Document: 404 U.S. 138 92 S.Ct. 373 30 L.Ed.2d 328 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.NASH-FINCH COMPANY, dba Jack and Jill Stores. No. 70—93. Argued Oct. 19, 1971 Decided Dec. 8, 1971. Syllabus A union which had begun organizing respondent company's employees charged the company with unfair labor practices. The General Counsel of National Labor Relations Board (NLRB) issued a complaint, whiuch Trial Examiner sustained, recommending that be ordered to cease desist from such Before NLRB acted, picketed respondent's stores respondent, contending union's action violated state law, sought obtained an injunction court limiting picketing activities. Subsequently order accepting Examiner's recommendations then brought this in District Court restrain enforcement on ground it regulated conduct governed exclusively by Act. held was precluded granting relief 28 U.S.C. § 2283, prohibits federal enjoining proceedings except as authorized Act Congress 'or where necessary aid its jurisdiction, or protect effectuate judgments.' rejected contention within exception recognized Leiter Minerals, Inc. v. United States, 352 220, 77 287, 1 267, for suits States. Appeals affirmed, holding purposes is 'an administrative agency not States.' Held: 1. Since here does seek practices against complaint but based general doctrien pre-emption, 2283 matters 'necessary jurisdiction' inapplicable. Capital Service, Board, 347 501, 74 699, 98 L.Ed. 887 distinguished. P. 141—142. 2. For purpose preventing frustration Act, has implied authority obtain pre-empted Act; falls supra, fact party moving Attorney irrelevant. Bowles Willingham, 321 503, 64 641, 88 892. Pp. 142—148. 434 F.2d 971, reversed remanded. Lawrence G. Wallace, Washington, D.C., petitioner. William A. Harding, Lincoln, Neb., pro hac vice, special leave Court. Mr. Justice DOUGLAS delivered opinion Title provides: 'A States may grant stay State expressly Congress, 2 question whether may, through court, enjoin regulates peaceful agency. Court, 320 F.Supp. 858, Board's 2283,1 respects affirmed. 971. case petition writ certiorari we granted, 402 928, 91 1524, 862. 3 When began certain Grand Island, Nebraska, filed practice charges company. complaint. hearing sustained recommended desist. Shortly thereafter before stores. thereupon petitioned Nebraska injunction. restraining order, pickets two at each store, them blocking entrances exits distributing literature pertaining dispute would halt slow traffic, instigating conversations customers any manner relating dispute, mass picketing, acts physical coercion persons driving work, doing act violation Neb.Rev.Stat. 812, makes unlawful 'loitering about, patrolling place work * will person.' also bans anyone other than bona fide member unless he become defendant proceedings. Finally, bars anyone, named defendants, handbills, otherwise 'caus(ing) published broadcast information between parties.' 4 Later entered decision part rejecting parts material present controversy. 5 suit Federal seeking As noted, both denied relief. F.2d, 975. beginning restricted judiciary interfere actions. See Younger Harris, 401 37, 43—44, 746, 750, 27 669. revision earlier provisions statutes were construed allow limits injunctions favor agencies. 510, 645, Any agencies must, however, 'implied,' ibid., comes exceptions stated 2283. 6 It suggested 'in aid' jurisdiction since reason 1337 grants over 'any civil proceeding arising under regulating commerce.' In 887, employer invoked picketing. 10(l) 29 160(l), specifically allows wherever respecting secondary boycott violative 8(b) (4) 8(b)(7) involved. We ruled 'restrains asked proceding.' Id., 505, S.Ct., 702. those circumstances commerce, because exercise 'freely fully' must 'first remove decree.' 506, 703. 7 instant did file claimed 8(b)(4) 73 Stat. 542 544, 158(b)(4) 158(b)(7). 8 Section 10(j) gives similar respect 8(a)(1) protects right organize. But resort action, held, violate 8(a)(1). Clyde Taylor Co., 127 N.L.R.B. 103, 109. 9 specific activities upon doctrine pre-emption. therefore do believe narrow contained matter jurisdiction.' There no express injunctive action. remains there so. 10 long been though granted statutory remedies, appropriate traditional ones prevent re 304 486, 496, 58 1001, 1006, 82 1482, even absence remedy, might prohibition premature invocation review Appeals. amalgamated Utility Workers Consolidated Edison 309 261, 60 561, 84 738, institute contempt decrees enforcing orders Board. Nathanson 344 25, 80, 97 23, found claims bankruptcy covering sums included back-pay awards. given priority 64(a)(5) Bankruptcy 'the (was) collecting benefit private party,' id., 28, 82, suggested, post, juridical status something less States.2 11 conclude spite command power preempts field. Our starting point observation Chief Hughes Amalgamated 265, 563: 12 'The public acting interest, person group, employee group employees, chosen instrument assure protection described obstructions interstate 13 'uniform application' substantive rules avoid 'diversities conflicts likely result variety local procedures attitudes toward controversies.' Garner Teamsters Chauffeurs Helpers Local Union, 346 485, 490, 161, 166, 228. regulatory scheme (1) some activities, violence (see Mine America Gibbs, 383 715, 729—731, 86 1130, 16 218), (2) practices, (3) leaves others controlled free play economic forces. said 500, 171 14 'For impinge area combat designed quite much obstruction policy if declare methods prohibits.' 15 mineral rights lands pending, parties being persons. quiet title prosecution impliedly allowed said: statute conflict courts. This more compelling when litigation threatens draw judicial systems into seeks threatened irreparable injury national interest. superior interests ensue precluding Government obtaining severe restrictions so great cannot reasonably impute language alone.' 225—226, 290—291. 17 Leiter, General. Here moved 'irreparable interest.' sole protector 'national interest'3 defined particularity course, initiated General; underlying controversy Department Interior responsible administration lands. agency, General, considered irrelevant Administrator Emergency Price Control sued interfering An ban method suggestion States.4 unseemly courts litigants persons, hamstring use rights. can statute, issue injunctions, regulation. Brown Wright, Cir., 137 484, 488. imputed. Sunshine Mining 125 757, 762; New York 106 F. Supp. 749, 752; Industrial Commission, 593, aff'd, 172 389. 18 sections Act5 persuasive expresses bar matters. instances explicit are exclusive examples, have already shown. They only particularized devices specified orders, denial implication entitled instances, illustrated supra; supra. exclusiveness domain clear; domain, way seems clear. agencies, forum choice. them, indicates, access 'preferable context healthy federal-state relations.' U.S., 226, 291. 19 Whether should survive our reversal judgment below reach. open remand cause. 20 Reversed 21 WHITE, dissenting. 22 sues picketing.1 situations. One permits majority rightfully concedes inapplicable here. interferes admitted secure situations identified Congress. (1954), amply progress later invoked, adjudication occurring concerning Service controlling. 23 267 (1957), apply Government. identifies itself asserts it. I agree. perfectly congruent example, although back pay proceedings, enjoy accorded debts owing (1952).2 Minerals nothing treated States; nor purport modify rule Reconstruction Finance Corp. J. Menihan Corp., 312 81, 85, 61 487, 85 595 (1941), intention bestow privileges immunities clearly manifest.3 divests pre-existing applied sovereign language. 224, 290. case, deal statutorily creaed after passage possessing powers. claim residual sovereignty Workers, 330 258, 272—273, 67 677, 685 686, 884 (1947), exempt Norris-LaGuardia familiar construction, enumeration powers preclude existence powers.4 light congressional disinclination authorize anything extremely limited interferences courts, view Court's reluctance approve interference equitable 43—45, 750—751, 669 (1971); Atlantic Coast Line R. Co. Brotherhood Locomotive Engineers, 398 281, 286, 90 1739, 1742, 26 234 (1970), implicit best suspect. 24 'expressly Congress.' statute. Indeed, authorization lacking, imply power. so, ignores interpretation inconsistent LMRA. 25 amended Management 1947, specifies employers unions. provides determination bargaining units representatives. employed prohibited 8. Two aspects critical First, unqualified enforce conditions filing charge; own motion. requirement jurisdictional. Montgomery Ward & 385 760, 763 (CA8 1967); Texas Industries, 336 128, 132 (CA5 1964); Int'l Union Electrical, Radio Machine 110 U.S.App.D.C. 91, 94, 289 760 (1960); Consumers Power 113 38, 41—43 (CA6 1940); Hopwood Retinning 97, 101 (CA2 1938); Licorice 104 655, 658 1939), modified grounds, 350, 569, 799 (1940); Douds Longshoremen's Assn., 147 108 (SDNY 1956), 241 278 1957). 369, 579, (1940). roving, declaring shall organize, bargain collectively, engage concerted us, charge out filed, either employer. Yet appeared seemingly aimed protecting guaranteed 7. Second, 'appropriate temporary order' 10(j). Further, greater detail secured §§ 8(b)(4)(A), 8(b)(4)(B), (4)(C), 8(e), Sections 10(e) 10(f) define connection adjudicated Nowhere provision authorizing prior issuance rights, adjudicating care, particularly injunctions. Manifestly, aware longstanding indiscriminate disputes; 10(h) exempted 'granting making entering decree enforcing, modifying, modified, setting aside whole provided section *.' (Emphasis added.) On floor Senate, Senator Smith answered weaken Act: comment make statment very careful bill process protected exceptional cases step in. paralysis permit in, jurisdictional strike i(; approach situations.' 93 Cong.Rec. 4283. context, today's improvident. now demands absent barriers established And section, error clothe applicable rather itself, plaintiff deemed controlling, directing inquiry plain me have, affirm below. II few additional words appropriate. Even if, contrary my view, charge, able mere conclusory allegation 'arguably' Although interpreted according 'Congress federalized entire law relations,' Association Street, Electric Railway Motor Coach Employees Lockridge, 403 274, 309, 1909, 1929, 473 (1971) (White, J., dissenting), wholly displaced policy. subjected thought illegal unprotected. protests preempted NLRB. Rather allowing appeal system, necessary, ordinarily do, today short-circuit securing injunction, solely allegations arguably not, intimate what LMRA violating assert imminence side suggests could law. indicate 'superior interests' frustrated. Absent all, let alone hold hearings cease-and-desist like this. 31 Congress' swift overruling Guss Utah Bd., 353 1, 598, 601 NLRA 14(c), 541, 164(c) caution creation another 'vast no-man's land, subject regulation court.' 10, 603. enacted void strictures presuppose degree regulation: 32 (to their trespass laws invasions property) backdrop basis intact narrower restraint thereby artificially create no-law area.' Taggart Weinacker's, Inc., 397 223, 228, 876, 878, 240 (1970) (Burger, C.J., concurring) (emphasis original). 33 therefore, merely alleging 'arguably protected' rationale pre-empting applicability developed 1416 Ariadne Shipping 195, 201, 872, 875, 218 concurring); 227—228, 878 concurring). Where unwilling apparently powerless move challenged conduct, species overkill, field nothing. Of paramount arena, situation, required prove demonstrate frustration. unwarranted illogical lacuna legal labor-management relations extended. persuades actually 34 BRENNAN reasons Part dissenting WHITE. history c. H.R.Rev.No.308, 80th Cong., 1st Sess., A181. '(t)he (§ 64(a)(5), 104(a)(5)) 'to adequate revenue sustain burthens discharge debts." 27—28, 82. Because 'no function assuring revenue' beneficiaries (were) persons,' inappropriate and, instead, gave same 'treatment tha(t) wage enjoy(ed).' 29, 83. stronger equating disregards policies relied pre-emption inheres case. Cases 595, support miserly There, costs assessed corporation launched commercial world 'sue sued.' Contrary dissent's assertion turned failure manifest intent agency,' 380, sue (which) placed petitioner equal footing usual incidents relation payment allownaces.' 85—86, 487. Clothing Richman, Bros. 348 511, 75 452, 99 600, antipicketing court. see 234. Actions dismissed they exercising governmental without consent Clover Fork Coal 107 1009. holds Atomic Energy Cotter Seaborg, 370 686; Civil Soderman 313 694; Veterans Administration, Evans Admin. Hospital, 391 261; Securities Exchange Holmes Eddy, 341 477. Similarly, Director Railroads behalf thus barred relevant limitations. Davis Corona 265 219, 44 552, 68 987. vested broad district 10(l), investigation produces reasonable cause activity true. 10(j), 160(j), 'In contumacy refusal obey subpena person' during 'hearings investigations, which, proper (its) powers' 159 160, requiring compliance. 161(2). guilty while exonerating others, issues concern originally election charging employees' issued, held. trial examiner April 1969, 8(a)(5) month examiner's decision, August September 17, violations found, infractions order. occurred contemporaneously proceeding, never Nathanson, here, attempting parties. If anything, situation one award (by proof employer, who bankrupt, asserting debt practice. discharging designated function, distinguished evaluate disputed totally unclear. '(i)t follow owed States' 27, disallowed asserted precedence insure collection accrued fisc. majority's attempt distingush convincing. Both Governmental clothed particular attribute sovereignty: Menihan, exemption unsuccessful Fed.Rule Civ.Proc. 54(d) afforded officers, extent permitted law,' emphasized immunity privileged position, 'appropriately confined,' 84, noted government conduit agents instrumentalities work.' Ibid., quoting Keifer 306 381, 388, 59 516, 517, 83 784 (1939). 'there presumption agent immunity,' 487,, examined establishing RFC concluded affirmative indication meant paying lost lawsuit. frequently De la Maza Arrendondo, Pet. 691, 724, 547 (1832); Kendall 123, 125, 277, 278, 437 (1883); Neuberger Commissioner Internal Revenue, 311 83, 88, 101,

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