Legal Document

340 U.S. 383 71 Supreme Court Reporter 359 95 L.Ed. 364 AMALGAMATED ASS'N OF STREET, ELECTRIC RAILWAY & MOTOR COACH EMPLOYEES AMERICA, DIVISION 998, et al.v.WISCONSIN EMPLOYMENT RELATIONS BOARD. UNITED GAS, COKE CHEMICAL WORKERS CIO, al. versus WISCONSIN Nos. 329, 438. Argued Jan. 9, 10, 1951. Decided Feb. 26, [Syllabus from pages 383-384 intentionally omitted] Mr. David Previant, Milwaukee, Wis., for Amalgamated Association of Street, Electric Ry. and Motor Coach Employees America, Div. 998. Arthur Judge Goldberg, Washington, D.C., United Gas, Coke Chemical Workers CIO. Gilbert, Hardgrove, appellee Milwaukee Gas Light company Martin R. Paulsen, Wilwaukee, respondent Elec. Transport Malcolm Riley, Eau Claire, Beatrice Lampert, Madison, Wisconsin Employment Relations Board. Chief Justice VINSON delivered the opinion Court. 1 In these cases, constitutionality labor legislation State known as Public Utility Anti-Strike Law,1 has been drawn in question. 2 Petitioners Number 329 are union its officers who represent employees Railway Company Wisconsin, collective-bargaining purposes.2 For many years, transit workers entered into agreements with without resorting to strike. 1948, however, collective agreement was terminated when parties were unable agree on wages, hours working conditions workers' called a strike enforce demands. The Board secured immediately an ex parte order Circuit restraining and, compliance that order, postponed Thereafter, same judgment under which petitioners 'perpetually restrained enjoined calling * would cause interruption passenger service (transit company).' affirmed judgment, 1950, 257 Wis. 43, 42 North Western Reporter, 2nd Series 471, we granted certiorari, 874, 124, review important questions decided below. 3 438 subsidiary, Solvay Company, both pursuant certification National Labor Board.3 1949, between gas upon failure further bargaining conciliation resolve dispute, left their jobs. Respondent obtained forthwith requiring 'absolutely desist refrain (or) going out (gas company)' ordering 'take immediate steps notify all employes resume forthwith.' Although settled soon thereafter, found had not obeyed contempt, imposing fines $250 each petitioner. Co., 258 1, 44 547, 903, 283, since this case raises substantial those before 329. 4 injunctions issued complaint Board, charged by statute enforcement Law. That act vests state circuit courts jurisdiction enjoin violations Act, Wis.Stat.1949, § 111.63, substantive provision involved cases providing follows: 'It shall be unlawful any group public utility employer acting concert call or go strike, work stoppage slowdown essential service; it also lock his such action person persons instigate, induce, conspire with, encourage other engage lockout service. Any violation section member officer employer, individual, constitute misdemeanor.' 111.62.4 5 This is part statutory pattern designed become effective whenever results 'impasse stalemate' likely supply 'essential service,' 111.50, including water, heat, gas, electric power, transportation communications. Id., 111.51. Whenever 'impasse' occurs, empowered appoint conciliator meet effort dispute. 111.54. event conciliation, directed select arbitrators 'hear determine' 111.55. establishes standards govern decision arbitrators, id., §§ 111.57—111.58, provides final binding parties, 111.59, subject judicial review, 111.60. summary, substitutes arbitration impasse reached process. And, insure conformity scheme, denies right 6 upholding stressed importance welfare plenary power accustomed exercise over enterprises. Petitioners' claim law conflicts federal enacted Commerce Clause Constitution (Art. I, 8) overruled, petitioners' contentions Act violates Due Process Fourteenth Amendment Thirteenth Amendment. Respondents controvert apart res judicata discussed 411, 375, raise no grounds support judgments We deal only question conflicting have issue dispositive cases. 7 First. recently examined extent Congress regulated peaceful strikes higher wages industries affecting commerce. International Union Auto O'Brien, 339 454, 70 781, 94 978. noted Congress, 1935,5 amended Management 1947,6 expressly safeguarded 'right concerted activities purpose mutual aid protection,'7 'e.g., strike.'8 listed qualifications regulations itself imposed guarantee requirements notice given prior termination contract,9 prohibitions certain objectives declared Congress,10 special procedures might create national emergencies.11 Upon legislative provisions, held, at page 457, 783: 8 'None sections can read permitting concurrent regulation wages. occupied field closed regulation. Plankinton Packing 338 953, 491; LaCrosse Telephone Corporation 336 18, 69 379 (93 463); Bethlehem Steel New York 1947, 330 767, 67 1026, 91 1234; Hill Florida rel. Watson, 1945, 325 538, 65 1373, 89 1782.'12 9 Second. court sought distinguish supra, ground industry Michigan applied strike-vote provisions manufacturing organization rather than local utility. drew distinction but, instead, saw fit regulate relations full constitutional Clause, Fainblatt, 1939, 306 601, 607, 307 609, 59 668, 672, 83 1014. Ever fully argued Consolidated Edison 1938, 305 197, 206, 126, clear legislation, encompassing does 'affecting commerce,' applies privately owned whose business activites carried wholly within single state. appeal uniformly held enterprises similar more interstate commerce companies us law.13 No utilities organizations administration Federal Act,14 separate treatment urged suggested differentiation rejected.15 Creation classification 10 Third. As noted, 1947 emergencies.16 rely showing congressional intent carve 'emergency' disputes pointing fact acted respect 'national emergencies,' respondents ask hold intended, silence, leave states free 'local emergency' disputes. However, but comprehensive code settlement public-utility employers employees.17 Far being limited scope,18 application require existence 'emergency.'19 event, imposition restrictions far supporting shows 782. And where, here, seeks deny entirely federally guaranteed restricted emergencies, however serious, manifest conflict law. 11 Like majority considered proposal denied, together substitution compulsory 'public national, 1947.20 proposal, closely resembling rejected inconsistent policy covered because desire adopt it.21 Michigan, impose now abrogate altogether insofar concerned.22 Such must yield protected rights. 12 'If begin utilities, will said coal steel just utilities. N Dec. Immigration Nationality Decisions do know where could draw line. So bill concerned, proceeded theory there peace based bargaining. done nothing outlaw basic hours, after proper opportunity mediation. 13 'We did feel should put law, machinery, ultimate resort arbitration, seizure, action. interfere whole process If remedy available routine remedy, always pressure whichever party thinks receive better through bargaining, back It make bona-fide attempt settle if may provided.' 14 See S.Rep.No. 105, 80th Cong., 1st Sess. 13—14, 28 (1947). 15 Fourth. Much argument generated considerably broader legal presented. 16 companies, amici stress community urge predominately problems best governmental authority solution. On hand, amicus, argue prohibition reliance solution destroys bulwark policy. This, said, leads unrest disruption experienced system accompanied very nature debatable raised convinces they cannot properly resolved our view, determination adversely respondents. 17 When cognizant well aware balancing state-federal relationships 1935 raised. history refers 1234, handling presented case, demonstrated knew how cede states.23 'preempts covers meaning concerned'24 ability spell particularity areas desired operative.25 Court, function, take valid declare invalid impinges legislation. 18 Fifth. sufficient forbidding forbidden rights Act. addition, difficult visualize situations cross-purposes policies But content ourselves citation examples direct records us. workers, agreed continue became imminent, whereas insisted invocation features requires until reached, Wis.Stat. 111.52, bargain collectively,26 even though actually progress. Mackay Radio Telegraph 304 333, 345, 58 904, 910, 82 1381. Further, able avoid demands accordance 111.58, ruled matter assigning shifts 'infringe(s) manage business'. Yet scheduling shift assignment appropriate subjects administered Woodside Cotton Mills 21 N.L.R.B. 42, 54—55 (1940); American insurance 185 (1950), cited therein. 19 passed powers supreme land Article VI Constitution. Having Law enforcing stand. 20 Reversed. FRANKFURTER, whom BURTON MINTON join, dissenting. 22 Wisdonsin provided if: 23 (1) exerting 'every reasonable disputes' 'state stalemate', (2) settled, 'likely service.' 111.50—111.65.1 24 us, prevent halt two companies.2 One furnishes heating illuminating general City County Milwaukee. bus streetcar area. Both give Taft-Hartley 'affect commerce.' Compare 126; La Crosse 379, 93 463. whether statute, so applied, TaftHartley 61 Statutes-at-Large 136, 29 States Code KF62 (Supp. III) 141 seq., Annotated KF65 U5 seq. 25 A presents familiar problem. eight occasions predecessor, Wagner 49 449, 151 collided displace it. sustained laws dealt mass picketing intermittent stoppages. Allen-Bradley Local 315 740, 62 820, 86 1154; Union, Automobile 245, 516, 651. upheld required two-thirds vote maintenance-of-membership clause agreements. Algoma Plywood 301, 584, 691. 26 five consistently stand Florida, 1782, interfered freedom selecting agents act. recognized foremen's contrary established units determined acts. Winconsin 491, superimposed outlawry conduct 'unfair practice' own finding unfairness. 978, covering permitted different time required, unlike authorization Also, portion unit, already act, located Michigan. 27 'The principle thoroughly police superseded action, repugnance 'direct positive' acts 'be reconciled together." Hughes Kelly 302 87, 92, 3. decisions canvassed precluded enacting merely has—to use conventional phrase—entered field. equally boundaries terrain abstract projection. Emphasis opinions varied, guiding still set first series relevant cases: 'the regulation, construed focused *.' 751, 826. adjustment thus interests attained uncritical generalities rhetorical phrases unnourished particularities specific situations. At outset not, terms, problem strikes, brought control. settling statement Senator Taft, Cong.Rec. 3835. indicate, wish control Government. regard elements makes explicit desires remove orbit matters intimate concern locality continued maintenance services decent life modern rests. real os terms fairly attributable together. met concerning 'right' Section provides: 'Employees protection, 'Nothing except specifically herein, either impede diminish way affect limitations right.' word 'one most deceptive pitfalls.' Holmes, Bank Trust Bank, 256 350, 358, 41 499, 500, 983. several times invitation decide basis absolute prohibit Southern Steamship 316 31, 886, 1246, mutiny statute. 'sit-down' Sands Mfg. 332, 508, 682; Fansteel Corp., U.,.s. 240, 490, 627. May otherwise aimed preventing breakdown service? 30 'Public employer' defined mean 'engaged furnishing light, communication traditionally subjected not. Wilson New, 243 349, 37 298, 302, 755. Conspiracy Protection Property 38 39 Victoria, chapter 86, par. (1875). range generally greatly extended historic amenability rooted deep. Wolff Industrial Relations, 262 522, 543, 43 630, 635, 1103. clearly involves needs evoke instinctively government. ignore economic facts construing comes area interacting To derive language regulating strip words limits inherent context. 31 drastic limitation supra. emergency disputes—those involving obvious services—it prospect tend one reluctant reach Kennedy, Handling Emergency Disputes, Proceedings Second Annual Meeting Research Assn. 14, 21—22 (1949). 32 hands-of affirmative indication force Title II mediation procedures, cooling-off period, ballot offer 'an entire thereof' necessary peril health safety'. 206. apparently expected additional necessary.3 nationwide significance. They 1950: twice industry-wide coast-wide maritime negotiations; three bituminous-coal arising meat-packing industry, telephone atomic-energy installation Oak Ridge. Dept. Labor, Bureau Statistics, Fact-Finding Boards Inquiry (1950) 2. 33 nation-wide dispute creating emergency.4 careful consideration meeting emergencies provide Nation imply paralysis power. Rather, retain protect interest economically practically confined State. impute helpless intervention emergencies. 34 Only arguments conflict.5 111.58 Wisconson prohibits arbitrator making award 'which infringe 416, 373, Board's refusing dealing composition shifts. construction brings position issue. Insurance 185; Mills, 54—55. term deals scope failed. relieve duty nor differs 35 Whether chose wisely adopting taking measure forceful decide. Seizure martial deleterious enforced raising contentious issues. choice demand what chosen commend private notions wise emergency, indicate some subordinated public. find 36 me definitively answered thirty years ago Brandeis: 'Because come conclusion common (the Clayton 52) industrial combatants push struggle justification self-interest, understood attaching moral sanction right. All derived purposes society exist; above rises community. developed engaged danger judges determine exist, function permissible contest duties new situation legislature which, while limiting individual aggression defense, substitute processes justice primitive method trial combat.' Duplex Deering, 254 443, 488, 172, 184, 111.50 exercised conducting so-called shop election 9(e)(1) 159(e)(1), 159(e)(1). presently investigating charge filed alleged unfair practice committed controversy arose. 50 N.L.R.B., 809, amended, 52 1213 (1943). conducted note, 2, supervisory company. proceeding arose Under 111.64, following applicable provision: subchapter employe render consent, illegal quitting withdrawal place employment unless others. compel remain consent. forbid concert, employes, then, 'concerted' employees. U.S.C acts, 157, 157. 2(3) 13, 152(3), 163, 163; S.Rep. 573, 74th 8—9 (1935); House Conf.Rep. 510, 'Declaration Policy' stated: promote flow commerce, prescribe legitimate employeesand 141(b), 141(b). 'Findings Policies' provides, inter alia: hereby eliminate causes obstructions mitigate occurred encouraging procedure protecting association, self-organization, designation representatives choosing, negotiating protection.' 151, 151. H.R.Rep. 8(d) 158(d), 158(d). complied taken. 8(b)(4) 158(b)(4), 158(b)(4). 10(j, l), 160(j, empowering directing obtain injunctive relief against strikes. Sections 206—210 176—180, 176—180. Our followed shortly reversal, per curiam, had, approval ordered reinstatement employee discharged join union, contract. guarantees self-organization activities', least absence contractual arrangement individual. Since employees, exclusion O'Brien show 7. E.g., Baltimore Transit Cir., 1944, 140 51, 53—54 (local company); Pueblo Fuel 1941, 118 304, 305—306 Massachusetts 120 455, 456—457; Gulf Service 116 852, 854; Consumers Power 1940, 113 38, 39—41; Colorado 111 539, 541—543 companies). Virginia 115 414, 415—416, 314 469, 476, 344, 347, 348. applicability rarely litigated today. 438, conceded 800, 810 proposed coverage exclude productive extend across lines. H.R. 1095, 2(b). appreciation coverage. 40, (1947); H.R.Conf.Rep. 60 suggestion granting intended employed. El Paso 213, 240 (1939), 119 581. recent policy, that, view 'important impact 'all cases' type 623, L.R.R.Man. 1547 (1950). 3835 (1947), quoted note 21, infra. Case Bill, 4908, 79th 2d (1946), Houses during session preceding enactment techniques, temporary denial connection 'labor dispute(s) rates fixed agency.' 6(a). veto message, President criticized accorded 92 6674, 6676, (1946). override again 16, infra, finally Congress. These appointment board inquiry report An injunction maintain status quo period pending exhaustion remedies authorized version 3020, Sess., contained threatened, advisory recommend settlement. plan 2861, approved H.R.Rep.No.235, favor Senate safety' imperiled then sifted recommendations. H.R.Conf.Rep.No.510, 63—64 threaten service'. 111.50. Communications C.I.O., 23, Wis.E.R.B. Decision 2358—C (arbitrators appointed phase threatened spring 1950). 'emergencies,' invoked avert clerical Clerical Wis.E.R.B.Case 2273 PU—9 E.R.B., 253 844, refused aside appointing appealable. 17; 34; 68; 75; 76, addition ban circumstances, 6(a) operation anti-strike Representative A1007—A1009 proposals Session specified instances. 90 reasoning behind rejection stated Taft follows, 3835—3836 (1947): 'Basically, believe committee feels, almost unanimously, rest economy certainly proposition. means recognize improvement conditions, contract expired neither side bound spite inconvenience, perhaps danger, people result long run, abused. past few point threat definance States. modified. think modified involve prices, conditions. Government fix men another year come, see end escape economy. prices; fixes control, complete socialization 'I strongly possible attempts man. Can constitutionally? say States, 'You Government'? step utilities; suppose stronger there, might, suppose, public-Utility workers. hesitated embark course, once fixing wage price fixing. popular thing do. Today seem working, human express desired. 188, agencies participate 10(a) 160(a), 160(a). proviso authorizes cession consistent insures thwarted predominently applies. minority views report, pt. agreeing feature H.R.Rep.No. 8(d), 14(b), 202(c) 203(b), 164(b), 172(c), 173(b), direction role play 2(2, 3) 152(2, 3), 'any political subdivision thereof'. 8(a)(5), (b)(3); 158(a)(5), (b)(3), (b)(3). terms: facilitate prompt, citizens maintaining stalemate thereof effect disputes, damage injury concerned creates justifying adequately protects welfare.' 111.52 imposes collectively. fails, procedure. days, submitted arbitration. Existing maintained 111.56. Standards forth 111.57, he 'would business' internal affairs union.' 111.58. arbitrator's becomes 'together themselves reached'. 111.59. changed 'mutual consent parties', review. 'acting concert' 111.62. instituted 111.64 refusal made unlawful, 'to consent.' solely apply arbitral scheme unnecessary consider constitutionally 844. uphold particular preliminary hence, principles administrative reviewable. 15: 'In instances sufficiently felt (the) 80-day (during enjoined) bring about controversy. Should expectation fail, laying whatever seems preserve safety crisis.' reference 210 discharged, submit proceedings, findings taken recommendations action.' meant cover 14: 'While mediation, repercussions stoppages occasionally grave imperiled. example defiance Mine compelled Attorney General courts. believes character armed power.' There course her applied. task conjure up difficulties never arise. Allen Bradley 746, 824, 1154. takes account facilities, officials attempting mediate minor parties.' 203(b). 111.56 existing days expiration date contract, later. 8(d)(4). restriction assure effectiveness statutes. objections incompatibility text. Two hypothetical present 'exert every effort' claimed concessions process—something says second 111.57 appears negotiations underway amend amendment effect. answer broad separability 111.65 repeat 1154: theoretical concrete issues actual Nor assume advance construe Congress.'

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