Document: 475 U.S. 282 106 S.Ct. 1057 89 L.Ed.2d 223 WISCONSIN DEPARTMENT OF INDUSTRY, LABOR AND HUMAN RELATIONS, et al., Appellantsv.GOULD INC. No. 84-1484. Argued Dec. 9, 1985. Decided Feb. 26, 1986. Syllabus A Wisconsin statute debars persons or firms who have violated the National Labor Relations Act (NLRA) three times within a 5-year period from doing business with State. The debarment lasts for years. After appellee was debarred in 1982, it filed an action injunctive and declaratory relief Federal District Court, claiming, inter alia, that pre-empted by NLRA. court agreed granted summary judgment appellee. Court of Appeals affirmed. Held: NLRA pre-empts statute. Pp. 286-291. (a) States are prevented not only setting forth standards conduct inconsistent NLRA's substantive requirements, but also providing their own regulatory judicial remedies prohibited arguably Because functions as supplemental sanction violations NLRA, conflicts Board's comprehensive regulation industrial relations precisely same way would prohibition against private parties State repeat labor law violators. That has chosen to use its spending power rather than police enacting does significantly lessen inherent potential conflict when two separate brought bear on activity. 286-289. (b) Although state nature "market participation" is subject restrictions placed Commerce Clause, prohibiting purchases violators functioning purchaser; scheme tantamount regulation. In any event, participant" doctrine reflects particular concerns underlying general notion regarding necessary extent areas where Congress acted, here This case State's policies address such "peripheral concern" implicates "interests so deeply rooted local feeling responsibility" pre-emption should be inferred. Nor determinations were intentionally left Congress. manifest purpose inevitable effect enforce requirements 289-291. 750 F.2d 608 (CA7 1984), BLACKMUN, J., delivered opinion unanimous Court. Charles D. Hoornstra, Madison, Wis., petitioner. Columbus R. Gangemi, Jr., Chicago, Ill., respondent. Justice BLACKMUN 1 question this whether (NLRA), 29 U.S.C. § 151 seq., debarring certain We hold does. 2 * directed Department Industry, Human maintain list every person firm found judicially enforced orders Board cases period. See Wis.Stat. 101.245 (1983-1984).1 procurement agents statutorily forbidden purchase "any product known manufactured sold included violators." 16.75(8).2 name remains violators' 101.245(4). 3 Appellee Gould Inc. Delaware corporation principal place Illinois. following enforcement four various divisions company, none which located still owned at time debarment. informed enter into no new contract company until announced continue current contracts long avoid contractual penalties, while products containing components produced company. At time, held worth over $10,000, had outstanding bids additional excess $10,000. 4 relief, arguing preempted Due Process Equal Protection Clauses Fourteenth Amendment.3 United Western claim, did reach arguments pertaining Amendment. 576 F.Supp. 1290 (1983). enjoined defendant officials refusing do Gould, components, including Id., 1299; App. Juris. Statement 86, 87.4 Seventh Circuit affirmed relevant part. (1984). noted probable jurisdiction, 471 1115, 105 2356, 86 257 (1985). As Appeals, we find issue. II 5 It now commonplace passing largely displaced relations. some controversy continues Act's pre-emptive scope, principles reasonably settled. Central among them rule set San Diego Building Trades Council v. Garmon, 359 236, 79 773, 775 (1959), may regulate activity protects, prohibits, protects prohibits. "conflict imminent" whenever "two activity," Garner Teamsters, 346 485, 498-499, 74 161, 170, 98 L.Ed. 228 (1953), Garmon prevents Act. U.S., 247, S.Ct., 781. designed prevent broadest sense" "complex interrelated federal law, remedy, administration," id., 243, 778, recognized "[c]onflict technique can fully disruptive system erected overt policy." Motor Coach Employees Lockridge, 403 274, 287, 91 1909, 1918, 473 (1971). 6 Consequently, there little doubt forbidding Like civil damages picketing, refused allow in-state interfere Congress' "integrated regulation" adding remedy those prescribed matter different kind ordered Board, "judicial concern necessarily focused activities sought regulate, method adopted." 778; 292, 1920-21. Indeed, "to grant . been withheld accentuates danger conflict," 781, because "the range available fundamental part" established 1918. 7 assert could bar residents contends, however, statutory invoked escapes exercise power. But seems us distinction without difference, least case, face serves plainly means enforcing concedes, think must, point deter reward "fidelity law." Tr. Oral Arg. 4, 6; Brief Defendants Support Motion Summary Judgment 83-C-1045 (WD Wis.), p. 18. No other credibly ascribed, given rigid undiscriminating manner operates: adjudged automatically deprived opportunity compete business.5 8 Wisconsin's unambiguously preventing Moreover, if valid, nothing taking similar already passed legislation disqualifying continuing offenders competing contracts.6 Each incrementally diminishes control thus further detracts created 9 Garner, 228. To uphold penalty simply operates through purchasing decisions therefore make sense. "It being regulated, formal description governing legal standards, proper focus concern." III 10 notes correctly Clause. White Massachusetts Constr. Employers, Inc., 460 204, 103 1042, 75 (1983); Reeves, Stake, 447 429, 100 2271, 65 244 (1980); Hughes Alexandria Scrap Corp., 426 794, 96 2488, 49 220 (1976). agree flatly "simply purchaser services," F.2d, 614; all practical purposes, 11 acted. addition authorizing congressional action, Clause limits absence approval. restricts "state taxes measures impeding free trade national marketplace," "[t]here indication constitutional plan limit ability themselves operate freely market." 437, 2277. contrast, large part "entrus[t] administration policy Nation centralized administrative agency." 242, see also, e.g., NLRB Nash-Finch Co., 404 138, 145, 92 373, 377-78, 30 328 (1971) ("The sole protector 'national interest' defined particularity Act") (footnote omitted). What permit entirely what place. Congressional course " 'the ultimate touchstone' analysis, see, Allis-Chalmers Corp. Lueck, 202, 208, 1904, 1910, 85 206 (1985), quotingRetail Clerks Schermerhorn, 375 96, 103, 84 219, 222, 179 (1963), cannot believe intended "interrelated under they exercises 12 Nothing course, purchasers boycotting government occupies unique position our society, conduct, regardless form, rightly special restraints. Outside area jurisprudence, far unusual prohibit making ways permissible parties. See, Elrod Burns, 427 347, 2673, 547 (1976); Perry Sindermann, 408 593, 2694, 33 570 (1972). moreover, understood protect interference. Machinists Employment Comm'n, 132, 148-151, 2548, 2557-58, 396 Teamsters Morton, 377 252, 259-260, 1253, 1258, 280 (1964); Cox, Law Preemption Revisited, Harv.L.Rev. 1337, 1346, 1351-1359 treats differently merely frequently take forms, role play. 13 say never influenced considerations, more ever touching matters Doubtless policies, like power, responsibility," 243-244, 778-779; Belknap, Hale, 463 491, 498, 3172, 3177, 77 798 And New York Tel. Co. Dept., 440 519, 99 1328, 59 553 (1979). clearly falls these categories. faced even plausibly defended legitimate response constraints economic needs, pursues task leave States. goal laudable, assumes reserved exclusively Board. 14 15 ordered. Section provides part: "(1) department [of industry, human relations] shall board, final determined sub. (1m), involved cumulative finding violations, act, contempt failure correct violation act occasions (1m) findings total violations. "(1m) On before July each year compile required (1) based upon ended September preceding. "(2) compiled records board. "(3) Whenever added send actions provided s. 16.75(8). "(4) remain years." enacted 1979 Wis.Laws, ch. 340, 3. became effective May 21, 1980. 16.75(8) "The administration] 101.245. secretary waive subsection maintenance, repair operating supplies systems equipment purchased prior date inclusion list, finds exists emergency threatens public health, safety welfare waiver meet emergency." advised ban applies counties, municipalities, political subdivisions 4. preferences companies, minority businesses, employers disabled workers, prison industries. §§ 16.75(1)(a), (3m)(b), (3s)(a), (3t)(c) (1983-1984). original complaint monetary damages, apparently abandoned request motion briefs judgment. 1290, 1293, n. Wis.1983). Gould's scheduled end 1985, contend moot. minimum, problem presented "capable repetition, yet evading review." E.g., Dunn Blumstein, 405 330, 333, 2, 995, 998, 31 274 (1972); Moore Ogilive, 394 814, 816, 1493, 1494-95, 23 (1969); Southern Pacific Terminal ICC, 219 515, 279, 283, 55 310 (1911). named defendants agencies, Relations, officials. dismissed agency Eleventh Amendment but, pursuant Ex parte Young, 209 123, 28 441, 52 714 (1908), allowed suit proceed F.Supp., 1293. appeal dismissal defendants, appear nominal Court's Rule 10.4. between challenged made obvious essentially punitive corrective remedy. "essentially remedial," generally authorized impose penalties solely deterrence retribution. Republic Steel NLRB, 311 7, 10-12, 61 77, 78-80, (1940). sanction, punishment purpose. Punitive sanctions remedial philosophy situations procedural logic. For example, certification bargaining representative direct appeal. An employer believes erred approving election defining unit obtain review bargain awaiting Magnesium Casting 401 137, 139, 599, 600, 27 735 (1971); AFL 308 401, 60 300, 347 One fact occurred manner. Elec. Components Div. 610 316 (CA5 1980). unsuccessful challenge sort, pursued good faith, will present especially inappropriate occasion sanctions. Conn.Gen.Stat. 31-57a (1985); Md. Finance & Procurement Code Ann. 13-404 Mich.Comp.Laws 423.322, .323, .324 (Supp.1985); Ohio Rev.Code 121.23

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