Document: 507 U.S. 218 113 S.Ct. 1190 122 L.Ed.2d 565 BUILDING AND CONSTRUCTION TRADES COUNCIL OF the METROPOLITAN DISTRICT, Petitionerv.ASSOCIATED BUILDERS CONTRACTORS MASSACHUSETTS/RHODE ISLAND, INC., Et Al. MASSACHUSETTS WATER RESOURCES AUTHORITY, Al., Petitioners v. ASSOCIATED Nos. 91-261, 91-274. Argued Dec. 9, 1992. Decided March 8, 1993. Charles Fried, Cambridge, MA, for petitioners. Maureen E. Mahoney, Washington, DC, as amicus curiae by special leave of Court. Maurice Baskin, respondents. Syllabus * Following a lawsuit over its failure to prevent pollution Boston Harbor, petitioner Massachusetts Water Resources Authority (MWRA)—the state agency that provides, inter alia, sewage services eastern Massachusetts—was ordered clean up Harbor. Under law, MWRA provides funds construction, owns sewage-treatment facilities be built, establishes all bid conditions, decides contract awards, pays contractors, and generally supervises project. Petitioner Kaiser Engineers, Inc., project manager selected MWRA, negotiated an agreement with Building Construction Trades Council affiliated organizations (BCTC) would assure labor stability life project, directed in Specification 13.1 solicitation bids each successful bidder must agree abide agreement's terms. Respondent organization, which represents nonunion construction industry employers, filed suit against petitioners, seeking, among other things, enjoin enforcement Bid on grounds it is pre-empted under National Labor Relations Act (NLRA). The District Court denied organization's motion preliminary injunction, but Appeals reversed, holding MWRA's intrusion into bargaining process was pervasive not sort peripheral regulation permissible San Diego Garmon, 359 236, 79 773, 3 775, Machinists Wisconsin Employment Comm'n, 427 132, 96 2548, 49 396 because regulating activities Congress intended unrestricted governmental power. Held: NLRA does pre-empt authority, acting owner otherwise lawful prehire collective-bargaining private parties. This has articulated two distinct pre-emption principles: "Garmon pre-emption" forbids local are protected § 7 or constitute unfair practice while "Machinists prohibits municipal areas have been left controlled free play economic forces. These doctrines apply only regulation, see, e.g., Machinists, U.S., at 144, 2555. A State may act without offending them when acts proprietor therefore tantamount policymaking. Permitting States participate freely marketplace consistent principles also, this case, promotes legislative goals animated passage NLRA's 8(e) 8(f) exceptions regarding agreements industry. It undisputed Agreement between BCTC valid §§ (f). In enacting exceptions, accommodate conditions specific industry, there no reason expect industry's defining features depend upon public nature entity purchasing contracting services. Absent any express implied indication manage own property pursuing purely proprietary interest such here, where analogous conduct permitted, will infer restriction. Pp. ____. 935 F.2d 345 (CA1 1991), reversed remanded. BLACKMUN, J., delivered opinion unanimous Justice BLACKMUN 1 issue case whether Act, Stat. 449, amended, 29 U.S.C. 151 et seq., pre-empts 2 (MWRA) independent government charged Legislature providing water-supply services, collection, treatment disposal half Massachusetts. Mass.Gen.Laws, ch. 92 App., 1-1 seq. (Supp.1992). arising out alleged violation Federal Pollution Control 86 816, 33 1251 See United Metropolitan Dist. 757 F.Supp. 121, 123 (Mass.1991). clean-up expected cost $6.1 billion 10 years. 345, 347 1991). required proceed interruption, making allowance delays from causes disputes. App. 71 (Affidavit Richard D. Fox, Director Program Management Division MWRA). primary responsibility enabling statute Commonwealth's public-bidding laws, (assisted federal grants), F.2d, (citing (Supp.1992), 149, 44A 44I, 30, 39M) (1991). spring 1988, manager. primarily charge managing supervising activity. also advise development labor-relations policy maintain worksite harmony, labor-management peace, overall throughout duration To end, suggested permitted negotiate Pet. Cert. No. 91-274, p. 75a (MWRA Pet.App.). accepted Kaiser's suggestion, accordingly proceeded Harbor Wastewater Treatment Facilities Project Agreement. Ibid. included: recognition exclusive agent craft employees; use specified methods resolving labor-related disputes; requirement employees subject union-security provisions compelling become union members within seven days their employment; BCTC's hiring halls supply project's force; 10-year no-strike commitment; contractors subcontractors bound 348. Pet.App. 107a (full text Agreement). Board Directors approved adopted May 1989 incorporated work project.1 347. pertinent part: 4 "[E]ach levels subcontractors, condition being awarded subcontract, executed effective 22, 1989, . behalf [MWRA], [BCTC] same manner provision contract." 141a-142a. 5 1990, contractors' association party contending violated NLRA. NLRB General Counsel refused complaint, finding: (1) NLRA, 158(f), authorizes (2) Agreement's limiting who construction-industry proviso 8(e), 158(e). sets forth exception 8(e)'s prohibition "hot cargo" require employer refrain doing business person agreeing agreement. & (Kaiser Inc.), Case 1-CE-71, Advice Memo, June 25, 88a. 6 Also respondent Associated Builders Contractors Massachusetts/Rhode Island, Inc. (ABC), organization representing brought Kaiser, BCTC, 13.1. ABC 514(c) Employee Retirement Income Security 88 897, 1144(c) (ERISA), violations Equal Protection Due Process Clauses Fourteenth Amendment, conspiracy reduce competition, Sherman 26 209, 15 1, various state-law claims. Only here. rejected ABC's claims injunction. 76a-83a. First Circuit entry injunction restraining 13.1, reaching pre-emption. 135 LRRM 2713 (1990). subsequently granted petition rehearing en banc, vacating panel opinion. 84a. Upon Appeals, 3-2 vote, again judgment Court, once more issue. 359-360. court held 775 (1959). 353. (1976), Because importance issue, we certiorari, 504 ----, 112 1935, 118 541 (1992). II 8 contains provision. Therefore, accordance settled principles, should find specification " ' ". unless conflicts law frustrate scheme, [we] discern totality circumstances sought occupy field exclusion States." Life Ins. Co. Massachusetts, 471 724, 747-748, 105 2380, 2393, 85 728 (1985) (citations omitted). We reluctant Cipollone Liggett Group, ---- - 2608, 2617-2618, 120 407; Rice Santa Fe Elevator Corp., 331 218, 230, 67 1146, 1152, 91 L.Ed. 1447 (1947). "Consideration Supremacy Clause starts basic assumption did intend displace law." Maryland Louisiana, 451 725, 746, 101 2114, 2129, 68 576 (1981). With these general mind, turn particular developed around 9 748, S.Ct., 2394, noted: "The principles." first, pre-emption," see supra, "protected [NLRA], 8." 244, 779. Garner Teamsters, 346 485, 498-499, 74 161, 170, 98 228 (1953) ("[W]hen separate remedies bear activity, conflict imminent"). Garmon even arguably protects prohibits. Dept. Industry Gould 475 282, 286, 106 1057, 1060, 89 223 (1986). rule designed between, one hand, and, other, Congress' "integrated scheme regulation," 247, 781, embodied includes choice NLRB, rather than courts, appropriate body implement Act. 748-749, n. 26, 2393-2394 26. precluded awarding damages employers injuries resulting peaceful picketing unions had majority agent. 246, 780. said: "Our concern delimiting if national unhampered." Gould, disqualifies persons three times 5-year period. emphasized "the prevents setting standards inconsistent substantive requirements regulatory judicial prohibited Act." 1061 780). 11 second principle, 147, 2556, 'to forces.' Id., 140, 2553 (citation Golden Transit Corp. Los Angeles, 608, 614, 1395, 1398, 616 (1986) (Golden I ); 493 103, 111, 110 444, 451, 107 420 (1989) ). preserves "intentional balance "between uncontrolled power management further respective interests." I, 1399 12 Commission could designate concerted refusal overtime, mean self-help activity regulable States. 148-150, 2557-2558. said intent "sanction pressure deemed 'desirabl[y] .' 150, 2558 applied doctrine hold city Angeles conditioning renewal taxicab operating license settlement dispute. 618, 1400. reiterated principle "local lacks authority "introduce some standard properly 'balanced' power" define "what sanctions might negotiating parties 'ideal' collective bargaining." 619, 1401 (quoting 149-150, 2557) (internal citation II, (1989), determined challenging city's entitled action 42 1983 compensatory city. so holding, stated created zone regulations, federal. 112, 451. III 13 When say zone, reserved market freedom, jurisdiction, Garmon. regulate, however, simply areas. manages property, example, interact participants marketplace. doing, regulation. 14 Our decisions area support distinction regulator proprietor. consistently supplant legitimate affects labor. referred pre-emptive "leave unregulated," 2555 (emphasis added), issue—workers deciding together refuse overtime work—were "regulable 2557 added). franchise dispute precludes 'concerning unregulated.' 1398 added) 749, 2394). permit exercise nonrenewal restrict State's right weapons union. 615-619, 1398-1401. As petitioners point out, very different presented purchased taxi order transport employees. Brief 35. situation, strike produced serious interruptions purchased, necessarily advising hire another company were resolved resumed deadline. argument purposes do five noted "debarment serves plainly means enforcing NLRA." 287, 1061. "[t]he concedes, think must, deter violations"; concluded "[n]o purpose credibly ascribed." 16 Respondents quote following arguing stands proposition limitations regulator: 17 "Nothing course, purchasers boycotting violators. But occupies unique position our society, conduct, regardless form, rightly restraints. Outside Commerce jurisprudence, far unusual prohibit spending ways moreover, long understood protect range interference. treats differently merely they frequently take forms, system role play." 290, 1063. 18 above weight respondents support. agency's attempt compel conformity addressed unrelated employer's performance contractual obligations State, violations, concluded: "Wisconsin 'simply functioning purchaser services,' [and therefore,] practical purposes, Wisconsin's debarment regulation." 289, 1062. "not say[ing] never influenced considerations." 291, 19 conceptual exists limited extent sphere well. actor, can boycott supplier basis profit motive. id., actor attempting "regulate" suppliers typical fact mean, "pre-empted" NLRA; conduct. Private actors please, violate law. makes clear, qualitatively regulator, performs characteristically role, boycotts notwithstanding. Moreover, powerful distinctions less significant participant policy. 20 address fully implications distinctions. open question "tantamount policy-making. explained below, now answer affirmative. IV 21 1959, amended add modify 8(e). Section explicitly permits industry—but employers—to enter agreements. Prehire recognition, compulsory dues equivalents, mandatory halls, prior 356; Jim McNeff, Todd, 461 260, 265-266, 103 1753, 1756-1757, 75 830 (1983). 1959 amendment adding subsection (e) contractor's performing site terms Woelke Romero Framing, 456 645, 657, 102 2071, 2078, 72 398 (1982). final employees, hired, utilize election 9(c) 9(e) 159(c) (e), wish reject representative cancel security Iron Workers, 434 335, 651, 54 586 (1978). 22 above, those sections authorize type like engaged covering 23 Of provided 8(f), prohibitions provide relief, made specifically applicable State. excluded definition term "employer" 152(2), event, case. Nevertheless, behind still relevant determining what respect relationship authorized sections. 24 evident face exemptions authorizing certain kinds Such include, others, short-term employment post-hire difficult, need predictable costs steady skilled labor, long-standing custom S.Rep. 187, 86th Cong., 1st Sess., 28, 55-56 (1959); H.R.Rep. 741, 19-20 (1959) U.S.Code Cong. Admin.News 2318. 25 There choose contractor based willingness agreement, same. Confronted purchaser, normally faced choice. They alter usual mode operation secure opportunity seek whose perceived needs include absence pursues interests, See, 2129 ("Consideration law").2 Indeed, force petitioners' argument, denying option owner-developers available itself places restriction forces identified Machinists. V instant acted advice hired organize job which, ensure efficient completed quickly effectively possible lowest cost. note, challenged tailored job, distinguish incentives here operate elsewhere recognized legitimate. Framing 662, 14, 2081, 14. 27 today neither nor constitutes part Commonwealth legally enforced Chief Judge Breyer aptly his dissent "when just act, find, 'regulate' workings find; exemplifies them." 361. 28 follows improper. reverse remand proceedings ordered. syllabus prepared Reporter Decisions convenience reader. Detroit Lumber Co., 200 321, 337, 50 499. competitive-bidding laws preference term, form specification. Enabling incorporates, 1-8(g) (Supp.1992) (incorporating Mass.Gen.Laws 39M, 44H (1991)), carried authority. Modern Continental Constr. Lowell, 391 Mass. 829, 836, 465 N.E.2d 1173, 1177-1178 (1984). suggest brief, 12, H.K. Porter 397 99, 90 821, 823, 146 (1970), 8(d) expressly rely section statute, grant certiorari question. decline invitation application, any,

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