Document: 339 U.S. 142 70 S.Ct. 530 94 L.Ed. 721 RAILWAY LABOR EXECUTIVES' ASS'Nv.UNITED STATES et al. No. 337. Argued and Submitted Feb. 14, 1950. Decided March 27, Rehearing Denied May 1, See 950, 800. Mr. Edward J. Hickey, Jr., Washington, D.C., for appellant. Daniel W. Knowlton, appellee Interstate Commerce Commission. S. Macgill, the appellees Railroad Intervenors. Messrs. Philip B. Perlman, Sol. Gen., Herbert A. Bergson, Robert L. Stern, Richard E. Guggenheim, appellee, The United States. Justice BURTON delivered opinion of Court. 1 We are called upon to decide whether Commission, in approving a consolidation railroad facilities under § 5(2)(f) Act,1 has power extend period protection interests employees beyond four years from effective date order. For reasons hereafter stated, we hold that Commission power. 2 In 1947, City New Orleans, Louisiana, several common carriers by railroad, all herein, filed with joint application authority construct, acquire jointly own or use certain lines as well abandon other operations, incidents construction passenger terminal at Orleans. Railway Labor Executives' Association, appellant intervened representative railroads. Division 4 entered report order, 17, 1948, authorizing transactions. Orleans Union Passenger Terminal Case, 267 I.C.C. 763, see Oklahoma R. Co. Trustees Abandonment, 257 177, 197—201. 3 order required proposed commence December 31, 1948 (later extended 1949), be completed 1953 1954). It contained detailed provisions compensatory affected consolidation, but such was end 1952. disclosed many would not displaced until completion project that, therefore, they receive no protection.2 After unsuccessfully seeking reconsideration modification full sued States, 28 U.S.C. 2322, U.S.C.A. District Court Columbia, asking court set aside part Commission's which limited years. railroads intervened, answers were and, facts being dispute, parties sought summary judgment. case heard three-judge Court, §§ 1336, 2325 2284, 2325, granted defendants' motions judgment dismissed complaint. D.C.Cir., 84 F.Supp. 178. is here on direct appeal. 1253 2101(b), 1253, 2101(b). 5 Section Act provides: 6 'As condition its approval, this paragraph (2), any transaction involving carrier subject part, shall require fair equitable arrangement protect affected. approval include terms conditions providing during will result worse position respect their employment, except afforded employee pursuant sentence continue longer period, following than employ prior Notwithstanding Act, an agreement pertaining said may into duly authorized representatives employees.' 54 Stat. 906—907, 49 5(2)(f), 5(2)(f). 7 States3 contend first requires consolidation. They also second prescribes minimum does restrict power, sentence, prescribe further if deemed necessary make employees. hand, argues sets inflexible standard sentence. concludes, case, it only prevent employment maximum project.4 8 Before Transportation 1940 brought there statutory provision specifically requiring consolidations facilities. precursor 5(4)(b), amended Emergency 1933. That section approve 'upon * found just reasonable.'5 There was, however, widespread awareness industry economies gained abandonments could realized expense labor. recognized Washington Job Protective Agreement 1936.6 This collective bargaining contract approved about 85% 20 21 brotherhoods. schedule substantial financial benefits recommended adversely so-called 'coordinations.'7 9 5(4)(b) both effect when, 1939, held had comparable those Agreement. States v. Lowden, 308 225, 60 248, 208. requirement, protective five sustained. Thus, time enactment already determine reasonable consolidations.8 10 legislative history shows one principal purposes provide mandatory consolidations. 1938, President appointed Committee Sex consider transportation problem recommend legislation.9 composed equally management endorsed amending so following: 11 'After details have been determined involved, should embodied addressed Board. passing application, Board governed considerations: 12 '(d) examine probable results require, prerequisite employees.'10 13 30, Senators Wheeler Truman introduced 2009, which, 49(3)(c), substantially above language: 14 'The section, affected.'11 15 meantime, House Representatives considered bill, H.R. 4862, Representative Lea. Extended hearings held. On issue before us, bill same language did Senate bill. required, 'a affected.'12 When 2009 reached House, charge struck out everything after enacting clause, substituted text passage. it, question took form amendment Act. 16 If provision, later became now stood alone then, unquestionably grant least much relief 5(4)(b). crucial inserted soon thereafter, amounts additional labor, limitation discretion vested 17 singificant own. floor Harrington suggested proviso follow sentence: 18 'Provided, unemployment displacement carriers, impairment existing rights employees.'13 19 Amendment thus new problem. Until appeared, need consolidations, together recognition fairly equitably protected. amendment, threatened related. With went conference.14 came relating eliminated. recommitted conference instructions insert modified Amendment. merely original arrangements consolidations.15 material. reported final enacted law. retained language.16 included change proposal. approval. provided each exceed length employee's clause emphasized separability 'the *' prescribed. (Mephasis supplied. 145, 531, supra, clause.) 22 gave scope made workable putting limit otherwise prohibitory effect. restriction find, applies alone. As limited, adds guaranty employees, without restricting greater arrangement. serves purpose increase, rather decrease, paragraph. 23 Under instant through early elimination grade crossings up 1952, none. long notice 1954, displaced. But 'protection' against adverse effects available them Neither discrimination nor insubstantial consistent provision. 24 interpretation statute, although entitled weight, persuasive. Its present view harmony broad supra. inconsistent given 1(18, 20) abandonments. Executives Ass'n, 315 373, 62 717, 86 904. decisions relied here, cases transactions felt expiration approval.17 example, Chicago, M., St. P. & P.R. Construction, 292, principally originally 1943, 1944, April 26, 1942, expire 1946. eliminate here. 25 conclude, while observe affected, cnfined four-year maximum. 26 reversed remanded directions remand proceedings conformity opinion. ordered. 27 Reversed directions. JACKSON dissents ground resort vary statute justified case. 29 Chief VINSON DOUGLAS consideration decision 30 FRANKFURTER, whom REED joins, dissenting. 31 sole us proper September 18, 1940, 899, 906 907. agreed below, Department joined urging court. I do think arguments Government urged below adequately answered, therefore yield them. cannot better state Government's 32 contains clear precise Had Congress intended run when goes or, argued plaintiff, words easily used Congress. Nor give applying terminology therein provided. To different contrary specific requirement imposed statute. 33 'Congress deliberately fixed start 34 'In light unambiguous 5(2) (f), since over years, herein disturbed.' 35 affirm total number probably estimated 1,022, operate maintain union 680. agreement, far feasible manager recruit personnel supervisory separate stations abandoned terminal. estimates indicate net 350 bridge tenders 108 crossing watchmen employed tracks retired train yard movements reduced; expressed eventually 300.' 777—778. Although supported brief supporting record definitely applicant's proposals, appropriate benefit necessarily must exercise authorizations granted. contemplated measured specification our within 5(2). decided 292), period.' 782. '* hearing finds modifications find reasonable, promote public interest, enter reasonable.' 48 217. published Hearings Foreign 2531, 76th Cong., 1st Sess. 231—241 (1939). George M. Harrison, substance proposals law, might able where appropriate. Those dating taking 'coordination.' applied particular employee, stated coordination 'means coordination.' Id. p. 232. prescribed rates compensation deprived continued service former positions, move places residence, etc. related individual periods lengths service. some instances, coordination. consume, $290,000 $500,000 savings Shortly decision, approved, still pending become approval: 'We action emphasis policy practice making instead discretionary, earlier act.' Id., page 239, 255. also, 379, 721, Letter 23, transmitting him 20, legislation. 1310, 2016, 1869 3—5 Doc. 583, 75th 3d (1938), Three purpose. 275 And testimony Harrison pp. 216—217. vesting Board, substituted. derived recommendation Six, member Committee, throws meaning. He said: Six undertake lay down specific, accorded labor prescribing undoubtedly what seems generally practice; represented exists between employees' unions. provides protections.' (1938). Rep. 1217, (1939), 184, 193—194, 214, 260 Cong.Rec.Pt. 9, 9882 proposal precedent. 1933, 211, temporary 1934 finally 1936. Among these 7(b). his job reason taken conferred independent basis, coexisted permanent amendments then including While conference, Legislative sent communication condemning principle upholding sufficiency 5(2)(f): (Harrington) proviso, object unifications save expense, usually saving Employees who should, unifications, protected plan 'Washington agreement' 1936 managements organizations. prohibiting too far, more harm good Report Omnibus Legislation, 67 (76th Sess., Print), transmitted January 29, 1940. '(f) merger, purchase, lease, operating contract, acquisition control, combination mentioned substitution another means rail abandoned, 6, 5886 (1940). 2832, 68—69 (1940), remarks Lea, Chairman Conferees, 10178 Wolverton 10189. powers left 20), possible application. follows: '(18) portion line operation thereof, unless obtained commission certificate future convenience necessity permit abandonment. '(20) attach issuance require. 41 477 478, 1(18) (20), 20). authority, sound discretion, needed narrow 1(20) Chicago G.W.R. Trackage, 207 315, 322. Both Columbia narrower applicable 208, held, nevertheless, restrictive seeks apply prohibited distinction peculiarly discriminatory includes Q.R. 700; 292; 196 202; Texas Operation, 247 285, 295, 296.

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