Document: 489 U.S. 527 109 S.Ct. 1282 103 L.Ed.2d 539 Efthimios A. KARAHALIOS, Petitionerv. NATIONAL FEDERATION OF FEDERAL EMPLOYEES, LOCAL 1263. No. 87-636. Argued Jan. 17, 1989. Decided March 6, Syllabus Petitioner—a language instructor for the Defense Language Institute, a federal agency—was not union member but was within bargaining unit which respondent exclusive agent. He promoted to reopened "course developer" position, had previously been occupied by one Kuntelos, who demoted when Institute first abolished position. After agreed arbitrate on behalf of Kuntelos (who its board) and successfully argued that position should be declared vacant refilling, reassigned job petitioner, denied his direct protest. Respondent refused prosecute petitioner's grievances because perceived conflict interest with previous advocacy. Petitioner then filed unfair labor practice charges Federal Labor Relations Authority (FLRA), alleging, inter alia, breached duty fair representation. The FLRA's General Counsel upheld this charge ordered complaint issued against respondent, entered into settlement whereby it posted notice guaranteeing representation all employees seeking single When rejected contention appeal provided him no relief, he damages suit in District Court, held judicially cognizable, since grant contained Civil Service Reform Act 1978 (CSRA or Act) impliedly gives private right action safeguard their However, Court Appeals reversed judgment stating CSRA's statutory scheme, creates both an express remedy FLRA infringement duty, precludes implication paral el sue court. Held: Title VII CSRA does confer cause breach representing such Pp. 531-537. (a) VII's create action, there is nothing Act's language, structure, legislative history from congressional intent provide can implied. In fact, provisions demonstrate Congress vested enforcement authority over Counsel, renders practice, adjudicated upon Counsel's complaint, provides recourse courts only three instances, none directly relate To hold district must entertain cases instance would seriously weaken scheme. 532-534. (b) A cannot implied similarities National (NLRA) Railway Act, under has recognized implicit judicial causes enforce sector. Unlike CSRA, neither those statutes expressly recognizes any administrative enforcement. Furthermore, Vaca v. Sipes, 386 171, 87 903, 17 842, NLRA intended preserve courts' pre-existing jurisdiction after Board tardily assumed jurisdiction, whereas, pre-CSRA regulatory equivalent role. Moreover, earlier stressed critical unions represent good faith, pertinent deprived individual rights bargain providing agents. contrast, employment rest contract sector sense; deprivation employee suffers election agent—if deprivation—is clearly comparable predicament; collective-bargaining mechanisms created do deprive remedies otherwise statute regulation. also rested part fact contracts were enforceable § 301 Management whereas provision exists CSRA. 534-536. 821 F.2d 1389 (CA9 1987), affirmed. WHITE, J., delivered opinion unanimous Court. Thomas R. Duffy, Monterey, Cal., petitioner. H. Stephen Gordon, respondent. Richard G. Taranto, Washington, D.C., U.S., as amicus curiae, supporting special leave Justice WHITE 1 question before whether Act), 5 U.S.C. 7101 et seq. (1982 ed. Supp. IV), confers Because we decide (FLRA) agree exists. Hence affirm. 2 Petitioner, Karahalios, Greek Institute/Foreign Center, Presidio California (Institute). Karahalios professional Federation Employees, Local 1263 (Union), 1976, opening applied. Previously, Simon 1971, course developer declined seek through competitive application process, won scoring 81 required examination. 3 grievance, asserting Institute's award infringed agreement, have assigned without process. Union (a board member), refilling. promotion selection procedures altered, permitted considerably more time scored 83, May 1978, instructorship status. 4 Karahalios' protest substitution; likewise, challenging adverse decisions: alleged, first, violated agreement; and, second, second charge, Union. Regional Director, however, relief. restating published orders, dismissed jurisdictional grounds claim cognizable Specifically, 28 1331 supports supplies trial, ruled Union's actions—notably decisions consulting, even notifying, subsequently, refuse Karahalios—breached owed him. court confined attorney's fees, explaining applicants too similarly matched allow distinction. 6 reversed, parallel courts. We granted petition certiorari. 486 1041, 108 2032, 100 617 (1988). 7 Prior relations governed 1962 Executive Order administered Council whose subject review. Bureau Alcohol, Tobacco & Firearms FLRA, 464 89, 91-92, 104 439, 441-442, 78 195 (1983). Since controlling authority. Of particular relevance here, 7114(a)(1) organi ation accorded designated "is responsible interests represents discrimination regard organization membership."1 This "virtually identical" found source agent's See 1453, 23 F.L.R.A. 686, 690 (1986).2 parallels obligation (NLRA), 49 Stat. 449, amended, 29 151 (RLA), 44 577, 45 180-183, 911-913, 842 (1967); Steele Louisville Nashville Co., 323 192, 205-207, 65 226, 233-234, 89 L.Ed. 173 (1944). 8 makes clear "an . fail comply chapter." 7116(b)(8). Under 7118, complaints are authorized order remedial appropriate carry out purposes VII, including backpay either agency committed practice. 9 There suggestion furnish instances: specified exceptions, persons aggrieved final may review appeals, 7123(a); 7123(b); temporary injunctive relief available assist discharge duties, 7123(d). 10 nevertheless insists Such poses issue construction: "ultimate action," Sierra Club, 451 287, 293, 101 1775, 1779, 68 (1981) (citations omitted); see Touche Ross Co. Redington, 442 560, 569, 99 2479, 2485, 61 82 (1979). Unless "congressional inferred statute, some other source, essential predicate simply exist." Thompson Thompson, 484 174, 513, 98 512 It "elemental canon" construction where remedy, especially reluctant additional remedies. Transamerica Mortgage Advisors, Inc. Lewis, 444 11, 19, 242, 246, 62 146 cases, "[i]n absence strong indicia contrary intent, compelled conclude precisely considered appropriate." Middlesex County Sewerage Sea Clammers, 453 1, 15, 2615, 2623, 69 435 (1981); Massachusetts Mutual Life Ins. Russell, 473 134, 147, 105 3085, 3092, 96 (1985); Northwest Airlines, Transport Workers, 77, 93, 1571, 1581, 67 750 (1981). 11 These guideposts indicate quite correct concluding nor structure shows unions' That body duties imposed agencies Nothing called our attention indicating contemplated union's duty. Indeed, complaints, matters mentioned 7123 reviewable. H.R.Rep. 95-1403, p. 52 (1978). All practices FLRA. S.Rep. 95-969, 107 contemplates arbitration unsettled grievances, House proposal could enforced ultimately rejected. H.R.Conf.Rep. 95-1717, 157 (1978) U.S.Code Cong. Admin.News pp. 2723, 2829, 2860, 2891. 1947 (LMRA), 156, 185, permits contracts. 12 relies another find necessary action. urges modeled meant similar (NLRB). NLRB construed make petitioner argues role VII. Much argument rests decision supra. are, several difficulties argument. 13 place, carbon copy NLRA, same NLRB. like RLA, did members units forced accept employee. occurred supra; Trainmen Howard, 343 768, 72 1022, 1283 (1952), LMRA, Syres Oil 350 892, 76 152, 785 (1955); Very dissimilarly, 14 sure, prior Vaca, §§ 8(b) impose age ts Miranda Fuel 140 N.L.R.B. 181 (1962), enf. denied, 326 172 (CA2 1963). years later, whether, light still As understood inquiry, Congress, enacting 1947, oust enforcing NLRA. "tardy assumption" insufficient reason abandon Syres. 15 case us, mistaking Congress' basis, Also, played 11491 10e, CFR 861 (1966-1970 Comp.), subsequent amended regime, context at least arguably preserve.3 16 agents, wages, hours, working conditions. faith. Again, operates different context. United States explains, predicament. 7114(a)(5) 7121(e)(1). note LMRA 301. claims most often involve employer employers suable 301, allows Section VII; suing 18 therefore discern basis finding undoubtedly aware Cort Ash, 422 66, 95 2080, 26 (1975), departed standard resolving urging recognized, issues being resolved straightforward inquiry Had representation, expect evidence history. none. Just Fausto, 445, 668, 672, 830 (1988), "integrated scheme review" foreclosed Claims review, follow here. Bush Lucas, 462 367, 388, 2404, 2416, 648 play 7116(b)(8) sitting undermine what deem namely confine given them Act. 19 Accordingly 20 Affirmed. reads, full: "A recognition representative represents, entitled act for, negotiate collective agreements covering, unit. An membership." precursor likewise interpreted F.L.R.A., 690. orders legislative, generally See, e.g., Kuhn Association Letter Carriers, Branch 5, 570 757, 760-761 (CA8 1978).

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