Document: 396 U.S. 212 90 S.Ct. 347 24 L.Ed.2d 371 NACIREMA OPERATING CO., Inc. et al., Petitioners,v.William H. JOHNSON al. John P. TRAYNOR and Jerry C. Oosting, Deputy Commissioners, Petitioners, v. William Nos. 9, 16. Argued Oct. 20, 1696. Decided Dec. 1969. Rehearings Denied Feb. 24, 1970. See 397 929, 895, 896. Randall Coleman, Baltimore, Md., Solicitor Gen., Erwin N. Griswold, for petitioners. Ralph Rabinowitz, Norfolk, Va., J. O'Connor, Jr., respondents. Mr. Justice WHITE delivered the opinion of Court. 1 The single question statutory construction presented by these cases is whether injuries to longshoremen occurring on piers permanently affixed shore are compensable under Longshoremen's Harbor Workers' Compensation Act 1927 (Longshoremen's Act), 44 Stat. 1424, 33 U.S.C. §§ 901—950. 2 Johnson Klosek were employed Nacirema Operating Company as longshoremen; Avery was similarly Old Dominion Stevedoring Corporation. All three men engaged at time their accidents in performing similar operations 'slingers,' attaching cargo from railroad cars located piers1 ships' cranes removal ships. killed, each other injured, when hoisted ship's crane swung back knocked him pier or crushed against side car. Commissioners United States Department Labor denied claims compensation case ground that had not occurred 'upon navigable waters States' required Act.2 District Courts upheld Commissioners' decisions, 243 F.Supp. 184 (D.C.Md.1965); 245 51 (D.C.E.D.Va.1965). Court Appeals Fourth Circuit, sitting en banc, reversed.3 398 F.2d 900 (1968). We granted certiorari, 393 976, 89 444, 21 437 (1968), resolve resulting conflict with decisions circuits holding covered Act.4 have concluded an examination language, purpose, legislative history Act, well prior this Court, judgment must be reversed. 3 Since long before passed, it has been settled law structures such wharves piers, land, extensions land.5 Thus, literally read, a statute covers waters' would cover even though pier, like bridge, extends over waters.6 4 Respondents urge, however, employs language determines coverage 'situs' injury, nevertheless aimed broader coverage: 'status' longshoreman maritime contract. do agree. Congress might extended all exercising its power contracts.7 But contrary background leaves little doubt Congress' concern providing narrower one. 5 Ten years passed Southern Pacific Co. Jensen, 244 205, 37 524, 61 L.Ed. 1086 (1917), held State without extend remedy injured gangplank between ship pier. decision left seaward remedy, while enjoyed protection state acts. Industrial Commission New York Nordenholt Corp., 259 263, 42 473, 66 933 (1922). 6 Twice attempted fill gap passing legislation remedies beyond line drawn Jensen.8 Each time, struck down unlawful delegation congressional power. Washington W. Dawson & Co., 264 219, 302, 68 646 (1924); Knickerbocker Ice Stewart, 253 149, 40 438, 64 834 (1920). Finally, responding Court's suggestion what could empower do, itself,9 Act. clear implication enacting own statute, trying failed earlier attempts: workmen hence jurisdiction States. This purpose clearly expressed limiting waters,' permitting recovery only 'if * through workmen's proceedings may validly provided law.'10 7 conclusion fully supported history. As originally drafted, § 'on place within admiralty States, except employment local no direct relation navigation commerce.'11 During hearings, repeatedly emphasized apparently assumed representatives both shipping industry unions 'place jurisdiction' did include dock pier.12 In fact, representative objected bill precisely reason, urging Committee embrace contract, 'and man simply he ship.'13 If intended adopt suggestion, chosen more inappropriate way expressing intent than substituting words 'within jurisdiction.'14 Indeed, Senate Report accompanied revised bill, containing present makes rejected, rather adopted: '(I)njuries loading unloading unless they occur wharf so bring them States.' S.Rep. No. 973, 69th Cong., 1st Sess., decline ignore explicit indications design provide where reach. 'That we fill.'15 filling those respondents whose landward Jensen line, entitling Acts.16 8 Decisions once embraced interpretation. Swanson Marra Bros., Inc., 328 1, 869, 1045 (1946), neither Jones nor course his if injury caused vessel waters. Parker Motor Boat Sales, 314 244, 249, 62 221, 225, 86 (1941), 'was federal area which specific referred placed reach states.' Davis Dept. Industries, 317 256, 63 229, 87 246 (1942), noted specifically adopted line. interpretation endorsed also reflected consistent administrative commencing immediately after enactment Employees' Opinions 16, A.M.C. 1558 1855; 30, 1028 417. 9 It true since permitted particular situations supra, Calbeck Travelers Insurance 370 114, 82 1196, 368 (1962), approved law. made exercise full waters, available situations. proviso 3(a) conditioning unavailability meant deny relief removing uncertainties Act's far cry construing land traditionally ambit 10 freely cited declarations Calbeck's rejected notion should advance recede because narrow areas Otherwise, subject uncertainty, 'expand harness developments constitutional scope compensate result 'that every litigation raising issue raise dimension, implies; *.' U.S., 126, S.Ct., 1203. Calbeck, refuse impute burdening administration perpetuating confusion. 11 Nor can agree 1927, 1948 Extension Admiralty Jurisdiction (Extension Act) 496, 46 740. pertinent part, provides: 12 'The shall damage person property, water, not-withstanding done consummated land.' 13 By very choice re-enforces aware distinction water limited mean land. tort shipcaused modifying understanding extension but accepts rule declares torts 14 completely different problem arose fact parties aggrieved ships bridges, docks, get into all.17 There evidence thereby amend affect overrule decided just two earlier.18 While effect maintain otherwise unavailable libel admiralty,19 see Gutierrez Waterman S. 373 206, 83 1185, 297 (1963), bearing whatsoever right 15 much said uniform treatment ship. contruing result, pier-based equipment still remain outside And coincide limits jurisdiction—whatever however change—simply replaces one another uncertain contours perpetuate same confusion previously existed side. choose either paths defining plain chose instead separating edge invitation move addressed Congress, 16 Reversed. 17 DOUGLAS, whom BLACK BRENNAN concur, dissenting. 18 dissent reasons stated Judge Sobeloff speaking banc. 900. says, restricted conventional 'admiralty 'status oriented, reaching sustained employment.' Id., 904. matter rest 368. suit "Congress act coextensive authority." 130, 1205, quoting De Bardeleben Coal Corp. Henderson, Cir., 142 481, 483. instant cases, answering argument concerned meaning Palmieri's Michigan Mutual Liability Arrien, D.C., 233 500, aff'd, 344 640: 19 '(W)hat important actual general approach Compensation) taken No longer viewed merely interstices around acts, affirmative jurisdiction.' went say: 20 'This 'to fullest extent' jurisdiction, creating 'a co-extensive authority,' effectively enacted protect who constitutionally brought authority. Again, Palmieri, 'it thus appears equated jurisdiction.'" F.2d, 905. addition being reviewed here, affirmed favor widow (238 78), who, working cable died. incongruous us accident depends body falls happened. For Sobeloff, reversal judgments. involved Patapsco River Sparrows Point, Maryland, Elizabeth Virginia. 903(a) provides relevant part: '(a) payable chapter respect disability death employee, results upon (including any dry dock) *' consolidated appeal. fourth case, award drowned off Appeals.' Marine 238 78 Nicholson 385 221 (C.A.5th Cir. 1967), cert. denied, 389 1051, 88 790, 843 (1968); Houser O'Leary, 383 730 (C.A.9th 390 954, 1047, 1147 Shea, 382 sub. nom. McCollough Ins. 1050, 780, 842 640 (C.A.2d Cir.), 835, 80, (1965). (1946); Minnie Port Huron Terminal 295 647, 55 884, 79 1631 (1935); T. Smith Son, Taylor, 276 179, 48 228, 72 520 (1928); (1922); Cleveland Valley R. 208 316, 28 414, 52 508 (1908); Plymouth, Wall. 125 (1866); E. Benedict, Law American 28, 29 (6th ed. 1940); G. Gilmore Black, 46, 7—17 (1957); Robinson, Handbook (1939). reject alternative despite doctrine contrary, now considered waters—a proposition implicitly unanimous last Term. Rodrigue Aetna Casualty 395 352, 360, 366, 1835, 1839, 1842, 23 360 (1969). Piers, transformed floating mere vessels pass beneath them. 'bounded locality,' Lovio Boit, Fed.Cas. pages 418, 3,776 (C.C.D.Mass.1815) (Story, J.) (followed Dunham, (1871), encompassing took contrast, contract 'extends contracts, (wheresoever executed, form stipulations,) relate navigation, business commerce sea.' 444. combines elements need tested locality alone. text indicates, shows indeed that. October 6, 1917, 395; June 10, 1922, 634. 227, 305, (1924). passage hearings House. Hearings 3170 Subcommittee Judiciary, 18, 31, 103 n. (1926) (hereinafter 'Senate Hearings'); Hearing H.R. 9498 House ser. pp. 119 'House Hearing'). Drydocks conceded debates, always structures. 34; Cong.Rec. 5403 (1927). thought broad enough there add parenthetical '(including dock).' 2. Dempsey, representing International Lonsghoremen's Association, testified When pressed how come confessed understand legal theory, defer longshoremen's attorney, Austin. Austin proceeded testify: jurisdiction; law; 'high dry' State's stepped gangplank; '(t)hat 30—31. Testimony docks came shipbuilders. 58, 95, 103. 15, infra; pt. 2, 141, 157 (testimony 3). 40. reason change concerning bill's expressly indicated, response objections original carving out exception 'local concern,' too vague define drawn, encounter problems again hands 56—57, 95; 77, 100. spokesman shipbuilders vagueness concern' exception, written 'upset arrangements compensating dock.' 57. expected dock, whether, conversely, exclusive 'maritime local' created Grant Smith-Porter Ship Rohde, 257 469, 157, 321 reading 121—127, 1200—1203, prevent Rohde. 12, supra. Other intention replacing overlapping dockside found throughout hearings. At point, attempting calculate increased costs Senator Cummins, Chairman Committee, pointed 'we proceeding theory people compensated law.' '(T)he law,' agreed witness, 'are going exposed part board therefore will some available.' 84—85. Similarly, Representative Graham, 'the real necessity legislation' workers 25. labor testifying point hearing insisted sought '(t)hose Those care 28. testimony '65 per cent courts happen gangplanks; 65 work bill.' 35. id., 44. Another 'our protected, act, our protected. feel wants 42. Both Klosek's minor children filed claims, concededly entitled benefits, Maryland Workmen's already awarded benefits Virginia Law. 5, 7—17. devoid reference dealing wholly unrelated problem. 1593, 80th 2d Sess. (1948); H.R.Rep. 1523, (1948). accompanying notes create new causes action,' 3, speaks extending suits 'in rem personam' 'damage' 'person property'—concepts odds compensation—awards proceeding. inescapable. statutes deal matter, inherently inconsistent other, cannot read pari materia.' 184, 194 worth noting contemporaneous amendment contains cross 1948, 602 (a increase five days Act). And, dated July 1958—10 Act—points employees 'when areas.' 2287, 85th U.S.Code Cong. Admin. News, p. 3845 (accompanying safety programs longshoremen). informed commenced actions shipowner.

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