Document: 491 U.S. 299 109 S.Ct. 2477 105 L.Ed.2d 250 CONSOLIDATED RAIL CORPORATION, Petitionerv.RAILWAY LABOR EXECUTIVES' ASSOCIATION et al. No. 88-1. Argued Feb. 28, 1989. Decided June 19, Syllabus Since its formation in 1976, petitioner Consolidated Rail Corporation (Conrail) has required employees to undergo physical examinations periodically and upon return from leave. Those routinely included a urinalysis for blood sugar albumin and, some circumstances, drugs. In 1987, Conrail announced unilaterally that drug screening would be as part of all periodic return-from-leave examinations. Respondent Railway Labor Executives' Association opposed this unilateral additional testing. The question presented by case is whether Conrail's drug-testing program gives rise "major" or "minor" dispute under the Act. Held: 1. Where an employer asserts contractual right take contested action, ensuing minor if action arguably justified terms parties' collective-bargaining agreement. Where, contrast, employer's claims are frivolous obviously insubstantial, major. Pp. 302-307. 2. If claim agreement discretion make particular change working conditions without prior negotiation, agreement, may courts must defer arbitral jurisdiction Adjustment Board. 307-311. 3. not therefore controversy constitutes within Board's exclusive jurisdiction. 311-320. 845 F.2d 1187, (CA3 1988) reversed. BLACKMUN, J., delivered opinion Court, which REHNQUIST, C.J., WHITE, STEVENS, O'CONNOR, SCALIA, KENNEDY, JJ., joined. filed concurring opinion, post, p. 320. BRENNAN, dissenting MARSHALL, joined, 321. Dennis J. Morikawa, Philadelphia, Pa., petitioner. John O'B. Clarke, Jr., Washington, D.C., respondents. Justice BLACKMUN Court. 1 case, we examine concepts disputes area railway labor relations, articulate standard differentiating between two, apply dispute. 2 * (Conrail), These include testing urine On February 20, henceforth (the Union), unincorporated association chief executive officers 19 organizations collectively represent employees, opposes addition.1 3 parties agree inclusion created resolution governed Act (RLA), 44 Stat. 577, amended, 45 U.S.C. § 151 seq.2 what kind have before us: addition screen component return-to-duty medical RLA. 4 United States District Court Eastern Pennsylvania agreed with involves dispute, because policy conducting examinations, implied term their gave Third Circuit reversed, ruling "the undisputed governing cannot plausibly interpreted justify new program." 1193 (1988). Although find close one, those Courts Appeals held, on similar facts, concerning routine disputes. See, e.g., Executives Assn. v. Norfolk & Western R. Co., 833 700, 705-706 (CA7 1987); Brotherhood Maintenance Way Employees, Lodge 16 Burlington Northern 802 1016, 1024 (CA8 1986). II 5 This articulated explicit major It adopted major/minor terminology, drawn vocabulary rail management labor, shorthand method describing two classes Congress had distinguished RLA: seek create rights, enforce them. Elgin, E.R. Co. Burley, 325 711, 723, 65 1282, 1289-1290, 89 L.Ed. 1886 (1945). 6 statutory bases category Seventh RLA, 48 1188, 1197, 152 156. former states no carrier "shall rates pay, rules, class, embodied agreements except manner prescribed such agreements" through mediation procedures established 6. 7 "relates over collective efforts secure They arise where there it sought issue existing controls controversy. look acquisition rights future, assertion claimed vested past." U.S., at S.Ct., 1289-1290. 8 event RLA requires lengthy process barga ning mediation.3 §§ Until they exhausted procedures, obligated maintain status quo, implement conditions. district subject-matter enjoin violation quo pending completion customary showing irreparable injury. See Detroit T.S.L.R. Transportation Union, 396 142, 90 294, 24 (1969) (upholding injunction discussing equitable constraints); Division 1, Detroit, Locomotive Engineers Corp., 844 1218 (CA6 1988). Once protracted ends been reached, resort use economic force. 9 predicated Sixth First (i) set forth conference compulsory arbitration arising growing "out grievances out interpretation application conditions." second 10 "contemplates existence already concluded or, any rate, situation effort made bring about formal one. relates either meaning proper provision reference specific omitted case. latter founded incident employment relation, asserted independent covered account personal injuries. accrued, merely ones future." 11 A railroad industry subject binding National Railroad Board, 3, adjustment board unions representing employees. Second.4 Board (as shall refer RLA) Judicial review decision limited. (q); Union Pacific Sheehan, 439 89, 93, 99 399, 402, 58 354 (1978). strikes Trainmen Chicago I.R. 353 30, 77 635, 622 (1957). circumstances condition granting strike requirement see Missouri-K.-T. 363 528, 534, 80 1326, 1330, 1379 (1960), never recognized general obligation decision. Cf. id., 531, n. 1328-1329, (leaving open federal court can require during pendency union's behest, employer).5 12 experience suggested involved "comparatively minor" issues seldom led strikes, Burley was invariably 724, 1290; also Trainmen, supra. Thus, demarcation does turn case-by-case determination importance likelihood prompt exercise self-help. Conference International Machinists Aerospace Workers, 830 741, 747, 1987). Rather, line looks establish refute presence disputed action. distinguishing feature conclusively resolved interpreting Garrison, Board: Unique Administrative Agency, 46 Yale L.J. 567, 568, 576 (1937). 13 To extent, then, distinction matter pleading. party who initiates takes first step toward categorizing when chooses assert resist question. But early danger leaving characterization solely hands one party. asserting contractu l basis "insincere" so doing, "position [is] . insubstantial grounds," result honoring party's undercut prohibitions 2, Seventh, Act" against imposition terms. Portsmouth Belt Line 514, 248 34, 43-44, (CA4 1957), cert. denied, 355 914, 78 343, 274 (1958); Industrial Workers Seafarers Int'l AFL-CIO Trustees Galveston Wharves, 351 183, 188-189 (CA5 1965). protection functioning scheme substitute claimant. 14 satisfy need degree judicial control, uniformly variant employed case: 15 " '[I]f "arguably" somewhat different statement, contention contract sanctions "obviously insubstantial", [minor dispute] province Board.' F.2d, 1190, quoting Local 1477 Baker, 482 228, 230 1973). Verbal formulations differed time among Circuits: phrases "not justified," insubstantial," "spurious," "frivolous" employed.6 Locomo- tive 838 1087, 1091 (CA9 (reviewing used Ninth Circuit), pending, 87-1631. "These locutions essentially same result. illustrate relatively light burden bear" establishing 1022; Maine Central 787 780, 783 (CA1) ("The scrutiny, while ill-defined, clearly light"), 479 848, 107 169, 93 (1986). 17 "To extent abstract words deal concrete cases, think concept language these correct." Christiansburg Garment EEOC, 434 412, 421, 98 694, 54 648 III 18 appears "arguably justified" generally appropriate Brief Respondents 35, 29. argues properly viewed, neither nor According clear "change [in] agreements," but "in change, "hybrid case." 34-35, 40, 32. hybrid contends, ask determine forgo implementation until reaches makes patent do so, violates duty section 6." (emphasis added). Stated more simply, Union's position that, actual making transforms into 20 approach unduly constrains freedom employers discretion. Collective-bargaining often incorporate express designed give management, union, specified activity. NLRB American Insurance 343 395, 72 824, 96 1027 (1952); Rutland Corp. Engineers, 307 21, 35-36 (CA2 1962), 372 954, 83 949, 978 (1963). Steelworkers Warrior Gulf Navigation 574, 580, 1347, 1351, 1409 (1960); Cox Dunlop, Regulation Collective Bargaining Relations 63 Harv.L.Rev. 389, 401 (1950). We held (NLRA) principle law prohibits "[b]argaining flexible treatment" instead each condition, "agre[e] freeze contract." 408, 831. difference NLRA respect. Yet especially strict scrutiny bona fides grant power respond flexibly changing circumstances. effect selectively heightened level (a "clear patent" rather than standard) limit enforceability terms, requiring rigidly flexible. That odd itself, cf. 40 (requiring negotiate "a solution sounding lot like theoretical logic"), unacceptable implications. accept bifurcated advocates would, effect, impermissibly "pass desirability substantive 408-409, 831-832, affording less favored status, Northeast Airlines, Inc., 473 549, 555 (CA1), 409 845, 48, 34 85 (1972).7 21 Accordingly, aggravate difficult task adding third hold (i.e., frivolous, bad faith), 22 ruling, course, will delay bargaining cases exhausted. inconsistency policies RLA.8 core duties imposed First, "make "settle order avoid interruption commerce." Referring arbitrable matters help "maintain assuring contracts enforced arbitrators experts common [the] industry." 579, 1351. Full utilization diminish risk interruptions commerce. Failure "virtually endless" negotiation disputes, Employes, 481 429, 444, 1841, 1850, 95 381 (1987), frees employ broad range self-help, disturb transportation services throughout unsettle employer-employee relationships. TWA, Inc. Flight Attendants, 489 426, 1225, 103 456 (1989). Delaying onset determines merits incorrect assure risks self-help needlessly undertaken aid "[t]he peaceable settlement controversies." Virginian 300 515, 552, 57 592, 601, 81 789 IV 23 turns Neither relies agreement; indeed, record us. As acknowledge, however, implied, well express, Northwest Air Pilots Int'l, 442 251, 253-254 (CA8), 404 871, 92 70, 30 116 (1971). Furthermore, "practice, usage custom" significance 385 157, 161, 87 369, 371, 264 (1966). observed: "A ordinary purchase goods services, old common-law control private contracts. '. [I]t generalized code govern myriad draftsmen wholly anticipate. covers whole MESSAGE(S) *MORE SECTIONS FOLLOWrelationship. calls being law—the plant.' Id., 160-161, 371 (citation omitted) (quoting 578-579, 1350-1351). rests past practice. Because conclude deemed A. 25 essential facts regarding practices—the support positions both disputed.9 founding supervision health department. Appeals, found, authority conduct longstanding practice acquiesced Union. 26 conducts three categories cases. always albumin. conducted every years up age 50, thereafter. Second, train engine service least days due furlough, leave, suspension, other cause urinalysis. job classifications albumin, submit only after absences more. Third, employee's follow-up examination. For example, examination employee suffered heart attack, diagnosed having hypertension epilepsy. Any undergoes periodic, return-to-duty, fails meet standards pay corrected eliminated. 27 implemented types Over years, hearing tests, lung-capacity eye cardiological tests modified reflect changes science technology. unilaterally, consulting 28 Drug place although role changed time. whenever, judgment examining physician, using screens performed taken previously drug-related problem; addition, whenever physician thinks 29 April 1984, issued Medical Standards Manual stating physicals. budgetary reasons, then applied eastern region discontinued six months. regions, physicals returning disqualification reason associated use.10 An positive drugs returned unless he provides negative test date receives notice test. whose go Employee Counseling Service evaluation. evaluation reveals addiction problem, agrees enter approved treatment program, given extended period 125 provide 31 problem addressed concern, disciplinary noted earlier present Term operating "Rule G," governs Skinner Assn., 602, 606-607, 1402, 1407-1408, 639 currently Conrail, Rule G provides: "The intoxicants, narcotics, amphetamines hallucinogens duty, possession prohibited. Employees medication certain affect safe performance duties." App. 63. At elsewhere industry, dismissed violating G. Skinner, 607, S.C ., 1408; Tr. Oral Arg. 43. relied chiefly supervisory observation suspected alcohol encouraged voluntarily diagnostic so. 32 Federal Administration regulations recently upheld Fourth Amendment challenge. March 1986, Hours Act, 61 seq., postaccident testing, pursuant 49 CFR 219 seq. (1987).11 B 33 focuses practices. indicated permitting fitness-for-duty standards, revise remove unfit procedures.12 specifically, reflects relevant fitness, physicians utilize fitness. expansion argues, represents improvement improvements past.13 contends even standard, "it simply plausible" contemplated departed materially reflected practice, several respects. limited believe drugs; current hand, includes cause. view, permits active improves, permit discharge failure get time; fixed limit, results removal service. constitutes, time, regulation private, off-duty 35 pointing departures absence "meeting minds" particulars confidentiality renders untenable tacitly Finally, presents alternative view done: expanded regulations, expansionwhich adds list available means enforcement C 36 end, arguments aspects true motive disciplinary, conceivably could carry day arbitration. convince us insubstantial. extending supported breadth past, including 37 left establishment hands. long treated concern. Psychiatric Association, Diagnostic Statistical Mental Disorders 163-179 (3d ed. 1980) (substance abuse disorders); BNA Special Report, Alcohol Drugs Workplace: Costs, Controls, Controversies (1986) (disciplinary therapeutic approaches workplace); T. Denenberg Denenberg, Drugs: Issues Workplace (1983) (drug treatable Traynor Turnage, 485 535, 562-564, 108 1372, 1389, 618 (1988) (opinion part) (alcohol dependence problem). Indeed, scope played (in circumstances) short, "rule" medical, 38 There details methods noted, laws practices worked advance. retains finds fact intervened procedural testing: performed—like tests—according promulgated Conrail. sufficiently undermine classified "major." 39 well-established recognition relevance fitness substantially weakens now, engaging employees' conduct. detects problems linked behavior draw bright jurisdictional purposes does, not, "cause," doubt regime limiting perhaps deciding Testing Arbitrator's Perspective, Nova L.Rev. 387-392 (1987); Veglahn, What Reasonable Program?: Insight Arbitration Decisions, Lab.L.J. 688, 689-692 t decide Our determining drawn. purpose rejected reasonably 41 pointed urged oral argument, "particularized suspicion" accepted prerequisite 21. physician's perform likely legal "cause" "individualized suspicion," factors expected incidence population, cost, accuracy, inherent test, benefits detection. designing diagnostic-testing programs, basic administered M. Rothstein, Screening 16-19 (1984), regardless positive. alter based perceived variables. 42 next alleged consequences claiming right, policy, single many railroads 1408. option requesting rehabilitative treatment. surely arguable goal. 43 problems, unlike conditions, improve serve distinguish response problems. argued needs, purposes, deny dependent demonstrate capable producing drug-free sample will. 13. our argument sufficient merit demonstrating entitlement successful recovery frivolous. V clear, further met persuading minimize force afforded understood extend far. way suggest entitled prevail ordered. 47 concurring. I join add remarks emphasize below giving company instituting authorizes change. substance resolve. decides wrong contract, invoking applicable whom MARSHALL joins, dissenting. 50 affirm reasons stated court. precedent result, most, his her improved. accepting (arguably) illegal firing. unsurprising nonpunitive determined were advisable inconceivable me doing agreeing systematic, suspicionless alone prescribed, evidence criminal activity plan, discharge.* Such contention, my "arguable"—it "[u]ltimately, premise cannabis metabolites sugar. ignores considerable differences tested thereof." 1194 51 helpful note counsel say addressing whether, "substantial conditions": 52 "In mandatory applicants, arises substantial employment. general, constitute When conjoined discipline, discharge, refusing positive, nature fundamental Generally, work. applicant uses drugs, irrespective interferes ability work." General Counsel's Memorandum Testing, GC 87-5 (Sept. 8, 1987), reprinted Daily 184, pp. D-1, D-2 24, 1987) original). 53 similarly acquiescence applicants and/or did waiver bargain testing." Ibid. Without sugges ing conditions" precisely us, better understanding relationship respectfully dissent. suit May added complaint challenged comply affecting industry. By ruled, focus shifted framed petition certiorari here. 1089-1090 (employer took thus "labor disputes" dispute-resolution processes RLA), fails. Mediation "endeavor induce arbitration." First. Participation, voluntary. Aaron, Voluntary Airline Interest Disputes, Fifty: Industries 129 (C. Rehmus 1977). airline national board; unions. 1189, 184. 682, 956, 67 industries, play resolving dispute: called interpret "any reached provisions Act." 183 (applying airlines). Comment, Enjoining Strikes Maintaining Status Quo 60 Colum.L.Rev. 381, 386-397 Lines, 276 U.S.App.D.C. 199, 202, 869 1518, 1520, (1989); 555, (expressing "union [might] able impossible otherwise later workers whole"), (1972); 1218, 1224, harm). injunctive relief allegation injury, decline resolve injury appropriate. suggests passing 30-31. 151, 299, (1969), but, read position. implicit 'to exert reasonable effort' settle interstate commerce") context explaining requirements broadly interpreted. direct 746 (not insubstantial); 782 (even arguable), (1986); Electrical Washington Terminal 154 119, 136, 1156, 1173 (1972) (reasonably susceptible), 411 906, 1530, 195 (1973); Ruby Taca S.A., 1359, 1363, 1971) (wholly spurious). Even abstract, unworkable discussed below, contain conceded authority, mediation, locker room minutes separate proceeding. 47-48, 50. acknowledgment stemmed assumption opening indeed "change," access "working condition," precise opened become itself contract. recognizes, framework leaves joints, flexibility responding adopting dispute" proposal trial nonexpert "importance" put task. most fashion compensatory remedy delay. Order Conductors Pitney, 326 561, 566, 66 322, 324, 318 (1946); re Aaxico Lab.Arb. 289, 316 (1966); Trans World 420, 425 (1959). however consider instance lead remedial difficulties. Colum.L.Rev., 394. undisputed. particular, views how risen term. Compare 42-43 Petitioner 19. definition factual findings themselves discussion follows. resulted serious accident January engineer conductor admitted smoking marijuana cab just collision. precipitated instant lawsuit, 7, presently abandoned appeal. 1194. rely 1984 1193, holding is—arguably—medical ground standing Ante, 319. realm Beyond this, Court's reasoning outcome should "to test."

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