Lead Opinion
delivered the opinion of the court:
Mеrchandise, consisting of minced razor clam meat, in cans,' packed in British Columbia, Canada, was classified by the collector at the port of Seattle, Wash., as “clams * * * packed in airtight containers” and assessed with duty at 35 per centum ad valorem under paragraph 721 (b) of the Tariff Act of 1930. The importers ’ protested said classification, claiming, inter alia, that the goods were free of duty under paragraph 1761 of said act as shellfish, prepared or preserved. This claim is the only one relied on in this court. From the judgment of the United States Customs Court, First Divisiоn, overruling the protest, importers have appealed to this court.
The two competing tariff provisions follow:
Par. 721. (b) Clams, clam juice, or either in combination with other substances packed in air-tight containers, 35 per centum ad valorem.
Par. 1761. Shrimps, lobsters, and other shellfish, fresh or frozen (whether or not packed in ice), or prepared or preserved in any manner (including pastes and sauces), and not specially provided for.
The uncontradicted testimony of the two witnesses for the importers shows that the involved merchandise consists of razor clams which, after shelling, have had the stomachs, entrails and part of the necks removed, and which have been washed, drained and put through a mincer; that this clam meat is put in cans of two sizes, referred to in the record as “half pound” and “picnic” sizes, so as to half fill' them; that the cans are then filled with a brine “partly salt and partly fresh water, ” “for seasoning and delivery,” are steamed about 5 minutes to produce a vacuum, and are sealed and cooked for a period of from 1 hour 15 minutes to 1 hour 22 minutes; that the merchandise is shipped in this condition and is ready to eat; that there is no clam juice produced or added to the product. The average size of the meat of one of the clams, after removal from the shell, is 5){ inches, the maximum length shown being 8 inches, and the weight of the same being from 2% to 5 ounces. The contents of the so-called “half pound” tins is about 5 ounces. An examination of the exhibits repre
The decision of the trial court is brief, and, for supporting authority, relies upon its decisions in Walter T. Ueland et al. v. United States, T. D. 46025,
Both sides agree that the issue is whether the merchandise is properly dutiable as “clams * * * in air-tight containers” or entitled to free entry as “other shellfish * * * prepared or preserved * * * not specially provided for.”
The importer contends, that the involved merchandise is not “clams” for the reason that it is something more than clams— processed material obtained from clams — and relies largely upon the decision of this court in United States v. Sheldon & Co., 14 Cust. Appls. 228, T. D. 41708, to support this contention. The importer argues that “The enumeration of 'clams' in the plural is an indication that whole clams, identifiable as individuals, are intended, rather than the processed material obtained from clams.”
In support of the Government’s contention that the merchandise is dutiable as assessed, three arguments are made: First, that the case of Alexander & Baldwin, Ltd. v. United States, 21 C. C. P. A. (Customs) 558, T. D. 46988, is stare decisis; second, that the legislative history of the provisions under consideration indicates that it was the intent of Congress to make the merchandise at bar dutiable as assessed; third, that paragraph 721 (b) is an eo nomine provision, and is a more specific description of the merchandise involved than is said paragraph 1761.
The imported merchandise was entered and invoiced as “minced clams.” Although cut into pieces, cleaned, and cooked, according to the testimony of the importers, it can be readily identified as parts of clams. Paragraph 721 (b) of the Tariff Act of 1930 provides for “Clams, clam juice, or either in combination with other substаnces, packed in air-tight containers.” It will be observed that this language is not restricted to clams in their raw or natural state, nor is it restricted to entire clams. It includes any clams in any condition, so long as they are clams. “Where a dutiable provision names an article without terms of lifnitation all forms of the article are thereby included unless a contrary legislative intent otherwise appears.” Smillie v. United States,
To the same effect is Schade v. United States,
It is apparent that this was the intention of the Congress in enacting this provision. We quote a portion of the report of the Ways and Means Committee of the House of Representatives, relative to H. R. 2667, now the Tariff Act of 1930. Report No. 7. 71st Cong., 1st sess., p. 74:
Special provision is made for the caviar from sturgeon roe, which is the most expensive form of cavair, and for canned clams. The latter is a new industry of interest to both coasts of the United States. On the Atlantic coast the competitiоn is from Canada and on the Pacific coast there exists a very important competition from Japan. The rates provided are intended to equalize the cost of production. (Italics ours.)
The mere mincing of the clams, or cleaning them, or cooking them, does not remove them from the designation of clams. The cases are plentiful in support of this proposition. In Neuman & Sehwiers Co. et al. v. United States,
In Mawer Co. v. United States,
the recent case of Alexander & Baldwin v. United States, 21 C. C. P. A. (Customs) 558, T. D. 46988, the contest was between paragraphs 721 (b) and 1761, as in the case now before us. While the precise question here involved was not presented there, this court did say in its opinion:
While it does not appear in the instant ease whether the combination of clams and clam juice had undergone a process of cooking, that, in our opinion, as the issue has been here presented, is not material, and we regard this case and that involved in T. D. 46025 as being quitе analogous.
The appellants also cite two cases, United States v. La Manna et al.,
Other adjudged cases on the subject will be briefly commented' upon.
Breman v. United States,
The case of United States v. Reiss & Brady,
No such facts appear here. So far as the record goes, the imported product before us is adaptable to exactly the same uses as would be whole clams.
Malouf v. United States,
The case of Kwong Yuen Shing v. United States,
In this latter case, this court again reiterated its holding “that where an article is designated without words of limitation, that designation will generally include the article in all its forms known to commerce.” To the same effect is Shoellkopf, Hartford & MacLagan v. United States,
In Smith v. United States,
It seems inconceivable that the Congress, in attempting to protect the clam industry in the United States, should intend to free list such clams if they were cut into pieces. In our opinion, no such conclusion is required. The imported goods are clams, and should be classified as such.
The judgment of the United States Customs Court is affirmed.
Dissenting Opinion
DISSENTING OPINION
I regret that I am unable to agree with the conclusion reached by the majority.
With reference to the applicability of the case of Alexander & Baldwin, Ltd. v. United States, 21 C. C. P. A. (Customs) 558, T. D. 46988, from which case the majority quotes, it is sufficient to say that there is nothing whatever in that case which wоuld suggest the correctness of the conclusion of the majority in this case. Whole clams and clam juice were there involved, and the case turned upon a question wholly distinct from the questions involved in this case.
The majority opinion does not fully nor satisfactorily describe the merchandise involved here in particulars which are probably quite important. The opinion states “Although cut into pieces, cleaned, and cooked, according to the testimony of the importers it can be readily identified as parts of clams”. The mincer nоt only cut the clams into small pieces, but in cutting and mincing the same into small pieces, a portion thereof was disintegrated to such an extent as to leave numerous, very minute, irregular-shaped particles evidently not taken into consideration by the majority. Moreover, the above statement may intend to convey the impression that from the appearance of the clam product at bar it may be said that the identity of the individual clams has not been destroyed, which is an important consideration according to certain dеcisions hereinafter referred to. Not only has the identity of the individual clams been destroyed by the mincing process, but it seems to me that it would be very difficult for anyone to determine, from a mere examination, whether the importation was even a clam product. It does have a very slight pinkish tint which is one of the characteristics of some clams. This also may be a characteristic of other shellfish meat. The juice, containing small crushed portions of the meat, is milky— so is the juice of oysters. The clam product at bar may have the flavоr or odor of a clam. Surely it is not the intent of the majority
I again quote from the majority opinion:
* * * It will be observed that this language is not restricted to clams in their raw or natural state, nor is it restricted to entire clams. It includes any clams in any condition, so long as they are clams. “Where a dutiable provision names an article without terms оf limitation all forms of the article are thereby included unless a contrary legislative intent otherwise appears. ”
Of course, to be clams, the identity of the clam in the can would have to be preserved. An examination of the decided cases on this-subject discloses that in most instances cases similar to the one at bar have turned upon the proposition as to whether or not the-identity of the prepared article had been lost.
In Neuman & Schwiers Co. et al. v. United States,
In Brown & Co. v. United States,
No decided case called to our attention involved facts precisely on all fours with the facts in the case at bar, but certain of such cases-are sufficiently identical in all respects to the instant case as to suggest, I think, the proper conclusion to be reached here.
In United States v. Sheldon & Co.,
The pistache nuts involved herein have been salted and roasted, and as they are either prepared or preserved or both, and as they in such condition are not. specially provided for elsewhere, they are therefore provided for in paragraph 759.
In United States v. La Manna, Azema & Farnan et al.,
In the case at bar, the merchandise is more than onions in one sense and less than onions in another. It is a new article of commerce made from onions which have been peeled, cut, and soaked in a pickling solution.
Probably tbe nearest case to tbe one at bar which has been called to our attention is Stone & Co. v. United States,
The majority cites United States v. General Hide & Skin Corp.,
In the opinion of the majority in the instant case we find the following, which, in my judgment, should be limited so as not to convey the-impression which it clearly does, in view of the particular merchandise-at bar:
The clear weight of the authorities on the subject is that an eo nomine statutory-designation of an article, without limitations or a shown contrary legislative intent, judicial decision, or administrative practice to the contrary, and without proof of commercial designation, will include all forms of said article * * *.
It may be said that there are pastes made by adding water to. powdered vegetable matter. Everything in such a paste, except the-water, came from the vegetable, and all the vegetable went in it, and yet we would not hold it to be dutiable as such vegetable eo nomine provided for, if there were a provision for vegetables prepared or preserved. It is true that the eo nomine provision for an article-will ordinarily include all forms of that article, if it still remains that • particular article, but if its identity has been destroyed, and if by processing it has become a new article, it of course cannot be included in the eo nomine provision.
The legislative history in this case suggests that the majority has-arrived at an erroneous conclusion. A portion of the legislative-history is referred to in the majority opinion but, in my judgment,, the most significant phase of the same has been omitted. Parties-representing the clam industry, chiefly in the Northwest, аppeared, before the Committee on Ways and Means of the House of Representatives, which prepared the provisions under consideration, and asked. for a tariff on canned clams and products thereof, and they particularly pointed out that they did not ask for any duty on other shellfish except “clams and their products”. The notes made on the committee print of the bill show that the articles provided for in paragraph 721 (b) had been taken from the free list provision (shellfish, etc.). It is obvious that the industry involved wanted to take out of the free-list shellfish provision clams and clam products. Congress did not-grant it that request but provided for clams and clam juice, and left-clam products on the free list.
Paragraph 746, Tariff Act of 1930, provides for mangoes at 15 cents per pound. Let us suppose.that mangoes have been peeled, cut up into particles, cooked and canned. Under the decision of the majority, they would be dutiable under the eo nomine provision for mangoes if anyone could tell that the product in the can was made from mangoes, notwithstanding the fact that Congress, in paragraph 752, made dutiable at 35 per centum ad valorem fruits, when prepared or preserved. The same situation would pervail as to avocado pears and possibly a great many other articles on the dutiable list.
Let us also examine the free list. We find there “bananas and plantains, green or ripe.” It is well known that plantains, which resemble bananas, are sometimes cooked while in a somewhat green state. Under the decision of the majority, the fruit plantain, if sliced, cannеd and cooked, and imported into this country, would not bear a rate of duty of 35 per centum ad valorem as fruits, prepared or preserved (and thus encourage the canning industry of this country), but would be relegated to the free fist. The free list also contains provision without limitation for brazilian or pichurim beans (par. 1635); tagua nuts (par. 1778); tamarinds (par. 1779); and locust or carib beans, and pods and seeds thereof (par. 1782). It is our fear that the holding of the majority may lead us far afield in the classifi■cation of articles which are provided for in language like that employed in the instances suggested.
The majority opinion points out the incongruity of Congress intending the merchandise at bar being free of duty if it intended to protect the clam industry. If Congress had intended to include clam products in the dutiable paragraph, it could easily have done so by the use of appropriate language, and the fact that full protection may not be given to the clam industry as suggested, should not be a •controlling consideration in this case. If the legislative history is suggestive of what Congress intended, it comes nearer suggesting thе intent to leave clam products on the free list than it does to include them under the eo nomine provision for clams. The fact that the •clam industry in this country would have no protection on its clam
Let us suppose that the tariff provision before us was as follows:
721. (b) Clams, 10 pеr centum ad valorem; * * * shellfish, prepared or preserved, not specially provided for, 35 per centum ad valorem.
Is it conceivable that under such a provision the very much processed clam product at bar would not be held dutiable as shellfish, prepared, especially in view of the legislative history above suggested?
I do not mean to suggest that it is my view that clams which have been cooked and washed and salted, without destroying the identity of the individual clams, would not be dutiable under said paragraph 721(b). On the contrary, it is my view that they would be so dutiable, but in the case at bar the processing of the clams completely ■destroyed their identity, and to bring the product before us under said paragraph we would be compelled to read into it the words “prepared or preserved” which Congress presumably intentionally omitted therefrom, but did provide for with respect to shellfish under paragraph 1761.
On account of the above considerations, I am of the opinion that the protest of the importer should have been sustained and the judgment of the trial court should be reversed.
