Document: 17 L.Ed.2d 842 87 S.Ct. 903 386 U.S. 171 Manuel VACA et al., Petitioners,v.Niles SIPES, Administrator of the Estate Benjamin Owens, Jr., Deceased. No. 114. Argued Nov. 17, 1966. Decided Feb. 27, 1967. [Syllabus from pages 171-172 intentionally omitted] David E. Feller, Washington, D.C., for petitioners. Allan R. Browne, Kansas City, Mo., respondent. Mr. Justice WHITE delivered opinion Court. 1 On February 13, 1962, Owens filed this class action against petitioners, as officers and representatives National Brotherhood Packinghouse Workers1 its City Local 12 (the Union), in Circuit Court Jackson County, Missouri. a Union member, alleged that he had been discharged his employment at Swift & Company's (Swift) Meat Packing Plant violation collective bargaining agreement then force between Union, 'arbitrarily, capriciously without just or reasonable reason cause' refused to take grievance with arbitration under fifth step agreement's procedures. 2 Petitioners' answer included defense Missouri courts lacked jurisdiction because gravamen Owens' suit was 'arguably basically' an unfair labor practice § 8(b) Labor Relations Act (N.L.R.A.), amended, 61 Stat. 141, 29 U.S.C. 158(b), within exclusive Board (NLRB). After jury trial, verdict returned awarding $7,000 compensatory $3,300 punitive damages. The trial judge set aside entered judgment petitioners on ground NLRB over controversy, Appeals affirmed. Supreme reversed directed reinstatement jury's verdict,2 relying Court's decisions International Assn. Machinists v. Gonzales, 356 617, 78 923, 1018, United Automobile, etc. Workers America Russell, 634, 932, 1030. 397 S.W.2d 658. During appeal, died respondent, administrator estate, substituted. We granted certiorari consider whether lies and, if not, finding liability relief afforded are consistent governing principles federal law. 384 969, 86 1863, 16 1863. American Federation Congress Industrial Organizations (AFL—CIO), Swift, States have amicus briefs supporting Although we conclude state type case, hold law governs, standards were not applied here, must accordingly be reversed. I. 3 In mid-1959, long-time high blood pressure patient, became sick hospital leave Swift. long rest during which weight reduced, certified by family physician fit resume heavy work packing plant. However, Swift's company doctor examined upon return concluded too permit reinstatement. securing second authorization another outside doctor, plant, nures permitted him January 6, 1960. 8, when discovered return, permanently poor health. 4 Armed medical evidence fitness, sought Union's help reinstatement, behalf. By mid-November 1960, processed through third into fourth procedure established agreement.3 adhered position health justified discharge, rejecting numerous reports reduced proffered Union. claimed these based sufficiently thorough tests. 5 1961, sent new expense 'to see could get some better so go case.' R., 107. This examination did support position. When received report, executive board voted insufficient evidence. suggested accept offer referral rehabilitation center, suspended purpose. rejected alternative demanded arbitration, but refused. With contractual remedies thus stalled step, brought suit. finally dismissed shortly before began June 1964.4 6 charge jury, instructed would liable wrongfully 'arbitrarily * cause excuse refused' press arbitration. Punitive damages also awarded, charged, conduct 'willful, wanton malicious.' defendants, instructed, 'if you find believe union acted reasonably good faith handling processing plaintiff.' 161—162. general eventually reinstated II. 7 Petitioners challenge arguably NLRB. rely Miranda Fuel Co., 140 N.L.R.B. 181 (1962), enforcement denied, 326 F.2d 172 (C.A.2d Cir. 1963), where sharply divided held first time union's breach statutory duty fair representation violates N.L.R.A. 8(b), amended. NLRB's adoption Fuel, argue, broad pre-emption doctrine defined San Diego Building Trades Council Garmon, 359 236, 79 773, 775, becomes applicable. For reasons follow, reject argument. 8 It is now well that, representative employees unit, fairly represent all those employees, both Ford Motor Co. Huffman, 345 330, 73 681, 97 L.Ed. 1048; Syres Oil 350 892, 76 152, 100 785, resulting agreement, Humphrey Moore, 375 335, 84 363, 11 370. developed 20 years ago series cases involving racial discrimination unions Railway Act, Steele Louisville N.R. 323 192, 65 226, 89 173; Tunstall Locomotive Firemen, 210, 235, 187, soon extended N.L.R.A., supra. Under doctrine, agent's authority members designated unit includes obligation serve interests hostility toward any, exercise discretion complete honesty, avoid arbitrary conduct. U.S., 342, S.Ct., 367. obvious complaint grounded statutes, therefore governs action. e.g., 9 enacted 1947, until interpret practice. Board's majority gives 'the right free irrelevant invidious treatment their agent matters affecting employment,' 'that Section 8(b)(1)(A) prohibits organizations, acting capacity, taking any employee considerations classifications irrelevant, invidious, unfair.' N.L.R.B., 185. employer who 'participates' such 8(a)(1), may violate §§ 8(a)(3) 8(b)(2), respectively, 'when, basis classification, attempts does derogate status employee.'5 Id., 186. 10 decision denied Second Circuit, (1963). 12, Rubber, etc., 368 Fifth upheld suggesting approach will pre-empt judicial cognizance suits. light developments, argue court proscribed potentially enforceable NLRB, pre-empted Garmon line decisions. A. recognized powers conferred enforce complex Management (L.M.R.A.) necessarily imply conflicting 'rules law, remedy, administration' cannot operate. 242, 778, 775. enacting later 'Congress merely down substantive rule enforced tribunal competent apply generally parties. went confide primary interpretation application rules specific specially constituted *. evidently considered centralized administration designed procedures necessary obtain uniform diversities conflicts likely result variety local attitudes controversies. A multiplicity tribunals diversity quite apt produce incompatible adjudications different law.' Garner Teamsters, 346 485, 490—491, 74 161, 165—166, 98 228. 13 Consequently, rule, neither nor suits directly 'activity (which) subject Act.' 245, 780. 14 however, has never rigidly it inferred intended lie itself carved out exceptions jurisdiction: 303 158, expressly permits anyone injured 8(b)(4) recover even though practices remediable Board; 301 156, 185, regardless particular (see Smith Evening News Assn., 371 195, 83 267, 246); 14, amended Title VII, 701(a) Labor-Management Reporting Disclosure 1959, 541, 164(c), agencies assume 'over disputes declines, pursuant paragraph (1) subsection, assert jurisdiction' (compare Guss Utah Board, 353 1, 77 598, 609, 601). 15 addition congressional exceptions, 'where activity regulated peripheral concern Act. (or) touched deeply rooted feeling responsibility absence compelling direction, infer deprived power act.' 243—244, 779. See, Linn Guard Workers, 383 53, 657, 582 (libel); 1030 (violence); 1018 (wrongful expulsion membership); Allen-Bradley 1111, Electrical, Wisconsin Employment 315 740, 62 820, 1154 (mass picketing). See Hanna Mining District 2, Marine Engineers Beneficial 382 181, 327, 254. While no way undermine vitality applicable, they demonstrate given depend nature being asserted effect national policies concurrent administrative remedies. justification doctrine—the need relations area desirability leaving development agency created purpose—is applicable breaches representation. judicially progeny, alleging remained cognizable after activities L.M.R.A.6 Moreover declared henceforth treated practice, adopted courts. 184 Finally, dissenting pointed out, often require review positions taken pursued negotiation machinery; normally jurisdiction, can doubted brings substantially greater expertise bear problems than do courts, engaged since decision.7 above considerations, unique served profound effect, our opinion, applicability cases. laws seek promote industrial peace improvement wages working conditions fostering system organization bargaining. 136, 151. encouraged administered necessity subordinates individual unit. J. Case 321 332, 64 576, 88 762. grant act representative, corresponding reduction rights represented, raise grave constitutional further discrimination. 198—199, 230—231, 173. Since landmark decision, stood bulwark prevent individuals stripped traditional forms redress provisions Were hold, Government urge, foreclosed supervisory discriminatory longer assured impartial complaint, General Counsel unreviewable refuse institute complaint. Electrical Contractors Ordman, 366 776 Cir., 1966), cert. 385 1026, 753, 674.8 existence small group unwilling unable remedy frustrate basic purposes underlying doctrine. reasons, tardy assumption Congress, oust curb employee's representative. 18 B. There intensely practical foreclose suits, emerge intricate relationship contracts. fact question breached many critical issue L.M.R.A. charging contract. To illustrate, let us limits discharges contains grievance, other purporting restrict access If cause, either sue 301. section, agreements challenged contract like 246. 19 same regard provide claims.9 employer's preclude union10 compel adjudication claim arbitrator, award. Steelworkers Mfg. 363 564, 80 1343, 1403. himself resorts fully exhausted, defend provided exhausted. bound terms govern manner enforced. reason, settled least attempt exhaust agreement. Republic Steel Corp. Maddox, 379 650, 85 614, 580. devised controlled employer, prove unsatisfactory unworkable grievant. problem determine what circumstances breach-of-contract despite failure secure remedial 21 An situation should limited occurs amounts repudiation Cf. Drake Bakeries, Inc. 50, Am. Bakery, 370 254, 260 263, 82 1346, 1350—1352, 474. 6A Corbin, Contracts 1443 (1962). (and there course others), estopped own unexhausted 22 think arises, if, true sole invoke higher stages procedure, employee-plaintiff prevented exhausting wrongful refusal process grievance. done nothing exhaustion agreed But committed discharge remedied employee-plaintiff's benefit employee. remediless would, great injustice. conferring employers establish procedures, confer unlimited deprive Nor shield natural consequences agreements. Richardson Texas N.O.R. 242 230, 235—236 (C.A.5th Cir.). 23 bring face remedies, grievance.11 present held. remains suit, more destroyed employee, part parcel action, finds union, involve himself. barred actions proceed case. And facilitate joins defendant, changed. still principle. This, very least, holding supra, respect pre-emption, recognize brief. And, insofar concerned, sues separate actions. little commend adjudicate itself. 24 compelled pass context proven, fashion appropriate remedy. Presumably, cases, enhanced contributed injury. What possible sense litigated fault only employer? pay wrong—slight deterrence, indeed, future misconduct—or forced two repair single Moreover, injuries arising contract, task assigned it, wrong.12 Given strong pre-empting general, duty, duty. 25 follows Of course, available proven. Part IV, infra. role played scheme laws, important presented render inapplicable. III. 26 contend, motion notwithstanding verdict, failed Missouri, contention, standard inconsistent grievances agree contentions. 27 supported favor stated: 28 'The essential submitted arbitrarily carry said step. 'We sufficient substantial found foregoing plaintiff. notable actually testified Both sides content written statements. Three physicians plaintiff able perform regular work. plaintiff's readings approximately 160 100. reading indicate dangerously high. showed hard physical periodically four following discharge. point adversely defendants.' S.W.2d, 665. 30 Quite obviously, thought dispositive assertion reaching contrary conclusion. major trial: bulk medically performed 31 member arbitrary, discriminatory, bad faith. supra; considerable debate extent Blumrosen, Worker Phases Unionism: Administrative Judicial Control Worker-Union Relationship, Mich.L.Rev. 1435, 1482—1501 (1963); Comment, Federal Protection Individual Rights Contracts, Yale L.J. 1215 (1964). Some every arbitration.13 Others urged (if provides) decide refrain patently personal hostility.14 32 Though proposition ignore meritorious perfunctory fashion, absolute 203(d), 154, 173(d), 'Final adjustment method parties desirable settlement existing collective-bargaining agreement.' providing supervise machinery contemplate each endeavor settle short Through process, frivolous ended prior most costly time-consuming similar complaints consistently, areas isolated perhaps resolved. finally, furthers interest coauthor representing Cox, Agreement, 69 Harv.L.Rev. 601 (1956). 33 merit, undermined, destroying confidence returning grievant vagaries independent unsystematic negotiation. significantly number arbitration.15 greatly increase cost overburden functioning successfully. Acme 432, 438, 565, 569, 495; Ross, Distressed Grievance Procedures Their Rehabilitation, Arbitration Change, Proceedings 16th Annual Meeting, Academy Arbitrators 104 continue detailed kind costlier steps permitting unilaterally danger honestly representation, thereby open up 34 here sustained. lacks merit justify constitute meritorious, incentive seriously reduced. dampening entire freedom claims surely substantial. protects abuses device recourse (in suit) severe limitation desirable. Therefore, erred upholding case solely discharged. 35 Applying proper facts uphold award, matter As stated, convincing 1960; proved bad-faith revealed diligently supervised business serving advocate throughout steps. reinstate indicating pressure, choice, expense, amass persuasive fitness unfavorable, effort failed, determined fruitless send heart association rehabilitation. At point, hope might rehabilitated. 36 administering must, nonarbitrary manner, make merits grievances. 349 350, 371—372, 370; 337—339, 685—687, 1048. this, supplied position, ignored manner. Harv.L.Rev., 632—634. attempted gather less vigorous joined efforts Only unsuccessful dismissed. officer personally hostile faith.16 Having arbitrated issue, proof here. IV. 37 why stand. 'that, direct Plaintiff damaged sum Six Thousand, Five Hundred ($6,500.00) Dollars per year, continuing date trial.' 'preventing completely remedies,' requested, above-described plus $3,000. 4. recoverable 38 vary breach. afford primarily suffered Assuming moment discharged, resort compare 580, 246, exempt otherwise pay. pp. 185-186, difficulty fashioning 39 urge restricted decree arbitrate grievance.17 order viewed one proved. inflexibly example, attributable arbitrator award union. arbitrable issues resolved trying controversy. situations, equitable relief. 40 difficult is, portion charged union: particular, include, contract? not. violated failing unrelated triggered controversy caused recovering cannot, explained, hide behind act; fact, probably be) defendant real hardship damages, indemnification employer. recovery requiring share damages.18 41 principle, then, apportion according damage each. Thus, increases almost allegedly properly clear improper. 42 Reversed. 43 FORTAS, whom THE CHIEF JUSTICE HARLAN join, concurring result. 44 1. my view, (1962);1 Rubber 150 312, enforced, 1966).2 practices, preemptive. Chauffeurs Helpers 776, 228 (1953); (1957); 775 (1959); Constr. Laborers Curry, 542, 531, 514 Association Journeymen Apprentices Borden, 373 690, 1423, 638 207 Assoc. Bridge Iron Perko, 701, 1429, 646 Liner Jafco, Inc., 301, 391, 347 Woody Sterling Alum. Prods., 365 448 (C.A.8th pet. pending, 946, O.T. principle I shall discuss, application. fundamental design operation 'merely peripheral,' states. 'presents definition status, precisely 'of wisely entrusted initially day-to-day whole." 706, 1432. Accordingly, basis. agree, assumed exists, use improper measuring arbitrarily. 45 2. regret elaborate discussion irrelevant. requisites judgment, unnecessary, 301; maintain show exhausted alternatively doing claim. That be; maybe so.3 question, which, respect, lends seems employee-employer litigation somehow analogous supportive conclusion follows. employment. 246 maintained authorized entertain type. character, recognizes. holds—and correctly reached—that required measured agree; suggest reveals contend: claim, submit, agrees 'one (obtainable, says, action) proved' 'an arbitration.' uniquely province Board. Beyond exceedingly vague remedy: 'appropriate relief' apparently available. Damages admonishes, gauged 'according (its) fault'—i.e., difficulty, me, reflects awkwardness position: attempting posture default such.4 46 3. look beyond logic precedent policy provided, anomalous ill-advised. dealing acknowledges, concerned subtleties faithfully including Court—regrettably, opinion—ventures judgments metes bounds reciprocal duties involved especially entrust prudently stated.5 cited, Perko Borden strongly parallel 72, (1966) (dissenting opinion). nuances union-employee union-employer relationships infinite consequential, particularly amorphous guilty 'arbitrary conduct' states left placed confusing guidebook publishes. 47 join reversal, stated. 48 BLACK, dissenting. 49 today opens slightly courthouse door incidental shut seeks valuable announcement simple them frustrated 'arbitrary, faith' agree. 50 recognizes work, him. notes passing Owens* pending IV vigorously insists 'there pay,' 'employee employer' 'unrelated contract,' (is) employer.' reassurance comfort III unsupported means, say successful makes 301,' 'can grievance,' union.' undoubtedly prompt dismissal pointing obtained determination remediless, having allowed behind, shielded by, simply fail how iota difference, far contract' rightful. Neither supports does. 51 Certainly, rule. aggrieved 'completely sidestep lawsuit.' 653, 616. Noting 'it inadequate protect implement so,' ibid., 'must procedure,' id., 652, 616, opportunity behalf,' dissented firm belief litigate lawsuit lawyer rather submit implied, worker inevitable discouragement delay accompanies claim,' 669, 625, threat peaceful prestige allowing by-pass back wage substitutes. Here, deference gave chance behalf, tried convince carried short, everything Maddox do, yet says much enough. 52 noted 'cases really governed pursue suing Transcontinental Western Air, Koppal, 906, 1325; Moore Illinois Central 312 630, 754, 1089.' 666, 623. observed 'raised overruling axe (over cases) falling about certain changing seasons.' 667, 624. latter observation mistaken. Term, Walker Southern 196, 365, 294, overrule Koppal. delays attendant '(t)he contrast remedy' Walker. If, suggested, availability determines doubt slow one? Unlike inadequate. Today's wake prepetuates unfortunate anomaly relations. 53 announced thought, 'brainchild' recent preference am ascribe genesis today's preferred. Today holds arbitrated. Fearing arbitrators overworked, allows arbitration—the party—as 'arbitrary' 'in faith.' derives '(a) overlooks laid situations slightest hint incidentally contended adjudication, satisfied unless thing making good-faith goes due remedies—however non-arbitrary—does amount Either arbitrator. either. 54 dropped outcome unfavorable. arbitrariness, clearly far. Suppose, instance, prosecute hours arose. Pursuant several days late. absolutely nowhere. (a define), consideration grievance—either suggests three giving 'frivolous grievances' one, frivolous. decided success. Even doubt, contested, serious, whose function believes right. Second, assure 'major contract.' argued 'fit work' presents agreement? interpreting reports, evaluating condition. consistency determining job. 'furthers agent.' entirely anything lose. life death supposed 'interest.' legitimate undermined serious 55 Henceforth, additional burden proving explains meant phrase judges intelligently translate jury. Must arbitrarily, arbitration? union? However questions answered, converts three-ring donnybrook. puts intolerable means frequently while ephemeral creates insurmountable obstacles block Now known Dairy Workers. $3,000, five-step two, department foreman, writing division superintendent. three, committees management meet, Step meeting superintendent refer specified No notice pretrial stage. Cargo Handlers, 159 17; 1966); Maremont Corp., 149 482; Galveston Maritime 148 897; Hughes Tool 147 1573. n. 4, brief stating pre-emptive issues. Mem. Nos. 193 194, Oct. 1952. express reliance respondent jurisdiction. Brief Resp. Gulf 390, 1955. 1573, 1589—1590 (Chairman McCulloch Member Fanning, part). public effectuating wrong always principal 10(c), 147, 160(c); Phelps Dodge 313 177, 845, 1271. behalf injury complained 'insubstantial.' Decision Counsel, K—610, Aug. 1956, CCH Decisions, 1956—1957, Transfer Binder, 54,059. intend heard 657—658, 580; 1436 Occasionally, give Retail Clerks Intern. Ass'n, Lion Dry Goods, 341 715, 839, 87, 81. Accord, Hiller Liquor Salesmen's 338 778 Cir.); Hardcastle Greyhound Lines, 182 (C.A.9th Cir.), 920, 288, 229; Fiore Associated Transport, 255 F.Supp. 596; Bieski Eastern Automobile Forwarding 231 710, aff'd, 354 414 (C.A.3d Ostrofsky Steelworkers, 782, aff'd curiam, 273 614 (C.A.4th 849, 1628, 1732; Jenkins Wm. Schluderberg-T. Kurdle 217 Md. 556, 144 A.2d 88. discharging illustrates difficulties remedying 'participate' Yet equally full Should loss, concludes loss duty? Or partial hoping whole? These enough it; impossible tribunals, limitations, powers, participate. Donnelly Fruit N.J. 61, 190 825; Report Committee Improvement Administration Union-Management Agreements, 1954, Grievances, Nw.U.L.Rev. 143 (1955); Murphy, Duty Fair Representation Taft-Hartley, Mo.L.Rev. 373, 389 (1965); Summers, Collective Agreements Arbitration, N.Y.U.L.Rev. 362 Sheremet Chrysler 372 Mich. 626, 127 N.W.2d 313; Wyle, Concept Exclusive Representation, B.C.Ind. Com.L.Rev. 783 (1966). current usually made keep minimum. 967 plants September 1961 October 1963 AFL—CIO's performances Motors Corporation Corporation, Nation's largest unionized employers: .05% period 5.6% allege testify petitioner Vaca, President local, $300 expenses trial. 3, occurred Vaca's demand, ultimate came still. believed controverted testimony, incident Obviously, affirmatively commit sort too, jointly severally owing joint E.g., Imparato Stevedoring 113 883 Squirt Distrib. 92 1667 (1951); H. M. Newman, 725 (1949). breach-of-duty took unwarranted. relevant 1963). judge, Judge Medina, incorrectly Lumbard holding, explicitly reach Friendly dissented. He affirmed sufficiency Thornberry views expressed herein. Vill.L.Rev. 151, 172—173 Wellington, Democracy Representation: Responsibility System, 67 1327 (1958). Brother BLACK's Brown Prods. 651, 656 657 1966) 957, 1023, 105. 580 (1965), issue. 'To remediless' refuses 'would injustice.' relieves injustice prerequisite understand exist argues purpose demand Court, party defendant; sued independently non sequitur. insists, matter. duty—an practice—and contexts concerns behavior example: (a) bargain faith, see, Fibreboard 203, 398, 233 (1964); (b) jurisdictional disputes, Radio Engineers, 364 573, 81 302, (1961); (c) secondary boycotts hot cargo clauses, Orange Belt Painters 117 U.S.App.D.C. 233, 328 534 appeal pending. estate substituted herein simplicity referred Owens.

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