Document: 437 U.S. 518 98 S.Ct. 2482 57 L.Ed.2d 397 Sidney S. HICKLIN et al., Appellants,v.Edmund ORBECK, Commissioner of the Department Labor Alaska, al. No. 77-324. Argued March 21, 1978. Decided June 22, Syllabus Appellants, at least five whom are not residents challenged in state court constitutionality "Alaska Hire" statute (which was enacted professedly for purpose reducing unemployment within State) that requires all Alaskan oil and gas leases, easements or right-of-way permits pipelines, unitization agreements contain a requirement qualified Alaska be hired preference to nonresidents. The trial upheld statute. Supreme Court affirmed except part Act contained one-year durational residency requirement, which it held invalid. Held: 1. invalidation does moot case, since controversy still exists between nonresident appellants, none can qualify as "residents" under statutory definition, appellees, officials. Those appellants thus have continuing interest restraining discrimination favoring residents. P. 523. 2. Hire violates Privileges Immunities Clause Art. IV, § Pp. 523-534. (a) Though "does preclude disparity treatment many situations where there perfectly valid independent reasons it," bar against citizens other States is no reason beyond mere fact they States." Toomer v. Witsell, 334 385, 396, 68 1156, 1162, 92 L.Ed. 1460. See also Mullaney Anderson, 342 415, 72 428, 96 458. 524-526. (b) Even dubious assumption State may validly alleviate its problem by requiring private employers discriminate nonresidents, cannot upheld, record indicates Alaska's attributable influx jobseekers, but rather substantial number jobless were unemployed either because lack education job training geographical remoteness from opportunities. Employment nonresidents threatened deny jobs only extent untrained being prepared might filled before residents' completed. Moreover, even if showing made "a peculiar source evil," supra, 398, S.Ct., 1163, aimed, would invalid, bear relationship "evil" said present, over given Alaskans, just those who unemployed. 526-528. (c) ownership subject matter constitutes insufficient justification statute's pervasive Hire's reach includes connection with State's gas, perform work on land, contractual State, receive payment State; Act's coverage limited activities connected extraction gas. 528-531. (d) conclusion withstand constitutional scrutiny fortified decisions Commerce circumscribe ability prefer own utilization natural resources found borders destined interstate commerce. West Kansas Natural Gas, 221 229, 31 564, 55 716; Pennsylvania Virginia, 262 553, 43 658, 67 1117, Foster Packing Co. Haydel, 278 1, 49 73 147. upon hinges bound out-of-state consumption profound national importance while breadth mandated transcends degree resident bias Alask justifiably support. 531-534. 565 P.2d 159, reversed. Robert H. Wagstaff, Anchorage, appellants. Ronald W. Lorensen, Juneau, appellees. Mr. Justice BRENNAN delivered opinion Court. 1 In 1972, Legislature passed an entitled "Local Under Leases." Stat.Ann. §§ 38.40.010 38.40.090 (1977). key provision Hire," has come known, "all pipeline purposes, agreements, any renegotiation preceding party" "requiring employment residents" nonresidents.1 38.40.030(a) (1977).2 This administered providing persons meeting requirements certificates residence—"resident cards"—that presented employer covered proof residency. 8 Admin.Code 35.015 individuals desirous securing unable necessary cards, challenge violative both 2, Equal Protection Fourteenth Amendment. 2 * Although seriously enforced until 1975, when construction Trans-Alaska Pipeline,3 reaching peak. At time, began issuing cards limiting cardholders dispatchment jobs. On 1976, response "numerous complaints alleging been dispatched available fill jobs," Executive Order # 76-1, Dept. (Mar. 1976) (emphasis original), Edmund Orbeck, one appellees here, issued cease-and-desist order unions supplying workers4 enjoining them "to respond open calls dispatching non-residents dispatched." Ibid. original). As result, had previously worked pipeline, prevented obtaining pipeline-related work. Consequently, April 28, filed complaint Superior Anchorage seeking declaratory injunctive relief enforcement Hire. 3 time suit filed, setting forth qualifications purposes Hire, 38.40.090,5 included requirement. Appellants attacked well flat By agreement parties, consideration motion preliminary injunction consolidated determination merits. case submitted affidavits, depositions, memoranda law; oral testimony taken. July entirety denied relief. appeal, unanimously unconstitutional federal Clauses, 165 (1977), further excess 30 days constitutionally infirm. Id., 171.6 vote however, general permissible. appealed Court's judgment insofar embodied latter holding, we noted probable jurisdiction. 434 919, 391, 54 275 We reverse. II 4 Preliminarily, hold this moot. Despite appellants—Tommy Ray Woodruff, Frederick A. Mathers, Emmett Ray, Betty Cloud, Joseph G. O'Brien—and These sworn Record 43, 47, 49, 96, 124. Therefore, satisfy element definition "resident" 38.40.090(1)(D) individual "has not, period required residency, claimed another state." They favor State.7 5 Appellants' principal 2: "The Citizens each shall several That provision, "appears so-called States' Relations Article, same Article embraces Full Faith Credit Clause, Extradition . , provisions admission new States, Territory Property Guarantee Clause," Baldwin Montana Fish Game Comm'n, 436 371, 379, 1852, 1858, 56 354 (1978), "establishes norm comity," Austin New Hampshire, 420 656, 660, 95 1191, 1194, 530 (1975), prevail among respect their other's residents.8 described Paul Wall. 168, 180, 19 357 (1869), 6 place footing so far advantages resulting citizenship concerned. It relieves disabilities alienage States; inhibits discriminating legislation gives right free ingress into egress them; insures freedom possessed acquisition enjoyment property pursuit happiness; secures equal protection laws. justly Constitution tended strongly constitute United people this." 7 appeal supported holding ply trade, practice occupation, pursue common calling State. For example, Ward Maryland, 12 418, 20 449 (1871), Maryland regulating sale most goods city Baltimore fell privileges immunities Jersey law discriminated. discriminated ways: merchants obtain licenses trade without certain similarly situated merchants; charged higher license fee than secure licenses; prohibited using salesmen, regular employees, sell city. violated observed "the clause plainly unmistakably protects citizen pass he Union engaging lawful commerce, business molestation." 430. recognized travel discriminatory restrictions imposed Again, 1460 (1948), leading modern exposition limitations places power opportunities residents, invalidated South Carolina pay 100 times greater paid shrimp commercially three-mile maritime belt off coast reasoned although id., "[i]t A "substantial discrimination" exist, explained, "unless something indicate non-citizens evil [discriminatory] aimed." 1163. presence activity causes exacerbates seeks remedy, must "reasonable danger represented non-citizens, class, practiced them." 399, 1164. Toomer's analytical framework confirmed 458 (1952), applied invalidate scheme used licensing commercial fishermen territorial waters; $5 $50. 9 assuming attempt nonresidents—an Ward9—it clear analysis reaffirmed Mullaney, Clause. violate shows "something noncitizens and, this, burden prove laws 402, 1870 (Brennan, J., dissenting), certainly evil" namely, "uniquely high unemployment." 38.40.020 What evidence major cause employment, residents—especially Eskimo Indian residents—were opportunities;10 10 accepted sufficient compel nevertheless fails muster. works particular present. simply grants regardless status, education, training, Act. highly skilled educated never precisely preferential unskilled, habitually Arctic enrolled job-training program. If ease forcing again, policy present serious questions means more closely tailored aid intended benefit. granting programs permissible, across-the-board grant clearly not. 11 Relying MCready 94 24 248 (1877), contends owned State,11 ownership, itself, takes totally scope sees [does] apply, meant states how permit, all, use distribution ." Brief Appellees n. 14. do agree owns resource, completely removes concerning resource prohibitions some courts, including below, read McCready creating "exception" recently "[i]n recent years controlling things claim 'own' absolute." U.S., 1861. Rather placing concerned factor—although often crucial factor consid red evaluating whether Dispositive though cases discriminates dispositive here. little proprietary much swept ambit Hire; sufficiently attenuated basis extensive set out 38.40.050(a) section provides: 13 chapter apply result easements, leases agreements12 party after 7, 1972; generates take inside control person directly related taking his performed contractor subcontractor supplier subcontractor." (Emphasis added.) 14 extends whatsoever goes suppliers provide services subcontractors who, turn, contractors despite these themselves direct dealings ever foot land.13 gas.14 encompasses, emphasized dissent "employment refineries systems utilizing obtained leases." P.2d, 171. limit consequence absence limitation noteworthy, hardly is; prevents having what surprising effect potentially res dents Alaskans. sum, force virtually businesses benefit way economic ripple decision develop practices believe mandates.15 15 raise Act, mutually reinforcing Clause—a stems origin Fourth Articles Confederation16 shared vision federalism, see 379-380, renders appropriate support our conclusion. 716 (1911), struck down Oklahoma shipment could well-being Nation whole, "Pennsylvania keep coal, Northwest timber, [and] mining minerals," "embargo retaliated embargo" "commerce [would] halted lines." 255, 571. Pen sylvania 1117 (1923), Virginia effectively companies fuel needs transporting established location commerce preserving benefits exclusively principally 147 (1928), went step further; purported serve There, face Louisiana's waters, Louisiana local processing taken marshes prerequisite shipment. "by permitting products thereof shipped sold necessarily releases taken, definitely terminates control." 13, 4. 16 West, establish circumscribes borders, Like Packing, here consumption. Indeed, Pipeline, project appellants' nonresidency working, undertaken expressly accomplish end.17 state-owned disable preferring inform permissibility visits based resource. Here, importance.18 hand, confluence realities points conclusion: scrutiny. Cardozo F. Seelig, Inc., 294 511, 523, 497, 500, 79 1032 (1935), "was framed theory peoples sink swim together, long run prosperity salvation union division."19 17 Reversed. regulations implementing require laid "working craft" terminated: "[T]he retained employee position." 35.011 35.042(4) complete text follows: "In create, protect preserve commissioner incorporate party, lessee comply applicable regard prohibiting practicable, compliance Plan, accordance chapter." Trans Pipeline Rate ases, 631, 2053, 591 (1978); Authorization 87 Stat. 584, U.S.C. 1651 seq. (1970 ed., Supp. V). App. 13-14. vast majority through dispatchment. Deposition David Finrow, Deputy Director Wage Hour Division Labor, 3025 (Sup. Ct. Alaska), pp. 18-19, 48. Section "(1) 'resident' "(A) brief intervals, military service, attendance educational institution, absences good cause, physically year immediately status determined; "(B) maintains residence state; "(C) voting "(D) "(E) attending circumstances intent make permanent residence." cross-appealed portion decision, rests adequate ground. Murdock Memphis, 590, 22 429 (1875). remaining three appellants—Sidney Hicklin, Ruby E. Dorman, Harry Browning—the appear instituted, lived continuously year. 45, 51-52, 126-127. aspect When invalid Court, terminated. always equated citizenship, compare Travis Yale & Towne Mfg. Co., 252 60, 78-79, 40 228, 231-232, 64 460 (1920), Blake McClung, 172 239, 246-247, 165, 432 (1898), Southern R. Mayfield, 340 3-4, 71 2-3, (1950); Douglas Haven 279 377, 386-387, 355, 356, 747 (1929); La Tourette McMaster, 465, 469-470, 39 160, 161-162, 63 362 (1919), now terms "citizen" "essentially interchangeable," 662 8, 1195, 397, (1948). Cf. Edwards C lifornia, 314 62 164, 86 119 (1941). report quoted Memorandum Opposition Plaintiffs' Motion Partial Preliminary Injunction Second Injunction, 58, observed: skill levels in-migrants seasonal workers generally under-employed workers. Their command symptom of, conditions rates, particularly Natives. need tend undereducated, untrained, living areas remote Unless residents—most Eskimos Indians access markets fit increasingly technological economy unless restructuring labor demands, will continue qualifications." Federal Field Committee Development Planning Economic Outlook 311-312 (1971) added; footnote omitted). admitted January 3, 1959, 99% land Government. becoming granted became select approximately 103 million acres lands. Statehood Law, 340, 6, 48 note 21. selection process yet complete, 1959 large portions conveyed fee, title lands minerals below vested 342, 6(i), term "unitization agreement" defined Resources gave following term: "Well, operators field equity field. And word include called 'Plan Operations', sets operated pursuant conservation laws." Guy Martin (Sup.Ct.Alaska), p. 5. According administrative "[s]uppliers hiring chapter, supply lessee, Admin. Code 35.080(a) expressed understanding Act: : " I think cover relationships such anything pad associated road possibly site camp camp." Wagstaff (attorney appellants): "What about docks shipping used?" "I that." Martin, Heim McCall, 239 175, 36 78, 60 206 (1915) Crane York, 195, 85, 218 (1915)—if vitality, Sugarman Dougall, 413 634, 643-645, 93 2842, 2848-2849, 37 853 (1973); C. D. Enterprises, Ltd. Board Education, 412 F.Supp. 1164 (EDNY1976), summarily aff'd sub nom. Lefkowitz Ltd., 1031, 97 721, 50 742 (1977)—do suggest otherwise. cases, York "in public works" projects challenges Treaty 1871 Italy. along Due Process, Protection, Clauses Amendment, listed bases attacking statute, law. consequence, almost aliens. reflected Amendment view passing claim. provided: better perpetuate mutual friendship intercourse different union, inhabitants states, paupers, vagabonds fugitives justice excepted, states; regress enjoy therein duties, impositions, restrictions, respectively; provided, extend prevent removal property, imported owner inhabitant; provided also, imposition, restriction, Journal Continental Congress 908-909 (1777) (Library 1907). authorizing "[t]he early development delivery North Slope domestic growing shortages increasing dependence insecure foreign sources." 1651(a) V) added). 18 enacting Gas Transportation 719 (1976 ed.) declared: shortage contiguous "(2) reserves help significantly shortage; "(3) expeditious viable transportation system interest; "(4) determinations authorize so, select, involve utmost respecting energy policy, international relations, security, environmental impact, therefore should appropriately addressed President addition officers agencies assigned functions pertaining selection, construction, initial operation system." ed.). 17, supra. light occasion address

Category: 1