Document: 402 U.S. 570 91 S.Ct. 1731 29 L.Ed.2d 187 CHICAGO AND NORTH WESTERN RAILWAY COMPANY, Petitioner,v.UNITED TRANSPORTATION UNION. No. 189. Argued Jan. 18, 1971. Decided June 1, Syllabus Petitioner railroad brought this suit (after formal procedures of the Railway Labor Act had been exhausted) to enjoin a threatened strike by respondent Union, charging that Union failed perform its obligations under § 2 First 'to exert every reasonable effort make and maintain agreements concerning rates pay, rules, working conditions.' The answered Norris-LaGuardia deprived District Court jurisdiction in any event complaint state claim on which relief could be granted. Court, declining pass whether either party violated First, concluded matter was one for administrative determination National Mediation Board not justiciable, §§ 4 7 court strike. Appeals affirmed, construing as hortatory enforceable courts but only Board. Held: 1. Sec. intended be, just mere exhortation, an legal obligation carriers employees alike. Pp. 574—578. 2. imposed is central effective Act, rather than Board, clear from Act's legislative history. 578—581. 3. does prohibit use injunction where remedy practical, means enforcing duty First. P.p. 581—584. 422 F.2d 979, reversed remanded. William H. Dempsey, Jr., Washington, D.C., petitioner. John Haley, East St. Louis, Ill., respondent. Mr. Justice HARLAN delivered opinion Court. 1 Chicago North Western Co., petitioner action, United States Northern Illinois respondent, Transportation Union. substance negotiations between parties over work amended, 44 Stat. 577, 45 U.S.C. 152 conditions.'1 Jurisdiction said rest 28 1331 1337. answer contended 4, 7, 8 47 70, 71, 72, 104, 107, 108,2 issue upon granted.3 Judge, having heard evidence argument, declined In unreported opinion, he question nonjusticiable; further ruled against Union's Seventh Circuit statement purpose policy subsequent provisions specific requirement anticipating judicial enforcement. Rather, court's view, enforcement solely Id., at 985—988. We granted certiorari consider important lower expressed divergent views.4 For reasons follow we reverse. * least past decade, Nation's railroads or predecessors have engaged off-and-on struggle number brakemen employed each train. find it unnecessary describe history great detail, generally with particular reference Accounts earlier stages may found Brotherhood Locomotive Engineers v. Baltimore & Ohio R. 372 284, 285—288, 83 691, 692—693, 9 759 (1963); Firemen Enginemen Chicago, Burlington Quincy 225 F.Supp. 11, 14—17 (DC), aff'd, 118 U.S.App.D.C. 100, 331 1020 (1964); Railroad Trainmen Akron Barberton Belt 128 59, 66—70, 385 581, 588—592 (1967); Atlantic Coast Line 127 298, 383 see below, F.2d, 980—982, n. 4. present purposes sufficient observe exhausted Act: notices, conferences, unsuccessful mediation, refusal accept Board's proffer arbitration, termination expiration 30-day cooling-off period 5 155 Railroad's charge based principally contention consistently refused handle dispute nationwide basis while maintaining adamant no agreement should reached more favorable carrier already other railroads. also alleged bargain proposals counternotices. 3 narrow questions presented us are imposes exhortation; judiciary; strips federal enforce injunction. requested decide allegations hearing show violation courts, their resolution thresh-old questions, did reach issue. Accordingly, intimate view matter. II This has previously observed '(t)he heart duty, management labor, conditions, settle all disputes order avoid interruption commerce operation growing out thereof." Jacksonville Terminal 394 369, 377—378, 89 1109, 1114—1115, 22 344 (1969). It surprising such case. As leading commentator said, connection Relations good faith, '(i)t enough law compel meet treat without passing judgment quality negotiations. bargaining status union can destroyed going through motions negotiating almost easily bluntly withholding recognition.' Cox, Duty Bargain Good Faith, 71 Harv.L.Rev. 1401, 1412—1413 (1958). recognized true when N.L.R.B. Insurance Agents' International, 361 477, 484—485, 80 419, 424—425, 454 (1960), 'the faith essentially corollary recognize union.' Virginian Co. System Federation 40, 300 515, 57 592, 81 L.Ed. 789 (1937), furnishes early illustration principle 'exert effort' Act. case, certified duly authorized representative shop workers, instead sought coerce these join company union. obtained requiring Ninth 'treat with' representative; compelled affirmed decree, explicitly rejecting argument moral obligation. conclusion repeatedly referred criticism decisions.5 6 merely finds support well. often noted, 1926 was, acknowledged worked ratified Congress President.6 statements spokesmen two made hearings proposed entitled weight construction Act.7 House hearings, Donald Richberg, counsel organized railway supporting bill, unequivocal parties. He stated, 'it (the parties') disputes, arising abrogation otherwise, commerce. words, imposed, I want emphasize it, believe deliberate prevented compulsion.'8 Richberg went why bill drafted general language applicable equally both parties, terms requirements prohibitions accompanied explicit sanctions: 'We believe, written theory, development industrial relations regard thereto, there danger attempting write penalties into writing duties letting those develop way common developed England America.'9 think plain exhortation parties; rather, designed obligation, whatever appropriate might case-by-case basis. 10 Appeals, seemingly coming contrary conclusion, relied Court's decision General Committee Adjustment Missouri-Kansas-Texas 320 323, 64 146, 88 76 (1943). held jurisdictional unions were left economic muscle Reliance placed Second, requires considered if possible decided conference representatives reliance misplaced: 'Nor 2, Second justiciable what otherwise not. like states buttress particularized commands.' 334, S.Ct., 151 (footnote omitted). 11 light place scheme section, decisions interpreting M-K-T case cannot bear it. III 12 Given remains judiciary. confronted similar Act.10 Our cases reveal statutory unclear, propriety turns importance capacity effectively, necessity right aggrieved prove illusory. 13 strictest compliance meaningless goes 'a desire agreement.' Reed Prince Mfg. 205 131, 134 (CA1 1953). While attitude perhaps rare, they unknown. See Typographical 16, 86 1041 (1949), enforced sub nom. American Newspaper Publishers Assn. N.L.R.B., 193 782 (CA7 1951), aff'd another issue, International 345 73 552, 97 852 (1953). extent essence.11 14 Ry. Stone, speaking noted 'whether action taken omitted reasonable, everyday subjects inquiry framing decrees.' U.S., 550, 601. Section district determine plaintiffs 'failed request grows.12 reason less capable making situation other. 15 Finally, must Appeals' position exerted committed courts. plainly disproves contention. commonplace enacted because dissatisfaction 1920 particularly performance many causes dissatisfaction, most prominent adjudicatory functions, effectively lost influence disputes. Throughout became repeated expressions concern retain function, so confidence parties.13 And Switchmen's 297, 303, 95, 98, 61 (1943), 1934 gave power resolve certain appoint committee neutrals 'so 'own usefulness settling arise thereafter impaired.' S.Rep.No.1065, 73d Cong., 2d Sess., p. 3.' Only last Term fact authority major disputes.' Detroit T.S.L.R. 396 142, 158, 90 294, 304, 24 325 considerations, inescapable overseen retaining prematurely releasing resort self-help feels called for.14 IV 16 turn finally Act15 prohibits fundamental principles area epitomized Association Machinists Street, 367 740, 772—773, 1784, 1802, 1141 (1961): 17 'The 101—115, expresses basic activities labor unions. deprive various mandates Federation, 789; Graham Enginemen, 338 232, 70 14, 94 22. However, suggests hesitate fix injunctive breaches owing laws unless alone guard plaintiff's right.' 18 Similar our opinions.16 properly accommodate conflicting policies laws, adhere them. quite impossible say set circumstances command prior lead hold forbid even considering case.17 If misinterpreted congressional purpose, clearly. meantime choice trace best uncertain line accommodation statutes opposing directions.18 19 recognize, course, holding injunctions falls far short definiteness clarity businessmen leaders undoubtedly desire. creates insignificant will structure positions tactics eye restricting attention business hand. Moreover, seeking quo willing compromise during determinate processes believes chance indefinitely postponing party's after exhausted. 380—381, 1116; cf. Hearings, supra, 8, 17, 50, 100 (Mr. Richberg); id., 190 Robertson). vagueness provide cover freewheeling interference sort forth first place.19 20 These weighty considerations indeed restraint issuance violations supra. Nevertheless, result today unavoidable give effect laws—enacted Congresses differing political makeup views relations—rather restrict examination pieces legislation accord personal sound policy. Boys Markets Retail Clerks Local 770, 398 235, 250, 1583, 1592, 26 199 (1970). V 21 outset, rule record shows justifying injunction, do so. Such examined all, facts marshaled issues clarified uncertainty heretofore existing constituted showing necessary course remand instructions return taking deem helpful presents today. 23 Reversed BRENNAN, whom BLACK, DOUGLAS, WHITE join, dissenting. 25 instant Company (Railway) (Union) reaches back Arbitration 282, established pursuant 77 132 (1963). That board Congress, failure dispute-settlement machinery arbitrate required trains firemen diesel locomotives. Insofar here pertinent, 282's award ultimately led elimination approximately 8,000 brakemen's jobs across Nation. By terms, however, expired January 25, 1966. Prior expiration, served notices 156,1 reestablishing eliminated 282 changing require freight yard crew. reciprocated serving notice requesting would crew size managerial judgment. conferences reaching agreement. attempted mediate 5, 155,2 failed, proffered arbitration same section. After terminated jurisdiction. Since emergency appointed President 10, 160,3 run,4 prohibition self-held measures lapsed. Thereafter, Federal strike, alleging lived up agreements. Specifically, following ways: 27 'First: Having insisted foregoing separately plaintiff jointly BRT (Brotherhood Trainmen) nevertheless '(a) defendant carrier's counter-notices reduce main road crews; '(b) C&NW notices; 30 '(c) entered fixed deviate regardless relevant consideration advanced C&NW; 31 Second: Notwithstanding foregoing, engage national handling negotiate joint consist notices.' App. 7. 32 Judge denied '(w)hether adjudicate respect subsection *.' 204—205. 979 1970). certiorari, 400 818, 38, (1970), conflict circuits. Piedmont Aviation, Inc. Air Pilots Assn., 416 633 (CA4 1969). evidences intention weighing relative merits attempts agreement, should, therefore, affirmed. 33 whether, dispute, completion determines 'every Underlying one, inquire collective determining complied duty. 34 answering paid undergone long evolution explored. 750—760, nn. 10—12, 1790—1795, (1961); Texas N.O.R. Clerks, 281 548, 50 427, 74 1034 (1930); FederationNo. (1937); Pacific Price, 360 601, 79 1351, 1460 (1959); Much experimentation passage proved unsuccessful. Recognition unrest industry created potentially grave public consequences, President, three messages 1923 1925, Republican Democratic Parties, 1924, call unprecedented cooperation H.R.Rep. 328, 69th 1st 2—3 (1926); S.rep. 606, Hearings Disputes (H.R. 7180) before Interstate Foreign Commerce, 21—22, 90, 197 (1926) (hereinafter Hearings). basically antagonistic forces urged sit down workable solution minimize rupture services provided. product devised themselves, unique blend looking toward settlement conciliation, voluntary abritration, presidential intervention, finally, ultimatee machinery, traditional measures. involved unparalleled country's felt significant selves Congress.5 significance lay since represented accomplishes success.' 21. 35 outstanding feature carriers, very few provisions, still fewer judicially ones.6 testimony spokesman unions, '(O) ur thought lot statute enforce. expect persuasion, exercised themselves Government mediation representing interest.' 65—66. absence coercive chose add them, noting interest permit fair trial method amicable adjustment agreed S.Rep. (1926). Thus, reveals dealing content enact dragged on, periods restrictions, another, Ninth, hope voluntarily 36 bring about settlement, From interested meaning provision viewed drafters one. During colloquy occurred: 37 'Mr. Huddleston. Now, referring section page 3, (')it shall officers, agents, employees, agreements,' etc. Do you agree unenforceable proceeding? 38 Richberg. Not always. involving arbitrary comply subject compulsion. am sure ways. 39 'In exerting agreements, officers refuse 40 You think, then, enforceable? 41 power, yes. Of absolute way, effort. attempt power.' 84—85. 42 response testified: 43 '* place, showed willful disregard requirements, agreement—in absolutely confer, discuss negotiate, invoked some compulsion, law. But outside that, face question, first, them error ways; and, second, unsuccessful, refer then magnitude actually affected substantially, itself adjustment.' 66. months discussion Richberg's uncontradicted carriers,7 seems above understanding part table talk exactly (1937). equitable force carrier, despite certification agent continued deal sanction context previous Pennsylvania 261 278, 67 536 (1923), 'no longer stand(s) unaided mandatory *. amendment added new makes arises among 'as who employees,' investigate certify name organization represent employees. commands 'upon receipt craft class Act.' 'It is, open doubt employer, command, proper courts.' 544—545, 598. 46 '(W)e assume (§ Ninth's) addition purposeless undertake employer preliminary steps reached. confer listen complaints, compose differences—in short, enter negotiation contemplated First.' 547—548, 599. stands, proposition once given settlement. essence, begin long, drawn-out process. 48 years carefully limited classes litigation prevent invidious discrimination bargaining. series beginning Steele Louisville N.R. 323 192, 65 226, 173 (1944),8 (§§ Sixth; Third, Fourth, Ninth), read aim impose exercise fairly conferred behalf acts, hostile them.' 202—203, 232. Recently, (1969), requirement, 'is design,' authority. 150, 299. instances specific, positive interference, underlying cohesiveness lies instance involvement. employees; bargained maintained entire range bargaining, mechanism induce negotiated involvement minimal keeping theme Act—to 'collective agents stepped being Order Telegraphers N.W.R. 362 330, 338, 761, 766, 774 (1960). 49 entirely different situation. Here, represented, maintained, important, met his counterpart. step-by-step prescribed carried through. holds assess run course. If, measures, sense within scheme, unspecified point notion constructed premise My summary clearly discloses process minuscule focus achieving protagonists. governmental regulation wages, hours, conditions. Instead seeks Trainmen, 318 6, 63 420, 423, 87 571 (1943) me chosen employees—in contemplate accord, scales favor thus aided terms. Rather point, impasse free self-help. 484—486, testified 'I wish stress others. opportunity preserve self-government industry. asking party. simply aid cooperation.' 51 Even apart sides specifically contemplated, destroy planned built framework. Each step drawn introduce slightly pressures preceding step. jointly. Next, pressure mediation. Then, office informed creation board. framework born knowledge final produce completed. gradually escalating pressures. provides guidance Does send finding impasse? Should phase proceedings? so, where? 52 More mortal today's inflicts critical role played presence weapons reserve. 488—489, 426—427. nears threat create impetus now thwarted proceedings process, worse, yet, thereof, becomes impotent, indeed. 53 mandate applicable. 563, 607; I.R. 353 30, 40—41, 635, 640, 622 (1957). 54 1802. 55 coframers excludes judiciary oversee efforts mutual A bargain, ineffective. redress deficiencies. 56 affirm. provides: application thereof.' reads part: 'No restraining temporary permanent person persons participating (as herein defined) doing, singly concert, acts: Ceasing refusing remain relation employment 104. strict procedural 12, infra. averred derelict See, besides 1969); 581 (1967), aff'g B.B.R.R. Conductors Brakemen, 253 538 (1966); Seaboard World Airlines, Transport Workers, 425 1086 (CA2 1970); Industrial Workers Galveston Wharves, (CA 1968). E.g., Elgin, J. E.R. Burley, 711, 721 722, 1282, 1288—1289, 1886 (1945), adhered rehearing, 327 661, 66 721, 928 (1946); Stark Wickard, 321 288, 306—307, 559, 569, 733 (1944); 339, (1960); 758, 1794, Benefit Non-Contract Employees, 380 650, 658, 85 1192, 1196, 133 (1965); 149, 151, 299, (1961). e.g., 19, 153 20, 300, 301, 66, 91. Howard, 343 768, 72 1022, 96 1283 (1952). occasion avoidance 'bad faith' defined Magruder Prince, note caveats. parallels effort, NLRA utmost care full awareness differences schemes. Cf. 383, 1118, circumspection used beyond 'desire agreement,' doing risks infringement strong substantive collective-bargaining full: complainant available arbitration.' 108. Richberg): ability year reports condemning other, though wrong. cause (Railroad) Machinery never work, deliver opinions party, soon began delivering publicly unfair human nature. board, manner itself. mediators function. Their remaining persuaders.' exclusive endanger effectiveness mediatory risk premature interruptions transportation, occurred apparent failed. text. 562—563, 606—607; 237, (1949); 774, 1025, (1952); 41—42, 640—641, (1957); 338—339, 766; 360—364, 777—779 (dissenting opinion); Textile Lincoln Mills, 448, 458, 912, 918, 972 debates permitting strikes cases. 75 Cong.Rec. 4937—4938 (Sen. Blaine); 5499, 5504 (Rep. LaGuardia). re-enacted 1934, 21, c. 1185. irreconcilable earlier, subsequent, latter prevail familiar construction. 606. 8(d) 158(d), precisely NLRB intruded too deeply guise faith. 395, 824, 1027 'Carriers thirty days' change affecting conditions employee group invoke cases: changes adjusted conference. exist time. promptly put communication controversy, efforts, endeavor submit controversy accordance chapter.' 'If chapter threaten substantially interrupt interstate degree country essential transportation service, notify thereupon, discretion, report respecting dispute. 'After days change, except arose.' thereafter, intervening 160 title, practices time Richberg: introduced Senate simultaneously represents organizations Executives representatives, majority, practically railroad.' 9. again negotiaton employers unparalleled, relations. 'For majority several creating peaceful prompt minor disagreements impair efficiency operations service render community. They law, obtain cooperative assure efficient continuous permanently protected. remarkable concerned able aside feelings suspicions characterized act belief reached, spirit negotiations.' 21—22. Thom (carrier representative). mind—the resting proponents interest. Suppose changed particular, alluded? personally attach substantial consider. measure adopted, backed permitted (a) ffect adversely interests, unwise thing insert coercion, substitute principles, anything liberating assumed you, measure.' 115. Carrier throughout None contradicted viewpoint testimony. Tunstall 210,

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