Filburn owns and operates a small farm in Montgomery County, Ohio, where he maintains a herd of dairy cattle, sells milk, raises poultry, and sells poultry and eggs. For many years he has also raised a small acreage of winter wheat sown in the fall and harvested the following July, selling a portion of the crop, feeding part to poultry and livestock on the farm, using some to make flour for home consumption, and keeping the rest for the following seeding.
In July 1940 the Secretary of Agriculture established for Filburn's 1941 crop a wheat acreage allotment of 11.1 acres and a normal yield of 20.1 bushels per acre. Filburn received notice of the allotment before planting his 1941 crop and again before harvest. He nevertheless sowed 23 acres and harvested 239 bushels from the 11.9 excess acres.
The Agricultural Adjustment Act of 1938 as amended on May 26, 1941, treated the excess as farm marketing excess subject to a penalty of 49 cents per bushel, totaling $117.11. Filburn did not pay the penalty, store the excess wheat under the Secretary's regulations, or deliver it to the Secretary. The County Agricultural Conservation Committee therefore refused him a marketing card required to protect buyers from liability for the penalty and its lien.
On May 19, 1941, the Secretary delivered a radio address to wheat farmers advocating approval of the quotas. A referendum of wheat growers was held on May 31, 1941, and 81 percent of those voting favored the marketing quota. Filburn filed a complaint in federal district court against the Secretary of Agriculture, members of the County Agricultural Conservation Committee for Montgomery County, Ohio, and a member of the State Agricultural Conservation Committee for Ohio, seeking to enjoin enforcement of the penalty against him and a declaratory judgment that the quota provisions were unconstitutional.
The district court in Filburn v. Helke, 43 F. Supp. 1017, held that the Secretary's speech invalidated the referendum, that the May 26, 1941 amendment increasing the penalty and subjecting the entire crop to a lien was retroactive and violated the Fifth Amendment, and alternatively that the equities favored Filburn. The court permanently enjoined collection of any penalty exceeding 15 cents per bushel. The defendants appealed to the Supreme Court, which granted review.
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