Document: 457 U.S. 15 102 S.Ct. 2202 72 L.Ed.2d 639 JACKSON TRANSIT AUTHORITY, et al., Petitionersv. LOCAL DIVISION 1285, AMALGAMATED UNION, AFL-CIO-CLC. No. 81-411. Argued April 21, 1982. Decided June 7, Syllabus Section 13(c) of the Urban Mass Transportation Act 1964 requires a state or local government to make arrangements preserve transit workers' existing collective-bargaining rights before that may receive federal financial assistance for acquisition privately owned company. Petitioner city entered into "§ agreement" with respondent union in order obtain funds acquire failing private bus company and convert it petitioner Jackson Transit Authority. Thereafter, Authority's unionized workers were covered by series agreements. In 1975, however, Authority notified no longer considered itself bound newest The subsequently filed suit Federal District Court, seeking damages injunctive relief alleging petitioners had breached § Court held lacked subject-matter jurisdiction because complaint rested on contract should be enforced only court. Appeals reversed, holding there was claim arose under law, specifically 13(c), implicitly provided right action. Held : does not provide causes action alleged breaches While 13(c)'s language supplies definitive answer, legislative history is conclusive Congress intended such agreements governed law applied courts. designed as means accommodate collective bargaining, substitute bargaining labor law. Pp. 20-29. 650 F.2d 1379, reversed remanded. Joseph S. Kaufman, Baltimore, Md., petitioners. Linda R. Hirshman, Chicago, Ill., respondent. Justice BLACKMUN delivered opinion Court. 1 Under (Act UMTA), 78 Stat. 307, amended, 49 U.S.C. 1609(c),1 must This case presents issue whether permits sue court violations an arrangement this kind agreement between authority. 2 * A. 3 When consideration Congress, body aware increasingly precarious condition number transportation companies across country, feared communities might left without adequate mass transportation. See S.Rep.No. 82, 88th Cong., 1st Sess., 4-5, 19-20 (1963). part aid governments acquiring so could continue benefits despite collapse operations. §§ 2(b) 3, 1601(b) 1602. 4 At same time, public ownership threaten employed companies. If, example, forbade employees, lose their when acquired government. Transportation—1963, Hearings S.6 S.917 Subcommittee Senate Committee Banking Currency, 318-323 (1963) (Senate Hearings) (statement Andrew J. Biemiller, Director, Department Legislation, AFL-CIO). To prevent from being used destroy organized workers, included Act. H.R.Rep.No.204, 15-16 5 requires, Act, Secretary Labor certify "fair equitable arrangements" have been made "to protect interests employees affected [the] assistance." statute lists several protective steps taken aid; among these are preservation continuation rights. specified granting aid.2 B 6 1966, Jackson, Tenn., entity, App. 12a-16a. satisfy created Local Division Amalgamated Union, AFL-CIO-CLC, represented company's employees. 29 CFR pt. 215 (1981). Among other things, guaranteed 16a-20a. certified equitable." Its substance grant United States, received approximately $279,000 aid. 7 until Six months after new 3-year signed see id., at 31a, contract. 45a.3 8 Ultimately, States Western Tennessee. It sought relief, 8a, 10a-11a.4 concluded hear 447 F.Supp. 88 (1977). 9 Sixth Circuit reversed. 1379 Relying Bell v. Hood, 327 678, 66 773, 90 L.Ed. 939 (1946), first determined 28 1331, union's laws 13(c). then provides reflects national policy, reasoned, protected thus consistent congressional intent behind permit enforcement 10 Because importance interpretation relations,5 we granted certiorari. 454 1079, 632, 70 613 II 11 treated case, see, e.g., Merrill Lynch, Pierce, Fenner & Smith, Inc. Curran, 456 353, 1825, 182 (1982), fit comfortably mold. Indeed, since contemplates recipients unions well subsequent those parties, 16 (1963), reasonable conclude expected agreement, like ordinary contracts, enforceable upon breach. Transamerica Mortgage Advisors, Lewis, 444 11, 18-19, 100 242, 246-47, 62 146 (1979). gist position creates implied statute. Instead, argues "[i]t would determine binding effect reached pursuant UMTA funds" "are courts." Brief Respondent 24. 12 issue, then, able bring actions two but set forth federal, rather than state, claims. Admittedly, decisions address related question particular party statute, resolving case. But precise us action, can all enforce its contracts. Div. 732, Union Metropolitan Atlanta Rapid Authority, 667 1327, 1329-1334 (CA11 1982).6 13 As points out, occasions has plaintiff stated he sued vindicate contractual statutes, fact relevant statutes express provisions creating Machinists Central Airlines, Inc., 372 682, 83 956, 67 cause award airline adjustment board 204 Railway 45 184 (1958 ed.). Similarly, Norfolk Co. Nemitz, 404 37, 92 185, 30 198 (1971), ruled railroad's out claims they assurances railroad secure Interstate Commerce Commission's approval consolidation provision 5(2)(f) (1970 And recently, analogous decision, permitted rescission declared void Investment Advisers 1940, 80b-15 (1976), although suits. U.S., S.Ct., 246-47. also Mills Electric Auto-Lite Co., 396 375, 388, 616, 623, 24 593 (1970) (recognizing rescind contracts rendered 29(b) Securities Exchange 1934, 78cc(b)); American Surety Shulz, 237 159, 35 525, 59 892 (1915) (finding federal-question supersedeas bond required Rev.Stat. 1007). 14 These demonstrate suits contemplated parties appropriate cases statutes. do dictate result Whenever scope remedies critical factor issue. See, 18, 246; Cannon University 441 677, 688, 99 1946, 1952, 60 560 (1979); 685-692; n. 9, 960-962 infra. Thus, if "creations law," 692, 962, duties contained nature, 695, 963, states Otherwise, state-law Miree DeKalb County, 433 25, 97 2490, 53 557 III We begin itself. Universities Research Assn., Coutu, 450 754, 771, 101 1451, 1462, 662 bare conclusive. some ways, seems creatures demands prerequisites arrangements; specifies five different varieties expressly incorporates recipient Government.7 2, supra. On hand, relations subject longstanding statutory exemption National Relations 152(2). evinces upset decision govern relationships governmental entities representing Cort Ash, 422 66, 78, 95 2080, 2087, 26 (1975) (noting reluctance "the [is] one traditionally relegated law"). A theme runs throughout 13(c): controlled 17 1963, Wirtz presented original version House Committees. Before both Committees, Members expressed concern about laws. explained Committees that, while attempts rights, control relations. told "this proposal submitted basis, . State control." H.R. 3881 482 (House Hearings). member raised again; repeated "State controlling situation," though suggested "would few, any, situations" where reconciled. Hearings, 486. similar concerns during his testimony Committee, reiterated: "I quite clear I think superseding here law." 313. 18 Reports took word. Report advised ensure protection "subject basic standards bill, specific conditions worker will normally product negotiation." more direct: "In regard supersede laws, committee concurs statement 'that kind.' " S.Rep.No.82, 19 During debates, role discussed length. Senators Goldwater Tower supplant 109 Cong.Rec. 5416 Senator Williams, bill's chief sponsors, replied: "The corrected" "we record show bill preempt law; dominate irrevocable authority situations." Id., 5417. proposed Williams continued, "preempt Ibid. remained adamant attempting major alteration Nation's laws." 5418. Sparkman, Chairman Secretary's assurance "will displace override" 5418 (1963).8 20 returned colloquy Morse. override denying strike. 5673. Morse assured otherwise supervene." inquired concerning strike, replied vein: amendment any policy." 21 important exchange, noted employers excluded coverage 152(2), asked inconsistent exclusion. 5673-5674 responded "make[s] Taft-Hartley exemptions changed amendment." 5674. 5422 (remarks Sen. Javits) (state overridden "under phase underscored purpose amendment: cannot emphasize point already done our debate. deals municipal problems, problems." Finally, forbidding strikes adhered course: absence decide [the employees] right." 22 similar, abbreviated, interchange place floor. Congressmen questioned reassured Congressman Multer "[n]othing infringe municipality." 110 14980 (1964). Rains repeated, "there line vitiate way 23 absolutely did intend create applicable workers.9 leave intact exclusion courts retain application policy tool ensuring preserved entities.10 5673 Morse) (if reject ineligible aid). law.11 IV Given explicit history, read unions.12 indicates courts.13 25 Accordingly, judgment remanded further proceedings opinion. ordered. 27 POWELL, whom O'CONNOR joins, concurring. notes, "does mold" cases. Ante, 20. making enforced. identifies correctly 21. course precisely which properly decided. Middlesex County Sewerage Sea Clammers 453 1, 13, 2615, 2622-23, 69 435 (1981); Texas Industries, Radcliff Materials, 451 630, 639, 2061, 2066, 68 500 There parallels familiar "mold." Most significantly me, kinds involve fundamental issues judicial power. By enforcing within jurisdictional conferred much improperly "inferring" "a limited necessarily extends embrace dispute assigned resolve. contrary established principle '[t]he carefully guarded against expansion interpretation. .,' Fire Cas. Finn, 341 6, 17, 71 534, 541, 702 (1951), conflicts Art. limits jurisdiction." 746-747, 1983, (1979) (POWELL, J., dissenting). exercise extreme caution assuming clearly condone implication over unambiguous expression intent. view reasoning join Originally, 10(c). section present designation. Pub.L. 89-562, 2(b)(1), 80 716. Throughout opinion, referred reads full: "It shall fair made, Labor, assistance. Such include, to, necessary (1) privileges, (including pension benefits) otherwise; (2) rights; (3) individual worsening positions respect employment; (4) employment systems priority reemployment terminated laid off; (5) paid training retraining programs. include protecting event less February 4, 1887 (24 379), amended. specify terms arrangements." According complaint, 1966 contracted individual, T. O. Petty, management system. 6a-7a. negotiated 1975 Petty; manager system, claimed negotiated. 47a. promised Petty violated 7a-8a. Prior filing suit, find complied agreement. Both Secretaries refused. 1381 (CA6 1981). addition directed petitioners, requested ordered take compel compliance 11a. refused request. 88, 90-92 (1977); F.2d, 1387-1388. review ruling, aspect litigation. Several Courts Appeals, Circuit, decided authorizes unions. 587, AFL-CIO Municipality Seattle, 663 875 (CA9 1981); 714, Greater Portland District, 589 (CA1 1978); 519, LaCrosse Municipal Utility, 585 1340 (CA7 1287, Kansas City Area 582 (CA8 1978), cert. denied, 439 1090, 872, 56 One opposite conclusion. 1327 1982). First conflicting 589, Massachusetts, 666 618 (1st Cir. 1981), pending, 81-1817. agree strictly speaking, 1331 suit. 681, 775, exists "drawn recover Constitution States." violation prayed consider asserted "wholly insubstantial frivolous," 682-683, 776, entertain purposes determining granted. 776. Wheeldin Wheeler, 373 647, 1441, 605 "arrangements 5(2)(f). ." explain, infra, portion strengthens position, determinative. rejected amendments extent (1963); 5582; 5684; But, explained, thought "clearly unnecessary" guarantee "supersede 5421 Accord: (1964) Reps. Rains). Beyond explanation given floor, defeat merely reflected Government seek changes ultimately refuse prevented 5684 Morse); Javits). light (1979), controlling. turned language, purpose, involved, Transamerica, 246-247; Machinists, 685-695, 960-963, far underlying course, overlooked. breach refers nn. passed awareness court, reason presume awareness, reference generally (1982). contains recognition. Furthermore, Nemitz years enacted. Consequently, relies strengthened passage. wrote require "necessary for" "as found Kennedy administration recommended. 476; 14976 addition, 13(c)(2) amended request "continuation" mere "encouragement" 5627 5685. alterations demanded viewed conjunction discussion modifications prove Javits summarized: "[W]e balanced scheme. [state] go adverse interest labor's own view, perhaps even give encouragement exempt situation desires get type help." remains possibility claims, apply anomalous emphasis addresses "municipal problems," unless independent source jurisdiction, diversity pendent 19, 8, 247 8; Shoshone Mining Rutter, 177 505, 506-507, 726, 727, 44 864 (1900). Based characterized virtue breaches. 33-34. Nor 42 1983 (1976 ed., Supp.IV) Maine Thiboutot, 448 2502, 65 555 (1980), encompasses deprivations secured "laws" is, one. constitute 1983. 19-21, 2626, possible union, pursue respond threatening withhold additional 634-635. hold entirely separate funding violating Government. 1338-1339; 13.

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