porter warner holding argued decided june milton klein washington petitioner townsend minneapolis respondent justice murphy delivered opinion case concerned power federal enforcement proceeding emergency price control act order restitution rents collected landlord excess permissible maximums warner holding company respondent owns eight apartment houses minneapolis minnesota containing approximately dwelling units june demanded received rents excess permitted applicable maximum rent regulations issued act administrator office price administration brought action district restrain respondent continuing exceed rent ceilings complaint later amended seek addition decree requiring respondent tender persons entitled thereto refund amounts collected defendant tenants rent use occupancy housing accommodations excess maximum rents established said regulation provided however defendant shall required make tender person commenced action defendant section emergency price control act alleging collection defendant rent excess maximum rents established said regulation district enjoined respondent continuing collect rents excess legal maximums declined order restitution bowles warner holding eighth circuit appeals affirmed judgment courts held jurisdiction statute order restitution granted certiorari result conflict reached sixth circuit appeals bowles skaggs obvious importance issue administration enforcement emergency price control act proceeding instituted administrator act provides judgment administrator person engaged engage acts practices constitute constitute violation provision section act may make application appropriate order enjoining acts practices order enforcing compliance provision upon showing administrator person engaged engage acts practices permanent temporary injunction restraining order order shall granted without bond thus administrator invoked jurisdiction district enjoin acts practices made illegal act enforce compliance act jurisdiction equitable one unless otherwise provided statute inherent equitable powers district available proper complete exercise jurisdiction since public interest involved proceeding nature equitable powers assume even broader flexible character private controversy stake virginian ry system federation power thereby resident district exercising jurisdiction equity mould decree necessities particular case hecht bowles may act adjust reconcile competing claims accord full justice real parties interest necessary persons originally connected litigation may brought rights subject matter may determined enforced addition may go beyond matters immediately underlying equitable jurisdiction decide whatever issues give whatever relief may necessary circumstances way equity complete rather truncated justice camp boyd moreover comprehensiveness equitable jurisdiction denied limited absence clear valid legislative command unless statute many words necessary inescapable inference restricts jurisdiction equity full scope jurisdiction recognized applied great principles equity securing complete justice yielded light inferences doubtful construction brown swann pet see also hecht bowles supra readily apparent foregoing decree compelling one disgorge profits rents property quired violation emergency price control act may properly entered district equity jurisdiction invoked indeed language admits conclusion expressly envisages applications administrator orders enjoining violations act orders enforcing compliance act expressly authorizes district upon proper showing grant permanent temporary injunction restraining order order recognized hecht bowles supra term order contemplates remedy injunction restraining order remedy entered exercise district equitable discretion order recovery restitution illegal rents may considered proper order either two theories may considered equitable adjunct injunction decree nothing clearly part subject matter suit injunction recovery illegally acquired given rise necessity injunctive relief sure recovery obtained independent suit equity adequate legal remedy available white sparkill realty lacassagne chapuis equitable jurisdiction properly invoked injunctive purposes power decide relevant matters dispute award complete relief even though decree includes might conferred law alexander hillman may considered order appropriate necessary enforce compliance act section anticipates orders character although makes attempt catalogue infinite forms variations orders might take problem formulating orders left judicial process adapting appropriate equitable remedies specific situations cf phelps dodge national labor relations board framing remedies courts must act primarily effectuate policy emergency price control act protect public interest giving necessary respect private interests involved inherent equitable jurisdiction thus called play clearly authorizes discretion decree restitution excessive charges order give effect policy congress clark smith pet unreasonable conclude restitution order appropriate necessary enforce compliance act give effect purposes future compliance may definitely assured one compelled restore one illegal gains statutory policy eventing inflation plainly advanced prices rents collected past reduced legal maximums legislative background confirms conclusion traditional equity powers remain unimpaired proceeding section order restitution may made senate committee banking currency reporting upon bill became emergency price control act stated regard common substantially regulatory statutes bill authorizes official charged duty administering act apply appropriate state federal order enjoining person engaged engage acts practices constitute constitute violation provision bill courts given jurisdiction issue whatever order enforce compliance proper circumstances particular case last sentence unmistakable acknowledgement courts equity free act way responsive statutory policy preventing inflation true authorizes aggrieved purchaser tenant sue damages behalf person sued within statutory period reason entitled sue administrator may institute action damages behalf extent damages might properly awarded equity exercise jurisdiction see veazie williams supersedes possibility provides exclusive remedy relative damages establishes sole means whereby individuals may assert private right damages whereby administrator behalf may seek damages ture penalties moreover giving relief acts law rather equity exception damages way conflicts jurisdiction equity courts issue whatever orders may necessary vindicate public interest compel compliance act prevent undo inflationary tendencies restitution lies within equitable jurisdiction consistent differs greatly damages penalties may awarded bowles skaggs supra administrator seeks restitution request award statutory damages purchaser tenant pay person part penalties go treasury suit administrator rather asks act public interest restoring status quo ordering return rightfully belongs purchaser tenant action within recognized power within highest tradition equity thus plainly unaffected provisions find provision act expressly impliedly precludes ordering restitution exercise equity jurisdiction situation statute created right provided special exclusive remedy thereby negativing jurisdiction might otherwise asserted babcock clearly instance equity jurisdiction lacking failure exhaust prescribed administrative remedies myers bethlehem shipbuilding rather occasion congress utilized save one aspect broad equitable jurisdiction inheres courts proposed exercise jurisdiction consistent statutory language policy legislative background public interest follows district erred declining jurisdictional reasons consider whether restitution order necessary proper circumstances present case must therefore remanded may exercise discretion belongs decide issue restitution order appear conflicting claims counterclaims tenants landlord amounts due inherent power bring interested parties settle controversies retain case matters otherwise litigated mallow hinde wheat reversed justice jackson took part consideration decision case justice rutledge dissenting emergency price control legislation congress much concerned remedies substantive prohibitions knew effectiveness latter depended altogether upon scheme enforcement accordingly original later covered matter remedies greatest detail precision provisions jurisdictional procedural general scheme confine narrowly constitution allows rights regulated persons challenge provisions act regulations time create broad powers enforcement various civil criminal sanctions yakus dissenting opinion congress take chances either respect inference construction excessive say perhaps legislation history equalled price control acts wealth detail precision completeness jurisdictional procedural remedial provisions yakus supra scheme enforcement highly integrated parts precisely tooled minutely geared legal equitable criminal sanctions included injured persons remedies dovetailed guarded overlapping given administrator sue damages penalties injured party failed time allowed enjoin tion secure order compliance temporary permanent relief cause institution criminal proceedings require licensing dealers power suspend license thus drive business powerful battery weapons call reinforcement armor provided act equal tasks enforcement conceivably arise congress ignorant remedy restitution knew give remedies wished confer need add one think give expressly think order context includes conferred put statutory scheme joint section gives overcharged person remedy damages penalty limited time thereafter exclusive right sue administrator recovers goes federal treasury overcharged person includes amount overcharge sued provisions taken together statute limitations private right recovery time goes cut government right takes place vindication public interest restitution sought inconsistent rights contemplates return unjustly taken enrichment taken right administrator seeks assert think teeth statute recovers act makes part sum says shall paid treasury whenever recovered administrator overcharged person pocket recovered mutually exclusive alternative rights recovery administrator pays tenants recovers suit paying money act says shall go treasury time suit passed right recover amounts whether administrator sue amounts behalf government foregoing penalties asked decide asked effect decide take money act says shall go treasury give persons whose right recover act cut think remedy sought inconsistent remedies expressly given statute contrary substantive rights creates think congress failed provide restitution indeed cut remedy imply restriction upon creative resources equity congress silent formulating remedies rights created courts equity free use creative resources congress explicit remedies affords especially congress given limited remedies enlarges scope remedies particularizes far remedies overcharges afforded even courts equity may grant relief disregard remedies specifically defined congress justice reed justice frankfurter join opinion footnotes stat defendant notice pending injunction proceeding completes acts sought enjoined equity may restore status quo means mandatory injunction texas northside ry porter lee report also authorizes administrator enforce compliance provisions section bill whenever judgment person engaged engage acts practices constitute constitute violation provision section making application appropriate order enjoining acts practices order enforcing compliance provision upon showing administrator person engaged engage acts practices temporary permanent injunction restraining order order granted without bond section amended stabilization extension act stat congress recognized provision damage actions affords remedy law persons damaged pay unlawfully high prices also stated action people remedy inflation written statute congress recognized practical need aid enforcement amendment whereby administrator allowed sue damages prescribed conditions said important gap present system enforcement sanctions id nowhere however indication intended whittle equitable jurisdiction recg nized preclude suit restitution see control made effective least bad price control stop inflation enables defy regulation profit expense buyers sellers unselfishly cooperate interests emergency supra section stat stat amending subsections original act adding subsection section see note section judgment administrator person engaged engage acts practices constitute constitute violation provision section act may make application appropriate order enjoining acts practices order enforcing compliance provision upon showing administrator person engaged engage acts practices permanent temporary injunction restraining roder order shall granted without bond section person willfully violates provision section act person makes statement entry false material respect document report required kept filed section section shall upon conviction thereof subject fine imprisonment two years case violation section one year cases fine imprisonment whenever administrator reason believe person liable punishment subsection may certify facts attorney general may discretion cause appropriate proceedings brought section see kraus note section original act stat administrator entitled bring suit damages penalties buyer entitled bring action see eg bowles glick lumber act subsequently amended provide set text administrator bring suit damages penalties also injured party brought action within thirty days date occurrence violation stat see note suit bar brought passage amendment fact significance since whether taken original amended form inconsistent remedy restitution sought government section person selling commodity violates regulation order price schedule prescribing maximum price maximum prices person buys commodity use consumption course trade business may within one year date occurrence violation except hereinafter provided bring action seller account overcharge action seller shall liable reasonable attorney fees costs determined plus whichever following sums greater amount three times amount overcharge overcharges upon action based discretion may determine amount less discretion may determine provided however amount shall amount overcharge overcharges whichever greater defendant proves violation regulation order price schedule question neither wilfull sic result failure take practicable precautions occurrence violation purposes section payment receipt rent housing accommodations shall deemed buying selling commodity case may word shall mean amount consideration exceeds applicable maximum price person selling commodity violates regulation order price schedule prescribing maximum price maximum prices buyer either fails institute action subsection within thirty days date occurrence violation entitled reason bring action administrator may institute action behalf within period action instituted administrator buyer shall thereafter barred bringing action violation violations action subsection either buyer administrator case may may brought competent jurisdiction judgment action damages subsection shall bar recovery subsection damages action thes ame seller account sales made purchaser prior institution action judgment rendered emphasis added