Document: 452 U.S. 615 101 S.Ct. 2546 69 L.Ed.2d 280 UNITED ASSOCIATION OF JOURNEYMEN AND APPRENTICES the PLUMBING PIPEFITTING INDUSTRY STATES CANADA, AFL-CIO, et al., Petitioners,v.LOCAL 334, al. No. 80-710. Argued April 29, 1981. Decided June 22, Syllabus Held : A suit brought by respondent local union against petitioner parent international alleging a violation of union's constitution arising from issuance an order requiring consolidation certain unions, including respondent—which was instituted in state court but removed to federal union—falls within jurisdiction district courts under § 301(a) Labor Management Relations Act, 1947. That section establishes such for "[s]uits contracts . between any labor organizations" representing employees covered industry. is "contract and unions are "labor plain meaning 301(a), there no legislative history contrary interpretation. Section over disputes based on parent's does not depend upon allegations that dispute potentially could have significant impact labor-management relations or industrial peace. Congress concluded enforcement terms constitutions—documents prescribe legal relationship rights obligations affiliated locals—would contribute achievement stability. Pp. 619-627. 628 F.2d 812 (3 Cir.), reversed. Laurence S. Gold, Washington, D. C., petitioners. Jonathan G. Axelrod, respondents. Justice BRENNAN delivered opinion Court. 1 1947 (the Taft-Hartley Act) provides employer organization industry affecting commerce as defined this chapter, organizations." 61 Stat. 156, 29 U.S.C. 185(a) (emphasis added). The question presented case whether its union, international's constitution, falls courts. 2 * Respondent Local United Association Journeymen Apprentices Plumbing Pipefitting Industry States Canada (Local 334 respondent), chartered with (International Association), organization.1 Composed both plumbers pipefitters Morris County, N.J., one 27 NewJersey locals International prior 1977. After failing attempt urge New Jersey agree voluntary plan, proposed own plan would consolidate nine northern locals, into two plumbers, other pipefitters.2 Under plumber members be transferred Plumbers 14, Pipefitters 274. 3 When declined International's plan,3 issued August 4, 1977, pursuant 86 Association. section, entitled "Consolidation Locals," provides: 4 "Whenever, judgment General President, it apparent superfluous number Unions locality, best interest Association, locally at large, he shall power enforce said Unions, territory more provided course received sanction Executive Board." App. 25. 5 receiving response letter sent Board requesting stay pending appeal, filed Superior Court seeking enjoin consolidation. alleged complaint, inter alia, did permit division membership separate work classifications, action constitute general president had abused his discretion. Complaint ¶ 11, id., 21. Claiming suffer "substantial irreparable injury plaintiffs' [sic ] property 334" unless prevented, 13, 21, requested equitable relief enjoining return Local's charter seal, directing process internal appeal Board, preventing threatening officers expulsion loss membership. Id., 22.4 6 District Jersey, 28 1441.5 motion remand court, which denied. 98-99. Following completion discovery cross-motions summary judgment, ruled favor International. first lacked hear because failed exhaust remedies. Pet. Cert. 22a-23a. In alternative, merits "ample basis [International's] interpretation Constitution well application Order Consolidation 1977." 28a. 7 On Appeals Third Circuit, sua sponte, raised federal-court supplemental briefing issue parties. 812, 813 (1980). canvassing treatment Courts Appeals, held concerning intra-union matters do peace outside scope 301(a)." 820. Examining 334's potential effect pass "significant impact" test therefore 301(a). Ibid. Accordingly, vacated remanded instructions court. We granted petition certiorari, 449 1123, 937, 67 108 (1981), resolve important law. reverse. II 8 organizations [representing chapter]." 185(a). face, statute appears comprehend instant dispute. First, Association's may fairly characterized contract organizations. described "fundamental agreement association." Coronado Coal Co. v. Mine Workers, 268 295, 304, 45 551, 554, L.Ed. 963 (1925);6 see Carbon Fuel 444 212, 217, 100 410, 414, 62 394 (1979). unanimous can See, e. g., Alexander Union Operating Engineers, 624 1235, 1238 (CA5 1980); Studio Electrical Technicians 728 Photographers Motion Picture Industries, 659, 598 553 (CA9 1979); 657 Sidell, 552 1250, 1252-1256 (CA7), cert. denied, 434 862, 98 190, 54 135 (1977); Trail Brotherhood Teamsters, 542 961, 968 (CA6 1976); National Assn. Letter Carriers, AFL-CIO Sombrotto, 915, 918 (CA2 1971); Parks 314 886, 916-917 (CA4), 372 976, 83 1111, 10 142 (1963).7 Indeed, even decision Circuit review here recognized "contract" long plaintiff made "specific factual actions peace." 820.8 And complaint "[t]he (rights duties) governed Constitution." Amended Complaint, First Count 3, 55. 9 also noted prevailing state-law view contract. Machinists Gonzales, 356 617, 618-619, 78 923, 924, 1018 (1958) (discussing aspect constituting union). particular, widely around time enacted. Locals 1140 1145 Electrical, Radio Machine Workers America, 232 Minn. 221-222, N.W.2d 408, 411 (1950); Brewery, Flour, Cereal, Soft Drink & Distillery C. I. O. Becherer, N.J.Super. 456, 459, A.2d 900, 901, N.J. 374, 70 537 (1949); 13013, 50, U. M. W. Cikra, Ohio 41, 49, 90 N.E.2d 154, 158 Bridgeport Brass Union, 320 Mine, Mill Smelter Smith, 15 Conn.Supp. 505, 511-512 (Super.Ct.1948), aff'd, 136 Conn. 654, 74 191 Textile 204 Federal 21500, 240 Ala. 239, 243, 198 So. 606, 609 (1940). See Alexion Hollingsworth, 289 N.Y. 91, 96-97, 43 825, 827 (1942). generally 87 C.J.S., Trade §§ 42-43, pp. 836-842, 837, n. 39, 838, 53 (1954). Second, just so too clear organization[s] chapter." As 152(5), term organization" means 11 "any kind, agency employee representation committee participate exists purpose, whole part, dealing employers grievances, disputes, wages, rates pay, hours employment, conditions work." 12 entertained numerous cases where parties see, Automobile Hoosier Cardinal Corp., 383 696, 1107, 16 192 (1966), Drake Bakeries, Inc. Bakery Confectionery 370 254, 82 1346, 474 (1962). we pause existence coal company three unions. U.S., 214, S.Ct., 412. 13 If "contracts clause supports case, hardly upsets specific phrase explain what meant. provision suits inserted late bill's House-Senate Conference Committee. H.R.Conf.Rep.No.510, 80th Cong., 1st Sess., 65-66, U.S.Code Cong.Serv.1947, 1135 (1947), NLRB, Legislative History 1947, 569-570 (hereafter Leg. Hist.); 93 Cong.Rec. 6445 (1947); Hist., 1535, 1543; Retail Clerks Lion Dry Goods, Inc., 369 17, 26, 541, 547, 503 Report postconference debates contain explanatory remarks about addition. only reference Act prepared Senator Taft Congressional Record, merely recited: "Section 301 differs Senate bill respects. Subsection (a) organizations, employer, courts." 1543. 14 Relying primarily decisions below "persuaded must involve events F.2d, 818. It doubt true primary purpose "to promote through encouragement refinement collective bargaining process." Charles Dowd Box Courtney, 368 502, 509, 519, 523, 483 (1962); Lincoln Mills, 353 448, 452-455, 77 912, 915-17, 172 (1957). observed, "[s]tatutory recognition valid, binding enforceable will higher degree responsibility agreements, thereby S.Rep.No.105, 17 423. But apparently concerned legally accountable agreements they entered among themselves, objective itself further stability Therefore, counteract jurisdictional defects many difficult impossible bring reason their status unincorporated associations. supra, 510, 524; 5014 (1947) (comments Sen. Ball, floor leader bill) ("because associations, common law great requires service every member very difficult");9 15, 421; Comment, Applying "Contracts Between Organizations" Clause 301: Plea Restraint, Yale L.J. 299, (1959). Surely conclude constitutions documents Since were probably most commonplace form when enacted (and still today), obviously familiar importance, cannot believe used unqualified without intending encompass category represented constitutions. Nothing language suggests special qualification limitation reach, decline interpose ourselves.10 goes than should trigger jurisdiction, arguing never extend clearly intend intervene affairs unions." Brief 16-17. support position, cites several provisions Act,11 some statements history,12 our NLRB Allis-Chalmers Mfg. Co., 388 175, 184, 2001, 2009, 18 1123 (1967), observed connection 8(b)(2) Act13 "Congress expressly disclaimed intention interfere self-government regulate affairs."14 Respondent's argument wide mark. There obvious difference substantive regulation governance membership, freely organizations.15 915-916. discussing unfair practices respect employer-union relationship, stated: "Once left usual processes 42 added), 1147, 546; Teamsters Lucas Flour 95, 101, 9, 571, 575, 573 Similarly, chose enforced need decide today applied involving enough observe apply "is law, fashion policy national laws." 917. Whether source 457, 918, 704-705, 1112-1113, principles another case.16 far day deny intended enjoy wide-ranging authority 301. say imaginable hold, now, are. Reversed. 19 Chief BURGER, dissenting. 20 holds To reach result, claims rely statute, uncontradicted history. Unlike Court, I construe these simple English words convoluted fashion. me, abundantly confirms reading comports Congress' intent adopting Act. 21 course, 2(5) 152(5). am willing accept, least purposes Court's conclusion "contract." reasonably extent all, themselves; constituent locals. Although autonomy given vary nonetheless "subordinate bodies." Roomkin, Structure, Internal Control, Strike Activity, Ind. Lab.Rel.Rev. 198, 199 (1976). "Local mere subdivisions whose provide government counties, cities, towns, villages." Leiserson, American Democracy (1959) Accord, 280; Cook, Dual Government Unions: Tool Analysis, 322, 330, 331 Thus, creatures and, indirectly, workers. Obviously, then, organizations"; confer out violations constitutions.1 22 recently Rubin States, 424, 430, 698, 701, 66 633 "[w]hen find unambiguous, judicial inquiry complete," unusual circumstances present. One those indication meaning. Here, however, recognizes "there meant,"ante, 623; accordingly, meaning, constitutional govern. Indeed BRENNAN, 185-187, 2010, amply demonstrated discussion regulatinginternal indicates principal authors intervening disputes. ante, 625-626.2 23 attempts passages saying Congress, enacting providing "enforcement ." Ante, 626. This answer applicable " 'is laws.' "Ante, 627 (quoting 917, (1957).) Committee Reports regarding accountability all relation collective-bargaining employers; local's invoking fully consistent holding such. 24 irrelevant that, years after adoption engage Labor-Management Reporting Disclosure 1959, 73 519 (codified 401 seq.).3 has before 1959 "the comprehensive conduct 193, 2008 Moreover, careful construction comprehensiveness adopted lead presumption deliberately excluded regulatory scheme remedies Texas Radcliff Materials, 451 630, 644-645, 2061, 2069, 68 500 (1981); Northwest Airlines, Transport 77, 97, 1571, 1583-1584, 750 (1981).4 25 examined history, fabric invites resort better resolved judiciary. dissent. 26 STEVENS, whom REHNQUIST joins, essential elements Nation's creating basic procedures enforcement. enable carry policy, construed grant rules making management labor. presents conferred lawmaking drafted appear exclusively jurisdictional," Thread 113 F.Supp. 137, 139 (Mass.1953), meant authorization "federal body .." 451, 915. examining 301, make importantly, "procedure either party." 453, 916.1 Because unambiguously declared encourage Judiciary, 453-456, 916-17, remedy fashioned performance arbitrate grievance, proper implementation defined. Thus created new rule supported express statutory authority. Rather example "range inventiveness" implicitly authorized Congress. 918. unconstitutional, controversies Commerce plain." Ibid.2 Two conclusions derived Mills. underlying settled principle peace, permissible exercise Clause. if creation then "arising under" "laws" Art. III, 2, Constitution.3 rather congressional create interests agreements. together resulted employers.4 30 Neither emerging Mills present threat sufficient justify Clause.5 More indication, govern contractual relating "few shafts light" found helpful construing recognizes, 2550, meant." absence dictates "or otherwise exists.6 justification perceived warrant rights. 31 construes purports constitution. right identified favoring disfavoring unions.7 Unless protection, equivalent authorizing litigation people named Jones, Stevens. Some questions; not.8 rent office space another, lend money, manage credit union. No implicated kind,9 limited III adjudicate issues contracts.10 32 illustrated choice cases. states, 627, follow command fashioning looking 'policy explaining justified enforceability indicated broad powers guided penumbra mandates" "by legislation effectuate policy." Five later, 573, served establishment uniform deciding law.11 context give clue thus follow, little borrow law.12 guideposts planted interests, ability obtain—and for—uniformity greatly reduced. conceive how large part State State. 33 question.13 arise laws States," quite subject-matter jurisdiction. 34 respectfully approximately 550 335,000 Canada. (CA3 1980). pipefitter third local, metal trades Public Service Electric Gas established plan. involved local. behalf hearing officer conducted each affected allowed hearing, recommended president. subsequently amended addition discretion specify facts 'superfluous' insofar area elimination large." Second 61. Immediately following removal, obtained temporary restraining 66-67. dissolved denied request preliminary injunction. Coronado, liable damages caused strike called organization. provided: "No permitted major portion members, Convention Board," "Districts strikes respective districts responsibility, financed sanctioned 299-300, 552. Taft, writing "it shown impose liability [the union] done agents accordance fundamental 554. Smith 493 1241, 1243 (1974) Tenth appeared suggest word "contracts" constitutions, although controversy "relates nothing relations," leaving open might deciding, strong 1219 Carpenters Joiners 93, 96 (1974), Columbia 1199 DC, Hospital Health Care Employees Employees, 175 U.S.App.D.C. 70, 72-73, 533 1205, 1207-1208 (1976), asserted "need face contract," absent allegation "actual threats Even concedes contract, albeit "between secondarily bodies organization." 14-15, 10. carefully reviewed data compiled entities. 15-18 421-424; H.R.Rep.No.245, 108-109 399-400. notes "had easily explicitly." 8. strange suggestion construction, specifically inclusive. note urged sort ad hoc judgments sufficiency pleadings unfettered belies. Sections 8(a)(3), 8(b)(1)(A), 158(a)(3), (b)(1)(A), (b)(2). For example, 8(b)(1)(A) states "this paragraph impair acquisition retention therein." commenting proviso "It sponsors amendment 4272 1141. 158(b)(2), states: "(b) practice agents— "(2) cause discriminate subsection (a)(3) been terminated ground failure tender periodic dues initiation fees uniformly required condition acquiring retaining membership; passage Landrum-Griffin affairs," 2013, confirmation contemplate Allis-Chalmers, 8(b)(1)(A)'s prohibition activity "restrain coerce" prevented collecting fines who honor strike. not, 195, 2014, indeed suggested reasonable fines, 192-193, 2012-13. dealt affairs, pre-existing individual Evening News Assn., 371 267, 246 Compare Abrams Carrier 1234, 1247 1970), sub nom. Steelworkers Abrams, 1009, 91 1253, 545 (1971), 1976). intimate typical locals—for sale equipment lease property—would rise indicate silence, anything, betokens subject regulation. Of seldom, ever, subsequent Congresses. Nevertheless, Drivers, 362 274, 291, 80 706, 716, 710 (1960) added) "To sure, establish However, step evolving pattern conduct, relevant consideration. properly take account later asked earlier Act's vague Assuming, arguendo, vague, regulating becomes relevant. relies treated contracts. 621-622. How courts, plenary develop contracts, regard bearing admitted "somewhat cloudy confusing" "a few light illuminate problem." 452, dropped abide p. 546 (hereinafter History). Both House party. 916. wanted inclusion no-strike clauses agreements: "The chief advantage expect assurance uninterrupted operation during agreement. Without effective method assuring freedom economic warfare agreement, why desire sign contract." Report), History, 422. quid pro quo clause, 455, cited Jones Laughlin Steel 1, 57 615, 81 893 proposition. decided 1937, sustained constitutionality valid "When industries organize themselves scale, interstate dominant factor activities, maintained forbidden field enter necessary protect paralyzing consequences war? often practical conception. equally interferences appraised ignore actual experience. "Experience self-organization representatives choosing Refusal negotiate prolific causes strife." 41-42, decided, commerce. LMRA "cloudy jurisdictional, particular 483. With matter "[T]o faithful parties, "Statutory binding, logical step. Report, 16-17, 422-423. entity comparable bank, consequence party, whenever litigant. Osborn Bank Wheat. 738, 204; 470-473, 928-930 (Frankfurter, J., dissenting). "In sought policies. importance—if overriding one—was free bargaining. 104, 577, Insurance Agents, 361 477, 488, 419, 426, 454 (1960); 453-454 [77 916]." 218, 394. looked beyond affect Laughlin, NLRA, pointed decisional indicating anything jurisdictional: sentence refers employer—a jurisdiction—the additional concluding substantive. present, identify peace" exercising impact. enforcing arbitration there. desirous promoting strike, infer belief fostered indisputably grants arises "[w]e 301(a)," limit opinion. permits implicating interest. Absent restricting presence right, determine encompassed read way reads it, suspect, Constitution. Because, "an ought violate possible remains available," Catholic Bishop Chicago, 440 490, 500, 99 1313, 1318, 59 533, accordingly interpret question. uniformity: "[T]he peculiarly calls law.' Pennsylvania R. Comm'n, 250 566, 569 [40 36, 37, 64 1142]; Cloverleaf Butter Patterson, 315 148, 167-169 [62 491, 501-03, 754]. possibility different meanings inevitably exert disruptive influence negotiations administration importance systems makes single particularly compelling. ordering adjusting competing keystone frustrates effort stimulate smooth functioning core policy. due factors bear area, California Zook, 336 725, 730-731 [69 841, 843-44, 1005]; Rice Santa Fe Elevator 230-231 [67 1146, 1152, 1447], acting doctrines prevail inconsistent rules." 104-105, S.Ct 577-578. petitioners law" borrowed statement petitioners' counsel oral illustrates, existing formulation "federal" rule: "Where don't normal start scratch. It's incorporation except incompatibility. me visualize incompatibility owes unrelated $500 fact violated promissory note." Tr. Oral Arg. 16. unremarkable striking easy enlarges Government—and Judiciary particular—at expense States.

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