Legal Document

372 U.S. 10 83 Supreme Court Reporter 671 9 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 547 Frank W. McCULLOCH, Chairman, and Philip Ray Rodgers et al., Members, National Labor Relations Board, Petitioners,v.SOCIEDAD NACIONAL de MARINEROS HONDURAS. Ivan C. McLEOD, Regional Director for the Second Region of LaborRelations Petitioner, versus EMPRESA HONDURENA VAPORES, S.A. NATIONAL MARITIME UNION OF AMERICA, AFL—CIO, Nos. 107, 91, 93. Argued Dec. 11 12, 1962. Decided Feb. 18, 1963. [Syllabus from pages 10-11 intentionally omitted] Dominick L. Manoli, Washington, D.C., petitioners in 91 107. Herman E. Cooper, New York City, petitioner Number 93, Archibald Cox, Sol. Gen., States, as amicus curiae, by special leave Court. Orison S. Marden, respondent Charles Rhyne, D.C. [Amicus Curiae Mr. Justice CLARK delivered opinion 1 These companion cases, involving same facts, question coverage Act, amended, 61 Statutes-at-Large 136, 73 541, 29 Code KF62 § 151 seq. A corporation organized doing business beneficially owns seagoing vessels which make regular sailings between Latin American other ports transporting corporation's products supplies; each is legally owned a foreign subsidiary corporation, flies flag nation, carries crew has contacts with nation its flag. The arising whether Act extends to crews engaged such maritime operation. Board representation proceeding on application Maritime Union held that it does ordered an election. 134 N.L.R.B. 287. vessels' owner sought enjoin Board's holding election, but District Southern denied requested relief. 200 F.Supp. 484. Appeals Circuit reversed, did not apply operations here thus had no power direct 300 Federal Reporter, 2nd 222. N.M.U. intervened proceeding, petitioned writ certiorari (No. 93), 91). Meanwhile, Columbia, bargaining agent crewmen, enjoined members 201 82. We granted three petitions certiorari, 370 915, 82 1559, 8 496, consolidated cases argument.1 2 have concluded jurisdictional provisions do extend foreign-flag ships employing alien seamen. I. 3 America, filed petition 1959 seeking certification under 9(c) 159(c), representative unlicensed seamen employed upon certain Honduran-flag Empresa Hondurena Vapores, S.A., Honduran corporation. was against Fruit Company, Jersey alleged be majority Empresa's stock. hearing shown all stock elects directors, though officer or director are residents Honduras. In turn proof citizens maintains principal office at Boston. Its cultivation, gathering, sale bananas, sugar, cacao tropical produce raised Central South countries sold States. 4 fleet cargo utilizes this trade. portion consists 13 Honduran-registered operated2 time chartered Fruit, were included Union's proceeding. these recruited They (save one Jamaican) claim country their residence home port. required sign shipping articles, wages, terms condition employment, discipline, etc., controlled agreement union, Sociedad Nacional Marineros Under only union whose 'juridic personality' recognized Honduras composed least 90% can represent ships. fulfils neither requirement. Further law recognition compels deal exclusively matters covered contract. current addition provides shop, no-strike-or-lockout provision, sets up wage scales, allowances, maintenance cure provisions, hours work, vacation time, holidays, overtime, accident prevention, details employment well. 5 however, determines call vessels, cargoes sailings, integrating into organization. While voyages most part those intervals purpose taking discharging and, where necessary, renewing ship's articles. II. 6 facts operated single, integrated operation within reasoning joint employer N.M.U.'s petition. Citing own West India & Steamship company opinion, 130 343 (1961), involved substantial contacts, outweighing numerous present. 'commerce' meaning 2(6) Act3 'affected commerce' 2(7),4 meeting requirement (1).5 It therefore election among signed determine they wished N.M.U., Sindicato Maritimo Honduras,6 them. 7 As we indicated, both brought suits Courts prevent Director—Nos. 93—and Columbia Board—No. 93 jurisdiction challenged two grounds: first, review proceedings limited 9(d) 159(d), indirect enforcement order entered 10(c), 160(c); second, indispensable parties action. challenge based adjudicated Sociedad's action members—No. 107 indispensable-parties course issue. party although impact order—the 107—is felt it. That effect canceling seamen, since ballot called Board. therefore, presents better perspective, chosen vehicle our adjudication merits. This obviates passing questions disposition decision precluded reexamining action, merely because made parties. Mitchell Maurer, 293 237, 244, 55 162, 79 L.Ed. 338 (1934). Having examined instance order, hold falls exception fashioned Leedom Kyne, 358 184, 180, L.Ed.id 210 (1958). case judicial intervention permitted 'in excess delegated powers contrary specific prohibition Act.' Id., 188, S.Ct., 183, 210. violated overriding consideration assertion aboard flags aroused vigorous protests governments created international problems Government. Important interests immediate stake. But presence public particularly high scale national interest complexion uniquely compelling justification prompt resolution controversy over power. No remotely comparable urgency purely domestic adversary situation. today taken enlargement Kyne. III. Since agree Congress constitutional working ships, while waters, Exchange, Cranch 116, 143, 287 (1812); Wildenhus's Case, 120 1, 11, 385, 30 565 (1887); Benz Compania Naviera Hidalgo, 353 138, 142, 77 699, 709 (1957), go directly exercised Our point being dispositive case, reach amici curiae. laws arisen often various contexts.7 amendments, evolved test relying relative weight compared contacts. led conclude here, Co., supra, ships' activities affected them Act. Where balancing vessel's resulted finding, apply.8 Six years ago considered Taft-Hartley amendments suit damages 'resulting picketing ship entirely articles vessel (was) temporarily port.' U.S., 139, 700, 709. apply, searching language legislative history concluding latter 'inescapably describes boundaries including workingmen possessions.' 144, 702, 703, Subsequently, Marine Cooks Stewards Panama S.S. 362 365, 80 779, 797 (1960), Norris-LaGuardia 101, deprived ship, specifically limiting court 'to issue injunction circumstances shown.' 372, 784, 797. cannot regarded earlier holding, 'whether * tortious state federal law' either presented decided. Ibid. Indeed, noted curtail regulate courts' differs conduct people labor disputes.' Ibid.; see Comment, 69 Yale L.J. 498, 523—525 (1960). 12 contended nonetheless distinguishable respects. First, there waters operating trade States; note points rely additional necessarily presume validity 'balancing contacts' theory follow suggested procedure ultimate might require inquire internal discipline calling ports. Such activity would raise considerable disturbance field relations addition, orders project courts sanctions ad hoc weighing basis.9 inevitably lead embarrassment affairs infeasible actual practice. question, appears us more basic; namely, written intended any registered Petitioners say may read literally coverage. But, Benz, been unable itself extensive reflects congressional intent. opposite true found pointed Chairman Hartley characterizing 'a bill rights employers.' continue believe if sponsors original conceived now failed translate thoughts describing manned crews.10 Therefore, find basis construction exert management flying flag, long afforded State Department11 also Congress.12 attention well-established rule ordinarily governs ship. See 387, 565; Colombos, International Law Sea (3d rev. ed. 1954), 222—223. possibility discord gainsaid. Especially account concurrent result approval jurisdiction. Sociedad, currently exclusive law, head-on collision should become aggravated fact prohibited representing even absence agent. Thus withdrew intramural fight—a highly unlikely circumstance—questions import remain invite retaliatory nations well 14 charged brings mind admonition Chief Marshall Charming Betsy, 64, 118, 208 (1804), 'an act congress ought never construed violate possible remains *.' conclude, sanction exercise local sovereignty conditions 'delicate must present affirmative intention clearly expressed.' 147, 704, nor able clear expression, without imply, 'any impairment sovereignty, limitation Congress' field. Lauritzen Larsen, 345 571, 578, 921, 926, 97 1254 (1953). fact, just directed Congress, 'alone facilities necessary fairly important policy decision,' 709, arguments rather than us. Cf. 593, 933, 934, 1254. 15 judgment affirmed vacated remanded court, instructions remand dismissal complaint light so ordered. 16 Judgment affirmed; instructions. 17 GOLDBERG took cases. DOUGLAS, concurring.1 18 N Immigration Nationality Decisions supposed organizations related ones absent treaty evinces different policy.2 Cook 288 102, 118— 53 305, 641. my views rejected 709; having lost cause bow inexorable extension some misgivings. practical shift taxpayers alone main burden financing executive assuring availability adequate American-owned merchant use during emergencies. Note, Panlibhon Registration American-Owned Merchant Ships: Government Policy Problem Courts, 60 Col.L.Rev. 711. appeal perfected Circuit, before judgment. Ten Empresa. Three Balboa Shipping Inc., Panamanian Fruit. acts vessels. 152(6): 'The term means trade, traffic, commerce, transportation, communication several Territory Territory, State, through country.' 152(7): 'affecting burdening obstructing commerce free flow tending dispute commerce.' 159(c)(1): 'Whenever shall investigate reasonable affecting exists provide appropriate Section 10(a) 160(a), imposes requirement, empowering 'prevent person engaging unfair practice Sindicato, invited intervene declined so. generally 506—511 (1960); Boczek, Flags Convenience (1962). E.g., Dalzell Towing 137 48, 50 L.R.R.M. 1164 conclusion foreclose contexts, Jones 46 688, pervasive regulation regards torts stated '(p)erhaps venerable universal relevant problem gives cardinal importance flag.' 584, 929, (1953); Romero Terminal Operating 354, 381—384, 468, 368 (1959); op. cit., 7, 178—180. enacted 14(c)(1) (Supp. II) 164(c)(1), granting discretionary decline disputes insubstantial effects, proviso that: '* assert standards prevailing August 1959.' argued exerted crewmen 'standards,' illustrated Peninsular Occidental 1097 (1958), about presumed known. Aside presumably aware argument unconvincing. Nothing indicates intent crews. 'standards' refers minimum dollar amounts established purposes, 14(c) addressed 'no-man's land' Guss Utah 598, 601 (1957). 25 N.L.R.B.Ann.Rep. 18—19 II Legislative History Labor-Management Reporting Disclosure (1959), 1153 1154, 1720; 105 Cong.Rec. 6548—6549, 18134. Department regulations includes regardless ownership, documented 22 Regulations 81.1(f). Article X Treaty Friendship, Commerce Consular Rights 45 2618 (1927), papers 'shall, territorial High Contracting Party seas, deemed flown.' (This applies 33, Incres Workers' Union, 24, 611.) agreed XXII Commerce, Honduras, Convention Liberia October 1938, 54 1751, 1756, grant involved.

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