.D. Mo. 1937); “Argument on Behalf of the Petitioner,” 10, 11 March 1938, Morgan II, 304 U.S. 1 (1938), box 84, Jackson Papers.
20. Morgan II, 304 U.S. at 18, 22.
21. Id. at 19.
22. Id. at 21–22.
23. Id. at 24–36.
24. “Implications of the Second Morgan Decision,” Illinois Law Review 33 (1938): 229 n. 12Google Scholar; Allen Throop to sec Commissioners, 27 April 1938, box 16, UD, entry 172, Securities and Exchange Commission, Record Group 266, National Archives 2 (sec Records); Harold J. Cohen to Office of the Solicitor General, 30 April 1938, box 11255, entry 114AC, Justice Records; “Conference of the Attorney General's Committee on Administrative Procedure,” 27 April 1940, 1 (Abe Fortas), box 4, entry 376, ibid.
25. Alsop, Joseph and Kintner, Robert, Men Around the President (New York, 1939), 52Google Scholar; “Address of Justice Hughes at Law Institute.”
26. Aristotle's Politics, trans. Jowett, Benjamin (New York, 1943), 163.Google Scholar
27. Root, Elihu, “Public Service by the Bar,” American Bar Association Reports 41 (1916): 368–369.Google Scholar
28. Robert T. Swaine to Jerome Frank, 9 May 1933, box 16, ser. 2, Jerome New Frank Papers, Yale University Library, New Haven. See also Gordon, Robert W., “Legal Thought and Legal Practice in the Age of American Enterprise, 1870–1920,” in Professions and Professional Ideologies in America, ed. Geison, Gerald L. (Chapel Hill, 1983), 101–107.Google Scholar
29. The Autobiographical Notes of Charles Evans Hughes, ed. Danelski, David J. and Tulchin, Joseph S. (Cambridge, Mass., 1973), xiii, 26Google Scholar; Pusey, Merlo J., Charles Evans Hughes (New York, 1951), 1:70–73, 79, 81–82, 116.Google Scholar
30. William R. Castle Jr., Diary, quoted in Pusey, Hughes, 2:610; Edwin McElwain, “The Business of the Supreme Court as Conducted by Chief Justice Hughes,” Harvard Law Review 63 (1949): 9; Burton J. Hendrick, “Governor Hughes,” McClure's Magazine (1908), 527.
31. “Important Work of Uncle Sam's Lawyers,” American Bar Association Journal 17 (1931): 237.Google Scholar
32. Pusey, Hughes, 1:221; William Barnes Jr. to Theodore Roosevelt, 21 August 1908, quoted in Richard L. McCormick, From Realignment to Reform: Political Change in New York State, 1893–1910 (Ithaca, 1981), 234.
33. O'Brian, John Lord, “Charles Evans Hughes as Governor,” American Bar Association Journal 27 (1941): 413Google Scholar; “The Reminiscences of John Lord O'Brian” (1952), 53–57, Columbia University Oral History Collection, Columbia University, New York (hereafter cohc).
34. C. S. Smith to Charles Evans Hughes, 9 November 1908, quoted in Autobiographical Notes, xxiii.
35. Public Service Commissions Law, 1907 N.Y. Laws 429; Croly, Herbert, The Promise of American Life (New York, 1909), 360Google Scholar; see McCormick, From Realignment to Reform, 235–37.
36. “Governor Hughes Flays John B. Stanchfield,” Elmira Daily Advertiser, 4 May 1907.
37. Hughes, Charles Evans, “Speech before the Elmira Chamber of Commerce, May 3, 1907,” in Addresses of Charles Evans Hughes, 1906–1916, 2d ed. (New York, 1916), 179–180 (emphasis added).Google Scholar
38. Charles Evans Hughes, “Some Aspects of the Development of American Law: An Address before the New York State Bar Association, January 14, 1916,” in Addresses of Charles Evans Hughes, 335–36.
39. “Find Service Boards Haven't Easy Tasks,” New York Times, 17 December 1911. On the early years of New York's public utility commission, see Wesser, Robert F., Charles Evans Hughes: Politics and Reform in New York, 1905–1910 (Ithaca, 1967), 159Google Scholar; Dearstyne, Bruce W., “Regulation in the Progressive Era: The New York Public Service Commission,” New York History 58 (1977): 331–347.Google Scholar
40. Hughes, “Speech before Elmira Chamber of Commerce,” 185.
41. icc v. Alabama Midland Ry. Co. 168 U.S. 144 (1897); icc v. Cincinnati, New Orleans & Texas Pacific Ry. Co., 167 U.S. 479 (1897).
42. See Ernst, Daniel R., “The Politics of Administrative Law: New York's Anti-Bureaucracy Clause and the O'Brian-Wagner Campaign of 1938,” Law and History Review 27 (2009).Google Scholar
43. Hughes, “Speech before the Elmira Chamber of Commerce,” 186–87.
44. Consolidated Edison Co. v. nlrb, 305 U.S. 197, 228 (1938) (Hughes, C.J.); Hughes, “Important Work of Uncle Sam's Lawyers,” 238.
45. Ohio Valley Water Co. v. Borough of Ben Avon, 253 U.S. 287 (1920); St. Joseph Stock Yards v. United States, 298 U.S. 38 (1936); Crowell v. Benson, 285 U.S. 22 (1932). For an excellent study of these doctrinal developments, see Schiller, Reuel E., “The Era of Deference: Courts, Expertise, and the Emergence of New Deal Administrative Law,” Michigan Law Review 106 (2007): 399–441.Google Scholar
46. St. Joseph's Stock Yards, 298 U.S. at 49.
47. Hughes, “Some Aspects of the Development of American Law,” 358–59; St. Joseph's Stock Yards, 298 U.S. at 73 (Brandeis, J., concurring); Morgan II, 304 U.S. at 19.
48. Hughes, “Speech before the Elmira Chamber of Commerce,” 185; Jackson, Robert H., “The Problem of the Administrative Process,” 27 06 1939, box 91, Jackson PapersGoogle Scholar; Radin, Max, “The Problems of Administrative Law,” Oregon Law Review 15 (1936): 136–137.Google Scholar
49. “Transcript of the Proceedings before the Attorney General's Committee on Administrative Procedure,” 28 June 1940, 154–55, box 1, entry 385, Justice Records (Patrick Loughran).
50. David Riesman Jr., “Certain Problems of Bureaucracy,” 20, 28 May 1938, ser. 3, box 37, Frank Papers.
51. Frankfurter, Felix, “Foreword: Courts and Administrative Law—The Experience of English Housing Legislation,” 49 (1936): 427Google Scholar; Dicey, A. V., “The Development of Administrative Law in England,” Law Quarterly Review 122 (1915): 150Google Scholar; Local Government Board v. Arlidge, [1915] A.C. 120.
52. Dicey, “Development of Administrative Law,” 151.
53. Morgan I, 298 U.S. at 482.
54. Frankfurter, Felix, “Introduction: A Symposium on Administrative Law Based upon Legal Writings, 1931–33,” Iowa Law Review 18 (1933): 130Google Scholar; Frankfurter, , “The Task of Administrative Law,” University of Pennsylvania Law Review 75 (1927): 614.Google Scholar
55. Felix Frankfurter, lecture notes on administrative law, n.d., part 3, reel 18, Felix Frankfurter Papers, Harvard Law School Library.
56. State v. Whitman, 196 Wis. 472, 220 N.W. 929 (1928); Rosenberry, Marvin B., “Administrative Law and the Constitution,” American Political Science Review 23 (1929): 32–46Google Scholar; Stone, Harlan F., “The Common Law in the United States,” Harvard Law Review 50 (1936): 17–18.Google Scholar
57. Ritchie, Donald A., James M. Landis: Dean of the Regulators (Cambridge, Mass., 1980)Google Scholar; McCraw, Thomas K., Prophets of Regulation (Cambridge, Mass., 1984), 153–209Google Scholar; Wang, Jessica, “Imagining the Administrative State: Legal Pragmatism, Securities Regulation, and New Deal Liberalism,” Journal of Policy History 17 (2005): 271–276Google Scholar. Although Landis's main antagonists were Diceyans in the American bench and bar, he also quarreled with the political scientists of the President's Committee on Administrative Management. Brand, Donald R., “The President as Chief Administrator: James Landis and the Brownlow Report,” Political Science Quarterly 123 (2008): 69–93.Google Scholar
58. Landis, James M., The Administrative Process (1938; Westport, Conn., 1974), 91, 33, 98, 147, 10–12.Google Scholar
59. Ibid., 104–5.
60. Ibid., 98–100, 105–6, 155, 144.
61. Halliday, Terence C. and Karpik, Lucien, “Politics Matter: A Comparative Theory of Lawyers in the Making of Political Liberalism,” in Lawyers and the Rise of Western Political Liberalism, ed. Halliday, Terence C. and Karpik, Lucien (Oxford, 1997), 15–64.Google Scholar
62. “Statement of John Foster Dulles before the Attorney General's Committee on Administrative Procedure,” 12 July 1940, reel 59, John Foster Dulles Papers, Princeton University Library, Princeton.
63. “Symposium on Administrative Law,” American Law School Review 9 (1939): 181.Google Scholar
64. Garey, Eugene L., “Wall Street Looks at the Securities and Exchange Commission,” in A Legal Institute on Modern Federal Administrative Law, Held at Richmond, Virginia, April 28 and 29, 1939 (Richmond, 1939), 41Google Scholar; Bell, Laird, “‘Let Me Find the Facts …,’” American Bar Association Journal 26 (1940): 553Google Scholar; “Transcript of the Proceedings,” 87 (Cooke).
65. Mason, Malcolm S., “Developments in Federal Grant Law,” Public Contract Newsletter 15 (01 1980): 6Google Scholar; Chicago, Burlington & Quincy R.R. v. Babcock, 204 U.S. 585, 598 (1907); Timberg, Sigmund, “Administrative Findings of Fact: Part Two,” Washington University Law Quarterly 27 (1942): 190–191.Google Scholar
66. Grisinger, Joanna L., “Law in Action: The Attorney General's Committee on Administrative Procedure,” Journal of Policy History 20 (2008): 377–416Google Scholar; Brazier, James Edward, “Who Controls the Administrative State? Congress and the President Adopt the Administrative Procedure Act of 1946” (Ph.D. diss., Michigan State University, 1993), 202–260Google Scholar; Shepherd, “Fierce Compromise,” 1594–98, 1632–36; Acheson, Dean, Morning and Noon: A Memoir (Boston, 1965), 161–194, 214–15.Google Scholar
67. Gellhorn, Walter and Linfield, Seymour L., “Politics and Labor Relations: An Appraisal of Criticisms of nlrb Procedure,” Columbia Law Review 39 (1939): 339–395.CrossRefGoogle Scholar
68. Attorney General's Committee on Administrative Procedure, United States Maritime Commission, Monograph no. 4 (Washington, D.C., [1940]), 30–31, 34–35Google Scholar. For Davis's authorship, see “Conference of the Attorney General's Committee on Administrative Procedure,” 22 October 1939, box 3, entry 376, Justice Records.
69. Caldwell, Louis G., “Federal Communications Commission—Comments on the Report of the Attorney General's Committee on Administrative Law,” George Washington Law Review 8 (1940): 816–817.Google Scholar
70. Attorney General's Committee on Administrative Procedure, Interstate Commerce Commission, Monograph no. 24 (Washington, D.C., n.d.), 218Google ScholarPubMed; “Transcript of Proceedings before the Attorney General's Committee on Administrative Procedure,” 11 July 1940, 33–34 (C. A. Miller), 43–45 (J. Carter Fort), box 2, entry 385, Justice Records.
71. Landis, Administrative Process, 104.
72. Musolf, Lloyd D., Federal Examiners and the Conflict of Law and Administration (1953; Westport, Conn., 1979), 47–52.Google Scholar
73. Sharfman, I. L., The Interstate Commerce Commission (New York, 1937), 4: 73–74Google Scholar; agcap, Interstate Commerce Commission, 31.
74. Attorney General's Committee on Administrative Procedure, Interstate Commerce Commission, 59, 62, 29–30, 65–69, 76–78; “Transcript of Proceedings,” 43–44 (Fort).
75. Hayek, F. A., The Road to Serfdom (1944; Chicago, 1994), 80Google Scholar; Frankfurter, “Symposium on Administrative Law,” 130.
76. Attorney General's Committee on Administrative Procedure, The Federal Trade Commission, Monograph no. 6 (Washington, D.C., n.d.), 36–41Google Scholar; “Conference of the Attorney General's Committee on Administrative Procedure,” 25 November 1939, 58, box 3, 30 March 1940, 17, box 4, both in entry 376, Justice Records. On the ftc and Tennessee politics, see With All Deliberate Speed: The Life of Philip Elman: An Oral History Memoir, ed. Silber, Norman I. (Ann Arbor, 2004), 289.Google Scholar
77. Committee on Ministers' Powers Report (London, 1936), 78.Google Scholar
78. Finegold, Kenneth and Skocpol, Theda, State and Party in America's New Deal (Madison, 1995), 49–50Google Scholar; agcap, Interstate Commerce Commission, 59.
79. William O. Douglas, “Administrative Government,” 26 October 1938, in “Speeches of Securities and Exchange Commission Officials,” comp. Arthur Dean (Cornell University Library shelf mark, KF1444.A75.U58).
80. “Conference of the Attorney General's Committee on Administrative Procedure,” 25 November 1939, 50, box 3, entry 376, Justice Records; Ewin L. Davis to Walter Gellhorn, 27 January 1940, box 7, ibid.
81. C. Edward Leasure to Walter Gellhorn, 18 April 1940; L. C. Nelson to Kenneth C. Davis, 6, 14 December 1939; “Federal Communications Commission”; “George O. Pratt (Chief Trial Examiner),” 21 March 1940; William S. Youngman Jr. to Ralph S. Boyd, 30 September 1940; “Memorandum to Mr. Boyd re Trial Examiners at the Bituminous Coal Division,” 30 August 1940; “Securities and Exchange Commission: Trial Examiners,” 25 September 1940; all in box 7, entry 376, Justice Records.
82. “Federal Communications Commission,” box 7, entry 376, Justice Records; “Memorandum to Mr. Boyd”; Landis, Administrative Process, 62; The Making of the New Deal: The Insiders Speak, ed. Louchheim, Katie (Cambridge, Mass., 1983), 145 (Francis Thornton Greene).Google Scholar
83. Davis, Kenneth Culp, “Institutional Administrative Decisions,” Columbia Law Review 48 (1948): 192–195.CrossRefGoogle Scholar
84. On 22 May 1936, the sec directed that “in the future all trial examiners' reports shall be prepared by the officer designated by the Commission to conduct the proceedings without aid from, or consultation with, Commission counsel.” But Chester Lane recalled that during his tenure there (which started in 1935), trial examiners not infrequently called in the commission's lawyer after a hearing and said, “‘I can't wade my way through this. Give me some advice as to how it ought to be decided. Possibly on some of the difficult points give me a draft opinion.’” “Commission Regulations and Instructions to the Staff: Not Printed and Not Generally Circulated,” n.d., box 16, UD, entry 172, sec Records; “The Reminiscences of Chester T. Lane,” 360 (1951), cohc.
85. Bernard Meltzer, interview by Kurt Hohenstein, 25 September 2005, http://www.sechistorical.org/collection/oralHistories/interviews/meltzer/MeltzerBernard09242005 Transcript.pdf, accessed 21 May 2008; Kalman, Fortas, 69.
86. Harry Shulman to Dean G. Acheson, 7 March 1941, box 3, Dean Acheson Papers, Harry S Truman Library, Independence, Mo.; “Administrative Procedure in Government Agencies,” Senate Doc. No. 8, 77th Cong., 1st sess., 1941, 43–60.
87. “Conference of the Attorney General's Committee on Administrative Procedure,” 16 March 1939, 32, box 3, entry 376, Justice Records.
88. Ballard, Ernest S. and Madden, J. Warren, “Law Administration by Commissions,”in University of Chicago Law School, Conferences on Public Law(Chicago,1939), 1, 2Google Scholar; John J. Burns to Dean G. Acheson, 16 April, 11 June 1940, box 2, Acheson Papers.
89. Rueschemeyer, Dietrich, “Comparing Legal Professions Cross-Nationally: From A Professions-Centered to a State-Centered Approach,” American Bar Foundation Research Journal (1986): 415–446.Google Scholar
90. Conference of the Attorney General's Committee on Administrative Procedure, 27 April 1940, 6, 8, 11, 17 (Fortas).
91. For sec lawyers' willingness “to help [private practitioners] solve their problems in a legal way,” see interview, Meltzer and Freeman, Milton V., “A Private Practitioner's View of the Development of the Securities and Exchange Commission,” George Washington Law Review 28 (1959–1960): 20–22.Google Scholar
92. Halliday and Karpik, “Politics Matter”; Abel, Richard L., American Lawyers (New York, 1989), 12Google Scholar; Abel, “Lawyers for Liberalism: Axiom, Oxymoron, or Accident?” Books-on-Law, http://jurist.law.pitt.edu/lawbooks/revnov98.htm, accessed 21 May 2008.
93. Report of the Special Committee on Administrative Law, American Bar Association Reports 63 (1938): 342–346Google Scholar. On Pound and his report, see Shepherd, “Fierce Compromise,” 1590–93.
94. Hurst, James Willard, The Growth of American Law: The Law Makers (Boston, 1950), 399–400.Google Scholar