Source: https://supreme.justia.com/cases/federal/us/331/519/
Timestamp: 2019-04-22 08:48:36+00:00

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Justia › US Law › US Case Law › US Supreme Court › Volume 331 › Railroad Trainmen v. Baltimore & Ohio R. Co.
Brotherhood of Railroad Trainmen v. Baltimore & Ohio Railroad Co.
1. Under § 17(11) of the Interstate Commerce Act, as amended by the Transportation Act of 1940, a union duly designated as the representative of employees of a railroad is given an absolute right, within the meaning of Rule 24(a)(1) of the Federal Rules of Civil Procedure, to intervene in a suit brought under § 16(12) to enjoin the railroad and its employees from violating an order of the Interstate Commerce Commission where the injunction sought would prevent the railroad from carrying out a contract with the union and was directed in part against the employees. Pp. 331 U. S. 525-526.
(a) The right of intervention granted to representatives of employees of carriers by § 17(11) applies to a court proceeding under § 16(12), and not merely to proceedings before the Commission. Pp. 331 U. S. 526-530.
(b) The right to intervene granted by § 17(11) is absolute, and not merely permissive. Pp. 331 U. S. 530-532.
(c) A suit is one "affecting such employees" within the meaning of § 17(11) if the employees would be prejudiced or bound by any judgment that might be entered in the case. Pp. 331 U. S. 530-531.
2. An order of a district court denying a union the right under § 17(11) to intervene in such a case is appealable to this Court, which has jurisdiction to consider the appeal on its merits. Pp. 331 U. S. 524-525, 331 U. S. 531-532.
A district court denied a petition of a union of railroad employees to intervene under § 17(11) of the Interstate Commerce Act and Rule 24(a) of the Federal Rules of Civil Procedure in a suit brought under § 16 (12) to enjoin the railroad and its employees from violating an order of the Interstate Commerce Commission. On appeal to this Court, reversed, p. 331 U. S. 532.
Our concern here is with the intervention rights of representatives of railroad employees in a suit brought against the railroad under § 16(12) of the Interstate Commerce Act, 49 U.S.C. § 16(12).
The origin of this suit is to be found in an order issued by the Interstate Commerce Commission on May 16, 1922. Chicago Junction Case, 71 I.C.C. 631. See also Chicago Junction Case, 264 U. S. 258. The Commission there approved the purchase by the New York Central Railroad Co. (Central) of all the capital stock of the Chicago River & Indiana Railroad Co. (River Road); it also authorized the leasing to River Road of all the properties of the Chicago Junction Railway Co. (Junction) for 99 years and thereafter, at the lessee's option, in perpetuity. Among the properties in question were trackage and switching facilities at the Union Stock Yards, Chicago, Illinois, connecting with various trunk lines. Prior to the Commission order, the practice had been for the trunk line railroads to use their own power and crews to move their empty and loaded livestock cars over these tracks to and from the loading places in the Union Stock Yards. For the privilege of so moving their cars, the railroads were charged $1.00 per car, loaded or empty.
existing between the Junction and River Road and all carriers operating in Chicago shall be continued, insofar as such matters are within the control of the Central."
A stipulation of facts was then filed. After describing the change in handling the cars, it pointed out that this change resulted from a settlement between the River Road and the Brotherhood of Railroad Trainmen of a labor dispute over the work involved in these livestock car movements. The Brotherhood was the bargaining agent under the Railway Labor Act for the River Road trainmen. It made a demand, based upon its contract with River Road, that these trainmen be given the work of moving and switching the livestock cars over the River Road trackage. The Brotherhood threatened to call a strike unless this demand was met before 10:30 p.m., January 23, 1946, a threat that was backed by an almost unanimous strike vote of the trainmen. Under this threat, River Road made an agreement with the Brotherhood shortly before the scheduled strike hour, as a result of which the River Road trainmen were to be permitted to move and switch the cars. The notice to the trunk line railroads of this change in practice subsequently followed.
Three days after the preliminary injunction became effective, the Brotherhood asked leave to file its special appearance for the purpose of moving to vacate the injunction and to dismiss the proceedings for failure to join the Brotherhood and its members as indispensable parties. This motion was denied. River Road then filed its answer to the original complaint, pointing out that the changed arrangement resulted from the labor dispute with the Brotherhood and contending that this new practice did not violate the 1922 Commission order. The Brotherhood thereafter filed its motion to intervene generally as a party defendant, alleging that the primary purpose of the suit was to nullify its agreement with River Road and to deprive the Brotherhood members of the work they were performing under that agreement, and that the Brotherhood members were therefore indispensable parties. The contention was made that the Brotherhood had an unconditional right to intervene by virtue of § 17(11) of the Interstate Commerce Act [Footnote 4] and Rule 24(a)(2) of the Federal Rules of Civil Procedure, and 28 U.S.C. § 45a was later added in support of this contention. But the motion to intervene was denied by order, without opinion.
matter of right. We postponed further consideration of the question of our jurisdiction to review the order to the hearing of the appeal upon the merits.
Ordinarily, in the absence of an abuse of discretion, no appeal lies from an order denying leave to intervene where intervention is a permissive matter within the discretion of the court. United States v. California Canneries, 279 U. S. 553, 279 U. S. 556. [Footnote 5] The permissive nature of such intervention necessarily implies that, if intervention is denied, the applicant is not legally bound or prejudiced by any judgment that might be entered in the case. He is at liberty to assert and protect his interests in some more appropriate proceeding. Having no adverse effect upon the applicant, the order denying intervention accordingly falls below the level of appealability. But where a statute or the practical necessities grant the applicant an absolute right to intervene, the order denying intervention becomes appealable. Then it may fairly be said that the applicant is adversely affected by the denial, there being no other way in which he can better assert the particular interest which warrants intervention in this instance. And since he cannot appeal from any subsequent order or judgment in the proceeding unless he does intervene, the order denying intervention has the degree of definitiveness which supports an appeal therefrom. See Missouri-Kansas Pipe Line Co. v. United States, 312 U. S. 502, 312 U. S. 508.
court, and if there is no abuse of discretion, the order is not appealable, and we lack power to review it. In other words, our jurisdiction is identified by the necessary incidents of the right to intervene in each particular instance. We must therefore determine the question of our jurisdiction in this case by examining the character of the Brotherhood's right to intervene in the proceeding brought under § 16(12) of the Interstate Commerce Act.
"Upon timely application, anyone shall be permitted to intervene in an action: (1) when a statute of the United States confers an unconditional right to intervene; or (2) when the representation of the applicant's interest by existing parties is or may be inadequate and the applicant is or may be bound by a judgment in the action. . . ."
"Upon timely application, anyone may be permitted to intervene in an action: (1) when a statute of the United States confers a conditional right to intervene; or (2) when an applicant's claim or defense and the main action have a question of law or fact in common. In exercising its discretion, the court shall consider whether the intervention will unduly delay or prejudice the adjudication of the rights of the original parties."
under Rule 24(b) is made, nor is there a contention that the District Court abused any discretion it might have had.
"Representatives of employees of a carrier, duly designated as such, may intervene and be heard in any proceeding arising under this Act affecting such employees."
First. It is unquestioned that the Brotherhood is the duly designated representative of the River Road trainmen.
Second. The right of intervention granted to such a representative by § 17(11) applies to a court proceeding under § 16(12) of the Act, the plain language of § 17(11) extending its reach to "any proceeding arising under this Act."
On this point, however, the appellee railroads contend that § 17(11) must be confined to proceedings before the Interstate Commerce Commission, to the exclusion of court proceedings. In support of this contention, they point to the fact that § 17 as a whole is primarily concerned with Commission procedure and organization. That fact is emphasized by the heading of § 17 as it appears in the Statutes at Large, 54 Stat. 913, and the United States Code, 49 U.S.C. § 17, a heading that reads: "Commission procedure; delegation of duties; rehearings." The inference is then made that paragraph (11), with which we are concerned, must be limited by that heading and by the general context of § 17 as a whole. The result of the contention is that the phrase "any proceeding arising under this Act," as found in paragraph (11), is rewritten by construction to refer only to "any proceeding before the Commission arising under this section."
"A new paragraph (9) is included providing that orders of a division, an individual Commissioner, or a board shall be subject to judicial review as in the case of full Commission orders, after an application for rehearing has been made and acted upon."
"A new paragraph is added at the end of section 17 providing that representatives of employees of a carrier may intervene and be heard in any proceedings arising under part I affecting such employees."
By such language in their reports, the framers of § 17 recognized the obvious fact that certain provisions of that section deal with something more than might be indicated by the heading.
the heading of a section cannot limit the plain meaning of the text. United States v. Fisher, 2 Cranch 358, 6 U. S. 386; Cornell v. Coyne, 192 U. S. 418, 192 U. S. 430; Strathearn S.S. Co. v. Dillon, 252 U. S. 348, 252 U. S. 354. For interpretative purposes, they are of use only when they shed light on some ambiguous word or phrase. They are but tools available for the resolution of a doubt. But they cannot undo or limit that which the text makes plain.
Here, the meaning of § 17(11) is unmistakable on its face. There is a simple unambiguous reference to "any proceeding arising under this Act" or, as the House committee paraphrased it, [Footnote 10] to "any proceedings arising under part I." There is not a word which would warrant limiting this reference so as to allow intervention only in proceedings arising under § 17 or in proceedings before the Commission. The proceedings mentioned are those which arise under this Act, an Act under which both judicial and administrative proceedings may arise. [Footnote 11] The instant case is a ready illustration of a judicial proceeding arising under this Act; a suit of this nature is authorized solely by § 16(12) of the Act. [Footnote 12] Hence, it is a proceeding to which the right of intervention may attach by virtue of § 17(11).
before the Commission. Occasions may arise, as in this case, where the employee representatives have no interest in intervening in the original administrative proceeding, but where they have a very definite interest in intervening in a subsequent judicial proceeding arising under the Act. When the framers have used language which covers both types of proceedings, we would be unjustified in formulating some policy which they did not see fit to express to limit that language in any way.
Third. This is a proceeding arising under the Act which affects the employees represented by the Brotherhood. Nothing could make this plainer than the fact that direct injunctive relief was sought and obtained against these employees. The appellee railroads sued to enjoin River Road and its employees from disobeying the third condition of the 1922 Commission order. It was alleged that this condition required River Road and its employees to permit the railroads to use their own power and crews in moving cars over the River Road line. Yet that was precisely the subject matter of the conflict between River Road and the Brotherhood, resulting in the insertion of important provisions in the contract between them. If the Commission order did require the River Road employees to forego operating the livestock cars, their contract rights with River Road were affected in a very real sense. Acts done by the employees in performance of this contract obviously prompted this suit, and any such acts performed after the issuance of an injunction might give rise to contempt action. It is thus impossible to say that this proceeding is not one "affecting such employees" within the meaning of § 17(11).
terms of "may intervene and be heard," which might be construed as giving only a discretionary right. But our view, as we have indicated, is that, once the requirements of § 17(11) have been met, the employees' representative acquires an absolute right of intervention.
Some statutes speak of intervention "as of right." Thus, where suit is brought by or against the United States to enforce or set aside a Commission order, the Commission or the parties in interest to the proceeding before the Commission "may appear as parties thereto . . . as of right." 28 U.S.C. § 45a. In such a case, the right to intervene is absolute and unconditional. Sprunt & Son v. United States, 281 U. S. 249, 281 U. S. 255.
No less absolute or unconditional is the right to intervene under § 17(11), which permits intervention where the employees are affected by the proceeding. To be sufficiently affected within the meaning of this provision requires that the employees be prejudiced or bound by any judgment that might be entered in the case, as is the situation relative to the River Road employees. Once it is clear that an effect of that degree is present, however, there is no room for the operation of a court's discretion. Whether the employees' interests should be asserted or defended in a proceeding where those interests are at stake is a question to be decided by the employees' representative, not by the court. The statutory term "may intervene" thus means "may intervene if the employees' representative so chooses," rather than "may intervene in the discretion of the court." And if the representative does choose to intervene, it may do so as a matter of right within the meaning of Rule 24(a)(1) of the Federal Rules of Civil Procedure. Such is this case.
Brotherhood would have had such a right apart from § 17(11). It follows that we have jurisdiction to consider the appeal on its merits. And, in the exercise of that jurisdiction, we reverse the judgment of the District Court denying leave to the Brotherhood to intervene.
Baltimore & O. R. Co. v. United States (unreported), United States District Court for the Northern District of Illinois, Eastern Division, Equity No. 3427, January 15, 1929. The court approved the Commission order as amended in 150 I.C.C. 32. That amendment is not germane to this case.
The Commission based its complaint upon § 5(8) of the Interstate Commerce Act, 49 U.S.C. § 5(8), which authorizes the Commission to seek, and grants jurisdiction to the federal district courts to issue, injunctive or mandatory relief to restrain violation of or compel obedience to an order issued under § 5.
On appeal by Junction, the Seventh Circuit Court of Appeals reversed the decree as to Junction, holding that Junction had no control over, and nothing to do with, the acts complained of by the appellees. Baltimore & O. R. Co. v. Chicago Junction R. Co., 156 F.2d 357.
See also Ex parte Cutting, 94 U. S. 14; Credits Commutation Co. v. United States, 177 U. S. 311; Ex parte Leaf Tobacco Board of Trade, 222 U. S. 578; In re Engelhard, 231 U. S. 646; City of New York v. Consolidated Gas Co., 253 U. S. 219; New York City v. New York Telephone Co., 261 U. S. 312.
"Representatives of employees of a carrier, duly designated as such, may intervene and be heard in any proceeding arising under this chapter and chapters 8 and 12 of this title affecting such employees."
"The provisions of section 12 and section 17 of chapter 1 of this title and sections 46-48 of this title shall apply with full force and effect in the administration and enforcement of this chapter."
H.Rep. No.1217, 76th Cong., 1st Sess., p. 13; H.Rep. No.2832, 76th Cong., 3d Sess., p. 72.
H.Rep. No.2016, 76th Cong., 3d Sess., p. 67; H.Rep. No.2832, 76th Cong., 3d Sess., p. 72.
H.Rep. No.1217, 76th Cong., 1st Sess., p. 15.
Section 17(11), by referring to proceedings arising under "this Act," also affects judicial and administrative proceedings arising under Parts II and III of the Act. See note 6 supra.
Section 16(12) is labeled "Proceedings to enforce orders other than for payment of money." 49 U.S.C. § 16(12). It provides that, if any carrier fails to obey a Commission order other than for the payment of money, the Commission, any injured party or the United States may apply to a federal district court for the enforcement of the order.

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