Document: 467 U.S. 526 104 S.Ct. 2557 81 L.Ed.2d 457 LOCAL NO. 82, FURNITURE AND PIANO MOVING, STORE DRIVERS, HELPERS, WAREHOUSEMEN PACKERS, et al.v.Jerome CROWLEY, al. No. 82-432. Supreme Court of the United States Argued Jan. 9, 1984. Decided June 12, Rehearing Denied Aug. 2, Syllabus Title I Labor-Management Reporting and Disclosure Act 1959 (LMRDA) provides a "Bill Rights" for labor union members, including various protections members involved in elections. Section 102 that any person whose rights have been violated may bring an action federal district court "for such relief (including injunctions) as be appropriate." IV elaborate postelection procedure aimed at protecting democracy through free democratic 402 if Secretary Labor (Secretary), upon complaint by member, finds probable cause to believe violation election proceedings has occurred, he shall against set aside order new under supervision Secretary. 403 remedy prescribed challenging already conducted exclusive. Petitioner union, preparation scheduled last two months 1980, held meeting nominate candidates its executive board. Admission was restricted those who could produce computerized receipt showing their dues had paid. One respondents among were prohibited from entering not possessing receipt. There also disagreement office which another respondent nominated. These other then filed protest with but it denied. Election ballots thereafter distributed instructions they returned mail so arrive designated post box 9 a.m. on December 13, time counted. On 1, after distributed, Federal District Court, alleging petitioner officers I, seeking preliminary injunction. issued temporary restraining halting election. This followed several negotiations between parties hearings before court. Ultimately, holding remedies foreclosed when violations occurred during course rejecting petitioners' argument respondents' exclusive file IV, injunction declaring interrupted invalid, setting forth detailed procedures election, appointing outside arbitrators supervise implementation procedures. The Appeals affirmed. Held: overstepped bounds "appropriate" enjoined ongoing ordered pursuant imposed Pp. 535-551. (a) While § 102, standing itself, suggests individual properly maintain suit whenever guaranteed violated, section explicitly limits is given situation. Moreover, while protects many same does sets up method rights, this individuals are permitted block or delay elections filing suits IV. 536-540. (b) Whether maintained depends appropriateness required eliminate claimed violations. In absence legislative history suggesting Congress intended require allow courts pre-empt Secretary's expertise own elections, clear congressional preference expressed Secretary, conclusion compelled did consider Thus, sought invalidation being must utilize provided For less intrusive however, retains authority appropriate I. 540-550. (c) Court's here directly interfered responsibilities supervising inconsistent basic objectives LMRDA enforcement scheme. 550-551. 679 F.2d 978 (CA1 1982), reversed remanded. Gary S. Witlen, Washington, D.C., petitioners. John H. Garvey, Lexington, Ky., support Mark D. Stern, Goshen, N.Y., respondents. Justice BRENNAN delivered opinion Court. 1 (LMRDA Act), 73 Stat. 522, amended, 29 U.S.C. 401 seq., Congress' first major attempt regulate internal affairs unions. statutory available contrast, solely primary responsibility lodged Labor. Resolution question presented case requires we address conflict exists separate mechanisms included these Titles. particular, determine whether 2 approved staging promulgated After reviewing complex scheme created Congress, conclude judicial interference 412. We therefore reverse Appeals. 3 * Local Furniture Piano Moving, Store Drivers, Helpers, Warehousemen, Packers (Local 82) represents approximately 700 employees engaged furniture moving business Boston, Mass., area.1 governed seven-member board officers, 401(b) LMRDA, 481(b), chosen no than once every three years. consistent board's discretion union's bylaws constitution, traditionally referendum balloting. dispute giving rise present stems regularly 1980. 4 November 82 positions generated considerable interest, part because dissident attempting turn incumbent officials out office. Two aspects controversial especially important purposes. First, admission paid date. Several Jerome Crowley, receipts possession. Second, actual nominations process, there relating Lynch At close nominations, Bart Griffiths, secretary-treasurer, declared himself only candidate nominated office; time, selected run president. 5 dissatisfied now Court,2 union. 20, denied 82.3 all instructed mark return would Respondent Lynch's name appeared ballot president, secretary-treasurer. 6 distribution completed, Massachusetts. They alleged, inter alia, provisions restricting "equal . [and] attend membership meetings" 101(a)(1) Act,4 well right freely express views meetings 101(a)(2) Act.5 alleged failing recognize secretary-treasurer.6 7 papers filed, 12 preserve status quo protect jurisdiction. See App. 40-47. Given next morning (December 13) preestablished deadline voting, many, most, voting members. Nonetheless, noted jurisdiction 412, claims discriminatory application rules. court's specifically sealed court, thereby preventing petitioners counting until final determination made motion 8 days injunction, concerning accompany followed. Finally, July 1981, accompanied memorandum opinion. 521 F.Supp. 614 (1981). addressed more fully petitioner's that, challenged conduct concerned conducting rejected argument, noting "at least respect actions pre-election conduct, establishes alternative mechanism remedying interfering member's engage activities associated democracy." Id., 621 (footnote omitted). Therefore, concluded, invoke nomination 622-623. Because disputes arising barring completion asserted over "pre-election conduct." 621, n. 12. concluding demonstrated substantial likelihood success claims,7 comprehensive injunction.8 issue "interfere[d] little possible procedures" constitution by-laws, id., 634; moreover, terms derived large process preceding six months. cast 1980 "legally without effect," 636, n., subsequent Among things, group eligibility requirements attending meeting, office, voting. remain effect further 10 appealed, Labor, participated proceedings, intervened behalf. argued lacked enjoin tabulation supervision. arguments, affirmed respects. 1982). It agreed occur Act, IV's "already conducted," 483, apply actually tabulated.9 11 Writing dissent, Judge Campbell "unable read extending far balloting commenced, invalidate one conditions extemporized parties." F.2d, 1004. He believed "the proper accommodation consideration stage reached [also] nature relief" requested granted. 1005. confusion evident lower tried reconcile remedial Act,10 granted certiorari. 459 1168, 103 813, 74 1012 (1983). reverse.11 II 13 To examine relationship respective necessary summarize relevant principal purposes enactment. product concern widespread abuses power leadership." Finnegan v. Leu, 456 431, 435, 1867, 1870, 72 239 (1982). Although "had tracing back decades," ibid., years hearings, see S.Rep. 187, 86th Cong., 1st Sess., (1959) (hereafter 187), U.S.Code Cong. & Admin.News 1959, p. 2318, specific find way into proposed legislation considered floor Senate, U.S., 4, S.Ct., 4. should surprising, therefore, interaction finally uncertainty. A. 14 Chief causes exhaustive enforceable §§ 101-105, 411-415. designed guarantee member equal vote otherwise participate decisions, freedom unreasonable restrictions speech assembly, protection improper discipline. supra, 435-436, 1870-1871; Steelworkers Sadlowski, 103, 109-110, 2339, 2341, 2344-2345, 707 purposes, can doubt afforded extend As previously noted: 15 "Congress adopted assembly provision [§ 101(a)(2), 411(a)(2) ] promote democracy. recognized assured discuss policies criticize leadership fear reprisal. particularly critical, deserves vigorous protection, context campaigns. wield power, approval disapproval 112, 2343 (citations 16 introduced Senator McClellan 105 Cong.Rec. 6469-6476, 6492-6493 (1959), empowered seek injunctions enforce A few later, amendment replaced substitute offered Kuchel. 6693-6694, 6717-6727. changes provide 6717, 6720.12 endorsed Senate 77-14, 6727, quickly accepted substantive change House, H.R.8400, H.R.Conf.Rep. 1147), 31 (1959). part, provides: 17 "Any secured title infringed civil 523, 18 Standing jurisdictional violated.13 Hall Cole, 412 10-11, 93 1943, 1948-1949, 36 702 (1973). B 19 Nor interpret isolation. regulates 401-403, 481-483. "sets governing fixing hold requiring secret ballot, regulating handling campaign literature, reasonable opportunity candidates, authorizing unions fix 'reasonable qualifications uniformly imposed' fair allowed participate." Calhoon Harvey, 379 134, 140, 85 292, 296, 190 (1964).14 general terms, "Title special function furthering overall goals insure 'free democratic' elections," Wirtz Glass Bottle Blowers Assn., 389 463, 470, 88 643, 647, 705 (1968), interest "vital" public, 475, 650. Laborers, 477, 639, 642, 716 (1968). 20 meant policy minimum unions, Calhoon, contains administrative enforcing standards established 482. Dunlop Bachowski, 421 560, 95 1851, 44 377 (1975); Trbovich Mine Workers, 404 528, 531, 92 630, 632, 30 686 (1972); 138-140, 295-296. alleges [of IV] initiate procedure. exhaust his Then 'shall investigate' complaint. organization' held, direct election." Trbovich, 632 (quoting 402, 482). 296. Significantly, "may affected outcome" previous 402(c), 482(c). 21 exclusivity explains potentially overlapping state laws. 22 "Existing organization prior thereof title. exclusive." 534, 483. 23 Relying provision, rights," "decided permit federal-court IV." 296.15 III 24 determined exactly how might affect protected definitive answers area. requires, decide aggrieved conducted. 25 useful begin what plain language clearly about plainly bars challenges validity completed.16 full panoply "prior conduct" most laws, simplicity apparent real. Indeed, offers obvious solution case. 26 Even meaning conducted" preclude certification hesitate interpretation determinative. approach ignore limitation allows award relief. "cautioned literal reading" LMRDA. 468, 646. Like much legislation, statute compromise strongly opposed views, construction frequently wording background light achieve." Ibid. (citing National Woodwork Mfrs. Assn. NLRB, 386 612, 619, 87 1250, 1254, 357 (1967)). 111, 2345. ways admonition applies greatest force unusual enacted.17 27 indication Throughout debate predominantly, only, take place discrete limited period time.18 takes weeks complete. largely added See, e.g., 21; (minority views); H.R.Rep. 741, interplay received little, any, attention Congress. Cf. 1147, 35 (Conference Report, written both Titles explain election). 28 Despite conclusive evidence history, controlled enactment guidance our availability throughout discussions indicated intent consolidate necessitated Act. even proved, judicially nothing foreclose access corrected disruption claimants. lodge post-election consistently echoes theme. example, contained Committee bill originally reported gave whatever needed provisions. S.1555, 302-303 Report Public Welfare explained: "[S]ince effective expeditious overthrowing improperly sole private litigation precluded." 21, 2338.19 passed retained bills introduced, containing substantially similar Unlike bill, House rights. (Landrum-Griffin bill). 17, pp. 2439-2440 (if violation, "declare void, Labor"). Conference 35, Houses Act.20 flurry activity surrounded 537-538, indicates opposition additional establishment safeguards suggest either 32 That say lengthy underlying 536-537, likewise compel us awarded Individual allege easily remediable delaying invalidating claim receive running reelection. Assuming prove appropriately forward claimants ordering inefficient, frustrate serve eliminating ever obtaining violations, since drastic ultimately dependent 482(c), 402(c).21 C 33 Our include cases interpreting decisions. (1964), faced challenge rules others asked preparing revised. concluded substance rather latter Then, decided IV," 296; 540, hear claims. relied "to great latitude resolving controversies, and, where fails, agencies Government familiar problems aid bringing settlement discussion resort courts." ibid. ("It knowledge best public interest"). 34 role played 473-475, 649-650; 482-484, 641-643; Hotel Employees, 391 492, 1743, 763 goal maximize " 'amount independence self-government' 472-473, 648-649 2337); Hodgson Steelworkers, 333, 91 1841, 510 (1971). explained (1972), "(1) frivolous unnecessary (2) centralize single proceeding warranted 532, 633. serves "as device complaints consolidating meritorious ones." 535, 634. Consistent policies, cited proposition "§ prohibits initiating 632. somewhat overstated supporting decision equally applicable "set election."22 precluded, strong vesting supervisory extent. sum, violation. If 37 procedural demonstrates undesirable consequences follow some hours completed tabulated, brought halt. 38 demonstrate why delayed year. consequences, left beyond expiration terms. 401(b), 481(b) (officers elected years). followed, presumed valid, 402(a), 482(a), incumbents. completely ignored. Not acting alone required, appointed implementation. V 39 court-ordered Accordingly, judgment reversed, remanded opinion.23 40 ordered. 41 STEVENS, dissenting. 42 number (LMRDA), seq. Specifically, ability choice 411(a)(1), prevented expressing 411(a)(2). willing rerun tainted meeting. preliminarily do exercising pertinent part: subchapter (emphasis supplied). 43 Today agrees fashion 102. However, reverses issuance constitute "appropriate within holds anything long limit courts, conceded inconsistency grants seemingly unqualified grant "such appropriate," "The points out, addresses inconsistency. Ante, 542-543. agree answered reference 541-542. today's holding. 45 "aimed enlarged paralleling certain Constitution," By securing hoped ensure manner.1 construed broad sweep, (1973), wrote: afford 'a wide according necessities case,' 'to give [the court] deems equitable circumstances.' 1950 (footnotes omitted) 15548 (remarks Rep. Elliott), 6717 Sen. Kuchel)). Employing conferred attorney's fees statute.2 46 concedes authorizes ante, 546. anomaly results serious go unremedied result midst produces kind irreparable injury remedy, magnitude taints entire thereof, precludes remedy. Such fundamental 47 instance greater importance, hence need vindication compelling necessity, wrote higher union." 14, 1950. reason enough: 48 [union] 2346, (1982) 49 ensuring heart electoral will effectively remedied, majority seriously undermines core purpose 50 403, justification limiting Senate. acknowledges 542-543, directed drafted discussed, elections; certainly identified history. states: 51 "Section [4]03 preserves existing law compliance 2338.3 52 fact, acknowledged very point: debates reflect remedies, enforcement." 6, 634, (1972). slender reed 53 relevance original undermined addition precise enough members.4 felt enforced action. Finnegan, 440, 10, 1872, 10. 54 version McClellan, therein 6469-6492 narrowly, Vice President casting tie-breaking vote. 6493. arguments Senators Labor.5 55 Three Kuchel 56 "[I]n changed amendment. deleting enumerated violated. circumstances, gives grievance relief." 6717. 57 resulted dissatisfaction leaving hands 58 "[H]ere proposal. Arkansas might, behalf injured litigate type employee justice, propose sue behalf." 6720. 59 Kefauver congratulated removing middle States," 6726, Clark "takes bureaucracy leaves aided courts," 6721. Curtis said "represents finest means protected." 6723. numerous statements effect.6 belief drafted, reliance vindicate Yet seriousness irreparability justify overturning decreed members' obtain odds statute.7 60 principally relies, adopt parsimonious began analysis simple proposition: "Jurisdiction entirely showed 101(a)(1)," 138, 295. stating holding, never mentioned scope simply fall officials," case, existence 101, follows violations.8 61 turns head. reads reality true. wanted able rely cannot adequately remedied except join judgment. 62 practice difficulty. shaping exercise informed national discussed 544, 19, 548-549: wary unjustified excessive difficulties inherent election; accord due deference Labor.9 confront reasons. themselves press point. questions petition certiorari, thrust briefs, precluded did. Petitioners argue abused here. stipulated stipulations indicating allegedly 614, 618, 623 (Mass.1981); 55-60, 108-110. anyway, Keeton abuse fashioning 978, 996-999 63 failed discretion. respectfully dissent. Also appearing George Harris, former president secretary-treasurer Phillip Piemontese, chairman committee unidentified committee. Crowley Lynch, Anthony Coyne, Joseph Fahey, Robert Lunnin, James Hayes, Gerald Owens, Trask, Montagna, Dennis Bates. protests International Brotherhood Teamsters, Chauffeurs, Warehousemen Helpers America, international affiliated, Teamsters Joint Council regional body 82. No taken hearing 23, canceled lawsuit filed. full: "EQUAL RIGHTS.—Every privileges referendums organization, deliberations meetings, subject regulations organization's bylaws." 411(a)(1). "FREEDOM OF SPEECH ASSEMBLY.—Every meet assemble members; opinions; pertaining meetings: Provided, herein impair toward institution refraining interfere performance legal contractual obligations." allegations notify unlawfully timely months, disciplinary Lunnin unlawful reprisal later added, increased times September 1976 complying 101(a)(3) 411(a)(3). variety reasons, refused claims, found requirement entry "suddenly announced," applied "in fashion," "imposed retaliation respondents'] intention oppose objective suppressing dissent Local." F.Supp., 627. despite listed harm burdens sufficiently mitigated accorded served granting 627-628. None findings infra. complete end decision, 636-638, appendix Appeals, 1001-1004 committed error" finding existed proof imposing mishandling Lynch. 995. 7, supra. ruling assumes Kupau Yamamoto, 622 449 (CA9 1980); Driscoll Union Operating Engineers, 484 682 (CA7 1973); Schonfeld Penza, 477 899 (CA2 McDonough 825, 470 261 (CA3 1972). also, James, Democracy LMRDA: Autocracy Insurgency Elections, Harv.Civ.Rights-Civ.Lib.L.Rev. 247 (1978); Comment, Conflict Remedies, U.Chi.L.Rev. 166 (1974); Note, Pre-election Remedies Under Landrum-Griffin Act: "Twilight Zone" Between Rights Guarantees V, Colum.L.Rev. 1105 (1974). writ certiorari dismissed improvidently or, alternative, longer presents live controversy. decline, course. "stipulations" consented foreclosing ("Local prepared second following permits preserved Order 1980"). Neither nor conditional binding although agreeing procedures, waived court-imposed conditions. 110-112. And "these true factual narrowing [Local 82] bound, [respondents] agreed." 996, 22. disturb conclusions. moot place, term elapsed. intervention terminate Labor's (1968); Laborers', acted counted come play. note still pending collateral matters, damages, fees, costs, propriety Reply Brief 7-9. doubt, controversy mooted intervening circumstances. "one [McClellan] 6720 aspect apparently support, feared amendment's precedent see, 6696 (statement Johnston), wished 6726 Kefauver). Aaron, Harv.L.Rev. 851, 859, 875 (1960). Allowance narrowly circumscribed exhaustion. Compare 101(a)(4), 411(a)(4), NLRB Marine 418, 426-428, 1717, 1722-1724, 706 summarized CFR 452.1 generally pt. 452 An exception rule 401(c) candidate's literature lists. 481(c). 13. necessarily mean forecloses bar Ross Electrical 513 840 1975) (common-law tort claim); Amalgamated Clothing Workers Rank File Philadelphia, Board, 473 1303 1973) (Title claim). remarks commentator actively pertinent: share Representatives sections contain calculated ambiguities political compromises essential secure majority. Consequently, them advised rationale placing emphasis words." Cox, Internal Affairs Unions Reform Mich.L.Rev. 819, 852 2345; 646, 6. speaking F. Kennedy "Prior day State. jurisdiction." 6485 creating govern lodging inadequacy state-court remedies. Professor Archibald testifying Subcommittee detail inability elections: "A clumsy instrument suitable determining held; judges facilities providing Merely misconduct litigation. tellers, watchers, officials. become mired details process. appoint master delegate responsibility, face judge. Probably consciousness weaknesses reluctant though court-conducted held." Legislation: Hearings S.505 Welfare, 133-134 (hereinafter Hearings). view confirmed eventually supervises minimize 482(a) (requiring exhaustion Secretary; valid violation); 482(c) supervision). Again, Cox' testimony suggested analysis. Cox objected S.505, 303 ("The duties exclusive"), pre-empted "[T]he exclude[s] State integer. Its adjudicated forum. open harassment side friendly other. "I deserve accomplished persuaded used [S.505] accomplish [is] too broad. States, successfully advance comply putting permitting classification vote, adequate notice often held. evil accomplished. impossible voluntarily "It redress expulsion discipline him dared assert connection enact exclude am contending provision] forms intervention. hope confine [the] regulation conducted." Hearings, 135. suggestions, amending observance forthcoming imposition discipline, 136 added). assumed today. objecting removed appears Most recently, (1975), pursue review reaffirmed successful, 568-571, 1858. paragraph summarizing Bachowski briefly touched IV: "Certain 411-413 481(c), Provisions specified 483 thus prohibition underscores 482 cases." 566-567, 1857-1858 extent today prevails italicized sentence. remand, vacated, custody counted, Solicitor General represented like here." 11; Tr. Oral Arg. 27. (1982); 7-8, 1947-1948, (1973); 497-498, 1746-1747, "[Section] broadly 'such appropriate.' 'meticulously plaintiff,' fairly infer deny traditional counsel 'appropriate' situations." 1948. focus preemptive 14274 (analysis Chamber Commerce); 7632 Goldwater); 101 1684, 85th 2d 12-15 (1958) (report predecessor LMRDA). concludes recognition litigants inappropriate unfair refers pre-emption courts. 546-548, 21. 542, 19. position overturn suits, itself H.R.8342, 101-102, Sess. reprinted 15884, 15887 16-17 2439 ("A located. appropriate, accordance title"). 109, 2344; 6470-6474 McClellan); 6476-6478; 6488 Sens. Allott 6490 Dirksen). Johnston); 6486 Kennedy); Morse); 6483 Kennedy). 15836 McCormack); 15689 O'Hara); 15670-15671 Loser); 15564-15565 Foley); 14989 14345 Landrum); 10902-10903 7023 (section-by-section analysis). 144-145, 298-299, (1964) (Stewart, J., concurring). observed, willingness proceed entrenched politically powerful leadership. Lodge Machinists Aerospace AFL—CIO, 454 545, 564 1971) (dissenting opinion). controlling. Statements 1857-1858, correctly characterized dicta repudiates 549-550, Similarly, recognizes Trbovich's citation election," overstatement Calhoon. 549. IV; presented. Rule Civil Procedure 24(b), intervene litigation, 536-539, 635-637 (union Secretary).

Category: 6