eastern conf noerr motors argued decided february group trucking companies trade association sued clayton act treble damages injunctive relief group railroads railroad association public relations firm charging defendants conspired restrain trade monopolize freight business violation sherman act alleged inter alia railroads engaged public relations firm conduct publicity campaign truckers designed foster adoption retention laws law enforcement practices destructive trucking business create atmosphere distaste truckers among general public impair relationships existing truckers customers trial district entered judgment awarding damages plaintiffs enjoining practices complained held judgment reversed pp violation sherman act predicated upon mere attempts influence passage enforcement laws pp sherman act prohibit two persons associating together attempt persuade legislature executive take particular action respect law produce restraint monopoly apply activities railroads least insofar activities comprised mere solicitation governmental action respect passage enforcement laws pp least insofar railroads campaign directed toward obtaining governmental action made violative sherman act anticompetitive purpose may purpose destroy truckers competitors freight business pp railroads campaign made violative sherman act use technique whereby propaganda actually circulated party interest given appearance spontaneously expressed views independent persons civic groups pp different conclusion required finding district railroads campaign intended fact injure truckers relationships public customers pp philip price hugh cox argued cause petitioners briefs brewster rhoads gerald dwyer arthur littleton henry drinker charles biddle harry sprogell lewis stevens pomeroy paul maloney carl glock sturgis ingersoll powell pierpoint cornelius harold kohn argued cause respondents brief aaron fine justice black delivered opinion american railroads always largely depended upon income transportation heavy freight economic survival early years existence virtually competition aspect business early growth trucking industry country began bring changes situation truckers found railroads learned earlier profitable part transportation business long hauling heavy freight trucking industry became powerful competition railroads business became increasingly intense period following conclusion world war ii least railroads competing groups came view struggle one economic life death method transportation present litigation outgrowth one part struggle case commenced complaint filed district pennsylvania behalf pennsylvania truck operators trade association pennsylvania motor truck association complaint named defendants eastern railroads association presidents railroads known eastern railroad presidents conference public relations firm carl byoir associates charged defendants conspired restrain trade monopolize freight business violation sherman act gist conspiracy alleged railroads engaged byoir conduct publicity campaign truckers designed foster adoption retention laws law enforcement practices destructive trucking business create atmosphere distaste truckers among general public impair relationships existing truckers customers campaign conducted described complaint vicious corrupt fraudulent first sole motivation behind desire part railroads injure truckers eventually destroy competitors freight business secondly defendants utilized technique publicity matter circulated campaign made appear spontaneously expressed views independent persons civic groups fact largely prepared produced byoir paid railroads complaint went supplement less general allegations specific charges particular instances railroads attempted influence legislation means publicity campaign one several charges defendants succeeded persuading governor pennsylvania veto measure known fair truck bill permitted truckers carry heavier loads pennsylvania roads prayer complaint treble damages clayton act injunction restraining defendants acts pursuance conspiracy insofar prayer damages concerned stipulation entered damages suffered individual truck operators loss business resulted veto fair truck bill governor pennsylvania accordingly claim damages limited amount based upon loss profits result veto plus expenses incurred truckers trade association purpose combating railroads publicity campaign prayer injunctive relief much broader however asking defendants restrained disseminating disparaging information truckers without disclosing railroad participation attempting exert pressure upon legislature governor pennsylvania medium front organizations paying private public organizations propagate arguments railroads truckers business act thing objects purposes conspiracy answer complaint railroads admitted conducted publicity campaign designed influence passage state laws relating truck weight limits tax rates heavy trucks encourage rigid enforcement state laws penalizing trucks overweight loads traffic violations denied campaign motivated either desire destroy trucking business competitor interfere relationships truckers customers rather insisted campaign conducted furtherance rights inform public legislatures several truth regard enormous damage done roads operators heavy especially overweight trucks regard repeated deliberate violations law limiting weight speed big trucks regard failure pay fair share cost constructing maintaining repairing roads regard driving hazards create campaign defendants maintained constitute violation sherman act presumably act properly interpreted apply either restraints trade monopolizations result passage enforcement laws efforts individuals bring passage enforcement laws subsequently defendants broadened scope litigation filing counterclaim charged truckers violated sherman act conspiring destroy railroads competition freight business monopolize business heavy trucks means conspiracy alleged counterclaim much truckers charged railroads original complaint including allegations conduct malicious publicity campaign designed destroy railroads business law create atmosphere hostile railroads among general public interfere relationships existing railroads customers prayer relief counterclaim like truckers original complaint treble damages injunction restraining continuance allegedly unlawful practices reply counterclaim truckers denied allegations charged violation sherman act addition interposed number affirmative defenses none relevant posture case went trial hearings trial entered judgment based upon extensive findings fact conclusions law railroads publicity campaign violated sherman act truckers reaching conclusion trial expressly disclaimed purpose condemn illegal mere efforts part railroads influence passage new legislation enforcement existing law instead rested judgment upon findings first railroads publicity campaign insofar actually directed lawmaking law enforcement authorities malicious fraudulent malicious purpose destroy truckers competitors fraudulent predicated upon deceiving authorities use technique secondly railroads campaign also important overriding purpose destruction truckers goodwill among general public truckers existing customers thus injured truckers ways unrelated passage enforcement law line theory restraints trade monopolizations resulting valid laws actionable sherman act however trial awarded nominal damages individual truckers holding damages recoverable loss business due veto pennsylvania fair truck bill judgment however award substantial damages truckers trade association well broad injunction asked complaint conclusion truckers publicity campaign violated sherman act reached despite findings truckers also engaged publicity campaign designed influence legislation charged counterclaim despite findings truckers utilized technique campaign resting largely upon fact efforts truckers directed least part trying get legislation passed beneficial rather harmful railroads trial found truckers campaign purely defensive purpose concluded truckers campaign differed railroads truckers trying destroy competitor accordingly held truckers campaign though technically restraint trade well within rule reason governs interpretation sherman act consequently dismissed counterclaim railroads appealed judgment conclusion violated sherman act charged original complaint conclusion truckers violated act charged counterclaim appeals third circuit one judge dissenting part upheld judgment district every respect stating findings amply support judgment sufficient evidence support findings followed petition certiorari filed behalf railroads byoir limited question correctness judgment insofar held violated sherman act case presents new unusual application sherman act involves severe restrictions upon rights railroads others seek passage defeat legislation deemed desirable granted petition accept starting point consideration case basic construction sherman act adopted courts violation act predicated upon mere attempts influence passage enforcement laws recognized least since landmark decision standard oil sherman act forbids trade restraints monopolizations created attempted acts individuals combinations individuals corporations accordingly held restraint upon trade monopolization result valid governmental action opposed private action violation act made decisions rest upon fact form government question whether law kind pass passed enforced responsibility appropriate legislative executive branch government long law violate provision constitution think equally clear sherman act prohibit two persons associating together attempt persuade legislature executive take particular action respect law produce restraint monopoly although associations perhaps process expansive construction brought within general proscription combination restraint trade bear little resemblance combinations normally held violative sherman act combinations ordinarily characterized express implied agreement understanding participants jointly give trade freedom help one another take away trade freedom others use devices agreements boycotts agreements similar arrangements essential dissimilarity agreement jointly seek legislation law enforcement agreements traditionally condemned act even conclusive question applicability act constitute warning treating defendants conduct though amounted trade restraint think question conclusively settled application act factor essential dissimilarity considered along difficulties presented holding sherman act forbids associations purpose influencing passage enforcement laws first place holding substantially impair power government take actions legislature executive operate restrain trade representative democracy branches government act behalf people large extent whole concept representation depends upon ability people make wishes known representatives hold government retains power act representative capacity yet hold time people freely inform government wishes impute sherman act purpose regulate business activity political activity purpose basis whatever legislative history act secondly least equal significance construction sherman act raise important constitutional questions right petition one freedoms protected bill rights course lightly impute congress intent invade freedoms indeed imputation particularly unjustified case view countervailing considerations enumerated reasons think clear sherman act apply activities railroads least insofar activities comprised mere solicitation governmental action respect passage enforcement laws thus called upon consider whether courts correct holding notwithstanding principle act violated presence railroads publicity campaign additional factors sufficient take case area principle controlling first factor relied upon fact established finding district railroads sole purpose seeking influence passage enforcement laws destroy truckers competitors freight business see fact even adequately supported record transform conduct otherwise lawful violation sherman act considerations led us conclusion act apply mere group solicitation governmental action equally applicable spite addition factor right people inform representatives government desires respect passage enforcement laws properly made depend upon intent neither unusual illegal people seek action laws hope may bring advantage disadvantage competitors expressly recognized fact opinion rock royal said ulterior motives corporate aggrandizement stimulated activities efforts thereby rendered unlawful act order otherwise valid fact effect give cooperatives monopoly market violate sherman act indeed quite probably people hope personal advantage provide much information upon governments must act construction sherman act disqualify people taking public position matters financially interested thus deprive government valuable source information time deprive people right petition instances right may importance reject construction act hold least insofar railroads campaign directed toward obtaining governmental action legality affected anticompetitive purpose may second factor relied upon courts justify application sherman act railroads publicity campaign use campaign technique theory factor related proscriptions sherman act though entirely clear opinions apparently involved unethical business conduct part railroads pointed technique aptly characterized district involving deception public manufacture bogus sources reference distortion public sources information depends upon giving propaganda actually circulated party interest appearance spontaneous declarations independent groups certainly agree courts technique though widespread use among practitioners art public relations one falls far short ethical standards generally approved country follow however use technique publicity campaign designed influence governmental action constitutes violation sherman act insofar act sets code ethics code condemns trade restraints political activity already pointed publicity campaign influence governmental action falls clearly category political activity proscriptions act tailored business world appropriate application political arena congress traditionally exercised extreme caution legislating respect problems relating conduct political activities caution reflected decisions interpreting legislation caution go naught permitted extension sherman act regulate activities nature simply activities commercial impact involve conduct termed unethical moreover think courts recognized fact extent disposition case inconsistent position use technique alone constitute violation sherman act much apparent fact railroads counterclaim truckers allowed since undisputed truckers guilty railroads use technique factor sense controlling holding railroads rather appears relied upon primarily indication vicious nature campaign truckers whatever purpose come conclusion reliance lower courts upon factor misplaced railroads use technique far sherman act concerned legally irrelevant addition foregoing factors relate intent methods railroads seeking governmental action courts rested holding sherman act violated upon finding purpose railroads merely attempt obtain legislation purpose intent hurt truckers every way possible even though secured legislation emphasis original specifically district found purpose railroads destroy goodwill truckers among public generally among truckers customers particularly hope competitive position truckers weakened railroads successful efforts extent injury actually inflicted apparent effect findings take case category involve restraints governmental action thus render inapplicable principles announced effect apparent stand close scrutiny specific findings railroads attempted directly persuade anyone deal truckers moreover evidence record oral documentary deals railroads efforts influence passage enforcement laws circulars speeches newspaper articles editorials magazine articles memoranda documents discuss one way another railroads charges heavy trucks injure roads violate laws create traffic hazards urge truckers forced pay fair share costs rebuilding roads compelled obey laws limits placed upon weight loads permitted carry light findings district railroads campaign intended fact injure truckers relationships public customers mean truckers sustained direct injury incidental effect railroads campaign influence governmental action railroads hopeful might happen thus issue presented lower courts conclusion violation sherman act basis injury different issue presented factors already discussed inevitable whenever attempt made influence legislation campaign publicity incidental effect campaign may infliction direct injury upon interests party campaign directed seems equally inevitable conducting campaign aware possibly even pleased prospect injury hold knowing infliction injury renders campaign illegal thus tantamount outlawing campaigns already discussed reasons led us conclusion done anything sherman act may situations publicity campaign ostensibly directed toward influencing governmental action mere sham cover actually nothing attempt interfere directly business relationships competitor application sherman act justified certainly case one denies railroads making genuine effort influence legislation law enforcement practices indeed version facts set forth truckers complaint fully credited courts effort genuine also highly successful circumstances conclude attempt interfere business relationships manner proscribed sherman act involved case rejecting grounds relied upon courts justify application sherman act campaign railroads rejected grounds upon courts relied distinguish campaign conducted truckers restored appears true nature case fight two industries seeking control profitable source income inherent fights commonplace halls legislative bodies possibility many instances even probability one group get hurt arguments made particular instance group appears utilized political powers muster attempt bring passage laws help injure contest appears conducted along lines normally accepted political system except extent group deliberately deceived public public officials deception reprehensible consequence far sherman act concerned act violated either railroads truckers respective campaigns influence legislation law enforcement since railroads acquiesced dismissal counterclaim challenging appeals affirmance order petition certiorari concerned parts judgments holding railroads byoir liable violations sherman act follows said parts judgments wrong must reversed footnotes every person shall monopolize attempt monopolize combine conspire person persons monopolize part trade commerce among several foreign nations shall deemed guilty misdemeanor discussion mechanics technique purposes generally underlying use public relations firms see ross image merchants fair truck bill referred introduced pennsylvania legislature may senate bill person shall injured business property reason anything forbidden antitrust laws may sue therefor district district defendant resides found agent without respect amount controversy shall recover threefold damages sustained cost suit including reasonable attorney fee answer truckers complaint also interposed number defenses including contention activities complained constitutionally protected first amendment contention truckers barred prosecuting suit reason fact engaged conduct identical complaining regard railroads thus pari delicto view take proper construction sherman act find unnecessary consider defenses opinion district merits controversy reported supp additional opinion dealing question relief reported supp reports earlier opinions dealing preliminary motions see supp district expressly find particular part railroads publicity campaign false content rather found technique railroads take dramatic fragment truth emphasis repetition distort falsehood anything injunction even broader requested complaint effectively enjoined defendants publicity activities truckers whether technique used see trial recognize least one occasion truckers attempted encourage legislation directly harmful railroads rather beneficial thus found middle decade pmta tax manual prepared charging railroads pennsylvania pay fair share taxes compared made wide distribution legislators banks security investment houses etc trial found however action truckers also lay within rule reason truckers target strong campaign directed public purpose convincing public trucks pay fair share taxes thus making necessary truckers permitted likewise show public competitors railroads actually guilty fault charged truckers chief judge biggs dissented opinion majority appeals insofar upheld district conclusion railroads byoir violated sherman act similar reasons concurred part majority opinion upheld conclusion truckers violated act rock royal parker brown see apex hosiery leader parker brown supra unanimous conclusion language legislative history sherman act warrant invalidation state regulatory program unlawful restraint upon trade holding rejected contention program validity sherman act affected nature political support necessary implementation contention unlike rejected reasoning underlying conclusion stated succinctly chief justice stone state command commission program committee california prorate act rendered unlawful sherman act since view latter words history must taken prohibition individual state action state created machinery establishing prorate program although organization prorate zone proposed producers prorate program approved commission must also approved referendum producers state acting commission adopts program enforces penal sanctions execution governmental policy prerequisite approval program upon referendum prescribed number producers imposition upon minority force agreement combination sherman act prohibits state exercises legislative authority making regulation prescribing conditions application study record reveals evidence subsidiary findings upon conclusory finding based undisputed fact railroads seek laws arguments propaganda effect damaging competitive position truckers thus absence evidence intent independent efforts made influence legislation law enforcement nonetheless accept finding district issue view disposition case must regardless fact extent technique utilized public relations field demonstrated fact found district several public relations firms interviewed railroads finally decided hire byoir organization conduct publicity campaign included use technique outline proposed activities submitted consideration railroads see see harriss cf rumely district expressly recognized fact opinion record discloses sides used wanted use fronts propaganda technique conclusion amply supported specific findings thus found record establishes truckers wrote made personal contacts legislators support bills increasing weight trucks representatives industries write make personal contacts legislators harrisburg without disclosing trucker connections persons intentionally refrain advising legislators said officials letters contacts solicited solicited legislators statements support position news releases issued thereon petitioners leveled vigorous attack upon trial findings part attack urge basis reason finding shippers quit business truckers result railroads publicity campaign contention since theme campaign truckers unfair competitive advantage consequently charge unfairly low prices campaign encouraged rather discouraged shippers availed truckers services argument considerable appeal find unnecessary pass upon validity findings think conclusion must whether allowed stand borrow phrase dissenting opinion chief judge biggs since commencement litigation new bill increasing limits passed pennsylvania legislature become law virtue governor approval thus fight goes