Document: 359 U.S. 236 79 S.Ct. 773 3 L.Ed.2d 775 SAN DIEGO BUILDING TRADES COUNCIL, MILLMEN'S UNION, LOCAL 2020, Building Material and Dump Drivers, Local 36, Petitioners,v.J. S. GARMON, J. M. Garmon, W. A. Garmon. No. 66. Argued Jan. 20, 1959. Decided April Mr. Charles P. Scully, San Francisco, Cal., for petitioners. Marion B. Plant, respondents. Justice FRANKFURTER delivered the opinion of Court. 1 This case is before us second time. The present litigation began with a dispute between petitioning unions respondents, co-partners in business selling lumber other materials California. Respondents an action Superior Court County Diego, asking injunction damages. Upon hearing, trial court found following facts. In March 1953 sought from respondents agreement to retain their employ only those workers who were already members unions, or applied membership within thirty days. refused, claiming that none employees had shown desire join union, that, any event, they could not accept such arrangement until one been designated by as collective bargaining agent. at once peacefully picket respondents' place business, exert pressure on customers suppliers order persuade them stop dealing sole purpose these pressures was compel execution proposed contract. contested this finding, activities educate become members. On basis its findings, enjoined picketing use force agreement, properly also awarded $1,000 damages losses have sustained. 2 At time suit state started, begun representation proceeding National Labor Relations Board. Regional Director declined jurisdiction, presumably because amount interstate commerce involved did meet Board's monetary standards taking jurisdiction. appeal, California Supreme sustained judgmen Court, 45 Cal.2d 657, 291 P.2d 1, holding since Board exercise courts power over dispute. They further decided conduct union constituted unfair labor practice under § 8(b)(2) Act, 29 U.S.C.A. 158(b)(2), hence privileged law. As itself later pointed out decision specify what law, federal, relief granted. Both federal law played part but, '(a)ny distinction laws thoroughly explored.' Garmon v. Diego Bldg. Trades Council, 49 595, 602, 320 473, 477. 4 We granted certiorari, 351 923, 76 782, 100 L.Ed. 1453, together Guss Utah Board, 353 77 598, 609, 601, Amalgamated Meat Cutters, etc. Fairlawn Meats, Inc., 604, 613. cases, we held refusal assert jurisdiction leave States otherwise would be pre-empted regulating. equitable nature. vacating remanding judgment case, cases controlled one, 'in major aspects.' 26, page 28, 607, 608, 618. However, it clear whether remanded consideration local issue. question, namely, 151 et seq., precluded granting award arising appropriately antecedent question court. 5 remand, court, accordance our Guss, set aside injunction, but 473 (three judges dissenting). After deciding injuries caused union's activities, tort based so relied general provisions West's Ann. Civil Code, §§ 1667, 1708, well enactments specifically relations, Ann.Calif. 923 (1937); ibid., 1115—1118 (1947). 6 again 357 925, 78 1371, 1369, determine peaceful activity which enjoin. 7 issue variant familiar theme. It Allen-Bradley 1111, Wisconsin Employment 315 740, 62 820, 86 1154, greatly intensified flowing Taft-Hartley 141 has recurred here almost score during last decade. comprehensive regulation industrial relations Congress, novel legislation twenty-five years ago now integral economic life, inevitably gave rise difficult problems federal-state relations. To sure, abstract came ordinary questions statutory construction. But more complicated perceptive process than conveyed delusive phrase, 'ascertaining intent legislature.' Many probably been, all events not, foreseen Congress. Others dimly perceived precise scope vaguely defined. called upon apply new co mplicated legislative scheme, aims social policy drawn broad strokes while details filled in, no small extent, judicial process. Recently indicated task thus cast carrying fidelity purposes doing giving application congressional incompletion. What said Weber Anheuser-Busch, 348 468, 75 480, 99 546, deserves repetition, considerations there outlined guide day's decision: 8 'By Congress exhaust full sweep given Commerce Clause. formulated code whereby outlawed some aspects left others free operation forces. both categories, areas authority thereby withdrawn are susceptible delimitation fixed metes bounds. Obvious conflict, actual potential, leads easy exclusion action. Such situation Garner Teamsters Union, supra (346 485, 74 161, 98 228). recalled, Management Act 'leaves much states, though refrained telling how much.' 346 488, 164. penumbral area can rendered progressively course litigation.' pages 480—481, 488. 9 concerns most teasing frequently litigated multitude regulated Act. 61 Stat. 140, U.S.C. 157, 158, U.S.C.A 158. These govern protected 'concerted activities' practices. regulate vital, instruments strike line, impinge clash still unsettled claims employers unions. extent variegated several displaced single, uniform, national rule matter frequent recurring concern. day, 'the implications concerning taken Delphic nature, translated into concreteness litigating elucidation.' International Ass'n Machinists Gonzales, 356 617, 619, 924, 1018. 10 concerned, described contracted initial ambiguity doubt established guides interested parties certainly decision. principles realization tentative, fragmentary illumination carried decade writers opinions inevitably, unconsciously, focus primary attention facts particular situations, language may used views implied do completely harmonize pattern decisions evolved. safely claimed purport long series adjudications 'translated concreteness' consistently decide case. 11 determining must yield subordinating authority, concerned delimiting potential conflict; conflict rules remedy, administration. nature precludes ad hoc inquiry special labor-management occurrences ascertain degree involved, particularly exact mischief cause. Nor usi ness attempt this. determinations depend judgments impact conflicts entire scheme Our confined classes situations. closely limited demarcations adequately fashioned necessarily two law-enforcing authorities, disharmonies inherent systems, state, inconsistent substantive differing remedial schemes. unifying regard fact entrusted administration Nation centralized administrative agency, armed own procedures, equipped specialized knowledge cumulative experience: 12 'Congress merely lay down enforced tribunal competent generally parties. went confide interpretation specific specially prescribed procedure investigation, complaint notice, hearing decision, including pending final order. evidently considered designed procedures necessary obtain uniform avoid diversities likely result variety attitudes towards controversies. * A multiplicity tribunals diversity quite apt produce incompatible conflicting different *' Teamsters, 490—491, 165, 228. 13 Administration means regulation; regulation. broadest sense; complex interrelated Thus, concern focused regulate, rather method adopted. When threatened interference clearly judicially preclude acting.1 due presuppositions embracing system, principle diffusion doctrinaire localism promoter democracy, required find withdrawal where peripheral See Or touched interests deeply rooted feeling responsibility absence compelling direction, infer deprived act.2 14 fairly assumed State purports constitute 8, enactment requires yield. plainly central aim involves too great danger asserted requirements imposed mattered acted through directed governance relations.3 Regardless mode adopted, allow control subject create frustration purposes. 15 times governed was, perhaps, outside sections. adjudicate issues. essential first instance Court's cannot remain State's exclusive competence See, e.g., especially 489—491, 165—166, 228; 546. 16 adjudication throughout assumption behavior practice. conclusion derived view have, should same manner. arguably defer if averted. 17 require does ensure status disputed activity. If decides, appropriate review, 7, prohibited then end, ousted Or, decid th neither nor prohibited, raise States.4 fail declining General Counsel file charge, adopting disposition define unclouded legal significance. basic problem underlying 601. failure assume follows significance give act. determination precedent essentially undisputed facts, narrow possible Guss. governing potentially policy.5 18 light clear. Since adjudicated seeks remedy damages, compass displaced. 19 significant enjoin restrain compensate. unhampered. effectively exerted form preventive relief. obligation pay compensation be, indeed potent controlling policy. Even States' salutary effort redress private wrongs grant past harm regulatory scheme. 492—497, 166—169, will fact, active assertion authority. true incidence injunction. sanction either allowing law-making sources govern. remedies ingredient integrated regulation, withheld accentuates conflict. 20 allowed consequences, defined traditional torts, marked violence imminet t hreats public United Automobile, Aircraft Agricultural Implement Workers, Russell, 634, 932, 1030; Construction Laburnum Const. Corp., 347 656, 833, 1025. conduct. Youngdahl Rainfair, 355 131, 206, 151; 266, 794, 1162. prevailed situations interest, federalism, maintenance domestic peace overridden expressed direction. recognize 835, 1025, support counterpart. determined, demonstrated review restricted, 'type conduct' i.e., 'intimidation threats violence.'6 interest. 21 below reversed. 22 Reversed. 23 HARLAN, whom CLARK, WHITTAKER STEWART join, concurring. 24 I concur ground Unions' therefore made contrary respecting activities. points out, makes difference 601; 613; earlier when us, 25 Were nothing content rest my concurrence point without more. today's stand landmark future 'pre-emption' field, feel justified particularizing why opinion. 26 unprotected Taft-Hartley, think 1030 sustained, even might deemed federally prohibited. damage against upheld respect Federal says, however, applicable premised violence, enjoined, 1162, whereas acts peaceful. mistaken. 27 threshold every pre-emption act is, regarded as, Because touchstone pre-emption, obviously beyond reach power. Hill Florida, 325 538, 65 1373, 89 1782; Union v.O'B rien, 339 454, 70 781, 94 978; Street, Electric Railway Motor Coach Employees, 340 383, 71 359, 95 364. That squarely faced Russell 640, 936, said: 'At outset, note law.' view, Laburnum. 28 prior reference violent, Thus Laburnum, 658, 834. Similarly principles, stated 'clearly protected,' immediately say (citing 'violence' cases1) conducted manner enjoined' State. 936. instances reliance former involving injunctions,2 gone hold, effect says did, police disposed awards, like injunctions, violent statute. this, however. Instead relevance manifestly rendering unprotected. So rendered, classified 'neither prohibited.' latter, challenge. Automobile 336 245, 69 516, 93 651.3 Conversely, necessary, awards prohibitions. need practices supra, 660—663, 835—837; 641, possibility afforded less Russell. essence holding, resort unnecessary, contained passage 665, 838 (also quoted 644, 938): 30 'To practices, (Garner supra,) recognized excluded end. consequences tortious committed, concluding exitin g criminal penalties liabilities eliminated. care took demonstrate existing itself, recognition existed, survived.' 31 Until today subsequent cases. 477, 486, 546; etc., 937, 938; 621, 1018, similarly characterizing Russell; see dissenting 624—626 U.S., 927 928 S.Ct.4 32 cuts ability furnish effective nonviolent protected, Henceforth withhold access determined practice, which, unavoidable delays, render ineffective. And declines entirely afford Moreover, reparation powers observed narrowly circumscribed, injured often go remediless 33 am, further, loss understand, for, intimation powerless prohibited' Surely suggestion foreclosed 651, supra,5 approach Local, supra; Bethelehem Steel Co. New York 330 767, 773, 67 1026, 1030, 91 1234, Algoma Plywood Veneer 301, 584, 691, mention doctrine itself.6 Should intimates ever come pass, wrongful field reduced vanishing point. 34 adhere injunctions challenged Solely debatable E.g., Brotherhood York, N.H. & H.R. Co., 350 155, 227, 166; O'Brien, 364; 1782. Oliver, 358 283, 297, 312. up summarized 1162; restraint trade Cf. statutes. 776, supra. Auto 651. undertook activity, followed decisions, longer application. 'When subject-matter hand, coincidence ineffective opposition *.' Charleston Western Carolina R. Varnville Furniture 237 597, 35 715, 717, 59 1137. characterized Ressell, Burton, wrote very noted 'Laburnum know interpreted situation.' 29, 608. expressly phrased certiorari include '(i)n type Appeals Virginia Petitioners *,' 374, 425, despite petitioners urged involved. Petition p. 6. Throughout, favor violence. findings flagrant length. 660—662, 4, 835—836. relies statements Senator Taft, Act's sponsor, Senate Report 'mass picketing,' 'violence,' 'threat(s) violence,' violation 668, 840. recovery secondary boycotts, party 'to recover directly flagrantly us.' 666, 839. placed quotation 253, 521, '(p)olicing consists 'actual persons destruction property,' States. paragraph stresses 'coercion (347 840.) extensive, consisting primarily profits disruption respondent's resulting restricted 'damages andpro ximately chargeable defendants torts. Workers 194 Va. 872, 887, S.E.2d 694, 704. measure indicate compensate anything direct All factors make plain rested interest regulating them. phrases 638, 935. continually limits 'kind 646, 939. 642, 937; Alabama union. 1154; cited Note text 784, infra. amici briefs filed Government American Federation Industrial Organizations, latter stating '(w)e hope argue overruled.' correct application.' That, vitality charged contrary, remained fully intact, and, noted, underlay category referring initially however federaly. premise concern,

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