Document: 353 U.S. 1 77 S.Ct. 609 L.Ed.2d 601 P. S. GUSS, Doing Business as Photo Sound Products Manaufacturing Company, Appellant,v.UTAH LABOR RELATIONS BOARD. No. ___. March 25, 1957. [Syllabus intentionally omitted] Mr. Peter W. Billings, Salt Lake City, Utah, for appellant. E. R. Callister, Atty. Gen., of appellee. Chief Justice WARREN delivered the opinion Court. The question presented by this appeal and Amalgamated Meat Cutters, etc. v. Fairlawn Meats, Inc., 20, 604, San Diego Building Trades Council Garmon, 26, 607, is whether Congress, vesting in National Labor Relations Board jurisdiction over labor relations matters affecting interstate commerce, has completely displaced state power to deal with such where declined or obviously would decline exercise its but not ceded pursuant proviso § 10(a) Act.1 It a we left open Kinard Construction Co., 346 933, 74 373, 98 L.Ed. 423. 2 Some background necessary an understanding problem federal-state how it assumed present importance. Since was first enacted 1935, Act2 empowered 'to prevent any person from engaging unfair practice * (defined Act) commerce.'3 By language definition 'affecting commerce' elsewhere Act,4 Congress meant reach full extent under Commerce Clause. Fainblatt, 306 601, 606—607, 59 668, 672, 83 1014. Board, however, never exercised measure jurisdiction. For number years, decided case-by-case take In 1950, concluding that 'experience warrants establishment announcement certain standards' govern jurisdiction, Hollow Tree Lumber 91 N.L.R.B. 635, 636, published standards, largely terms yearly dollar amounts inflow outflow.5 1954, sharply divided see Breeding Transfer 110 493, revised jurisdictional standards upward.6 This Court passed do pass today upon validity particular declination set standards.7 3 How many disputes Board's 1954 leave 'twilight zone' between federal unquestioned known.8 case, there been recently substantial volume litigation raising stated at beginning opinion, which case example.9 4 Appellant, doing business manufactures specialized photographic equipment Air Force on contract basis. To fulfill his government contracts he purchased materials outside Utah amount 'a little less than $50,000.' Finished products were shipped bases, one within others outside. 1953 United Steelworkers America filed petition certification union bargaining representative appellant's employees. A consent election agreed to, agreement reciting appellant 'engaged commerce meaning Section 2(6), (7) Act.' won certified representative. Shortly thereafter charges had engaged practices proscribed 8(a)(1), (3) (5) Act.10 Meanwhile, July 15, promulgated standards. Acting Regional Director issue complaint. He wrote 21: 5 'Further proceedings are warranted, inasmuch operations Company involved predominantly local character, does appear effectuate policies Act jurisdiction.' 6 thereupon substantially same Act.11 Appellant urged State without matter Board. found concluded merits defined Act. granted relief through remedial order. On Writ Review, Supreme affirmed decision order administrative agency.12 We noted probable 352 817, 65. 7 these facts start following uncontroverted premises: 8 (1) Appellant's affects supra. 9 (2) expressly deals conduct charged basis tribunals' actions. Therefore, if action have precluded our Garner Teamsters Union, 485, 161, 228. 10 entered into cession provides: 11 'The empowered, hereinafter provided, (listed 8) commerce. shall be affected other means adjustment prevention may established agreement, law, otherwise: Provided, That agency Territory cede cases industry (other mining, manufacturing, communications, transportation except character) even though involve unless provision Territorial statute applicable determination inconsistent corresponding received construction therewith.' (Emphasis added.) 12 10(a), italicized quotation above, Taft-Hartley amendments Timing reference committee reports indicate drafter response Bethlehem Steel Co. New York 330 767, 67 1026, 1234.13 foremen enterprise petitioned unit. At time declining, policy, certify units composed foremen. held policy against certifying foremen's must prevail. However, took occasion discuss efforts two boards avoid conflicts 13 Boards made commendable effort conflict overlapping statutes. find nothing their negotiations, either constitutional insofar they since no concession delegation subject. types cases, budgetary reasons presents different now decide.' Id., page 776, 1031. 14 Three Justices led concur specially, because, three: 15 'I read (the Court's opinion) mean beyond agree agencies enforcing laws like Wagner divide, due regard interests, domain given abstract discretion which, practically, cannot covered alone. If cooperative agreements barred because ousted superseded authority, I am unable authority can revive seen fit put short rations.' 779, 1032. 16 Thus, did make manifest, concurring did, after doubt board could act formal 'for reasons.' When unconvincing argument only meet problem, i.e., otherwise handle. 17 directed least equally type might reasons' hear wish States reasons—if, indeed, difference classes. Cases communications 'industry' 'predominantly character.' industries, considered more typically local, limitation power. Senate Committee spelled out: 18 added subsection (§ 10(a)) permits allow labor-relations final borderline industries (i.e., border line concerned), provided conforms national policy.'14 19 minority purpose 'with majority desirable thus clarify various up handle similar problems.'15 20 hold exclusive whereby enabled concerning entrusted support holding prior Ass'n St. Elec. Ry. & Motor Coach Employees Wisconsin 340 383, 397—398, 71 359, 367, 95 364, said: 21 legislative history 1947 refers 1947, 1234, and, handling problems demonstrated knew states. well legislation 'preempts field covers concerned' ability spell out particularity those areas desired regulation operative.' (Footnotes omitted.) 22 footnote sentence quoted above cited described authorization law consistent insuring 'that will thwarted enterprises applies.' note 23. See also Algoma Plywood Veneer 336 301, 313, 69 584, 590, 93 691; People California Zook, 725, 732, 841, 844, 1005. 23 Our reading forecloses based H. Welch Hampshire, 79, 438, 500, Missouri Pacific Larabee Flour Mills 211 612, 29 214, 53 352, 'where delegated lies dormant unexercised,' supra, 775, 1031, States' respect concern necessarily superseded. But each congressional intent. Compare Napier Atlantic Coast Line 272 605, 47 207, 432. And here general intent pre-empt inescapable implication exclusiveness. 24 told appellee deny create vast no-man's-land, subject court. grant produce confusion policy. Unfortunately, both right. believe, expressed judgment favor uniformity. Congress' area among plenary, respected whatever objections creation no-man's-land. 25 free change situation will. Public Welfare recognized existence no-man's-land proposed amendment courts jurisdiction.16 greatly reduce reasserting brought confromity ceding 10(a).17 testimony Chairman before Appropriations Committees shortly revisions indicates making basically budgetary. They concept class should devote attention.18 26 27 Reversed. 28 WHITTAKER part consideration case. BURTON, whom CLARK joins, dissenting. 30 believe mistaken interpretation 1947.1 my view merely clear power, specific agreements, territorial disputes. sought thereby facilitate cooperation supervision justified interpreting evidencing unexpressed sweeping termination pre-existing reasons, declined, decline, 31 Acts 1935 extensive controversies neither required assert all times 'empowered,' direct, practices. Likewise, 10(b) 'power,' instead imposing duty, complaints receipt appropriate charges.2 court whose violations private rights exercised. function adjudicate public manner Utility Workers Consolidated Edison 309 261, 60 561, 84 738. 32 From beginning, limitations considerations prevented exercising affected. when, unchanged discretionary 10(a). consistently refrained appropriating funds sufficient permit entertain jurisidction. recent years repeatedly practice.3 Denver Bldg. Council, 341 675, 684, 943, 949, 1284, said 'Even when effect activities enable complaint, sometimes properly declines so, stating effectuated assertion case.' Courts Appeals approved practice4 none parties instant it. 33 Unless restricted title borders, affected, Federal Government occupied taken Where then 'dormant unexercised.' 1234. stands way, administration Act.5 Substantive provisions limit States. Mine Arkansas Oak Flooring 351 62, 75, 76 559, 566, 100 941. deprived act.6 34 restricts cedes agencies. proviso's requirements so highly restrictive single it.7 result man's land controversies. difficult sub silentio, intended step backward relations. 35 immediate enactment throws light proper interpretation. collective-bargaining asserting unions, field.8 Although negotiated matters, unions. decried overtones lacked 36 While evidenced encourage action, indication wipe out, implication, Neither nor discloses conscious eliminate act. Unequivocal sustain conclusion drastic result. passing question9 three 'suggestion 'in room situations *.' U.S., 778, 37 As fact, nearly 40 comprehensive legislation.10 Obviously, ineligible advantage proviso. hard imagine channel automatically excluded using mission supply express where, deliberate judgment, interests course desirable. yardsticks always reflected need distribute limited resources best 'cede' jurisdiction; allows authority.11 38 contrary position amicus curiae. continuing deep interest providing governmental machinery large, unsupervised flies face Due system suggests doubts score resolved powerless supra: 39 'Since can, chooses, entirely displace far-reaching Clause, needs help generous judicial implications achieve supersession authority. construe needlessly forbid preexisting system. Any indulgence States, speak clarity whenever chooses assure displacing States.' 780, 1033. respective cases. 61 Stat. 146, U.S.C. 160(a), U.S.C.A. 160(a). 49 449, amended, 136, 151 et seq., seq. 453, amendments, term burdening obstructing flow having tending lead dispute commerce.' 2(7), 450, 138, 152(7), 152(7). NLRB's Press Release October 6, LRR Man. 50. 75. 1284. Members disagreed impact revision. 498—500, 506—508. Among sustained Garmon 45 Cal.2d 657, 291 P.2d 1; Bonito, Nev. 84, 280 295; Hammer Local 211, Textile Workers, N.J.Super. 34, 111 A.2d 308; Dallas General Drivers Jax Beer Tex.Civ.App., 276 S.W.2d 384. side Retail Clerks etc., Your Food Stores, Cir., 225 F.2d 659; Universal Car Service International Assn. Machinists, 2087 (Mich.Cir.Ct.); Wags Transportation System, Sup., 130 N.Y.S.2d 731, 284 App.Div. 883, 134 603. 140, 141, 158(a)(1, 3, 5), 5). Code Ann.1953, 34—1—1 34—1—15. 2d 68, 296 733. handed down April 7, 1947. appeared 1126, contained substance what become Act, reported 17. S.Rep. 105, Pt. 2, 80th Cong., 1st Sess. 38. 26. members said, 'We think clarification contemplated section wise solution complex problem.' 41. 986, 30—31. refusing legal vacuum no-man's discretion, refused seems forbidden injured forum seek relief.' 1211, 83d 18. 'When refuses nevertheless act, apply There hiatus—a land—in 14. Committee's bill, 2650, recommitted. Cong.Rec. 6203. informed us brief curiae unable, conditions prescribed consummate agreements. Hearings Subcommittee House Appropriations, Department Related Independent Agencies, 309, 315, 323. amended Management addition shown below: 'Sec. hereinater emplowered '(b) Whenever practice, agent designated purposes, cause served complaint respect, containing notice hearing member thereof, agency, place therein fixed, five days serving 160(b), 160(b). Report Joint Labor-Management Relations, 11—15; 99, 81st 40; H.R.Rep. 1852, 10; 249, 1, 175—177; Expenditures Executive Departments S.Res. 248, 40, 120. E.g., Optical Workers' Union 24859 227 687; 12, Progressive 189 Haleston Drug Stores 187 418. Indiana Michigan Electric 318 9, 19, 63 394, 87 579. discusses 493. also, Note, Discretionary Administrative Jurisdiction NLRB Under 62 Yale L.J. 116 (1952). '* care Case (Garner Teamsters, Chauffers halpers, 228) demonstrate existing remedies was, itself, recognition existed, procedure survived.' Laburnum Corp., 347 656, 665, 833, 838, 1025. Weber Anheuser-Busch, 348 468, 479—480, 75 480, 487, 99 546. Southern Arizona ex rel. Sullivan, 325 761, 65 1515, 89 1915; Terminal Railroad Brotherhood Trainmen, 420, 571; 500; Northwestern Bell Telephone Nebraska Railway Commission, 297 471, 56 536, 80 810; Larable 352. states that— 'It conditions, aware feasibility deleting tremendous S.Rep.No. JointCommittee Report, Sess., (1948). regard. advocates preemption argue post-legislative manifested preclude absence Precisely inference drawn Congressional inaction is, wholly speculative.' Board) refusal designate determine purposes. Maryland Drydock cannot, therefore, unexercised. employers asserted control general. asserts, rightfully Packard supra (Packard N.L.R.B., 789, 1040), decide constitute themselves leaves operation asserted.' pages Of those, eight adjudication while conventional law-enforcement agencies—prosecuting attorneys regular courts. Killingsworth, (1948), 1—3, 111—112. fragmentary. Killingsworth aimed exclusively few practices, restrictions employers, attempt establish policy.' 3. upward yardsticks, desire broader factor decision.' 497.

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