Document: 366 U.S. 169 81 S.Ct. 913 6 L.Ed.2d 206 BROTHERHOOD OF MAINTENANCE WAY EMPLOYES et al., Appellants,v.UNITED STATES al. No. 681. Argued March 28, 1961. Decided May 1, Mr. William G. Mahoney, Washington, D.C., for appellants. Sol. Gen. Archibald Cox, appellees, United States and Interstate Commerce Commission. Ralph L. McAfee, New York City, appellee, Erie-Lackawanna R. Co. Chief Justice WARREN delivered the opinion of Court. 1 The dispute in this case commenced when Delaware, lackawanna & Western Railroad Erie filed a joint application approval by Commission proposed merger, surviving company to be known as Supervision railroad mergers is required § 5(2) Act, 54 Stat. 905, 49 U.S.C. 5(2), U.S.C.A. statute directs authorize such transactions it finds will 'consistent with public interest.' concluded that interest would served merger two applicants finding has not been questioned. point issue whether conditions attached protection employees railroads satisfy congressional mandate embodied 5(2)(f) which provides relevant part that: 2 'As condition its approval, under paragraph (2), any transaction involving carrier or carriers subject provisions part, shall require fair equitable arrangement protect interests affected. In order include terms providing during period four years from effective date result affected being worse position respect their employment, except afforded employee pursuant sentence continue longer period, following order, than was employ prior order.' (Emphasis added.) Before Commission's hearing examiner, suggested 'New Orleans conditions' imposed satisfaction 5(2)(f). These derive name substance decision Union Passenger Terminal Case, 282 I.C.C. 271, they provide compensation benefits displaced discharged merger.1 After had concluded, however, appellant Railway Labor Executives' Association (RLEA) brief examiner claiming compensatory were enough since, view, second imposes minimum requirement no at least length his service up consummation merger. did agree RLEA's reading recommenced Commission, recommendation unanimously adopted. 312 185. Appellants then instituted proceedings District Court Michigan, seeking enjoin approving A temporary restraining issued testimony representative RLEA irreparable injury otherwise ensue. However, after on merits, dissolved dismissed appellants' complaint. 189 F.Supp. 942. Direct appeal followed we noted probable jurisdiction. 365 809, 700, 5 690. 3 Preliminarily, must adequacy an before Court: challenge sufficiency below, nor do argue here.2 Rather, sole contention plan adequate unless based premise all currently payroll remain railroad's previous employment years. say every present job, but insist some job open each one. We think, review background subsequent interpretation demonstrates defects position. 4 Section 5(2)(f), now appears, enacted Transportation Act 1940. broad synopsis occurrences led enactment those sections consolidation contained Appendix Court's St. Joe Paper v. Atlantic Coast Line Co., 347 298, 315, 74 574, 583, 98 L.Ed. 710, unnecessary reproduce material here note 'The purpose sweeping revision 1940, enacting 5(2)(a) form, facilitate national transportation system.' County Marin States, 356 412, 416, 78 880, 883, 879. events, purposes, 1933, Congress passed Emergency 48 211. That contemplated extensive consolidations provided thereto language: '(N)or deprived he said month reason action taken authority conferred title.' Shortly expired 1936, great majority Nation's brotherhoods entered into Washington Job Protection Agreement,3 industry-wide collective bargaining agreement also specified event mergers. Unlike Agreement rather 'job freeze' previously prescribed. Subsequently, efforts re-evaluate law relating 'Committee Six' appointed President study matter. Those portions Committee's final report pertaining urged codification Agreement4 bill drafted along lines, S. 2009, Senate 1939. 84 Cong.Rec. 6158. language identical found first 5(2)(f)—i.e., should contain 'fair equitable' conditions. 7 similar 2009 introduced House but, sent Conference Committee, Representative Harrington inserted amendment added one original version, stating 8 '(N)o approved if unemployment displacement carriers, impairment existing rights employees.' 9882. 9 came out Committee without Harrington's addendum and, dissatisfaction having expressed others, motion recommit House. This restored 'but modified so section contains provision amendment' speak does—viz., '(the) * regard employment.' 86 5886. new phraseology adopted limitation need extend more years, further alteration. 10193, 11766. 10 It productive relate detail various statements offered members explain significance events outlined above. many, sometimes ambiguous often conflicting. certain points can made confidence. First, clear there alterations amendment: Not only four-year imposed, general imprecise import used substitution clearly requiring appeared 1933 Act.5 Secondly, representatives whose floor are entitled greatest weight who last word bill—the conferees explained version large immediately passage Congressmen voices heard early skirmishing participate compromise.6 Finally, although might overstatement claim remarks dispositive, gave explanation reveal understanding compensation, freeze,' contemplated.7 vigorously legislative history supports interpretation. agree, necessary substantial change disregard most intimately connected statute. 11 indications gleaned reinforced confirmed events. Immediately passed, interested parties—including brotherhood appealing case—expressed intendment 5(2)(f).8 echoed next annual report, I.C.C.55th Ann.Rep. 60 61, began imposing conditions, transactions. See, e.g., Cleveland Pittsburgh Purchase, 244 793 (1941). consistently practice over 80 cases, full support intervening RLEA;9 indeed, where variant arose, argued impose mandatory freeze satisfactory.10 true many these involve magnitude presented. relevance unclear since makes distinctions type considered, apparent underlying principle remains same 100 1,000 affected.11 12 Appellants' cases have treated question favorably Ass'n 339 142, 70 530, 94 721, Order Telegraphers Chicago North 362 330, 761, 774. neither holding fact, claim. R.L.E.A. concerned types merger; could extended beyond held could. passages opinion, U.S., pages 151—154, 534—536, which, assert, recognized change—the limitation—was blended between origination approval. ignores plain recognition Court, revealed page 152 535 S.Ct., changes occurred, alteration pertinent resolution case. equally inapposite. power federal court strike refusal bargain concerning proposal contract, discussion problem 13 short, unwilling overturn long-standing administrative statute, acquiesced parties 20 signposts intent, extent ascertainable, indicate correct. Consequently, judgment affirmed. 14 Affirmed. 15 DOUGLAS, dissenting. 16 minor episode important chapter modern history. concerns impact economic technological workers1 manner government deal it. courts determine policy; But judicial attitude much ambiguities resolved. 17 There think produce both our highest industrial business activity unemployment. Dr. Robert M. Hutchins recently stated basic conflict individual freedom technology: 18 'Individual associated doubt, hesitancy, perplexity, trial error. technology cannot countenance. Liberty presupposes supremacy politics. possibility, example, political deliberation lead postpone introduction machine. Technology, other hand, asserts what worth doing; things doing efficiently *.' Two Faces Federalism (1961), p. 22. 19 measure seen frame reference. As said: 'Technology holds hope men actually achieve goals toward struggling dawn history: want, disease, drudgery, consequent opportunity human lives. rich, healthy, workless world peopled bio-mechanical links inhuman world. prospects humanity turn upon ability find direct uses.' 24. 21 Secretary Labor, Arthur J. Goldberg, put simple terms:2 22 joined economy today—one form major negotiation—is simply stated: how necessity continued increases productivity, labor-saving techniques, met causing hardship widespread unemployment?' 23 phase problem. 24 instance controversy settled adoption transferred courts, side victory halls.3 25 make 'a affected.'4 language.5 When reached House, proviso:6 26 'Provided, 27 prohibited permanently House.7 proviso eliminated rise it.8 recommitted instructions combinations included bill, amended orders authorizing 'terms employment.'9 28 Congerence accepted limiting protective clause Report emphasizes operation years.10 Lea, Chairman Conferees, House:11 29 substitute bring additional things. consolidation. words, against give them period. If themselves better matter railroads, 4-year established pending conference agreement. 30 'There another amendment. benefit occurred. amendment, man employed months, indefinitely company. changed maintain him worked 31 'We believe very liberal labor. railway labor substantially agrees viewpoint. take nothing agreement.' (Italics Wolverton, Conferee, stated:12 32 'It real intent sponsors save suddenly thrust into.' 33 statements13 says, 'are weight' interpreting proviso. I statements—nor history—'clearly contemplated.' Instead history—as elsewhere seems recognize—to be, best, ambiguous. Compensatory relief employees' bearing initial shock railroads' reduction plant. contend philosophy firing picking social pieces later. seizes materials impute philosophy. resolve ambiguity favor employees. read meaning less though necessarily old job. realistic sense 'in to' 'employment,' receives nothing. Many men, least, drones; life itself. toll they, capital created,14 beneficiaries doubts overhang controversies shifted courts. Briefly, prescribe following: retained lower paying get difference salaries whatever jobs, may elect lump sum payment; moving expenses, fringe insured; given received Agreement, discussed text infra, guaranteed. objections objections, below injunctive relief, material. appellants wish directly still proceed 5(9) Act. connection, contended erred refused accept short answer refuse proof; explicitly refrained ruling offer never renewed efforts. See 179. Lowden, 308 225, 248, 208. Hearings Foreign H.R. 2531 4862, 76th Cong., 1st Sess. 216—217, 275. evidence meant 1940 compare 1943 222(f) Communications 47 222(f), 'Each party preceding 1941, resulting shall, consent, reduced assigned work inconsistent past training experience telegraph industry.' Senator White, proponent 89 1195 1196. several committee opposed recommit. concede, reliance unexplained opposition untrustworthy best. Witness fact base (Representatives Warren, Harrington, Thomas) voted bill. chairman Lea 10178, particularly responding questions Representatives Vorys O'Connor, 'Mr. Ohio. Speaker, gentleman yield? Lea. yield Would rule effect delaying mean paid? No; does delay means available determines date, run date. employed? Yes. O'Connor. Montana. want see lose jobs protected, like gentleman's phrase placed employment. Does 'worse position' just assuming effected? correct words.' member Halleck 10187, Wolverton 10189. lends itself H.R.Rep. 2832, 3d Sess., pp. 68 69. official organ, Brotherhood Maintenance Way Employes 'Four Years' Full Pay '2. employe more, loses because 'coordination', paid wages long service. 'No ever guaranteed employes industry, workers secured unprecedented through Employes, cooperative movement Standard Organizations.' Journal 13—14 (Oct. 1940). 57 Conductor 1940); 39 Clerk 467, 488. err taking cognizance publications, raised below. Cf. Texas Pacific Pottorff, 291 245, 254, 417, 777. comprehensive list decided description Brief noteworthy affirmed City Nashville 355 63, 139, 106. Memorandum RLEA, Finance Docket 12460, Fort Worth D.C.R. Lease, 247 119. According findings case, 863 totally five-year discharges natural attrition out, uniform predictable indication elimination surplus posts accomplished method suggest; moreover, suitable positions, bound call back 'In California, Bank America installed electronic computers mortgage-and-loan operation, 300. Cleveland, electronically controlled concrete plant hour 200 cubic yards 1,500 mixing formulas, single worker performing manual process. bakery Chicago, operates piece equipment moves tons flour hour, replacing move hour. bread-baking department plant, half supplanted automation, wrapping department, per cent formerly needed replaced machines. textile entire plants moved England towns set automated factories South, using comparative handful leaving suffering behind. automobile assembly lines helped cut total cent. 1956 1958, 200,000 dropped Automobile Workers mid-1957 1959. shipping huge containers packed sealed loaded aboard special compartmented ships, eliminating thousands longshoremen. transportation-equipment production rose, fell quarter million January, 1956, December, 1958. rubber drop 25,000 workers. chemical 36,000 automation.' Davidson, Our Biggest Strike Peril: Fear Automation, Look Magazine, April 25, 1961, 69, 75. Walter P. Reuther, President, America, quoted Christian Science Monitor, Thursday, Apr. 27, 4, col. 2: 'When machine, skill obsolete, moves, society whole employer particular; trouble.' Challenge 'Industrial Revolution II,' N.Y. Times 2, 11. And A. H. Raskin's recent series Times. Times, 6, cols. 2—3; Friday, 7, 3; Saturday, 8, Sunday, 9, 2—3. Newman Surrey, Legislation (1955), 158—178. S.Rep. 433, 29. 1217, 12. Cong.Rec., pt. 9882—9883. 9887. 2016, 61. includes instruction agreement, qualifies confining order. equal regardless time otherwise. Under consolidation, consolidation.' refers 'unexplained opposition' record offers plausible opposition. himself apparently objectionable failed cover abandonments. 10187. Crosser, 10192. 10178. Id., third Conferee rely Congressman Halleck. merely says Proviso 'follows so-called What sentence: 'This gives greater far-reaching recognizes subscribe, that, writes law.' relies Lea's acquiescence assertions—more equivocal—of But, even assertions negative guarantee continuing hardly jibes fully Lincoln message Congress, Dec. 3, 1861, 'Labor to, independent of, capital. Capital fruit labor, existed existed. superior capital, deserves higher consideration.' V Basler, Collected Works Abraham (1953), 52.

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