Document: 477 U.S. 274 106 S.Ct. 2523 91 L.Ed.2d 228 INTERNATIONAL UNION, UNITED AUTOMOBILE, AEROSPACE AND AGRICULTURAL IMPLEMENT WORKERS OF AMERICA, et al., Petitionersv.William E. BROCK, Secretary, United States Department of Labor. No. 84-1777. Argued March 25, 1986. Decided June Syllabus To supplement state unemployment insurance benefits, the Trade Act 1974 (Act) provides federally funded trade readjustment allowance (TRA) benefits to workers laid off because competition from imports. As authorized by Act, Secretary Labor (Secretary) has contracted out agencies job making individual eligibility determinations for benefits. qualify a worker must have at least 26 weeks employment in 52 immediately preceding his layoff. In 1975 policy handbook, advised that they should not count toward these leaves absence, sick leaves, vacations, and military leaves. These guidelines were superseded 1981 amendment permits inclusion such periods nonservice determining worker's period employment, but was limited payable beginning after September 30, 1981. Petitioner union petitioner members (some whom had been denied before October 1, 1981, some defending award against appeals their respective agencies) filed an action Federal District Court claiming interpretation incorrect, seeking declaratory injunctive relief. On cross-motions summary judgment, first rejected Secretary's argument provision 19 U.S.C. § 2311(d), makes entitlement reviewable only "in same manner extent as under applicable State law," precluded federal jurisdiction over action. merits, court held inconsistent with granted requested Without reaching Appeals reversed, holding no standing bring member plaintiffs, who claim improper construction court, relying on 2311(d)'s requirement, relief could properly be awarded plaintiffs failed join party-defendants claims. Held: 1. litigate this Pp. 281-290. (a) An association suit behalf its when (1) "its would otherwise sue own right"; (2) "the interests it seeks protect are germane organization's purpose"; (3) "neither asserted nor requires participation lawsuit." Hunt v. Washington Apple Advertising Comm'n, 432 333, 343, 97 2434, 2441, 53 383. All three conditions met case. condition, 2311(d) does preclude or any other aggrieved claimant challenging guidelines. The question is whether there might circumvented administrative judicial process order claims now litigate, rather yet receive either believe due final judgment will further consideration Such individuals live interest support second condition associational standing, little "germane" purpose obtaining including members. third although unique facts each member's considered authorities can claimed without those members' still ensure remedy, if granted, benefit actually injured. 282-288. (b) principles set Hunt, supra, reaffirmed. suggestion wish common questions law fact defendant permitted proceed pursuant class-action provisions Rule Civil Procedure 23, fails recognize special features distinguishing suits associations class actions. While creates ad hoc injured may linked claims, suing vindicate draw upon pre-existing reservoir expertise capital assist both courts plaintiffs. addition, doctrine recognizes primary reason people organization often create effective vehicle vindicating share others. Here, given doubt union's ability 288-290. 2. maintained joinder defendants administering TRA program. appeal adverse determination, removed challenge required determination. Just cannot read bar guidelines, section demand rules governing review decisions bind entertaining challenge. Under circumstances where bound comply ordered here reimbursed Government pay, "indispensable parties" within meaning 19(b) whose absence rendered unable grant sought. 290-293. 241 U.S.App.D.C. 106, 746 F.2d 839, reversed remanded. MARSHALL, J., delivered opinion Court, which BRENNAN, BLACKMUN, STEVENS, O'CONNOR, JJ., joined. WHITE, dissenting opinion, BURGER, C.J., REHNQUIST, POWELL, post, p. 296. Marsha S. Berzon, San Francisco, Cal., petitioners. Carolyn B. Kuhl, Washington, D.C., respondent. Justice MARSHALL Court. 1 This brought International Union, Automobile, Aerospace Agricultural Implement Workers America (UAW), several Labor's 1974, 88 Stat. 1978, 2101, issues presented Union affected administer program question. 2 * aid lost jobs import competition, established 2291. Act's scheme, group workers, union, representative petition certify firm adversely §§ 2271-2273. If certificate group, meet certain standards then apply entirely Government, cost 3 delegate certification duties, permit him contract programs. entered into agreements Columbia Puerto Rico. Pursuant agreements, "cooperating Stat[e] agencies," 2311(a), becomes "agent States," 2313(a), charged processing applications using funds pay eligible Act. Review extent." 2311(d). determinations, however, relevant regulations promulgated substantive 29 CFR 91.51(c) (1985). 4 "had, . separation, wages $30 more week single subdivision firm." 2291(2) (1976 ed.). 5 "[p]eriods service being performed, leave annual vacation leave, performed than employer, service, temporary loan detail another work employer while attached employer. ." App. 85. 6 August Omnibus Budget Reconciliation (OBRA), Pub.L. 97-35, 95 357, amended provide "leave purposes vacation, sickness, injury, maternity, inactive duty active training" included individual's firm. 2291(a)(2)(A). effect amendment, "payable begin 1981." OBRA, 2514(a)(2)(B), 889, note following 7 Shortly passage petitioners, UAW 11 members—some 2291 handbook agencies—filed Claiming incorrect and, related violation Veterans' Employment Readjustment 1972, 38 2013, Vietnam Era Assistance 2014, 2024, petitioners sought declaration injunction requiring notify all cooperating invalidity direct reprocess cases denied. 8 Donovan, 568 F.Supp. 1047, 1050-1052 (DC 1983). It noted: 9 "In typical case envisions disappointed applicant agency's application pertinent instant case, atypical. allege themselves invalid; do contest particulars cases." Id., 1050. 10 merits complaint, indeed 1972. therefore proper anew, applying standards, wrongfully result divided panel reversed. 839 (1984). noted "is appropriate claimants members," id., 109, F.2d, 842, that, stage proceedings, "impermissible" treat claimants, 108, 841. even represent reasoned: 12 ., alleged injury itself; rights affected. solely far all, Automobile Union. Many terminated increasing They seek Those injured, advantages, various amounts. controversy conclusion proceedings party plaintiff." 842. 13 Turning six named awards 2291, assuming did jurisdiction, "no action" 111, 844. Relying requirement "that respect 'in manner' determination state's concluded: 14 "Judicial presence agency, [and] since outside district court's here." 110, 843. 15 We certiorari consider procedural raised Appeals' decision, 474 900, 225, 224 reverse. II 16 decision simple one: Does directive allegedly resulted denial thousands Union's members? See Complaint ¶ 69. noted, affected," U.S.App.D.C., inquiry thus policy. 17 long settled "[e]ven itself, E.g., National Motor Freight Assn. States, 372 246 [83 688, 709] (1963)." Warth Seldin, 422 490, 511, 2197, 2211-2212, 45 343 (1975). "possibility representational eliminate attenuate constitutional controversy," ibid.; see Sierra Club Morton, 405 727, 92 1361, 31 636 (1972), we found circumstances, satisfy Article III allow behalf. Simon Eastern Kentucky Welfare Rights Organization, 426 26, 40, 96 1917, 1925, 48 450 (1976). Warth, nature circumstances: 18 "The members, one them, suffering immediate threatened challenged sort make justiciable suit. So established, so indispensable resolution cause, entitled invoke jurisdiction." U.S., S.Ct., 2211-2212. Subsequently, stated three-part test: 20 "[A]n when: right; purpose; (c) neither 383 (1977). 21 present Defending argues none satisfied. turn. A. 22 Addressing part analysis dispute petitioners' large number Department's between His purports suffered injury. Rather, he relies "subject extent," maintains UAW—or claimant—can running afoul finality comity, well statutory intent. 23 reasons gives preclusion differ, end same. finally resolved favor it. At time, barred res judicata raising court. who, time brought, pending favorable unfavorable "be contrary Congress's incorporation system administration affront integrity authority courts, pretermit proceeding court." Brief Respondent 16. complain, according suffer cognizable circumvent processes. And also coming inaction allowed become final. 24 arguments simply miss point challenges affect outcome successful However, directly accordance 2231(d), remain province authorities. processes litigate. among UAW's many individuals. 25 bottom, invocation exhaustion merely variant irrevocably commits relating entitlements. Citing Court's recent Green Mansour, 64, 423, 371 (1985), "this suit, like Green, impermissible attempt gain ruling serve predicate 21. Eleventh Amendment bars ordering damages past violation, enter use state-court equitable foreclose every officials. vested exclusive employees, indication Congress intended deprive subject-matter 28 1331(a) ed.) hear themselves. Indeed, frequently upheld principle: programs confined processes, operated contravention statute Constitution nonetheless Ohio Bureau Services Hodory, 431 471, 1898, 513 (1977); Fusari Steinberg, 419 379, 533, 42 521 (1975); Christian New York Dept. Labor, 414 614, 94 747, 39 (1974); California Human Resources Development Java, 402 121, 1347, 666 (1971); cf. Bowen Michigan Academy Family Physicians, 476 667, 678, 2133, ----, 90 623 (1986) (judicial available specific amounts). Christian, example, former employees compensation alleging agency acting agent adhered guarantees Unemployment Compensation Employees Program. Even though program, 8502(d), nearly identical plaintiffs' defendants. 617, n. 3, 749, 3. find pose jurisdictional impediment official's statute. view adhere directives infra, proper, appropriate. B 27 Having right, need pause briefly 's preconditions satisfied here. For "germane purpose," 2441. announces goals "to legislation national scale, having object establishment real social insurance, expense borne Government." UAW, Art. 2, (quoted Petitioners 14-15). pursuit goal, leadership along representatives organized labor, lobbied hard See, e.g., Reform 1973: Hearings H.R. 6767 House Committee Ways Means, 93d Cong., 1st Sess., pt. pp. 849-914 (1973) (testimony Leonard Woodcock, President UAW). Recognizing labor gave unions role allowing them particular firms Once issuance file UAW—whose told, constituted 40% certified April January 1984, 15—surely ensuring C our (1975), concluded last Hunt. association, "whether remedial powers depends substantial measure sought." 515, 2213. firms, held, profits business "whatever peculiar concerned, require individualized proof." 515-516, 2214. Each lacked Likening "who done varying amounts proof," obtained unless "each 30 Like misconstrued Neither member. raises pure law: interpreted provisions. Cf. Schweiker Gray Panthers, 453 34, 8, 101 2633, 2638, 69 460 (1981). requested, regarding City York, 467, 485, 2022, 2032, 462 ("[B]y reopened level, showed process"). Thus, able him, inure injured," alternative basis affirming Appeals, asks reconsider reject He suggests "at absent showing particularized need," 23. 34.* 32 Both "designed precisely Secretary: facilitate, fair efficient manner, collective adjudication association's members." 37. contains safeguards diverse represented plaintiff No adequacy representation, argues, guaranteed approach taken cases. Yet prove inadequate legal reasons. lack resources experience lawsuits authorization membership. litigation strategy selected reflect views bare majority—or influential minority—of full 33 presentation, features, advantageous whole, distinguish capital. "Besides financial resources, organizations specialized research subject matter lawsuit lack." Note, From Net Sword: Organizational Representatives Litigating Their Members' Claims, U.Ill.L.Forum 663, 669. observed litigation: "[T]he plaintiff, exerted assure 'that concrete adverseness sharpens presentation largely illumination difficult questions.' " Harlem Valley Transportation Stafford, 360 1057, 1065 (SDNY 1973), quoting Baker Carr, 369 186, 204, 82 691, 703, 663 (1962). 34 practical pool capital, interests, activities name form identify corporation all." Joint Anti-Fascist Refugee McGrath, 341 123, 187, 71 624, 656, L.Ed. 817 (1951) (Jackson, concurring); NAACP Alabama ex rel. Patterson, 357 449, 459, 78 1163, 1170, 1488 (1958) (association medium through expression views"). very forces cause band together guarantee promote interests. 35 prepared dismiss hand concern always adequately Should deficient regard, won subsequent offending principles. evidence problem existed type, how alleviated. us absolutely fallen short meeting heavy burden persuading abandon standing. Vasquez Hillery, 254, 265-266, 624-625, 598 (1986). reaffirm hold IV 36 Our consequence agreed complaint dismissed necessary parties," namely, rise injuries complained Because appear conceded 44, involved issue erroneous. 37 part, based reading applied Since, law, claimant's made reasoned pursue joined reliance clear foregoing discussion issue, founded mischaracterization lawsuit. determinations. just interpretation, cooperation needed futile thing except voluntary compliance [by agencies] request expected." fear. upholds agencies, "agent[s] obey anew handbook's Regulations "[i]n redeterminations, connection thereof," "shall shall carry fully 91.2." 91.51(d) Among 91.2 implement uniformly effectively throughout States." Were balk engaging reprocessing injunction, breach agreement. 91.63(e) finding employers lose tax credits liability Tax. 3302(c)(3). event, costs payments, seems unlikely resistance agents. 40 19(b), Furthermore, prejudice parties suggested reimbursed, odd prevent going forward slight chance obtain seek. V 41 failure poses obstacle remains preserved raised. remanded consistent opinion. 43 ordered. 44 THE CHIEF JUSTICE REHNQUIST join, dissenting. I disagree exercised 46 Section 239(d) "[a] [regarding benefits] legislative history explains "[t]he bill channeling arising normal procedure." S.Rep. 93-1298, 139 (1974), U.S.Code Cong. & Admin.News 7186, 7281. expressed intent once submitted determine questions, factual, claim. 47 treats inapplicable ground federal-court guideline, instead guideline itself. Ante, 285. distinction meaningful as-yet-unsubmitted months, agencies' already-submitted claims.1 Congress' clearly commit submission agency. explaining states "although Ibid. means underlying disagree. sole providing recovery already-accrued Amendment. (1985).2 Of course, paid funds, what commands law. standard, adjudicated courts.3 Accordingly, dissent address merits. 49 50 today holds codified similar record, information fall potential class. There danger ultimately quite small. incentive adequate representation courts. 51 third-party Moreover, conferred itself (1977), stated: "[W]e recognized undisputed achieving sense secure workers. believe, formalistic sufficient confer 54 A purportedly parties, especially repeatedly reluctance fear representation. depend advocacy, prefer construe most advocates them." Singleton Wulff, 428 114, 2868, 2874, 826 (1976) (opinion J.). (1962) (standing aimed "assur[ing] depends"); Holden Hardy, 169 366, 397, 383, 390, 780 (1898) (assertion parties' come "greater cogency" themselves). 55 Since concept organizational theoretical identity stake outcome. outcome, small disappears. develop fact, great majority litigation. instituting suit—such publicity attends major case—other assert "concrete adverseness" absent.* 56 light dangers find—on record us—that amorphous unenumerated parties. dissent. contending action, litigation, inappropriate. maintain judgment. prior 4, 4. When July 28, 1983, months older. indicate unadjudicated remained outstanding issued. cited involve benefits—Ohio (1971)—are contrary. requests declarations injunctions pertain future see, 475, 1901-1902, true issued supra. Also, aspect Fusari, raise issue. sound never implications 8502, analogue squarely addressed mandamus lay proper. Arguably, is, bar, waivable defendant. inappropriate rely guidance expertise, groups lack. But requisite differs controlling respects latter, court—an counted

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