Document: 362 U.S. 330 80 S.Ct. 761 4 L.Ed.2d 774 ORDER OF RAILROAD TELEGRAPHERS et al., Petitioners,v.CHICAGO AND NORTH WESTERN R. CO., a Corporation. No. 100. Argued March 1, 2, 1960. Decided April 18, Rehearing Denied May 16, See 984, 1056. Mr. Lester P. Schoene, Washington, D.C., for petitioners. Carl McGowan, Chicago, Ill., respondent. Justice BLACK delivered the opinion of Court. 1 According to verified complaint filed in United States District Court Illinois by respondent, Chicago & North Western Railway Company, against petitioners, Order Railroad Telegraphers and its officials, 'This is an action injunction restrain enjoin calling carrying out wrongful unlawful strike or work stoppage on plaintiff's railroad.' Section Norris-LaGuardia Act provides, however, that 'No court shall have jourisdiction issue any restraining order temporary permanent case involving growing labor dispute prohibit person persons * from (a) Ceasing refusing perform remain relation employment; *'1 The main question this then was, still is, whether prohibition bars circumstances case. 2 Respondent railroad, owning operating rail system over .,000 miles Illinois, Wisconsin, Iowa, Minnesota, Michigan, Nebraska, South Dakota, Wyoming, integral part nationwide railway important transportation passengers freight interstate commerce. When railroad began operations, about 100 years ago, traffic was such stations were established 7 10 apart. Trucks, automobiles, airplanes, barges, pipelines modern roads reduced amount so now performed at many these agents less than one hour during normal eight-hour day. Maintenance agencies where company employees do little work, alleges, wasteful consequently 1957 petitions with public utility commissions four nine which it operated asking permission institute 'Central Agency Plan whereby certain would be made central *' others abolished. plan necessarily result loss jobs some station telegraphers, members petitioner union. A few weeks after state proceedings before decision had been made, union, duly recognized, certified acting collective bargaining agent railroad's employees, notified under § 6 Labor Act, 45 U.S.C. 156, U.S.C.A. wanted negotiate amend current agreement adding following rule: 3 position existence December 3, 1957, will abolished discontinued except between carrier organization.' took position, according complaint, request did not constitute 'labor Act,' raise bargainable issue, union no right protest seek relief appearing power determine could discontinued, private parties thwart entering into agreement. respondent added maintenance unnecessary offensive national policy Congress adopted Interstate Commerce 49 §§ 1—27, duties imposed railroads contracted away. 5 contended without jurisdiction grant injunctive provisions because involved dispute, refused good faith proposed change violation First, 152, subd. requires exert every reasonable effort make maintain agreements concerning rates pay, rules working conditions. Therefore, argued, federal barred if other reason 8 provides: granted complainant who has failed comply obligation law question, settle either negotiation aid available governmental machinery mediation voluntary arbitration.' 29 108, 108. Brotherhood Trainmen v. Toledo, W.R.R., 321 50, 64 413, 88 L.Ed. 534. After hearings, found, far as relevant here, 'refused negotiate, confer, mediate otherwise treat defendant set forth notice,' although 'did show willingness upon agency plan, including possibility severance pay'; contract referred notice 'relates length term employment well stabilization employment' commonplace; 'The giving rise major minor grievance therein properly referable National Adjustment Board';2 related 'rates conditions,' therefore Act. On findings conclusions law, but declined ground so. 9 appeal Appeals Court's finding rules, thus clearly erroneous.'3 It held apply bar strike4 we certiorari, 361 809, 56, 58, consider question.5 We hold, Court, involves grows within meaning permanently strike. 11 specifically withdraws '(c)easing 'in dispute' 'herein defined.'6 13(c) defines including, 12 'any controversy terms conditions employment, association representation negotiating, fixing, maintaining, changing, seeking arrange regardless disputants stand proximate employer employee.'7 13 Unless literal language definition ignored, squarely covers controversy. broad broad. There are pieces legislation congressional committee reports, itself more point necessity construction protect adopted. specifies taken consideration interpreting Act's determining authority courts; freedom association, organization, workers.8 hearings reports reveal attempted write bill unmistakable believed previous measures looking toward same nonjudicial intervention disputes given unduly limited constructions courts.9 14 Plainly here relates 'terms' existing desired just plainly 'conditions represented inescapably hangs number completely abandoned consolidated stations. And, world today, there nothing strange effect permanency employment. '(c)ollective commonplace,' challenged. 15 cannot agree union's job security 'represents attempt usurp legitimate managerial prerogative exercise business judgment respect most economical efficient conduct operations.'10 recognize stable fair essential well-functioning system. safeguards opportunity obtain contracts through rather individualistic bargaining. Where combinations consolidations might adversely affect interests expressly required approving Commission 'shall require equitable arrangement affected.'11 'terms conditions' provide consolidation worse their they been.12 (Emphasis supplied.) 16 In 1942 when abandons portion lines, include protection displaced workers deciding what 'the convenience may require.' construed basis imposition 'might strengthen morale stability generally.' Comm. Exec. Ass'n, 315 373, 375, 62 717, 720, 86 904, citing Lowden, 308 225, 60 248, 84 208. brief associations called our attention testimony previously early 1936 representing 85% mileage country schedule benefits affected coordinations mergers.13 prevent disruption commerce, trend affecting broaden, narrow, scope subjects must bargain collectively. Furthermore, whole idea greatly practices customs themselves. too late argue can voice influence act way preserve large. 17 argued throughout enjoined, Norris-LaGuardia, abandonment unlawful. true series cases stepped outside legal violated them being, enjoined.14 None cases, enjoined withdrew courts River plain basic command 'adopted pattern legislation.' 353 30, 42, 77 635, 641. regarded inapposite those ban injunctions lifted other, nonlabor statute.15 Here, violating obedience all 'concerning conditions.' 1. Moreover, neither nor anyone else points specific attempting bring stretch credulity say designed workers, somehow precisely accordance purpose permanence workers. express provision certainly infer none making unions want discuss actions vitally security, seniority jobs.16 And reasons statepublic proceedings, invoked approval stations, stamp illegality railroad. merely asked contractual steps take abandon abolish jobs. Nothing requested violate valid agency. up defiance mandatory order. fact, kind time first change. Even arise demand, see Afran Transport Co. Maritime Union, 169 F.Supp. 416, 1959 A.M.C. 326, proposal 18 contends that, rulings permissive, conflict Whether contention need decide since us. find prompted put Central effect. Instead, found grew failure reach 19 Only word said relating interpretation heard Board. 'minor enforce compliance requirement I.R. Co., 622. But impossible classify change, jobs, agreement, mere infractions interpretations Particularly sought type governed 20 concluding ordered forbidden due account argument operation services lines runs counter policy, expressed foster legislation, like Acts, acted assumption also service. passed Acts knowledge sometimes increase expense operations increased wages better goes saying, therefore, expenditures always classified 'wasteful.' be, people think, unwise curtailing Arguments even presented pointing financial debilitation absolute These arguments, addressed wrong forum. If cut down 'waste' railroads, should body Such beyond judicial province decline it. 21 subsidiary questions raised reference validity second 30-day issued district judge pending Rule 62(c) Federal Rules Civil Procedure, 28 determined parties, think inadvisable now. intimate time. 22 reversed affirmed insofar enter injunction. ordered. 23 Judgment part. 24 CLARK, dissenting. 25 suffering headcashes, conducted efficiency survey operations. This indicated considerable dead weight payroll form local, one-man Some local worked minutes day average daily only 59 minutes. All drew full day's pay. pay worked, ran high $300 per hour. Meanwhile facing slow death lack funds—all ultimate detriment public, management. proposed—and, approved—a sufficient earn permit curtailment service reduce employee force entire several hundred agents. perquisites whose longer needed. do, demanding agent's consent. offered alternative: 'comply with' suffer 'strike.' face ukase, brought suit. 26 Today tells latter knell Hence, practical purposes, telling secure severing hundreds surplus carried payroll. Everyone knows answer be. suitor who, hand young lady, told her 'go father.' But, parody goes, 'She knew he father dead; she life led; meant father." 27 I believe intended situation. over-all devastating effects strikes paralyzing systems, vital welfare. As read t Act—the reaffirmed Transportation 1958—the go States—not union—before abandoning consolidating went obtained approval. today gives veto States. Until removed, continue plagued situation—so foreign concept labor's great achievements. For reason, ably enumerated my Brother WHITTAKER his dissent, join, am obliged disagree Perhaps obliged, ruling, place solution problems each which, courts, impotent. WHITTAKER, whom FRANKFURTER, CLARK STEWART 30 concludes, opinion, Union's demand covenant consent lawfully Act; not, unlawfully 'set of' regulatory orders; 'Union abandon(ing) abolish(ing) jobs'; '(e)ven unlawful,' deprived threatened acceptance demand. 31 With deference, contrary admitted indubitable facts record, policies Congress, principles decisions Court; being fearful innovation destructive injurious interest, feel compelled dissenting views. 32 Inasmuch record somewhat differently does chronological statement facts. 33 Company ('North Western') common ('Union') Mediation Board representative various Western. Western's extend westerly northerly serve largely agricultural midwestern They laid constructed near middle last century, and, accommodate mode rural travel, close intervals along lines—one seven branch sections—to enable patrons horse horses wagon dirt roads, homes return 34 Although originally profitable Western, recent years, both modernize facilities equipment, permitted outmoded, inefficient continue—producing highest ratio wage salary revenue dollar American railroads—resulting ultimately inability effiectively compete new forms transportation, modernized railroads. consequence, net revenues steadily extensively lost $8,000,000 quarter 1956, cash payrolls $330,000 18,000 jeopardy. 35 Alarmed conditions, managers undertook spring 1956 improve physical condition competitive elimination costly practices. 'one-man' principally located which—due need, occasioned advent paved motorized vehicles—all passenger trains removed remaining hours duty.1 Its studies, disclosed instances drawing minutes' work. Conceiving practice violative policy,2 promulgated plan—known Plan—which contemplated discontinuance full-time provided, instead, centrally necessary neighboring side. 36 Accordingly, Public Utility Commissions Minnesota Wisconsin effectuate Plan. Dakota November 5, 69 State. Hearings beginning 26, ending January 17, 1958. Union appeared proceeding, evidence, oral argument, opposition petition. contended, among things, prohibited abolishment 9, 1958, entered workload varied averaged further found: 37 'That subject constitutes mismanagement dissipation carrier's impair capacity render adequate *'3 38 Thereupon, Commission, electing statute authorizing changes directed (establishing abolishing 53 positions) effective immediately. 39 23, six petition purporting Act,4 sent letter requesting amended provision: 40 Organization.' 41 responded next day, saying proper bargaining,5 offered, waiving meet officers matter further. Conferences thereafter reached, February 24, efforts controversy, meetings end,6 successful, Board, pursuant Act,7 wrote 27, submit arbitration Act.8 declined—the June 12—and, terminated advised writing. 42 July 10, ballot accompanying letter.9 vote almost unanimous favor strike, August begin a.m. 21.10 renewed proffer accepted it, compose success, 20, again services. 43 officials Northern alleging impending illegal; arising laws States, particularly free illegal prayed enjoined. date. Thereafter, hearing, Act'; unlawful; September 8, decree until midnight, 19, denying relief,11 dismissing complaint. Appeals, holding legally forced remanded directions 264 F.2d 254. reverses grounds interest demonstrably erroneous, endeavor show. 44 comprehensively providing regulation employer-employee relations, declared Part Act,12 Act,13 Act,14 least this, meaningfully isolation together as, integrated regulation. if, frequently undertakings, overlappings, '(w)e how activities neutralize results envisioned other.' Allen Bradley Local 325 797, 806, 65 1533, 1538, 89 1939. By provided pervasive scheme carriers engaged promote charges15 said, 'It primary aim avoidance waste. That avoidance, service, viewed direct concern public.' State Texas 292 522, 530, 54 819, 824, 78 1402. 'Congress long development concern. mind.' Seaboard Air Line Daniel, 333 118, 124—125, 68 426, 430, 92 580. 46 To effectuating depots designated bodies burdensome necessity. end, empowered application certificate 'all line railroad,' '(f)rom issuance may, securing proceed covered thereby.'16 added.) 1958 (72 Stat. 568), stated authorize train ferry.'17 However, accomplish Commission. Rather, use commissions, additional instruments effectuation policies, Among others, left abandonments service; extensive review process enacting deliberately policy.18 report S. 3778, culminated Senate Committee Foreign critically attributed plight needless strongly advocated done.19 47 firm issues respecting propriety body. propose particular hearing—at affected, representatives, appear heard—the order, unless review, binding persons. procedures exclude carrier, alone, effectuate, veto, abandonment. heard, them, two evidenced contract, Commission's decisional function dictating thwarting obvious abandonment, authorized body, inasmuch constituted burden necessitated equally abolishment. Yet, demanded, threatens Certainly teeth recited destroy abandonments, alone. surely 48 argues, seems find, claimed legality 5(2)(f) Act20 mergers affected.' Instead supporting section legislative history proof illegality. While authorizes mitigation hardships unifications, freeze course enactment end. floor House, Representative Harrington proviso: 'Provided, transaction approved unemployment displacement carriers, impairment rights employees.'21 50 Conference, Legislative communication condemning principle amendment words: 51 'As (Harrington) proviso, object unifications save expense, usually saving labor. Employees should, protected embodied so-called 'Washington agreement' managements organizations (providing payment monetary period unifications). prohibiting much far, run harm employees.'22 52 rejected proviso proposed. very rejected. Of Executives' Ass'n 339 142, 70 94 721, 'threatened (but Congress) workable putting limit prohibitory effect.' pages 151, 153, page actually more. eliminated doubted matters abandonments; agree, abolished, defeat interest. supra; Executives 904; abandonments. (1) transferring productive (2) limiting abolishments agreed year, (3) paying supplemental affected.23 Short foregoing do. suggested done respect. Indeed, proposals.24 president testified trial, 'alternative' 'offered rule strike.'25 55 answers 'making seniority, jobs.' quoted literally true. truth matters, them. Note 6, ante. 'to discuss' rather, was: strike.' Ibid. likewise 'merely 'abolish(ing) jobs,' unilateral 56 fails 'that order.' Although, view, derogation law; yet, truth, 'has defiance,' or, least, derogation, 'state earlier noted, Commission—the questioned here—was one. thereunder, forthwith consent, lawful nad enforced defied successfully. while orders nature things permissive character, nevertheless administrative determinations Brandeis commerce undue burdens,' Colorado 271 162, 452, 454, 878, overridden thwarted veto. 57 makes duty disputes, otherwise.'26 simply relate 'rates' compensation paid 'working but, solely relation, job, severed altogether. It, clear enough demanded terms, purview First. conclusion doubted, contemplate aegis section, commands, purposes relations shown, accept it,27 hence law. 58 Surely, circumstances, discharging safeguard interest,28 remedy case, hence, sacrificed, Congress' thwarted, preventive available. intend create hold (the public) illusory remedy.' Graham Locomotive Firemen, 338 232, 240, 14, 22. Nor impotent demands. permits 'unlawful acts (that) committed restrained.'29 consistently enjoining abuse conferred Indiana 622, demands placed exclusive Holding illegal, withdrawn (and the) limitation applies disputes.' 39—40, 640. rejecting contention, said: 61 'We alone dealing disputes. accommodation preserved. reconcilable.' 40, precedence general reaffirming Howard, 343 768, 72 1022, "that (had) (to strike) notwithstanding Act." 41—42, 63 There, there, 'take Act.' Virginia System Federation 300 515, 592, 81 789, statute, '(s)uch rendered nugatory 563, 607. Steele Louisville Nashville 323 192, 226, 173, misuse powers Observing 'there enforcement (of denied powers) resort courts,' 'jurisdiction afford breach statutory (rights).' 207, 234. identical facts, Tunstall Firemen Enginemen, 210, 235, 187. similar factual situation, 22, using abusing reviewing then-existing concluded: 66 'If, spite Virginian, Steele, supra, remains illusion powerless rights, dispel now.' U.S., 18. 67 96 1283, enforcing threat class impliedly vouchsafed Finding 'unlawful' injured 'must look sacrifice obliteration (Railway Labor) (inasmuch as) afforded Board(s),' concluded add inapplicability 239—240, 22.' apge 774, 1025. Resting one, relegates Tunstall, Howard footnote, says, 'None courts.' Does mean strike' asked, contract? At events, denied, concedes, holds exclusively vested partly commissions. Today's distinctions advanced 'inapposite,' Being 'inapposite' here. indistinguishable issuing noted prohibits 'Even unlawful.' fairly inferred sustained unlawful, disagreement turn issue. respectfully Believing affirm Appeals. Memorandum STEWART. 71 strong doubt Circuit Judge Minton, W.R.R. Trainmen, Cir., 132 265, 272—274. New York 246 114, 122 (dissenting opinion). If, jurisdiction, Brethren seem assume, WHITTAKER'S convincingly demonstrates me 70, 104, 104. N.W.R. Telegraphers, 254, 260. 114. A. H. Bull Steamship Seafarers' International 250 326. decision, (South Iowa) Wisconsin) promptly Since then, understand, plan. Compare Marine Cooks Stewards Panama 365, 779. 113(c), 113(c). 102, 102. 805, 1939; Hutcheson, 312 219, 230—236, 463, 465—468, 85 788; Milk Wagon Drivers' 753 Lake Valley Farm Products, Inc., 311 91, 102—103, 122, 127—128, 63. 259. 5(2)(f), 5(2)(f). 5(2)(c). House H.R. 2531, 76th Cong., 1st Sess., 216—217. 622; 1283; 22; 187; Virginian 789. Textile Workers America Lincoln Mills, 448, 457—459, 912, 918 919, 923, 972. N.R. 173. cited unlawfulness remove restrictions courts: 103, 128, (alleged violations Sherman 1—7, note); East Motor Freight Lines Internationl Teamsters, 163 (violation Carrier Act). course, strictures modification 'For us Clayton Acts), alleged involved, mandate (Norris-LaGuardia) reverse Congress.' Lee Way Keystone Lines, 126 931, 934. operates States; instituted decisions. Yet clause respondent's refusal limited, begun. assuming State, fact importance, relieve eight involved. 8:30 Sept. 1940, c. 722, Title I, 899 preceding note 1—titled 'National Policy.' pertinent part, hereby impartial modes safe, adequate, economical, sound economic expenses exceeded $170,399 $58,884. afterwards Commissions. briefs arguments petitions, granted. Iowa decrease 28% 1951, estimated inter alia, 'Savings reducing eliminating level actual need.' insure efficiency, economy transportation.' appealed respective instance. 1197, 156. reply stated, 'not instead assignments controlling justification assignments.' means cushioning discontinuing transfer jobs; year; affected. proposals. meeting chief executive officer counsel Madison, efforts, official 'possibility' closing agents' basis. views matter. replied 'I apart,' you know door open.' subsequent trial '* alternative present 155, 158, 158. referring opposition, things: 'However, became evident date onslaught effectively strengthening Agreements. continuance program. 'While hope states assurance soon repetition happened Dakota. call, that: tragically demonstrated days. What repeated positions enlarged.' restrained determination appeal. 1—27. 151—164, 151—164. 101—115, 101—115. Policy. 1(18), 1(19), 1(20), 1(18—20). Aug. 12, Pub.L. 85—625, 571, 13a, 13a. 568. Before Subcommittee Surface Problems Railroads, 85th 2d pp. 1816, 1817, 1821, 2027, 2028; 104 Cong.Rec., 10850, 12522, 12537, 15528; S.Rep. 1647 Sess.; H.R.Rep. 1922 12832, H.R.Conf.Rep. 2274, Sess. industry subcommittee's sufficiently interested self-help railroads; joint eliminate waste, multiple terminals yards expensive interchange operations; reduction duplications pooling nonpaying secondary lines; unnecessarily circuitous routes movements; improved handling less-than-carload traffic; coordination establishment transportation; modernization freight-rate structure, revision below-cost levels cover cost yield margin profit adjustment excessively above attract revenue.' 1647, p. 11. Cong.Rec. (1939), Pt. 9882. Report 2009, Omnibus Legislation, (76th 3d Print), transmitted Jan. 29, 1940. 6. 1283. 'Courts equity farther give withhold furtherance accustomed involved.' 552, 601. 107(a), 107(a).

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