Document: 330 U.S. 767 67 S.Ct. 1026 91 L.Ed. 1234 BETHLEHEM STEEL CO. et al.v.NEW YORK STATE LABOR RELATIONS BOARD. ALLEGHENY LUDLUM CORPORATION v. KELLEY al. Nos. 55, 76. Argued Dec. 16, 17, 1946. Decided April 7, 1947. Appeal from the Court of Appeals State New York. Supreme York Chautauqua. Mr. Bruce Bromely, City, for appellants Bethlehem Steel Co. and others. John G. Buchanan, Pittsburgh, Pa., appellant Allegheny Ludlum Corp. William E. Grady, appellees. Robert L. Stern, Washington, D.C., United States, as amicus curiae, by special leave Court. Justice JACKSON delivered opinion 1 These appeals challenge validity Labor Relations Act applied to permit unionization their foremen. Conflict is asserted between it National hence with Commerce Clause Constitution. 2 After enactment Congress Act, July 5, 1935, 49 Stat. 449, 29 U.S.C. § 151 seq., U.S.C.A. adopted a following federal pattern. Laws 1937, Chap. 443, 30 McKinney's Consolidated York, Law, §§ 700 716. In administrative boards they create, procedures establish, unfair labor practices prohibited, two statutes may be taken present purposes same. But in provision determination units representation bargaining purposes, Acts are not identical. Their differences made plain setting forth 9(b) Federal that part which omitted brackets additions amended, 1942, 518, 705, subd. 2, italics: 'The board shall decide each case whether, order insure employees full benefit right self-organization, (and) collective otherwise effectuate policies this act, unit appropriate employer unit, multiple craft plant or (subdivision thereof) any other unit; provided, however, where majority particular so designate such purpose bargaining.' 3 The prescribed investigation, certification, hearing on election substantially same except law adds limitation found Act: '* * have authority investigate question controversy individuals groups within organization organizations affiliated parent organization.' Consolida ed 3. 4 at times pursued inconsistent applying respective petitions foremen class organize thereunder. Board has these cases recognized right; time it. Union Collieries Coal Co., 41 N.L.R.B. 961; Godchaux Sugars, Inc., 44 874. Later, there was period when, policy reasons but without renouncing jurisdiction, refused approve units. Maryland Drydock 733; Boeing Aircraft 51 67; General Motors Corp., 457. Now, again, supports unionize. Packard Motor Car 61 4, 64 1212; A. Young Spring & Wire 65 298. appellants, when desire frustrated Board, filed applications Board. It entertained its permitted them become unit. Both employers, different methods adequate under raise question, challenged constitutionality them. contentions ultimately were considered rejected decisions sustaining state power over matter brought here appeals. 5 controversies arose manufacturing plants located companies employ large staffs supervise much larger force labor. both concerns relation interstate commerce that, stated Jones Laughlin Corporation, 301 1, 57 615, 81 893, 108 A.L.R. 1352, reaches relations. On basis exercised certify agents than companies. Matter Corporation Workers Organizing Committee, Case No. III—R—411, N.L.R.B., June 29, 1942; C.I.O., 1006, 32 264, 1941 (production maintenance employees); A.F. L., 47 1330, 1943 (plant protection 52 1217, (employees department); 55 658, 1944 (fire department employees). contend Board's jurisdiction relations exclusive power; contends contrary while subject paramount, we here, until actually employees, exercised. 6 At courts considering issue, whether would authorize unsettled our decision 485, 789. Whatever constitutional issue been presented earlier phases evolution State, now having undertaken deal relationship foremen, prevented doing so. seen fit lay down even most general guides construction sometimes does, saying regulation either exclude action. Cf. Securities 1933, 18, 48 85, 15 77r, 77r; Exchange 1934, 28, 903, 78bb, 78bb; States Warehouse before after 1931 amendment, 39 490, 46 Sta . 1465, 7 269, 269. Our primarily one put Act. long rule exclusion action implied nature legislation although express declaration result wanting. Napier Atlantic Coast Line R. 272 605, 207, 71 432. determining will implied, well consider illustrated hand. authorized do business operate state, draw supply residents, impact industrial strife immediately felt police, welfare departments. interest competence legally practically regulate, recently left entirely control. Thus, 'intimately blended intertwined responsibilities national government' alone raises an inference exclusion. Hines Davidowitz, 312 52, 66, 399, 403, 85 581. 8 Indeed, reachable, reached, power, because doctrine given classic expression Shreveport case, can reach admittedly local intrastate activities 'having close substantial traffic control essential security traffic, efficiency service, conditions conducted upon fair terms molestation hindrance.' Houston, East West Texas Ry. 234 342, 351, 34 833, 836, 58 1341. See also Fainblatt, 306 601, 59 668, 83 1014. 9 sought some aspects employer-employee out interferences arise. dealt partially, outside scope delegation closely related matters. Where leaves free aspects, implies matters indifferent, since indifferent what individual his own volition only assume equally he complusion state. Such situation Allen-Bradley Local 1111, Electrical Radio Machine America Wisconsin Employment 315 740, 62 820, 86 1154, held employee union conduct no direct delegated exerted open However, stand 'as obstacle accomplishment execution objectives Congress.' Hill Florida ex rel Watson, 325 538, 542, 1373, 1375, 89 1782. Maurer Hamilton, 309 598, 60 726, 84 969, 135 1347. When outlined rather inclusive specific application tribunal, mere fact matter, agency action, might preclude if clear intended own. Oregon-Washington Nav. 270 87, 279, 70 482. cases, passed initiate f certain activities, effective must wait issuance rules body. interval those established, usually police Northwestern Bell Telephone Nebraska Commission, 297 471, 56 536, 80 810. Welch Hampshire, 79, 438, 500. administration comprehensive regulations effectively governing statute, said field statute invalid though phase up agency. slight potentially allows minute multitudinous subject, cf. Georgia, 280, 829, 1312, extensive made, measure relates separable distinct segment covered acted segment, treated manner similar effectiveness supervision awaits regulation. supra; supra. states use interval. Terminal Railroad Ass'n Brotherhood Trainmen, 318 63 420, 87 571. conclusion failure officials affirmatively exercise takes character ruling approved pursuant statute. 432; compare 482, Parker Brown, 317 341, 307, 315; Mintz Baldwin, 289 346, 53 611, 77 1245. 10 entertain foremen's latter class. There concession appellants' beyond authority. several proceedings whose rested words Congress. Neither did ever deny Soss Manufacturing 348. refusal discretion determine purposes. 733. We cannot, therefore, lies dormant unexercised. 11 Comparison show governments laid hold regulation, involves employers employees. Each wide plan governed somewhat standards. laws upheld, bodies asserting discretionary conducting hearings, supervising elections plant. They come determination, conflicting oncs past. Creamery Package Mfg. 108; Wisc. Emp. Rel. Bd. III, 348 E.—117. hardly dependent way decided. As Holmes Court, 'When subject-matter hand, coincidence ineffective opposition *.' Charleston W.C.R. Varnville Furniture 237 597, 604, 35 715, 716, 717, 1137, Ann.Cas.1916D, 333. Southern Railway Commission Indiana, 236 439, 448, 304, 308, 309, 661; Missouri Pacific Porter, 273 345, 383, 384, 385, 672. If attempt concurrent representation, necessarily denies other. second act follow first, make useless vain, depart it, produce mischievous conflict. argues enable had case. think test supremacy permissible here. industry engaged general. asserts, rightfully so, supra, constitute themselves believe room operation asserted. 12 Boards commendable effort avoid conflict overlapping statutes. find nothing negotiations, affects insofar involved subject. decline types budgetary presents problem decide. 13 therefore conclude apply attempted herein. judgments appealed reversed causes remanded further herewith. 14 Reversed. Separate FRANKFURTER MURPHY RUTLEDGE join. 16 legal derives 'employees' 2(3) 450, 152(3), entitled rights self-organization points out, chequered history denied resort seeking representation. During period, petitioning steel invoked descriptively characterized 'Little Wagner Act' enforces means does assumed sustained assumption. entirety—the gave precluded 17 merely undesirable, relations, compel recognition unions; and, refusing sanction unions, determined enterprises like us could exact recognition; oppose own, I should concur Court's decision, whatever interpretation course events lend itself. not, read restricted scope, based circumstances us. Apart suggestion declination 'in reasons' situations, carries least overtones meaning regardless consent excluded enforcing all industries borders granted opportunity invoke 18 inability powers lack funds ought furnish more persuasive reason finding function deliberate judgment concern promoted division resources Boards. This abstractly very practical situation. Based realization committed whole range authority, arrangement worked whereby so-called consistently jurisdiction. Federal-State working arrangement, arrived carrying responsibility breating life into bare bones legislation, relevant solution issues arising State-Nation interaction, set agreement Appendix. Particularly dealing important isolate workaday context. cannot join mean agree agencies divide, due regard interests, domain abstract which, practically, alone. cooperative agreements barred ousted superseded am unable see how revive short rations. 19 Since virtue itself, interdicted her While she sufferance, ascertaining allowed conferring bounty, extent viewed thrify eye. construing deals lie proper mindful delicate process adjusting interacting areas commerce. inevitable extension economic enterprise absorbed previously States. leg slating, indulging doctrinaire, hard-and-fast curtailment reflecting interests. construed accommodation assertions new functions historic persistent dual system government. can, chooses, displace far-reaching Clause, needs help generous judicial implications achieve supersession To construe needlessly forbid preexisting respect system. Any indulgence favor speak drastic clarity whenever chooses assure completely displacing 20 old considerations commonplace. results always harmonious drawn precepts. emphasis makes song. decisive difference view judges place principle 'the repugnance positive, acts reconciled together.' Sinnot Davenport, 22 How. 227, 243, 243. unequivocally doubt. real arise doubt, then depends require actual shown, argumentative suffices. 21 canvassed three opinions rel. frequent recurrence legislative share justify repetition. helpful recall circumspection absorption belonging observed railroad rates. Shepard (Simpson Minnesota Rate Cases), 230 352, 33 729, 1511, L.R.A.,N.S., 1151, Ann.Cas.1916A elaborate argument extended consideration, rates covering transportation stricken judicially shown adversely affect carriers aspects. largely accorded evinced Congressional history. year later, Interstate designed discriminatorily against commerce, removal discrimination Nevertheless, deem allow loosely used Accordingly insisted precision definiteness orders area. Illinois Central Public Utilities 245 493, 38 170, 425. Subsequently, Transportation 1920, formalized scope. expressly correct unreasonable reference rates, affected such. 13, par. amended ss 416 422 456, 484, 488, 15a; Chicago B. Q.R.R. 257 563, 42 232, 66 371, 1086; 591, 239, 385. significance exercising associated advisory capacity. Even foreign involved, naturally less favor, ruled derived complementary Brokerage Jensen, 322 202, 208, 209, 967, 971, 972, 88 1227, 152 1072. 23 No indicated, scrupulous patently terminated Metaphor—' occupied field'—has done service analysis. professed dominant current modus vivendi achieved field, Government sponsored. assures effectuation underlie agreed affecting interests common concern. 'Where provided collaboration conflict.' 24 What vast conferred problems wholly apart available funds. 1014, untold small difficulties aggregate unquestionably serious repercussions individualized localities. Accordingly, instead viewing enforce principles encroachment regards aid accomplishing end. Of course, said, opposition' save law. surely seeks 'to differently conceived Western Carolina R.R. Company, 25 explains reasonableness behind burdens State's Nation's. Annual Reports increasing arrears. end fiscal 1944, 2602 pending; 1945, 3244; 1946, 4605 unfinished cases. A shrewd critic thus expressed past often lain below surface doctrinal applications: 'Formally, discover Actually reaching adequately handled prescription impediment requirements deemed bane blessing.' T. Powell, Police Power, Minn.L.Rev. 607. submission us, authoritative manifestation blessing bane, yet duty. responsible uncontrolled nor structure policy, operation, prohibit enlist charged duties distribution 26 APPENDIX. 27 Documents Indicating Understanding Between NEW BOARD 250 57th Street 28 WILLIAM GRADY, Jr. Counsel JULY 10, 1945. ALVIN J. ROCKWELL, Esquire Counsel, 31 D.C. DEAR MR. ROCKWELL: examined your memorandum conference 20, 1945 considers represents statement proceedings. insurance (page memo), you mentioned prior experience statewide established upheld courts. easily prefer petition Best regards. 36 Sincerely, 37 /s/ NATIONAL BOARD, Washington 25, 26, 40 Jr., 43 Street, City 19, N.Y. 45 GRADY: Rockwell's absence vacation week, replying letter 10. discussed Members are, accordingly, circulating copies members Buffalo offices. hereafter followed guide State. Sincerely yours, Oscar S. Smith 50 OSCAR SMITH, Director Field Division. MEMORANDUM RE CONFERENCE BETWEEN REPRESENTATIVES OF AND HELD FRIDAY, APRIL offices Friday, attended Father Kelley, Chairman, Goldberg Lorenz, Executive Secretary Goldberg, Associate Feldblum, Smith, Regional Howard LeBaron, Rockwell, Attorney Perl, 54 January 9, Messrs. Rockwell Ryder, representing NLRB, principal entertaining involving nterstate establishments customarily certified representatives supervisory represent non-supervisory membership composed number supervisors. conference, 3, issued; appeared certifying taking believed proceeding certification included supervisors disposition Rochester Pittsburgh 1760. understanding reached conference. meantime, March issued holding proceed unaffiliated unions representative leaving representatives. arranged discuss canvass jurisdictions began consideration Boland's Madden dated 12, constituted during ensuing years. Boland states: Unless unusual circumstances, trades industries, clearing, record, officials: 1. Retail stores, 2. Small receive raw materials ship material proportion product Service (such laundries), 4. Office residential buildings, 5. clearly public utilities (this includes traction companies, gas electric light corporations), 6. Storage warehouses, 7. Construction operations, 8. Other obviously businesses. copy attached memorandum. preparation preceded based, relatively little clause circuit understood exist 1937. take pertinent example: 1937 retail establishments. accepted considerable stores Notwithstanding Boards, respectively, have, general, reflected large, businesses with. position repeatedly allotted type (rather, example, charge initially with), understanding, employer, thereafter refer coming cases.1 Following detailed discussion eight categories listed, quoted above. gist follows: stores. company operates mail pointed probably company. future cleared through offices, depending region arose. trades. furnishing guards, window washers, laundry, essentially services furnished enterprises, (An exception detective scale, concerning understood, jurisdiction.) enterprise, assert supplies guard, washing, rightly performed separate establishment properly rendered businesses, itself incident business. buildings. applicable thought office operating buildings tenants consist enterprises. building owned operated, both, business, expect jur sdiction. utilities. utilities, including electric, gas, traction, bus supplying across line. short, base 'affecting commerce' (plus shipment fuel capital equipment, resale), An few Edison originally Warehouses. seems being operated incidents expected except, ships, falling manufacturing, asserts addition foregoing lines activity, referred discussed. Insurance intermittently So far insurance, bonding, casualty etc., concerned, occupy filed. connection matured among Statewide activity advanced stage peculiarly clearance Newspapers. daily newspapers challenged, uniformly time, circulation departments newspapers, distributing confined single many character. particularly news vendors licensing requirements, feels Consistent approach, vendor four largest afternoon City. approach indicated line level managers. neither accept manager Board; above limited 68 Concurrent jurisdiction.2 'concurrent jurisdiction'—by meant procedure foll wed who simultaneously Acts. stated: 'So tentative await mutual study Fahy preparing.' appears never repared subsequent practice, seem problem, below, turn jurisdiction' arisen recent months because, 733, knew (See paragraph above, Washington.) Prior refrained intestate manufacturers employers. 69 suggested adhere impracticability emphasized, raised Constitution lawfully requirement imposed restraints enforced advisable doubtful obligation contribute peace recalled guarantees organizational character, manufacturers, keep advised decided entertain. broad score, reserving positions manufacturers. work lists periodically exchanged. details out. 72 Honorable WARREN MADDEN, 73 74 75 MADDEN: wish, first place, thank colleagues warm reception last Wednesday. gratifying know look forward wholehearted cooperation staff. gladly reciprocate. 76 requested, outline recollection reached. preparing. 78 79 82 Clearance certainly going required shipped (The breadth 'come rest' Schechter (Schechter Poultry States), 295 495, 837, 1570, 97 947.) You familiar, Section 715 reads 'Application article. provisions article concedes agrees protected railway *'. undoubtedly 'agrees with' contemplate necessity agreeing unilateral select solve created Section, bestow Presumable every proffered made. questions Directors instance, instruct reciprocate clearing attention. 90 Whenever agree, once. appreciate knowing accord 92 Very sincerely your, 93 P. 94 (Dr.) JOHN BOLAND, Chairman. 95 MINUTES AUGUST 96 informal inquiry Financial Employees Association asking behalf Harris Upham brokerage house. contemplated houses. concluded Company houses considerations. disposition, objection Dated Washi gton, 98 August Donn N. Bent 99 DONN BENT, 100 Secretary. Approved: 101 s/ P.M.H. 102 J.M.H. 103 Certified true copy. 104 105 106 305 197, 223, 206, 214, 126, deciding account existence protective contains authorizing enter compacts proceed. believed, nevertheless, embodied effect, assist Davega Radio, Inc. 281 N.E.2d 145; L.R.R.Man. 899. (July 11, 1939.)

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