Document: 339 U.S. 239 70 S.Ct. 577 94 L.Ed. 795 SLOCUMv.DELAWARE, L. & W.R. CO. No. 391. Argued Feb. 8, 1950. Decided April 10, Messrs. Leo J. Hassenauer, Chicago, Ill., Manly Fleischmann, Buffalo, N.Y., for petitioner. Mr. Pierre W. Evans, Elmira, respondent. Justice BLACK delivered the opinion of Court. 1 Section 3 Railway Labor Act confers jurisdiction on National Adjustment Board to hold hearings, make findings, and enter awards in all disputes between carriers their employees 'growing out grievances or interpretation application agreements concerning rates pay, rules, working conditions * *.'1 The question presented is whether state courts have power adjudicate involving such interpretations when has not acted. 2 respondent railroad separate collective-bargaining with Order Railroad Telegraphers Brotherhood Clerks.2 A dispute arose two unions scope respective agreements. Each claimed its members certain jobs yards at New York. agreed Clerks Union. chairman protested, urging reassignment work his union claiming back pay behalf individual members. claims were pursued 'the usual manner' required by § 3, First (i) Act, 45 U.S.C. 153, (i), U.S.C.A. as a prerequisite invoking Board.3 That section further provides that, 'failing reach an adjustment this manner, may be referred petition parties either party appropriate division *.' Instead Board, filed action declaratory judgment York court, naming both defendants. It prayed agreements, declaration that Clerks' agreement, Telegraphers', covered controversy. also asked must refrain from making similar under bargaining agreement. moved dismiss case ground left court without interpret contracts dispute. motion was denied. 274 App.Div. 950, 83 N.Y.S.2d 513. After trial, interpreted had urged, entered requested declarations. This affirmed Court Appeals York, judges dissenting. 299 N.Y. 496, 87 N.E.2d 532.4 majority thought our Moore v. Illinois Central R. Co., 312 630, 61 754, 85 1089, free arising carrier-union collective agreement obtaining Board's dissenting judges, however, relied Ry. Conductors Pitney, 326 561, 66 322, 90 318, where we held federal should prior Board. They asserted rule applicable courts. We granted certiorari consider these questions. 338 890, 242. 4 first declared purpose 'To avoid any interruption commerce operation carrier engaged therein'. 48 Stat. 1186 (§ 2), 151a, 151a. extends existing See Elgin, E.R. Co. Burley, 325 711, 722, 65 1282, 1289, 89 1886. plan provide administrative methods settling before they acute stages might provocative strikes. Carriers are therefore negotiate representatives employees. Virginian System Federation, 300 515, 547, 548, 57 592, 599, 81 789. sets up machinery conciliation, mediation, arbitration disputes, invoked if negotiations fail. 5 In concerned Its settlement would prospective well retrospective importance employees, since accepted govern future relations those parties. type grievance long been considered potent cause friction leading prevent 1926 provided creation various Boards voluntary workers. 44 578. But proved unsatisfactory, 1934 Congress, support railroads, passed amendment which directly created national composed railroads unions.5 1189-1193. thus represents effort part Congress effective desirable remedies railroad-employee growing equipped exercise congressionally imposed functions. understand problems speak jargon.6 Long varied experiences added initial qualifications. Precedents established it, while necessarily binding, opportunities degree uniformity throughout nation's railway systems. 6 paramount having chosen adjust emphasized supra. There held, remarkably one us now, Federal District equitable discretion refused 'to jurisdictional employee accredited agents Our holding 'should *' but determination designated agency peculiarly competent field. pages 567-568, page 325, 318. reasoning equally supports denial court—state federal—to invade conferred Act. 7 here inconsistent 1089. discharged railroad. He could challenged validity discharge seeking reinstatement pay. he chose accept railroad's discharging him final, thereby ceasing employee, brought suit damages breach contract. As there does bar adjudicating cases. common-law statutory wrongful differs remedy provide, involve questions other If handling some provision course no binding effect 8 involved exclusive.7 conflict decision, contrary inference drawn language opinion. error uphold interpreting reversed remanded proceedings 9 so ordered. 10 DOUGLAS took consideration decision case. 11 REED, 12 denies 'power Act.' says 'that exclusive.' Read literally, indicate holds most cases only exclusive institution determine rights final determination, i.e., judicial review awards, except money. Court, note states it 'called upon decide board inaction.' From I take means what called primary implications later pose issue 'action inaction.'1 Nevertheless think Court's lacks basis, dissent judgment. 13 Since will precedent solving problems, seems worth set my reasons disagreeing can foresee complications ruling bring into administration adjudicatory body judge controversy basic litigation. Jurisdiction always recognized exist taken them difficulty statute after conclusions courts.2 passage law creating forum enforcement contract connected withdraw over controversies. limit found express words necessary implication.3 14 calls attention nothing supply requisites. line statute, far ascertain, suggestion hearings intended close doors litigants otherwise justiciable expression conceivably general Act's prompt orderly covering conditions.'4 consistent intention alternative one. Experience demonstrated less than Board.5 15 Neither nor precedents ruling. board, 'shall' handled failure 'may *.'6 use 'may' decisive, fail see how now disregarded completely, time seemed indication congressional sufficient furnish concurrent jurisdiction.7 16 Texas Pac. Abilene Cotton Oil 204 426, 27 350, 51 553, Ann.Cas. 1075, today's decision. repugnant Interstate Commerce 49 et seq., recover unreasonable charges. given Commission reasonableness published provisions. prohibited explicitly preferences discriminations favor shippers. shipper tariff charge, receive discriminatory preference. wholly entertain suits recovery charges.8 By sole originally result alteration schedule. careful say construed taking away right unless 'so survival deprive subsequent efficacy.'9 law, against preferences, controverted different construe identical differently. If, preserve rulings hardly provided, did, system regional boards independent Board.10 pressed four dissenters controlling authority compel conclusion 1886.11 tacit assumption ousted jurisdiction, upheld sue although employment relationship still existed. 17 quite Switchmen's Union North America Mediation 320 297, 64 95, 88 61, General Committee Locomotive Engineers Missouri K.T.R.R. Missouri-K.-T.R. 323, 146, 76. Those controversies kind unfamiliar courts, impose sanctions awards.12 issues 'concept mediation antithesis justiciability.'13 Here, relates contracts, function performed, 'it lightly assumed silence bars issue'.14 18 Nor did present issue. bankruptcy reorganization, sought. equity 'exercise give (the Board) opportunity pass issue.'15 Thus circumstances matter meaning same retained apply intimation obligation send more universal sometimes remit preliminary law.16 deprived jurisdiction. Today compelled extend Pitney 'discretion' 'jurisdiction' because lack order particular manner discretion. inability secure flexible warrant rigid 19 surely like consists people paid, Government, groups large unions.17 furnished few procedural safeguards. process compelling attendance witnesses production evidence. official record, informal pleadings. Hearings conducted witnesses.18 operated giving individuals, chance heard unions.19 20 Throughout requirement recourse inevitably many access extent money doubtful, highly questionable even award reviewed wishes review.20 Most important, relief petitioning party—be union, erroneous Board.21 hard put protect minorities circumstances.22 21 forced attributes individuals. duty wisdom putting solution industry hands agencies Constitution permit.23 Some deem weld industries professions self-governing forms, completely intervention. desire spring conviction experience training specialized fields group understanding capacity enable internal affairs better dealing generality human occasionally never isolated rest nation. too much interrelation interdependence population. instances great sweep fields. Even special created, Customs Patent Appeals. When carefully outlined powers, stated protections rights, neutral officials. here, none finds underlying abolish, discussion, 22 varies markedly shown safely people's exclusive. definite required. places dilemma own creation—it build complex review, leave individuals organizations unreviewable privately selected board. plain confer necessity legislation unexplored areas law. unseemly results follow, legislative facilities undertake important extensive task deciding proper distribution bodies connection labor relations. Courts await specific direction instead reading transfer 1185, 1189—1193, 153. full name latter Steamship Clerks, Freight Handlers, Express Station Employees. 'The shall including chief operating officer handle disputes; but, failing statement facts supporting data bearing disputes.' 1191. Appellate Division Supreme (3d Dept.) trial denying dismiss, 269 467, 65, merits, An Union's remove reported 183 Misc. 454, 50 313. United States Judge remanding D.C., 56 F.Supp. 634. 'These unadjusted become numerous several occasions resorted issuance strike ballots threatened interrupt interstate adjustment. made President intervene establish emergency investigate condition corrected interest industrial peace uninterrupted transportation service. bill, therefore, establishment submitted adjusted conference parties.' H.R. Rep. 1944, 73d Cong., 2d Sess. 3. For interesting discussion history purposes, Garrison, Board: Unique Administrative Agency,' 46 Yale L.J. 567 seq. confronted disagreement representative, Steele Louisville N.R. 323 192, 226, 173. inaction. sections bear appealability 1191, (m) (p). dissent, 761, 1307, Delaware, Slocum, 532; Southern America, 210 S.C. 121, 41 S.E.2d 774. Adams C. St. L.R. Cir., 121 F.2d 808. Cf. Bank Trust 296 463, 479, 343, 348, 80 331; Claflin Houseman, 93 130, 136, 23 833. 1187, 2(5). Fifteenth Annual Report p. 12; Monograph Attorney General's Procedure, Part 4, Labor, 16, S. Doc. 77th 1st (1941). (i): '(i) conditions, pending date approval 635—636, 756, 1089: 'It noted pointed out, 153(i), amended 1934, significant comparable (44 577, 578), had, amendment, 'dispute parties, 3(c). difference language, substituting 'shall', not, think, change policy, clarification law's original purpose. neither indicates based philosophy legal compulsion. On contrary, shows maintain peaceful nature.' 440—441, 355, 1075: 'For if, previous Commission, exerted juries generally rate, follow reached conclusion, uniform standard impossible, fluctuate vary, dependent divergent subject question. Indeed, recognition duty, casts body, seeing equality observed.' 436—437, 353, 354, 'As recover, below sustained, clearly within principles just stated, conceded act regulate words, abrogate right, follows contention rests proposition accomplished implication. testing correctness concede guided principle repeals implication favored, and, indeed, enactment, imperatively required; say, pre-existing efficacy; render provisions nugatory.' 1193, Second. 759, insisted, 760, 1306, 1886: considerations harmonious through designed allowing by-passed introducing dislocating differentiations resort agreement.' 1195, First; 584, 8. Missouri-K.T.R. 337, 152, Not decisions handed down explained follows: 'This view rather adjudication. 302 97 152. personal enforcible consideration. bargaining, contained prohibitions conduct mandatory form, enforced judicially. 330, 331, 149, 150. N.O.R. 281 427, 74 1034; 789.' Stark Wickard, 321 288, 306—307, 559, 569, 733. 207, 234, 309, 570, 567, Ibid., cf. Propper Clark, 337 472, 69 1333; Meredith City Winter Haven, 228, 7, 9. 1189, (a)(b)(c)(g). Monograph, n. 5, supra, pp. 11—14; 576 7. Washington Terminal Boswell, 75 U.S.App.D.C. 1, 124 235, 246; divided 319 732, 63 1430, 1694. 591. Tunstall Firemen, 210, 187; 206, 233, Compare Howard Thompson, 72 695; State ex rel. Louis-S.F.R. Russell, 358 Mo. 1136, 219 S.W.2d 340; Edwards Capital Airlines, 84 346, 176 755, 759 Shields Utah Idaho 305 177, 59 160, 111. Den dem. Murray Hoboken Land Improvement How. 272, 284, 372; Ng Fung Ho White, 259 276, 42 492, 938.

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