Document: 421 U.S. 560 95 S.Ct. 1851 44 L.Ed.2d 377 John T. DUNLOP, Secretary of Labor, Petitioner,v.Walter BACHOWSKI et al. No. 74—466. Argued April 21, 1975. Decided June 2, Syllabus After being defeated for office by the incumbent in a union election, and after exhausting his remedies, respondent candidate (hereafter respondent) filed complaint with petitioner, alleging violations § 401 Labor-Management Reporting Disclosure Act 1959 (LMRDA) thus invoking 402(b) Act, which requires to investigate decide whether bring civil action set aside election. The Secretary, upon investigation, decided that such an was not warranted so advised respondent, who then have Secretary's decision declared arbitrary capricious order him file suit District Court dismissed on ground it lacked 'authority' afford relief sought. Appeals reversed remanded, holding had jurisdiction under 28 U.S.C. 1337 as case arising Congress regulating commerce (the LMRDA); Administrative procedure (APA), 5 §§ 702, 704, subjected judicial review 'final agency there is no other adequate remedy court'; pursuant 'statutes (that) preclude review; or . committed discretion law,' excepted 701(a) from scope review—governed 706(2)(A) 'to ensure actions are arbitrary, capricious, abuse discretion'—entitled sufficiently specific statement factors relied reaching (respondent) may information concerning allegations contained complaint.' Held: While confers entertain respondent's suit, against 701(a), but virtue 702 704 reviewable standard specified 706(2)(A), erred insofar construed authorize allow trial-type inquiry into factual bases decision. Pp. 566-577. (a) Absent express prohibition LMRDA decision, bears heavy burden overcoming strong presumption did mean prohibit all dicision, failed overcome this case. P. 567. (b) However, congressional purpose narrowly limit must be inferred fulfill statutory objectives. 568. (c) Since relies knowledge determining both probable violation effect election's outcome, reviewing court authorized substitute its judgment enable intelligently determination, provide complaining member supporting reasons. 568-572. (d) should confine itself examining reasons whethr statement, without more, shows irrational court's extend adversary trial member's challenges 572-574. (e) If determines adequately demonstrates contrary law, fails dismissed, whereas if face compels conclusion sue assumed would proceed appropriately coercion order. 574-576. 3. Cir., 502 F.2d 79, remanded. Mark L. Evans, Washington, D.C., petitioner. Michael H. Gottesman, United Steelworkers America. Joseph Rauh, Jr., respondent. Mr. Justice BRENNAN delivered opinion Court. 1 On February 13, 1973, America (USWA) held district officer elections several districts. Respondent Bachowski (hereinafter election 20.1 remedies within USWA, timely (LMRDA), 73 Stat. 532, 29 481, 482(a), require election.2 Similar complaints were respecting five elections. completing investigations, only two With respect 20, he letter dated November 7, '(b)ased investigative findings, has been determined challenged warranted.' 2 USWA Western Pennsylvania.3 asked that, among relief, 'the declare Defendant aforesaid election.' conducted hearing 8, argument question reviewability concluded find suit. Civil Action 73—0954, W D Pa., Doc. 9, p. 27. followed 12, dismissing suit.4 Third Circuit reversed, 79 (1974). 3 held, first, commerce, LMRDA, F.2d, at 82—83; second, Procedure court,' not, maintained, '(1) statutes (2) review, 83—88;5 and, third, discretion,' 90—entitled sought challenge basis Secretary's) either occurred they affect outcome election,' id., 89, Id., 90.6 We granted certiorari, sub nom. Brennan v. Bachowski, 419 1068, 654, 42 663 4 [1-3] agree 701(a); rather, subject 706(2)(A). hold, however, construes affecting accordingly reverse directs further proceedings remand consistent court, direct entry new ordering * contains provision explicitly prohibits reveiw allegedly invalid There 483. That section states '(t)he provided subchapter challenging already shall exclusive.' Certain provisions pre-election conduct, 411—413 481(c), enforceable suits brought individual members. Provisions conduct itself, enforced according post-election procedures 482. Section 483 simply underscores exclusivity 482 cases. 6 In absence therefore, 'The phrased terms 'prohibition' rather than 'authorization' because survey our cases final aggrieved person will cut off unless persuasive reason believe Congress.' Abbott Laboratories Gardner, 387 136, 140, 87 1507, 1510, 18 681 (1967). '(O)nly showing 'clear convincing evidence' legislative intent courts restrict access review.' 141, 1511. See also Rusk Cort, 369 367, 379—380, 82 787, 794—795, 7 809 (1962); Citizens Preserve Overton Park Volpe, 402, 410, 91 814, 820, 136 (1971). urges structure scheme, objectives, history, nature administrative involved, conditions spelled out thereto, combine evince meaning decision.7 examined materials upon. They do reveal us any review. Indeed, even slightest intimation gave thought matter preclusion reasonable inference possibility occur Wirtz Bottle Blowers Assn., 389 463, 468, 88 643, 647, 19 705 (1968). 8 therefore reject merit. He make meant circumstance, 'are necessarily (not) power clearly appear acted manner ignoring mandatory duty owes plaintiffs powers Congress. Leedom Kyne, 358 184, 180, 210 (1958).' DeVito Shultz, 300 F.Supp. 381, 382 (DC 1969) (DeVito I). But see Ravaschieri 75 L.R.R.M. 2272 (SDNY 1970); McArthy Wirtz, 65 2411 (ED Mo.1967); Katrinic 62 2557 1966). Our examination relevant persuades us, although shown, can, should, carry objectives enacting LMRDA. II 9 Four prior decisions construing identify put permissible perspective. 'decided utilize special Labor best serve public interest (and) permit individuals block delay filing federal-court ..'8 Calhoon Harvey, 379 134, 85 292, 296, 13 190 (1964). Congress' concern settle quickly practicable cloud incumbents' titles office,' Blowers, supra, U.S., 468 n. S.Ct., 'deliberately (giving) exclusive enforcement authority emphatically asserted vital assuring free democratic transcends narrower complasining member. .' 473—475, 649. '(I) t most improbable deliberately settled broad discharge responsibilities, yet intended shape immutably fixed artfulness layman's .. expertise resources Department surely broader play. Laborers' Union, 477, 482, 642 '. made principal reasons: (1) protect unions frivolous litigation unnecessary interference their elections, centralize single proceeding might ..' Trbovich Mine Workers, 404 528, 92 630, 633, 30 686 (1972). prevent members pressing claims meritorious litigating forums times different those chosen Secretary.' 536, 635. '(T)he statute gives certain rights union, becomes lawyer' purposes enforcing rights. 538—539, 636. 10 Assn. reveals more considerations pertinent determination 482(b) leaves terms, cause occurred, probably affected violation. 482(b), conferring determine effect. initiate until own investigation confirms infected 472, Schonfeld 258 705, 707—708 11 addition, rejecting unlawfulness infecting could washed away intervening unsupervised stated, 474, 650. 12 evident supervised offer assurance officers achieved beneficiaries some means perpetuate unlawful control succeeding reached light abuses surfaced extensive how use inherent advantage over potential rank challengers established perpetuated dynastic unions. These 'number instances breach trust disregard employees rested legislation required interest.'9 Two conclusions follow decisions: since effect, suit; witness copies determination. '(W)hen taken Secretary) measure confidence discretion, still remains exercised neither nor capricious. (I)t necessary (him) delineate explicit discretionary taken, particularly where consists failure act finding irregularities.' I, F.Supp., 383; Valenta Brennan, C 74—11 (ND Ohio 1974). 14 Moreover, serves role lawyer does include indulge client's usual prerogative we reasonably infer supply reasoned why proceed. '(A)s law whenever proofs before suggest successful. degree select subjective control.' 72 2682, 2683 II) (emphasis added). '(s)urely intercede Title IV carried harmony implementation LMRDA).' 383. Finally, 'reasons' requirement promotes cover points eschew irrelevancies, noted case, need assure careful consideration 'would unreviewable.' 88—89, 14. 15 necessity refrain substitution helps define Except what rare confined evinces constitute Thus, cognizance full trappings hearings defiant resolution disputes, office'; elections.' 'If concludes rational defensible (stated statement) end matter, function be.' II, 2683. 16 sufficed 'brief grounds denial' 555(e),10 plainly suffice For impermissible all. essential purpose, detailed findings fact required, inform facts inferences based. 17 himself suggests justify beyond confines arise, example, 'if longer enforce IV, otherwise completely abrogate responsibilities (or) prosecuted constitutionally discriminatory Brief Petitioner Other imagined 'plainly bounds Act.' L.R.R.M., 2682. inevitably grave arise kind, hope indeed. remedy. When dismissed. Howard Hodgson, 490 1194 (CA8 Where inadequately discloses reasons, afforded opportunity supplement statement. 384; supra.11 mindful, endless sufficiency written inconsistent statute's goal expeditious disputes. may, ultimately come renders presented empowered occasion address time. It obviously presents difficulty evidence Secretary.12 Passenger Corp. Passengers 414 453, 465, 94 690, 696, 38 646 (1974) (Brennan, J., concurring); Nader Saxbe, 162 U.S.App.D.C. 92—93, 19, 497 676, 679—680, prefer time assume when finally III 20 limits defined opinion. first stating 'judicial very least .,' noted: requested goes inquiry. (P)laintiff seeks 89. circumstance 'plaintiff entitled plaintiff 90. 21 key allegation plaintiff's verified paragraph alleges: 'Notwithstanding substantiated notwithstanding irregularities charged refuses election.'13 Thus Appeals' impermissibly authorizes 22 Court, remand, ordered furnish petitioner cross-petition order, conceded proper Tr. Oral Arg. 23—24, 52. furnished attached Appendix Its adequacy support rationally based initial 23 Appeals, directed enter 24 Reversed APPENDIX TO OPINION OF THE COURT IN UNITED STATES DISTRICT FOR WESTERN PENNSYLVANIA 0954 WALTER BACHOWSKI, PLAINTIFF 25 26 PETER J. BRENNAN, States STEELWORKERS AMERICA, AFL—CIO—CLC, DEFENDANTS STATEMENT SECRETARY LABOR 27 oral argument, Complaint herein plaintiff, denied Motion Temporary Restraining Order Preliminary Injunction. appeal, Circuit, Judgment entered July 26, 1974, aforementioned vacated remanded Opinion amended September 3, 1974. explanations underlying received Walter good standing America, AFL—CIO—CLC referred International). Accordingly, defendant, furnishing following information. respectfully submitted waive legal raised connection matter.1 Pursuant 1973 International Director, 20. fourth largest Steelworker covers eight contiguous counties Pennsylvania, running Pittsburgh South Erie North, West. At comprised approximately 67,419 31 total, representatives investigated 80 20's local unions, including former 50 locals found past experience encountered unusual number related problems due recent assimilation Union). formulating plan focused each every attention orally complaint. Investigators, while geographical areas designated reviewed additional random areas. Also, red flag selected wide where, voter turnouts appeared inordinately high. addition depth investigators interviewed numerous members, events surrounding Investigators documentary leads violations. During course entire proceeding, worked hand ongoing basis. 32 Because size obvious limitations available manpower concurrently investigating Districts well), possible above described design broadly conceived calculated disclose 33 Therefore, readily apparent thorough exhaustive Set forth below analysis along numerical estimates votes result these estimates, considered figures maximum theoretical possibility. By using maximized figures, giving benefit doubt Bachowski. Local Union 2789 discussed assuming membership 249 voted, moreover voted unanimously arrived figure votes. This method computation, theoretically possible, highly unlikely, since, about one-third probability voting given unanimity vote. 34 2203 35 disclosed mail notice ten working one employer site, consequently, never apprised potentially right vote 401(e) Act. arriving ten, note, nine seventeen location seems unlikely notified. 36 37 files indicate monthly meeting lack funds. conducted. obligated total 401(a) As above, computing violation, included (3) 3186 39 safeguards insure fair persons conducting hand-carried ballots work stations, permitted area eligibility list used. left great deal desired. 'may outcome' extent represents margin Kluz prevailed 40 (4) 3713 41 loose ballot (many lying around employer), unable account ballots. affected' 124 figure, previous Local, victory (5) 7496 43 six eligible thus, (6) 7749 45 consisting schedule Although apathy Hence, assigned 'effect outcome.' (7) 12055 46 51 four separate locations. indicated three sites notified distributed sich secrecy maintained. All cast favor derived influenced non-secret Kluz. 47 (8) 12059 48 185 employed revealed locations mailed notices required. actually voted. 49 (9) 13972 plant site removed remainder Election Committee facilities Union. (10) 14210 52 A vote; reach polls conflict. ineligible 53 (11) 14661 54 marked proximity registration table compromised. saw another 34, Brummitt 11. 14, 55 (12) 14768 56 return sheet International. Financial properly, destroyed records submit return. casting (It purports actual showed winning vote.) (13) 14800 57 existence strongly 401(c) tellers handled supervision. view indication fraud 110 possibly having (118 receiving 5.) 78 above). funds expended campaign rally candidacy Evidence tends 100 attended party, 14800. (in note many attending party ardent supporters. illegal expenditure little any, preference. majority party; contends attendance 14800, whose regarded above. 58 (14) 14820 59 maintain well notify signed back member—an secrecy. claim aware subsequent investigator, cancel Assuming through inaccurate tallies responsible officers, less entitlement extra Local's properly credit candidates. 60 (15) 14945 61 tables voters close able observe 18, (16) 15370 63 desirable. Persons throughout period voting, nevertheless local—the 64 (17) 15420 votes, none, one. listed voting. learned small part deviation between local's 66 To recapitulate, setting Locals represent involved. Page 588 67 1. .......................10 2. ......................249 .......................16 4. ......................124 5. ........................6 6. .......................25 7. ......................51 8. .......................8 9. .......................5 10. ......................2 .....................14 12. .....................17 13. ....................250 .....................63 15. .....................18 16. .....................10 17. .....................16 68 adding position 884 907 votes2 Labor's like litigant cognizant entering prosecution regard, serious Bachowski's invocation internal notably Tellers rule initially validity protests. chose by-pass step protest directly Executive Board. 69 correctly alleged confirmed Director concluded, altered 153, Glass Association, (1968) Supreme page 649 that: 70 (Emphasis added.) 71 mature actionable 'probably infected' question. violations, CONCLUSION focused, things, matters shown outcome. discharged duties /s/ Richard Thornberg Assistant Attorney WILLIAM KILBERG Solicitor BEATE BLOCH Associate LOUIS WEINER Regional STEPHEN ERNST ROBERT K. SALYERS Attorneys Counsel 74 Filed: 11, Chief BURGER, concurring. 76 I join understanding fashioned exceedingly narrow behalf complainant language 1959, much applies Court's read providing evidenced complainant, 648, (1968), advances 77 REHNQUIST, concurring dissenting part. parties excused react surprise Instead deciding issue petition decides disagree; compound confusion, reasoning adopted resolve quite foreshadow disposition reserve judgment. intraunion 481. warranted. notified,* refusal refused '(n) otwithstanding (respondent's) allegations,' 'has suit.' App. 5A. 'direct obtained 6A. reversing judicially reviewable. considering review,' prepare presumably assist deference paid determinations. 88—89 (CA3 Notwithstanding verbiage, approach materially different. expressly reserves ante, 575, justification appears premised affirmative reserved question: intelligibly determination,' 571. cannot subscribe convoluted sort. 81 place, supplied certiorari is: 'Whether dissappointed seeker invoke process compel Pet. Cert. 83 seek instead proceeded comply portion appellate appended states: 'We contest holding.' Petitioner, 84 Such concession founded, stated Independent statute. applicable 526 'Prompt denial whole application, petition, request interested proceedings. affirming self-explanatory, accompanied brief denial.' 555(e). 86 S.Doc. 248, 79th Cong., 2d Sess., 206, 265 (1946). Here, responsibility 555(e) applicable. acquiescence persists it, concur APA, dependent availability ground, my view, furnishes sounder concluding consider certiorari: Is behest force election? 89 rely authorizing lawsuit, indeed none. Instead, APA judicial-review provisions, 701—706. 3A. apply, law.' 701(a). 90 kind expresses 'for conducted.' recognizes (1964), precludes compelled silent pursue exclusively his, lightly inferred. 140—141, 1510—1511, conclusion, regard second clause me establish precisely 'agency law' exempted APA. cases, repeatedly recognized played Secretary. 296 (footnote omitted), said: 93 'Section 402 pointed out, sets up protecting rights, permitting IV. Upon investigates finds violated, appropriate court. interest. doing Congress, exception here relevant, Reliance general policy latitude resolving controversies, fails, agencies Government familiar aid bringing settlement discussion resort courts. Without lengthy history preceded passage measure, sufficient say satisfied disputes here, basically relating candidates office, fall squarely resolved Title.' Ass'n, 473—474, 649—650, More recently, (1972), said, context intervenor complaint: 'With then, supports 96 (W)e think insulate hold imposes bar intervention member, long limited illegality 536—537, 635 omitted; emphasis 97 accident. conscious compromise balance important conflicting interests: vindication freedom undue harassment. 470—471, 647—648. unreviewable labor area, Vaca Sipes, 386 171, 182, 903, 912, 842 (1967), areas, Confiscation Cases, Wall. 454, L.Ed. 196 (1869); FTC Klesner, 280 25, 1, 138 (1929). distinguish line involved 'vindication societal governmental interest, protection rights,' 87. artificiality purported distinction refutes applied 30, basic response contravention intent: 98 'Congress 'right' created. precise machinery tool deemed suited end. constitutional questions aside, creates enforced.' Switchmen's National Mediation Board, 320 297, 301, 95, 97, (1943). 99 arguments, understatement, acknowledges 'obviously Ante, 575 omitted). adjudication certiorari. institute follows: Kay (incumbent) 10,558 9,651 Morros Brummett 3,566 provides: '(a) Filing complaint; 'A organization— exhausted constitution bylaws organization parent body, '(2) invoked obtaining calendar months invocation, month thereafter 481 title presumed valid pending thereon interim affairs elected provide. '(b) Investigation commencement Secretary; jurisdiction; preservation assets. remedied, shall, sixty days complaint, entity theUnited maintains removal supervision date, quoted text. alleges 5, 'received phone call advising contested Dstrict USWA.' recites 'it lacks Complaint.' result, immaterial dismissal nonreviewability, grounds. 606 526, adjudication, chapter.' 701—706, provide: 701. Application; definitions. chapter except that— 702. Right suffering wrong thereof.' 704. Actions 'Agency 706. Scope (T)he shall— be— '(A) accordance closing sentence originally examine data reports' relied. present version substituted added 17, reciting recognition privileged confidential. opinion, 86—88 1974), merit contention exercise prosecutorial discretion. S.Rep.No.187, 86th 1st (1959): 'In acting bill (S. 1555) committee principles: '1. desirability minimum private organization. (I)n establishing standards care undermine self-government weaken collective-bargaining agents. '2. Given maintenance democractic fully competent regulate affairs. '3. Remedies direct. problem.' ibid.: reported committee, carries major recommendations (McClellan) philosophy restraint.' Workers Amicus Curiae 3: struggle UMWA overturn tyranny lonely difficult indifference, outright prejudice them, officials purportedly guardians members' Too often, reformers allied incumbents interests.' No Judge Gesell Columbia acceptable 381 (1969). Aggrieved complained regular President Emeritus. supplying statements inadequate, Emeritus sufficient. reopen 'a fuller explanation,' reconsideration remained motion dismiss summary submission aspect respects Later, adherence hearing. 2682 1969). 'satisfied proceeding' dismiss. argues Arts. Constitution 'do countenance requiring executive branch, wishes, lawsuit federal court.' direction violate separation agrees lacking requisite adversity 'case' 'controversy' Article III.' contentions. concedes want 'jurisdiction,' accepted true. recites, 'Secretary's contrary, Defendant, now Petition Writ Certiorari Circuit. results Kluz—10,558 votes; Bachowski—9,651 Brummitt—3,566 telephone day sent notifying manner: 'Pursuant Sections 601 Office. Based determined, consultation are, date.' 1a.

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