The Federal Black Bass Act makes it unlawful for any person to deliver black bass or other fish for transportation from any State if such transportation is contrary to the "law of the State." Rule 14.01 of the regulations of the Florida Game & Fresh Water Fish Commission prohibits the transportation of certain fresh fish out of the State; and 372.83 of the Florida Statutes makes it a misdemeanor to violate any rule, regulation or order of the Commission. Held: Rule 14.01 of the Commission's regulations, as enforced by 372.83 of the Florida Statutes, is a "law of the State" within the meaning of the Federal Act. Pp. 213-219.
Leonard B. Sand argued the cause for the United States. With him on the brief were Solicitor General Rankin, Assistant Attorney General Olney, Beatrice Rosenberg and Joseph A. Barry.
Clarence L. Thacker argued the cause and filed a brief for appellee. [352 U.S. 212, 213]
MR. JUSTICE REED delivered the opinion of the Court.
A federal criminal information was filed by the United States against Ludenia Howard, trading as Stokes Fish Company, appellee, in the United States District Court for the Southern District of Florida, charging her with a violation of the Federal Black Bass Act of May 20, 1926, as amended, c. 346, 44 Stat. 576, 46 Stat. 845, 61 Stat. 517, 66 Stat. 736, 16 U.S.C. 851-854. The Act provides:
Florida's Game Commission was created by a 1942 constitutional amendment (Art. IV, 30, Constitution of Florida) which provides that:
The sole question presented is whether Rule 14.01 of the Commission's regulations, as enforced by 372.83 of the Florida Statutes, is a "law" of the State of Florida as that term is used in the Federal Act.
This Court has repeatedly ruled, in other circumstances, that orders of state administrative agencies are the law of the State. In Grand Trunk R. Co. v. Indiana R. Comm'n, 221 U.S. 400, 403 , the Court stated, citing Prentis v. Atlantic Coast Line Co., 211 U.S. 210, 226 :
It was suggested that the action of the court below is supported by United States v. Eaton, 144 U.S. 677 . We believe the case is inapposite. It involved the regulation of manufacturers and dealers in oleomargarine under 24 Stat. 209. Section 18 of the Act provided a criminal penalty for the knowing or willful failure "to do, or cause to be done, any of the things required by law." Section 5 required manufacturers to keep certain records. A similar requirement was imposed upon wholesalers by a regulation made by the Commissioner of Internal Revenue pursuant to 20. The defendant in the Eaton case, a [352 U.S. 212, 216] wholesaler, failed to keep the proper records, but this Court held he had not committed a crime under 18:
Appellee argues that the rules of the Florida Commission are so subject to change that they lack sufficient substance and permanence to be the "law" of Florida. We need not decide now whether a state agency could make a rule of such a temporary nature and so unaccompanied by the procedural niceties of rule making that the declaration should not be considered the law of the State for purposes of a statute such as the Black Bass Act. These considerations formed no part of the opinion below. Moreover appellee has not demonstrated that the rule here involved is of such a character.
Commission promulgation of orders is regulated by 372.021 of 14 Fla. Stat. Ann., a legislative enactment. It provides that no regulation or amendment to a regulation is effective until 30 days after the filing of a certified copy of such provisions with the secretary of state. The statute also directs that any change in the type of regulation involved here is to be filed in the office of each county judge and that changes must be published in each county in a newspaper of general circulation. 3 We are advised by the Government's brief that the Commission compiles its rules in a code book which is circulated without cost to all county judges, as is directed by statute, and also to principal sporting goods and license dealers. In fact they seem to be available to anyone requesting them from the Commission. We are also told that it is the Commission's practice to conduct public hearings to give [352 U.S. 212, 218] everyone an opportunity to air his own views on proposed changes in the rules. None of these assertions is challenged by appellee.
We recognize that not all the above-described procedures are mandatory and that whether any of them was employed with the enactment of Rule 14.01 cannot be ascertained from the record at this time. However, the fact that it is the asserted practice of the Commission to comply with them suggests a potent answer to appellee's charge of impermanence. Moreover, it is not inappropriate for us to note that transportation of some species of fish covered by this information has been prohibited in Florida since 1927. Fla. Stat. Ann., 1943, 372.29, Florida Laws, 1929, c. 13644, 35.
The State of Florida prefers to entrust the regulation of its wild life conservation program to a Game Commission. Such a preference is in accordance with the practice of 28 States that have vested full regulatory authority in commissions. Only 6 States reserve that full authority to their legislatures. Sport Fishing Institute Bulletin, No. 26, p. 60 (January 1954). Moreover, a document prepared by the Department of the Interior and submitted to us by the Government at our request shows that even in 1926, the year the Black Bass Act was first passed, significant rule-making power was entrusted to game commissions or commissioners in some 20 States. 4
That the congressional purpose was to extend the enforcement guarantees of the Black Bass Act to these regulations is the most reasonable interpretation of the Act and is an interpretation supported by the legislative history of the 1947 amendment to the Act. The amendment, [352 U.S. 212, 219] which made the provisions of the Act applicable to all game fish, was accompanied by Senate and House reports containing the following language:
[ Footnote 2 ] The Court also paid special note to the fact that subsequent to the alleged acts of Eaton, but prior to its decision, Congress amended the Oleomargarine Act to expressly require the keeping of books by wholesalers. 144 U.S., at 685 -686, 688. The Court noted this factor in Eaton when discussing the Eaton case in Caha v. United States, 152 U.S. 211, 220 .
[ Footnote 3 ] Most fishermen must secure a fishing license (they may be obtained at the office of any county judge) and a statute provides that the "license shall contain on the back thereof a synopsis of the . . . fresh water fishing laws of the state." Fla. Stat., 1955, 372.69. Whether the rule here involved is printed on appellee's license, indeed, whether appellee even has a license, is not shown by the record at this stage of the proceedings.
[ Footnote 4 ] See, e. g., Supplement to the Codes and General Laws of California, 1925-1927, Act of May 23, 1925, 3 (Act 2895); Laws of Maine, 1917, c. 219, 2; New York Laws, 1912, c. 318. [352 U.S. 212, 220]