Legal Document

458 U.S. 592 102 Supreme Court Reporter 3260 73 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 995 ALFRED L. SNAPP & SON, INC., et al., Petitionersv.PUERTO RICO, ex rel., Pedro BAREZ, Secretary of Labor and Human Resources. Number 80-1305. Argued April 20, 1982. Decided July 1, Syllabus Respondent Commonwealth Puerto Rico filed suit in Federal District against petitioners, individuals companies engaged the apple industry Virginia, alleging that petitioners had violated related provisions Wagner-Peyser Act Immigration Nationality 1952, implementing regulations. The purposes this statutory regulatory scheme are to give workers, including citizens Rico, a preference over temporary foreign workers for jobs become available within country, ensure working conditions domestic employees not adversely affected when brought in, prohibit discrimination favor workers. It was alleged pursuant federal laws reported 787 job openings farm labor pick 1978 crop, violation such discriminated Rican by failing provide employment qualified migrant farmworkers, subjecting those were employed more burdensome than established improperly terminating Seeking declaratory injunctive relief its capacity as parens patriae, asserted deprived right "to effectively participate benefits Employment Service System which it is part" thereby caused irreparable injury Commonwealth's efforts promote opportunities profitable laborers reduce unemployment Commonwealth." dismissed complaint, holding lacked standing bring action view small number directly involved slight impact upon Rico's general economy loss could have. Appeals reversed. Held: has patriae maintain suit. Pp. 600-610. (a) In order action, State must articulate an interest apart from interests particular private parties, is, be nominal party. express "quasi-sovereign" interest, health well-being—both physical economic—of residents general. Although identifiable group individual residents, indirect effects considered well determining whether sufficiently substantial segment population. A also quasi-sovereign being discriminatorily denied rightful status system—that ensuring population excluded flow participation system. 600-608. (b) Under above principles, allegations Ricans falls well-being citizens. State's extends beyond mere economic commercial interests, includes securing harmful discrimination. This peculiarly strong case simply because fact invidious frequently occurs along ethnic lines. Alternatively, pursue residents' full equal service here. Pp.608-610 4th Cir., 632 Reporter, 2nd 365, affirmed. Thomas Judge Bacas, Washington, D. C., petitioners. Paul Atlantic Lenzini, respondent. Justice WHITE delivered opinion Court. 1 case, seeks their violations law. contends injured economy. question presented here 2 * 3 factual background involves interaction two statutes, Act, 48 Statutes-at-Large 113, 29 Code KF62 § 49 seq., 66 163, amended, 8 1101 seq. (1976 ed. Supp.IV). passed 1933 deal with massive problem resulting Depression. establishes Department "[i]n establishment maintenance national system public offices." 49. agencies, have been approved Labor, authorized nationwide service.1 49g. make "such rules regulations may necessary" accomplish ends Act. 49k. issued authority interstate clearance employers means recruiting nonlocal supply local inadequate. 20 Regulations 602.2(c) (1981). If available, "clearance order" sent through Training Administration other state agencies them opportunity meet request. 4 Some petitioners' obligations under stem insofar regulates admission nonimmigrant aliens into States. latter authorizes only "if unemployed persons capable performing or cannot found country." 1101(a)(15)(H)(ii). Attorney General charged entry would standard, "upon petition importing employer." 1184(c). He determination "after consultation appropriate Government." Ibid. delegated responsibility Commissioner Naturalization, 2.1 (1982), who, turn, relies on initial determinations. 214.2(h)(3) (1982).2 To responsibility, referral 5 Any employer who wants employ agricultural first seek use anticipates need file application office, copy offer. §§ 655.201(a)(1), (b)(1) sufficient time allow agency recruit 60 days prior estimated date start employment. 655.201(c). further include assurances "open all U. S. without regard race, color, origin, sex, religion, open handicaps perform work," will continue until departed employer's place 655.203(c), (d).3 Finally, require "each offer at least same offering, intends offer, afford, workers." 655.202(a). Similarly, impose restrictions not, be, imposed 6 obvious point somewhat complicated framework Rico. First, these given country. Second, extent affected, nor B 7 facts involve harvest east coast. That apparently good year apples, crop. growers orders agencies. Through described above, total 2,318 transmitted August 2, 1978. As 14, marked end 60-day "availability" period, supra, 596, recruited 1,094 remaining subsequently recruited. stated complaint: "Of 992 actually arrived mainland. remainder never left oral advice requesting cancellation flights many defendant refused already arrived. Of orchards, 420 came Virginia orchards. fewer 30 three weeks later, having most rest brief unproductivity." App. 17-18. 9 January 11, 1979, naming defendants numerous Virginia.4 requests forwarded respondent come named growers. counts, complaint various workers,5 Alleging farmworkers "the Commonwealth," sought respect past practices requiring conform relevant statutes future. 10 Petitioners responded motion dismiss, asserting action. Court, 469 F.Supp. 928, held general, agreed contention no maintained circumstances case. particular, relied relatively involved—some out close million—and 11 divided panel Fourth Circuit reversed.6 365 (1980). majority focused too narrowly involved, ignoring indirectly actions. Noting serious dimensions condition economy,7 court "[d]eliberate stigmatize force inferior carry universal sting" "inability government . grant treatment even certainly effect permeates entire island Rico." Id., 370. These "a portion citizenry" sufficient, view, support 12 We granted certiorari determine here, despite involved. 454 1079, 631, 70 612 II 13 Parens literally "parent country."8 roots common-law concept "royal prerogative."9 royal prerogative included take care "are legally unable, account mental incapacity, proceed 1st. nonage: 2. idiocy: 3. lunacy: proper themselves property."10 At fairly early date, American courts recognized concept, but now form legislative prerogative: "This inherent supreme power every State, lodged person legislature [and] beneficent function often necessary exercised humanity, prevention protect themselves." Mormon Church versus States, 136 57, 792, 808, 34 L.Ed. 481 (1890). 14 approach, however, little do developed does stepping represent whatever reason, themselves. fact, if nothing involved—i.e., party real own—then doctrine. See Pennsylvania New Jersey, 426 660, 96 2333, 124 (1976); Oklahoma rel. Johnson Cook, 304 387, 58 954, 82 1416 (1938); Atchison, T. S.F.R. Co., 220 277, 31 434, 55 465 (1911). Rather, assert what characterized judicial construct lend itself simple exact definition. Its nature perhaps best understood comparing kinds then examining historically fall category. 15 Two sovereign easily identified: exercise entities jurisdiction—this create enforce legal code, both civil criminal; second, demand recognition sovereigns—most borders. former regularly issue constitutional litigation. frequent subject litigation, particularly Court: 16 "The original jurisdiction one mighty instruments framers Constitution provided so adequate machinery might peaceful settlement disputes between another State. traditional methods diplomacy war. Suit alternative." Georgia R. 324 439, 450, 65 716, 722, 89 1051 (1945). 17 Not does, based character. nonsovereign distinguished. like associations bound variety proprietary interests. may, example, own land business venture. proprietor, likely similarly situated proprietors. And proprietors times court. reasons, attempt party, sake interest. Interests parties obviously they virtue aiding achievement. situations, 18 Quasi-sovereign stand above: They pursued consist set populace. Formulated broadly, risks vague survive requirements Article III: concrete actual controversy defendant. vagueness can filled turning cases. 19 articulation Louisiana Texas, 176 251, 44 347 (1900). unsuccessfully enjoin quarantine Texas officials, limiting trade port Orleans. labeled Louisiana's litigation went describe distinguishing State: "Inasmuch vindication freedom commerce committed Louisiana, commerce, cause regarded involving any infringement powers special her property, entitled way matters complained affect large." 19, S.Ct., 257.11 21 unsuccessful pursuing line cases followed successfully enjoining nuisances. North Dakota Minnesota, 263 138, 68 342 (1923); Wyoming Colorado, 259 419, 42 552, 999 (1922); York 256 296, 41 492, 937 (1921); Kansas 206 46, 27 655, 51 956 (1907); Tennessee Copper 230, 618, 1038 185 125, 22 46 838 (1902); Missouri Illinois, 180 208, 331, 45 497 (1901). earliest these, discharging sewage pollute Mississippi River Missouri. analogy independent countries delineate interests:12 23 "It true boundary direct property rights belonging complainant But surely conceded that, comfort inhabitants threatened, defend them. admit she remedy negotiation, and, failing, force. Diplomatic war surrendered government, expected devolved duty providing remedy, we think, considering." 241, 343. 24 country articulated 237, 619, air pollution discharge noxious gasses defendant's plant Tennessee. Holmes, writing follows: 25 "[T]he behind titles citizens, earth domain. last word mountains shall stripped forests breathe pure air. pay before utter word, remains final power. 26 ". When union made forcible abatement outside nuisances impossible each, did agree submit done. renounce possibility making reasonable demands ground still quasi -sovereign interests." Both nuisances, instances graphic direct. there examples suits, e.g., supra (flooding); (water pollution); (1902) (diversion water), extend 28 West 262 553, 43 658, 67 1117 (1923), maintaining access natural gas produced Virginia: consumers each constitute Their health, welfare seriously jeopardized threatened withdrawal stream. matter grave concern representative public, affected. merely remote ethical immediate law." 592, 663. nuisance lines specifically together (1945), some railroads conspired fix freight rates manner shippers antitrust laws: "If bill taken true, suffered result conspiracy. [Trade barriers] blight less spread deposit streams. prosperity profoundly diversion waters rivers. complaining wrong which, proven, limits people, shackles industries, retards development, relegates position among sister affected." 450-451, 722-723.13 32 summary law actions leads following conclusions. i.e., case-by-case development—neither exhaustive formal definition definitive list qualifying abstract—certain characteristics far evident. categories. 33 attempted draw proportion challenged behavior. One helpful indication suffices sue could, address lawmaking powers.14 Distinct observance terms participates context actions, Thus, wait Government vindicate removal barriers free commerce. (1923). creating alleviating hardships wish accrue residents. (1945) (federal laws); Maryland 451 725, 101 2114, 576 (1981) (Natural Gas Act). Once again, caution individual, assuring 35 turn satisfy either criteria.15 III 36 presents fundamental contentions. alleges laborers. work 1952 designed secure find therefore, 37 contend stake believe narrow Just long recognize similar much experience political, social, moral damage act evils. unfortunate situation differs regard—not theory fact—simply part spared evil Were pass, doubt seek, courts, violates claims faces now. Regardless possibly limited financial sting." F.2d, 38 1952. Unemployment legitimate object concern. legislation, assure benefit problem. distinguishable protection eliminate shippers, Natural supra. Indeed, operation makes compelling operates residents.16 39 For judgment 40 Affirmed. POWELL took decision BRENNAN, whom MARSHALL, BLACKMUN, STEVENS join, concurring. notes, ante, 603, n. 12, considerations quite different implicated where press claim district courts. Framers, establishing suits "in Party," III, cl. Congress, 1251(a) ed., Supp.IV), conceived narrower category presenting issues range cognizable institutional Court's ability accommodate accentuates restrictive docket. addition, "commenced prosecuted Citizens State," U.S.Const., Amdt. brings circumspect inquiry required Eleventh Amendment circumvented device bringing behalf course, none concerns counsel approach present one, N Dec. Decisions discern basis policy denying very least, should commensurate organizations. organization activities formed. E.g., Havens Realty Corporation Coleman, 455 363, 378-379, 1114, 1124-1125, 71 214 (1982);1 Arlington Heights Metropolitan Housing Dev. Corp., 429 252, 263, 97 555, 562, 50 450 (1977); N.A.A.C.P. Button, 371 415, 428, 83 328, 335, 405 (1963). Gladstone, Realtors Village Bellwood, 441 91, 109-111, 99 1601, 1612-1613, (1979) (standing municipality premised diminished tax base "harms flowing realities racially segregated community"). Cf. Sierra Club Morton, 727, 739, 92 1361, 1368, 636 (1972).2 There compares favorably organizations, municipality, cited above. More significantly, ordinary litigant. entity, assess needs, decide warrant intervention. know nothing—except overriding law—that lead superimpose substantiality legitimacy assertion With mind, join used "State" 49b(b). Resources federal-state "Either certification his designated stating beneficiary wages employed, notice made, attached visa accord alien classification section 101(a)(15)(H)(ii)." 214.2(h)(3)(i) (1982). requirement worker applies depart percent period contract elapsed. 655.203(e) defendants: officers, partners discriminating Jamaican 1978, several seeking injunction Naturalization Service, subordinates, permit recruitment allowed intervene opportunities. harvest, about begin, accomplished speed. preliminary ordering certain enter apples. Frederick County Fruit Growers Assn., Incorporated Marshall, 78-0086(H) (WD Va., Aug. 31, 1978). Jamaicans secured order. Prior issuing injunction, assured obligation priority notwithstanding founded charge failed commitment thus, dissenting judge analysis September 18.5% adults unemployed. Rural stood 23%. " 'Parens patriae,' 'parent country,' refers traditionally role guardian disability." Black's Law Dictionary 1003 (5th 1979). Hawaii Standard Oil 257, 885, 888, 184 (1972); G. Curtis, Checkered Career Patriae, DePaul L.Rev. 895, 896 Black's, Chitty, Prerogatives Crown 155 (1820), quoted 896. Harlan, concurring opinion, rejected idea interests: "I am corporate capacity, forth bill. Nor duty, power, regulate commerce." U.S., 24, 259. Admittedly, discussion discussed below indeed call our instances; apply said, 451-452, 723-724: seems us clear acting though [206 at] 237 [27 619], treat proprietor 'makeweight.' [180 221-224 [21 336-337]; 246 565, 599, 400, 404, 59 1272. Trade barriers, recriminations, intense rivalries plagued colonies. alternative. Page 343; 619. "Oklahoma KF105 F3 [220 (1911)], opposed view. railroad company obtained Congress locate railway Indian Territory later maximum transportation charge. sued cancel grant, decreed cestui que trust, operating pendente lite exaction greater specified. construed control territory became control. invoked injured. adhere decision. one. utilize substitution enforcing plaintiff, complainants. asserts arising gravamen runs shippers." Obviously, "private bills" aid individuals. spoken perspective court; throughout "State's" lower respect: Government. Massachusetts Mellon, 447, 485-486, 597, 600-601, 1078 (1923) ("While circumstances, (Missouri 343, 497), relations field represents patriae"). Here, federally created defendants. represented he objection circumstances. Brief Amicus Curiae Bramkamp, 724, Docket 79-7777 (CA2). interference HOME's "ability counseling services," 379, 1124, Fair 1968. interfere undertaken federal-court members. (1963); National Motor Freight Assn. 372 246, 688, 709 (1963) (per curiam ). Hunt Washington Apple Advertising Comm'n, 432 333, 341-345, 2434, 2440-2442, 53 383 (1977).

Classification Label: 8