Document: 353 U.S. 553 77 S.Ct. 1037 1 L.Ed.2d 1034 STATE OF CALIFORNIA, Petitioner,v.Harry TAYLOR, Peter A. Calus, James W. Brewster, et al. No. 385. Argued April 2, 1957. Decided June 3, Mr. Herbert E. Wenig, Asst. Atty. Gen. of California, San Francisco, Cal., for petitioner. Burke Williamson, Chicago, Ill., respondents. Justice BURTON delivered the opinion Court. The question presented here is whether Railway Labor Act May 20, 1926, 44 Stat. 577, as amended, 45 U.S.C. § 151 seq., U.S.C.A. applies to State Belt Railroad, a common carrier owned and operated by California engaged in interstate commerce. For reasons hereafter stated, we hold that it does. 2 operations Railroad have been described this Court Sherman v. United States, 282 25, 51 41, 75 L.Ed. 143; States 297 175, 56 421, 80 567; Latimer, 305 255, 59 166, 83 159. It parallels Francisco waterfront, serves wharves industrial plants, connects with car ferries, steamship docks three railroads. commerce files tariffs Interstate Commerce Commission. 3 over 65 years, has California. Board Harbor Commissioners Harbor, composed appointed Governor. Its employees number from 125 255 are accordance civil service laws State. These prescribe procedures hirings, promotions, layoffs dismissals, authorize Personnel fix rates pay overtime.1 4 On September 1, 1942, entered into collective-bargaining agreement Brotherhood Locomotive Firemen Enginemen Trainmen representatives Railroad's operating employees. This established dismissals. also fixed overtime. Those differed their counterparts under state laws. 5 conformed was observed parties at least until January 1948. At time, successor instituted litigation courts which contended had no application wages working conditions were governed State's rather than agreement. contention rejected local trial court District Appeal. Trainmen, Cal.App., 222 P.2d 27. was, however, accepted Supreme one justice dissenting, 37 Cal.2d 412, 422, 232 857, 864, certiorari denied 342 876, 72 96 658. 6 Shortly thereafter, five present action Northern Illinois against ten members National Adjustment Board, First Division, its executive secretary. alleged they filed pursuant (i), Act, claims relating classifications, extra seniority rights They charged Division refused consider these on ground without jurisdiction, because, above decision not subject Act. refusal created an impasse ten-member sought order requiring claims. answering behalf secretary, supported complaint prayer relief. members, through own attorneys, opposed complaint, did petitioner, intervened party defendant. 7 granted California's motion summary judgment dismissed complaint. 132 F.Supp. 356. Appeals reversed. 233 F.2d 251. held applied remanded cause directions enter decree granting relief sought. We resolve conflict between applicability railroad 352 940, 261, 236.2 invited Solicitor General file brief amicus curiae and, doing so, he urged applicable Railroad. 8 evolved legislative experimentation beginning 1888.3 evolution labor code marked continuing attempt bring about self-adjustment disputes rail carriers To end, specialized machinery mediation arbitration established. 1926 Act—unique agreed upon majority railroads employees4—incorporated practically every device previously used settling included (1) conferences parties; (2) appeal Adjustment; (3) recourse permanent Mediation; (4) submission controversy temporary Arbitration; (5) establishment Emergency Investigation President. 9 Dissatisfaction operation legislation led 1934 amendments. 48 1185.5 One most significant changes creation equal numbers unions national scope. divided four divisions, each jurisdiction particular crafts or classes disputes. 3. arrangement made available settle case could agree system, group regional board. given 'minor disputes,' meaning those involving interpretation agreements set facts. Either such dispute other before what fact, compulsory arbitration. Chicago River & I.R. Co., 30, 635, 622. Provisions enforcement (p). 10 Section Fourth, amendments insured right organize any craft class select representative class. Ninth, authorized newly Mediation representation elections certify must deal. provided shall bargain collectively choosing. numerous occasions, recognized protects promotes collective bargaining. Virginian R. Co. System Federation 40, 300 515, 548—549, 553, 57 592, 599 600, 602, 81 789; Switchmen's Union North America 320 297, 300, 302, 64 95, 97, 88 61; Order Telegraphers Express Agency, Inc., 321 342, 346—347, 582, 585, 788; Steele Louisville N.R. 323 192, 202, 226, 232, 89 173; Employes' Dept. Hanson, 351 225, 233, 235, 76 714, 718, 719, 100 1112.6 11 If then carrier's can invoke adjustment controversies, respondents' Moreover, Act's policy protecting bargaining comes rule law concerning terms employment laws.7 relationship antithesis bargained contracts throughout industry. '(E)ffective generally conceded include unit be consulted exceptional well routine rates, rules, conditions.' supra, page 347, 585. Federal give way.8 12 '* * may prohibit exercise federal Acts protect. Thus, Hill Florida, 325 538, 1373, 1375, 1782, enjoined union functioning complied certain statutory requirements. injunction invalidated Wagner 'federally bargaining' conflicted.' Weber Anheuser-Busch, 348 468, 474, 480, 484, 99 546. 13 Under only would federally protected employer, but negotiated take precedence conflicting provisions laws.9 In 1112, Eleventh, permits negotiation union-shop notwithstanding State, stated 'A has, therefore, imprimature force Supremacy Clause Article VI Constitution, illegal nor vitiated provision State.' 14 turn now First, defines 'any railroad, *.' (Emphasis supplied.) 24 379, 49 1(1), all transportation. concededly Commission, Commission treated state-owned jurisdiction. See Canneries Southern Pacific I.C.C. 500, 502—503; Line 121; Texas 34 I.C.C.Val.R. 276. Finally, practice. 186, 425, 567. also, New Orleans V. P.R. Cir., 195 887, 889. 15 With exception holding statutes regulating railroads, employees, consistently apply publicly Yet none referred specifically public being within coverage. recover penalty violation Safety Appliance 27 531—532, §§ 6, 6. That there, does here, inapplicable because statute presumed restrict constituent sovereign unless expressly so provides. said presumption 'is aid consistent construction enacting when purpose doubt, dost require aim fairly inferred disregarded explicitly stated.' 425. 585—586, 352, 356, 322; Case Bowles, 327 92, 98—100, 66 438, 441—442, 90 552. unequivocally 'We perceive reason extending (the presumption) exempt business carried otherwise act Congress, allembracing scope purpose, capable obstructed individual action.' 16 Likewise, ruled Employers' Liability 35 65, 51, coverage corresponded Mathewes Port Utilities D.C.E.D.S.C., 32 913; Higginbotham Public 192 La. 525, 188 So. 395 (Sup.Ct.La.); Maurice 43 Cal.App.2d 270, 110 706 (Cal.Dist.Ct. App.) (involving us). Similarly, Carriers Taxing 1937, 50 435, (1946 ed.) 261 (a companion measure Retirement 307, 228a, 228a), identical Anglim, 129 455. two taken position public. Council Ry. Patrolmen's Unions, A.F. L. Sealy, 720, 722—723, affirmed 152 502; Ward, 829; see Attorney n. 9, supra. 17 Nothing history indicates should differently above-mentioned railway statutes, insofar concerned. Congress apparently discuss railroad. omission readily explainable view limited told there today 30 switching terminal roads, directly fact chose phrase all-embracing it. congressional pattern preceded employ all-inclusive language suggestion included.10 18 contends doubts intent make governing employer-employee relationships, exempted State.11 believe, argument cuts way. When wished exclude provided. failure do likewise employees.12 19 essentially instrument industry-wide government. Elgin, J. E.R. Burley, 711, 749, 751, 1282, 1302, 1303, 1886 (dissenting opinion). world designed 'a state. population some million, if families workers, customs vocabulary, lives according rules making. enjoyed high degree internal peace generations; despite divergent interests component parts, reign firmly established.' Garrison, Board; A Unique Administrative 46 Yale L.J. 567, 568—569 (1937). carved singular industry out Management Relations 1947, 61 156, 29 182, provided, techniques peculiar An extended period field resulted produced conciliation, mediation, adjustments primary government 'To avoid interruption therein 1186 (§ 2), 151a, 151a. Slocum Delaware, W.R. 339 239, 242, 70 578, 94 795. Like 'all-embracing that, law, legal strike13 reduces, eliminate, possibility work stoppage. meet 'reign law' facility like vital link transportation system. continuous important flow 20 will supersede promoting detract conclusion intended transportation, principal scope, officials intimately acquainted problems, traditions Bargaining often flavor,14 uniformly entire '(B) reakdowns typically affect region nation.' Lecht, Experience Legislation (1955), 4. means unreasonable assume aware characteristics relations interconnected system comprises our industry, bargaining, fostered doubt concluded uniform method dealing problems tend eliminate inequities, promote desirable mobility force.15 21 suggests constitutional power interfere 'sovereign right' control relationships although acting capacity necessarily acted 'in subordination regulate commerce, government.' 184, 424. 'California, engaging rail, subjected itself power, liable Id., 185, principle less here. subjects conform safety requirements, relationships. 586, cf. 233—238, 718—721, 1112.16 22 accordingly affirmed. 23 Affirmed. CHIEF JUSTICE took part consideration West's Cal.Ann.Codes, Art. XXIV; Government, 18000 seq. Petitioner excluded questions petition following issues involved Appeals: adjudication res judicata courts, approved Department Finance met requirements respect, briefs Court, invalid lacked authority negotiate contract, Appeals, waived briefed mentioned oral argument. We, accordingly, recognize same Appeal earlier litigation, 27, 31—33, reject appellate court, 421—422, 863—864. even us, feel constrained accept ruling 1888, 25 501; Erdman 1898, 424; Newlands 1913, 38 103; Adamson 1916, 39 721, Wilson New, 243 332, 298, 755; 8, February 21, 1918, signed G. McAdoo, Director Railroads (formulating Government's after December 1917), Hines, War History American (1928), 304—305, p. 155 seq.; Title III Transportation 1920, 41 469. S.Rep. 606, 69th Cong., 1st Sess. 2; 67 Cong.Rec. 463. purposes follows: 'Sec. 2. therein; forbid limitation freedom association among denial, condition otherwise, join organization; provide complete independence matter self-organization carry Act; prompt orderly settlement pay, conditions; growing grievances covering 1186—1187. Another amendment came 1951 agreements, law. 1238. 714. Nutter City Santa Monica, 74 292, 168 741; Los Angeles Building Construction Trades Council, 36, 210 305; 417—418, 861. cases upholding supremacy Napier Atlantic C.L.R. 272 605, 47 207, 71 432 (Boiler Inspection seq.); Indiana, 236 439, 304, 661 (Safety Act); Erie People York, 671, 756, 58 1149 (Hours Service Second Cases (Mondou N.H. H.R. Co.) 223 169, (Employers' Act). Cf. Terminal Ass'n St. Louis 318 63 420, 87 571, effect preclude establishing minimum health regulations concern inconsistent October 1944, rendered existing Op.Atty.Gen.Cal. (1944) 306; Rhyne, Unions Municipal Employe Law (1946), 247 Long Island Labor, 256 N.Y. 498, 515—517, 177 N.E. 17, 23—24. Although 501, 424, 103, related cross-reference found forward House Committee reporting bill become 'Section term 'carrier' express sleeping-car companies, title.' H.R.Rep. 456, 66th 24. cited 1935, 449, amended 137, 152(2), 152(2); Disputes 1943, 164, U.S.C.App. 1502(d); Fair Standards 1938, 52 1060, 203(d), re-employment Universal Military Training 62 614—615, 459(b), U.S.C.A.Appendix, 459(b). desired exceptions broad proviso definition 'carrier': 1. 'First. Provided, street, interurban, suburban electric railway, general steam-railroad motive power. directed request interested determine hearing line falls proviso. company mining coal, supplying coal where delivery beyond mine tipple, equipment facilities therefor, sach activities.' 1185—1186, 54 785—786, 151, 151. First. Mine Workers, 330 258, 677, 91 884, 'employer,' restrictive Norris-LaGuardia 70, 101, Clayton 738, 52, issue prevent officers precipitating strike bituminous mines which, Government. guide since differ widely 39—42, 639—641, case, 7, 4, 70—71, 158, 161, 167—168, 177, 209, 233. clearly considerations mind Foreign that— 'It noted proposed paragraph eleventh reasons, others, committee if, policy, permitted airline industries wholly impracticable unworkable various agreements. airlines direct instrumentalities commerce; requires system-wide basis; many States; duties constant crossing lines; districts extend across lines, frequently required move another.' 2811, 81st 2d 5. Eleventh Amendment Constitution bar employee enforcing award suit (p), us facts case.

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