Document: 346 U.S. 485 74 S.Ct. 161 98 L.Ed. 228 GARNER et al.v.TEAMSTERS, CHAUFFEURS AND HELPERS LOCAL UNION NO. 776 (A.F.L.), al. No. 56. Argued Oct. 20, 21, 1953. Decided Dec. 14, Mr. James H. Booser, Harrisburg, Pa., for petitioners. Sidney G. Handler, respondents. Justice JACKSON delivered the opinion of Court. 1 A decision Supreme Court Pennsylvania has deprived petitioners as injunction which a lower equity court State had granted to prohibit certain picketing by respondent labor union.1 The below reviewed national Labor Management Relations Act, 29 U.S.C.A. § 141 seq., and our applicable decisions, concluded: 'In such provisions comprehensive remedy precluded any action way different or additional correction identical grievance.' correctness this ruling is sole issue here. We certiorari.2 2 Petitioners were engaged in trucking business twenty-four employees, four whom members union. operations formed link an interstate railroad. No controversy, dispute strike was progress, at no time objected their employees joining Respondents, however, placed rotating pickets, two time, petitioners' loading platform. None They carried signs reading 'Local Teamsters Union (A.F. L.) wants Employees Central Storage & Transfer Co. join them gain union wages, hours working conditions.' Picketing orderly paceful, but drivers other carriers refused cross picket line and, most interchange freight with unionized concerns, fell much 95%. courts found that respondents' purpose coerce into compelling influencing 3 held conduct violated Act.3 Commonwealth held, quite correctly, we think, grievance within jurisdiction National Board prevent unfair practices. It therefore inferred state remedies precluded. dissenting judge thought federal inadequate, practical matter, because slow administrative processes could not imminent irreparable damage Since decisions have specifically denied power enjoin injury, he should be sustained. 4 before pointed out,4 leaves states, though Congress refrained from telling us how much. must spell out conflicting indications congressional will area still permissible. 5 This instance injurious without express either 'governable it entirely ungoverned.' In cases declined find implied exclusion powers. International Union, U.A.W., A.F. L., Local 232 v. Wisconsin Employment Board, 336 245, 254, 69 516, 521, 93 651. Nor case mass picketing, threatening obstructing streets highways, homes. may exercise 'its historic powers over traditionally local matters public safety order use highways.' Allen-Bradley 1111, United Electrical Radio Machine Workers America 315 740, 749, 62 820, 825, 86 1154. Nothing suggests activity enjoined threatened probable breach state's peace would call extraordinary police measures city authority. there suggestion plea pre-emption frivolous dilatory, decline its once invoked. 6 taken hand particular type controversy where affects commerce. language almost parts statute, forbidden unions exert types coercion on through medium employer.5 necessary appropriate surmise might decided presented body. duty primary lies us. But clear ws vested entertain grievance, own complaint against respondents pending final hearing, seek States District injury while being considered.6 question then whether State, courts, adjudge same extend form relief. 7 did merely lay down substantive rule law enforced tribunal competent apply generally parties. went confide interpretation application rules specific specially constituted prescribed procedure investigation, notice, hearing decision, including judicial relief order. evidently considered centralized administration designed procedures obtain uniform avoid these diversities conflicts likely result variety attitudes toward controversies. Indeed, passed statute year relations Act reciting abuses litigations attributable more usage than rules.7 Amultiplicity tribunals diversity are apt produce incompatible adjudications law. reasoning prohibits intervening cases, except review precludes doing so. Cf. Myers Bethlehem Shipbuilding Corp., 303 41, 58 459, 82 638; Amalgamated Utility Consolidated Edison New York, 309 261, 60 561, 84 738. And reasons excluding bodies assuming control expressly competence also exclude like action. Steel York 330 767, 67 1026, 91 1234. 8 warrant little further discussion persuasively argument enforces only right behalf interest, invoked private party protect right. right, said, so distinct dissimilar occupancy one field does debar continuing conventional other. Support view accumulated itself, legislative history, some expression, professional commentary.8 9 true Act's preamble emphasizes predominance interest rights industrial strife, declares prescribe practices part management inimical general welfare, connection disputes affecting commerce.9 seems contemplate supplement, rather substitute for, existing ones.10 10 Also, Senate Committee, reporting bill, said: 11 'After careful consideration evidence proposals us, committee concluded five organizations agents, commerce, defined Because nature practices, especially jurisdictional disputes, secondary boycotts strikes objectives, convinced made available under adequately welfare inextricably involved disputes. 12 '* * Hence provided acting vindication purely rights, injunctive all shall *'11 13 reminded Court, supra, 265, page 563, recognized distinction saying, 'The agency person group, employee group chosen instrument assure protection described remove obstructions commerce.'12 Various statements cited appear between controversies.13 14 often convenient describe claims invoking handy classification doubtless valid purposes. usually real significance legal consequence each term depend upon context interests distinguish. 15 Statutes called conferred application, laws known affect few selected individuals localities.14 Or mean those asserted criminal civil proceedings.15 Again, body learning conflict elsewhere international applied adjustment interests, states.16 At times, characterized they derived; less sharp significant country, system applies both, Continental practice administers separate deals questions.17 Perhaps country usual differentiation duties process left enforcement initiative courts.18 16 Federal largely developed expanded latter sense. consists substituting place individual suits enforce common-law doctrines evolution, sharply contested, presenting many problems, fields well For example, common shipper's carrier transport his goods reasonable rates, enforceable courts.19 proved too costly sporadic effective became vast enterprise. As superseded Interstate Commerce which, authorized rates award reparations excessive ones.20 Of course, put end litigation determine, first instance, what rate carriage reasonable, although abolish pre-existing rights.21 17 Even if accept regard enforcing category. sought restrain business. appears been neither statutory nor warrants conclusion protects authorities define term. Passed 1937, recites growing inequality bargaining employers 'substantially adversely State' tend create 'industrial strife unrest, frequently endanger health.' Encouragement collective declared 'the policy State.' subsection reads: 'This act deemed prosperity, health, people Commonwealth.'22 18 comparable, level, Act. If protecting public, opposed private, said Legislature. otherwise.23 opinion, analyze detail basis lack jurisdiction, discussed aspect reach merits. category, character, Board. 19 Further, even assume, petitioners, distinctly authorities, follow supplement type. remedies, rights. injure both when brought bear activity, imminent. remembered suit prohibiting picketing. violation cease-and-desist perhaps temporary preserve status quo. violation, dismiss complaint, thereby sanctioning To facting assume always agree continue, State's dissolved soon acts.24 experience gives assurance alternative, indication open arise. 20 detailed prescription restraint specified seem imply free methods sources restraint. condemn ascertained fall prohibitions. Otherwise, implicit served freedom weapon impinge combat obstruction declare purposes prohibits. 21 Whatever serve, unsettled ambiguous introduce constitutional dividing jurisdiction. clearest thing emerge best-considered literature subject terms mutually exclusive, classifications overlap,25 help employed term, chiefly aid construction. Trade Commission Klesner, 280 19, 50 1, 138. 22 Our dealing injunctions concerned existence property recalled consequences urged Frost Corporation Oklahoma, 278 515, 49 235, 73 483; Cavanaugh Looney, 248 453, 39 142, 63 354; News Service v .Associated Press, 215, 68, 211; re Debs, 158 564, 900, 1092; Sawyer, 124 200, 482, 31 402. 23 conclude constitutionally exerted becomes supreme land cannot curtailed, circumvented extended doctrine extent one, former superseded. require official instead initiative, ordinarily excluded. Congress, enacting legislation here, can save alternative supplemental terms, implication, sees fit. 24 On allegations, summoned justify conduct. think State. 25 Judgment affirmed. 373 Pa. 94 A.2d 893, 898. court's reported Dauph. 339. 345 991, 1136. charged complaint. However, reasoned attempting force violate 6(1)(c) provides 'It employer *. (c) By discrimination hire tenure employment, condition employment encourage discourage membership organization *.' Pa.Laws 1172, Purdon's Pa.Stat.Ann., 1952, Tit. 43, 211.6. E.g., Algoma Ploywood Veneer 301, 313, 584, 590, 691; 773, 1029, 1030, 1234; Hill Florida ex rel. Watson, 325 538, 539, 65 1373, 1374, 89 1782 (and see concurring opinions, pp. 544, 547, 1376, 1377 respectively); 748—751, 825—826, agents—* (2) cause attempt discriminate (a)(3) respect terminated ground failure tender periodic dues initiation fees uniformly required acquiring retaining 8(b), 61 Stat. 141, U.S.C. (Supp. III) 158(b), 158(b). Subsection reads part: employer—* (3) 140, 158(a), 158(a). power, issuance (b) charging engaging practice, petition district (including Columbia), wherein alleged occurred resides transacts business, restraining Upon filing notice thereof person, thereupon grant deems just proper.' 10(j), 149, 160(j), 160(j). Temporary injunc- tions following complaints violations 8(b)(2), Brown Marine Cooks Stewards, D.C., 104 F.Supp. 685; Douds Anheuser-Busch, Inc., 99 474; Jaffee Newspaper Mail Deliverers' Vicinity, 97 443; Penello Mine America, 88 935, sections Curry, Behalf de Trabajadores la Industria, Del Cemento Ponce, 707; Madden 79 616; 294, Brotherhood Teamsters, Chauffeurs, Warehousemen Helpers 75 414. See Denver Building Construction Trades Council, 341 675, 682, 71 943, 948, 95 1284; Herzog Parsons, U.S.App.D.C. 198, 203, 181 F.2d 781, 786. 155, V) 178, granting similar Attorney General lockouts imperil health safety. '(a) Under prevailing economic conditions governmental authority owners organize corporate forms ownership association, unorganized worker commonly helpless actual liberty contract labor, acceptable wherefore, associate fellows, full self-organization, desig- nation representatives choosing negotiate interference, agents designation self-organization concerted activities mutual protection. '(b) Equity permits complaining sweeping preceded conditioned responding parties after based written affidavits along wholly examination, confrontation cross-examination witnesses peculiarly abuse that— '(1) quo maintained, necessarily altered injunction. '(2) Determination issues veracity probability fact opposing contradictory circumstances untrustworthy oral examination grave error. '(3) Error issuing party; '(4) Delay incident normal course appellate makes ultimate error unavailing case.' 1198, Pa.Stat.Ann.1952, 206b. Rose, Power Grant Relief, Va.L.Rev. 765 (1953); Hall, Taft-Hartley Regulation, Journal Public Law (1952). 'Industrial interferes flow commerce production articles commodities avoided substantially minimized employers, recognize another's legitimate other, above engage acts jeopardize safety, interest. promote provide peaceful preventing interference whose proscribe effect commerce.' 1(b), 136, U.S.C.(Supp. 141(b), 141(b). affected means prevention established agreement, law, otherwise 10(a), 146, 160(a), 160(a). S.Rep.No.105, 80th Cong., 1st Sess. 8. Republic Corp. 311 7, 10, 77, 79, 85 6: penalties fines indemnity community losses distinguished compensation employees.' See, e.g., Brief Montgomery Council Ledbetter Erection Co., 344 196. Unity Burrage, 103 447, 26 405. Blackstone noted bound take judicially officio' laws, contrasted laws. Commentaries (15th ed. 1809), 85. Acts classified publication according nature. Some constitutions make special bills. Cloe Marcus, Special Legislation, Ky.L.J. 351 (1936), tabulation provisions. difference particularly striking divorce, formerly beset Maynard Hill, 125 190, 723, 654. Many now divorce. Ala.Const., Art. 4, 104(1); Wyo.Const.Art. 3, 27. Holland, Elements Jurisprudence (6th 1893), 112, radical Rights, consequently departments Law.' Goodrich, Conflict Laws (3d 1949), §§ 5; Cheshire, Private (4th 1952), 16. 'Since work Dicey, contrast systems, distinguish Courts each, Anglo-American system, knows familiar lawyers. doubt gave expression profound attitude groups systems towards individual. commonplace today difference, eloquently stated substance essentially matter past, partly true. There Britain States, yet given definite done countries. Such British Broadcasting Corporation, Agricultural Marketing Boards or, Commission, Labour hundreds others are, fact, governed Continent come *' Friedmann, Legal Theory (2d 345. Pollock, First Book 1929), 98, illuminating discussion. He states 'Rules remained stage probably remote times: say, judgment justice, request citizens: who desire ask it. Accordingly human affairs predominate, whole sufficient vigour, moreover harm obvious caring assert cases. making up Constitution; governing armed forces Administration departments; regulating trades undertakings safety; short enterprise active enterprises men. Pp. 96—97. Kent, (14th 1896), *598—599; Story, Bailments 1843), 508, 549; Lough Outerbridge, 143 N.Y. 271, 38 N.E. 292, L.R.A. 674; Chicago, B. Q.R. Jones, 149 Ill. 361, 374, 37 247, 250, 141; Munn Illinois, 113, 133—134, 77. 11, 15, 16, 383, 384; 216, 558, amended, 316, 316. Texas P.R. Abilene Cotton Oil 204 426, 443—444, 27 350, 356—357, 51 553; Lewis-Sim-as-Jones Southern Pacific 283 654, 661, 592, 595, 1333. 2(a), (c), (e), 1169, 1170, 211.2(a), (e). factual context: act, due determined unlawful employer, wages effort secured physically mentally fitted perform. followed fulfilled suffer.' W. T. Retail 134, 347 224, 226, 901. Operating Engineers, Locals 542, 542—a, 542—b William D. Baker 100 illustrates potentialities conflict. disagreement arose several contracting associations agreement. agreement contained no-strike provision. union, contending end, strike. association obtained striking. prayed decree. that, exclusive Whether correct (for critical comment Note, 48 Northwestern U.L.Rev. 383 (1953), exemplifies difficulty inherent recognizing field. n. 18, supra 99, says, seen, therefore, topics exclusive. contrary overlaps large proportion events capable having consequences.'

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