Legal Document

475 U.S. 608 106 S.Ct. 1395 89 L.Ed.2d 616 GOLDEN STATE TRANSIT CORPORATION, Petitionerv.CITY OF LOS ANGELES. No. 84-1644. Argued Dec. 4, 1985. Decided April 1, 1986. Syllabus While petitioner's application to renew its franchise operate taxicabs in respondent city of Los Angeles was pending, drivers went on strike. The City Council then conditioned renewal the settlement labor dispute by a certain date. When not settled that date, expired. Petitioner filed suit Federal District Court, alleging, inter alia, city's action pre-empted National Labor Relations Act (NLRA). Court granted summary judgment for city, and Appeals affirmed. Held: conditioning is NLRA. Pp. 613-620. (a) NLRA pre-emption principle precluding state municipal regulation concerning conduct Congress intended be unregulated, Machinists v. Wisconsin Employment Comm'n, 427 132, 96 2548, 49 396 (1976), applicable here. Under this principle, States municipalities are prohibited from imposing restrictions economic weapons self-help, unless such were contemplated Congress. 613-615. (b) Both language legislative history demonstrate contravened congressional intent. 615-619. (c) condition imposed destroyed balance power designed NLRA, frustrated Congress' decision leave open use weapons. 619-620. 754 F.2d 830 (CA 9, 1985), reversed remanded. BLACKMUN, J., delivered opinion which BURGER, C.J., BRENNAN, WHITE, MARSHALL, POWELL, STEVENS, O'CONNOR, JJ., joined. REHNQUIST, dissenting opinion, post, p. 620. Zachary D. Fasman, Washington, D.C., petitioner. John Haggerty, Angeles, Cal., respondent. Justice BLACKMUN Court. 1 refused Golden State Transit Corporation's taxicab after company's We asked decide whether, under preempted (NLRA), 29 U.S.C. § 151 et seq. 2 * In 1980, State, operated Yellow Cab name, applied operating eventually scheduled lapse March 31, 1981. That had first been acquired 1977. On September Board Transportation Commissioners recommended State's largest, with approximately 400 cabs, companies Angeles—along franchises 12 other taxi companies. 3 October, while contract company drivers, represented Local 572 International Brotherhood Teamsters, signed short-term order operations would continue negotiation mediation proceeded. This interim expire at midnight February 10, 1981, day before consider renewals. 4 2, Council's Traffic Committee endorsed renewals Commissioners. Committee's report stated "in compliance all terms conditions their franchise[s]." App. 39. 5 11, struck halting operations. At meeting day, Teamster representatives argued against because pendency dispute. postponed until 17, but, possibly one exception, approved applications. 17 meeting, when union again opposed renewal, voted extend 31 30, but only if expressly found, or 27, extension best interests city. 6 23 held short public hearing whether it should grant limited extension. By time, issue become clearly intertwined. Teamsters any franchise, stating simply lengthen strike keep out work. It preferred see terminated, have seek jobs successor holders. As others spoke, discussion turned there even need Cab, light services performed franchised There comments regarding an excess cabs; policy however, limit number taxis each fleet. Id., 81-82. 7 central discussion. One member charged negotiating unreasonably, id., 71, another accused trying "brea[k] back union." 66. sympathies members who spoke lay union. But rather than defeat outright, reached consensus rejection possibility reopening parties expired following week. Four approach, Assistant Attorney said he informed position. 68. President said: "I find will very difficult get ordinance past (sic) end week." 75. He added: just think kind information put open, so everybody understands it." Ibid. Council, vote 11 defeated motion 31. II 8 United Central California, alleging violated rights due process equal protection. sought declaratory injunctive relief damages. found "undisputed sole basis refusing [Golden State's] drivers," 520 F.Supp. 191, 193 (1981); "threaten[ed] allow Cab's terminate entered into collective bargaining agreement Teamsters," 194; denied essential weapon strength—the ability wait claim, preliminary injunction preserve franchise. Ninth Circuit "ample evidence" record support Court's finding, nevertheless vacated injunction. 686 758, 759, 762 (1982). court reasoned little chance prevailing claim grounds asserted. petition certiorari. 459 1105, 103 729, 74 954 (1983). 9 Following litigation unrelated issues,1 having abandoned protection Pet. Cert. 11a. moved favor. affirmed, holding pre-empted. (1985). felt that, activity regulated peripheral incidental concern policy, traditional nothing suggest nonrenewal "was concerned transportation." 833. Moreover, avoid undue restriction local regulation, "only actions seeking directly alter substantive outcome preempted." Here, attempted dictate agreement, "merely insisted upon resolution as renewal." also rejected claim. 833-834.2 Because our about propriety factual context, we 472 1016, 105 3475, 87 611 (1985).3 III A. 10 Last Term, Metropolitan Life Ins. Co. Massachusetts, 471 724, 2380, 85 728 (1985), noted: "The has articulated two distinct principles." 748, S.Ct., 2394. See Belknap, Inc. Hale, 463 491, 498-499, 3172, 3176-3177, 77 798 first, so-called Garmon pre-emption, San Diego Building Trades Garmon, 359 236, 79 773, 775 (1959), prohibits regulating "activity protects, prohibits, arguably protects prohibits." Dept. Industry Gould Inc., 282, 286, 1057, 1061, 223 (1986). rule preclude interference Board's interpretation active enforcement "integrated scheme regulation" established iId., 289, 1062. U.S., n. 26, 2394, 26 case, concerns second pre-emption.4 (1976). precludes "concerning unregulated." 749, 2394.5 Although labor-management relationship structured areas intentionally left " 'to controlled free play forces.' Machinists, 140, 2553, quoting NLRB Nash-Finch Co., 404 138, 144, 92 373, 377, 30 328 (1971). recognized 'Congress specific come outlaw particular weapons,' 143, 2555, Insurance Agents, 361 477, 498, 80 419, 421, 454 (1960), prohibit forms pressure leaving unregulated represents intentional 'between uncontrolled management further respective interests.' 146, 2556, Morton, 377 252, 258-259, 84 1253, 1257-1258, 280 (1964). therefore additional strikes lockouts, 147, presumably "Whether self-help activities employed employer union, crucial inquiry same: 'the exercise plenary authority curtail entirely frustrate effective implementation Act's processes.' 147-148, 2557, Railroad Trainmen Jacksonville Terminal 394 369, 380, 1109, 1116, 22 344 (1969). B no question permissible tactics. entitled strike—and time coincide decision—in attempt apply State. 496, 428, 430. And justified using withstand obtain concessions 493, 500, 3174, 3177 (employer hire replacements during strike); American Ship NLRB, 380 300, 318, 955, 967, 13 855 (1965) (at impasse may lockout solely bring union). parties' resort legitimate part collective-bargaining process. 2555. thwarted effect positive durational self-help. agree finding amply supported record.6 insistence '[entered] aspects extent countenanced.' 149, 432. 14 condition—by Board—contravenes intent demonstrated history. requires bargain good faith, does require them reach agreement. 8(d), amended, 158(d) (duty faith "does compel either party proposal making concession"); Jones & Laughlin Steel Corp., 301 45, 57 615, 628, 81 L.Ed. 893 (1937) ("The theory opportunity . adjustments agreements itself compel"). 15 leaves largely parties. H.K. Porter 397 99, 103, 90 821, 823, 25 146 (1970). purport set limits negotiations struggle. Instead, provides framework negotiations; "is primarily establishing equitable determining employment." 753, 2396. (Act achieves national "by encouraging practice procedure bargaining"). 16 history, too, makes clear facilitate between Senate Report states: "Disputes wages, hours work, working resolved competitive forces. bill respect regulates supervision wages hours, nor establish form compulsory arbitration." S.Rep. 573, 74th Cong., 1st Sess., (1935). Senator Wagner, sponsor usurp role action. Cong.Rec. 6184 7574 (Sen. Wagner affirming encourages "voluntary industrial disputes"). Protecting course rationale findings predecessor, some relations concluded regulation. 754-758, 2396-2399; New York Tel. Dept., 440 519, 540-544, 99 1328, 1341-1343, 59 553 (1979) (plurality opinion); 547 549, 1344 1345 (opinions concurring result judgment). pointed evidence case.7 18 argues somehow immune nature conduct.S8 contends labor, exercising function issuing franchises. recently similar argument spending decisions subject pre-emption. 287-288, 1061. Cf. 2396-2399. Similarly, transportation area, ensure uninterrupted service prohibiting unionized employees privately owned transit company. Bus Employees Missouri, 374 74, 83 1657, 763 (1963); cf. Board, 340 383, 391-392, 71 359, 363-364, 95 364 (1951). Nor case restrict employer's resist employees' right protected 7, 157, '[r]esort more peaceful measures avail' well employee," "the employees." 317, 966. "[F]ederal law another." 3178. hold, therefore, 19 no-win situation: renewed thus permitting lapse, stands favoring union; employer. favors side other. Our refuse hold cannot way intrudes C 20 "Free cornerstone structure carefully enacted NLRA." 551, 1347 (POWELL, dissenting). Even though sometimes impossible, government step negotiations. 103-104, 823-824. A government, lacks 'introduce standard properly "balanced" power' define 'what sanctions might permitted "ideal" bargaining.' 149-150, 2557-2558, 497-500, 431-433, (1960). read summary-judgment us, Congress, 21 reaching Machinists. error matter law. Whether do decide, petitioner made Appeals' reversed, remanded proceedings consistent opinion. ordered. 24 dissenting. drivers. "[n]othing indicates City's refusal resumed 830, 833 Nonetheless, today holds "a process." Ante, 619. extraordinary breadth illustrated comparing initial cases involving federal Bethlehem 330 767, 67 1026, 91 1234 (1947), addressed scope disputes examining York's Little Act, foremen unionize. status asserted supervise organization Company plant 770, 1028. machinery could least benefits Act. 771, 1029. point; both dealt exactly same they different permissibility organizing difference. 775, 1031. If same, procedures duplicative. 776, different, potentially antagonistic. 27 Six years later, Garner 346 485, 161, 98 228 (1953), presented Taft-Hartley regulations duties correlative those involved engaged cease-and-desist Board. 486-487, 163-164. instead resorting agency, successfully picketing Pennsylvania court. 487, 163. duplication remedies provided remedy agency. 499-501, 163, 170-171. 28 opinions observed furnished guidance pre-empted: "Congress seen fit down most general guides construction does, saying shall exclude action." Steel, supra [330 U.S.], 771 [67 1029]. Management out, much states, refrained telling us how much." Garner, [346 488 [74 164] (footnote omitted). forced divine implication: "[The] exclusion implied legislation although express declaration wanting." 772 32 "We must spell conflicting indications area still permissible." 164]. 33 From acorns these sensible grown mighty oak doctrine, sweeps ever outward totally uninformed directive organized management, vied urging sweep maw regarded body Congresses 34 Today told place weight scales warfare, enabled streets where be. says since ideal weapons, existence deciding ante, legislate provide utility employees, act views sound franchisee settles returns cabs purpose exists. 617-618. Such sweeping generalizations commend themselves neither common sense whatever hypothetical "intent Congress" can discerned remote core 35 intent, presumed expressed. foresee various ways laws rub up operation statutes, multitude expressed pre-empt danger interfere achievement objectives legislation. entire doctrine built series implications face silence, now elaborate traceable expression statements previous what intended. 36 doffs hat comes three items: 37 "[1] 'Disputes arbitration.' 38 "[2] 39 "[3] affirm[ed] 'voluntary disputes.' 617 (citations 40 These bits furnish absolutely reaches today. observations resolve forces, action, voluntary disputes, speak I believe net cast far, dissent. Antitrust claims amended complaint partial claims, 563 169 (CD Cal.1983), 726 1430 (CA9 1984). 1003, 1865, 159 judge concurred majority's analysis otherwise judgment. ground failed motive impact F.2d, 834. moot renewed, faced 1985 onerous task obtaining through bidding. Tr. Oral Arg. 25-26. likely now. oral argument, counsel ready resume operations, Chapter bankruptcy. 5. "[i]ntervening events 'irrevocably eradicated effects alleged violation.' Lyons, 461 95, 101, 1660, 1665, 75 675 (1983), County Davis, 625, 631, 1379, 1383, 642 (1979). conclude, moot. supporting amici, including rely exclusively persuasive. affected fact reviewing Fisher Berkeley, 260, 265, 1045, 1048, 206 acted irrelevant analysis. "[J]udicial necessarily focused regulate, method adopted." 243, 778, (1959). objective factors city—through Attorney—told parties, schedule meetings. 23, four without contradiction pointedly conveyed "bottom line" issue. announced agent, Attorney, revealing policy. evident considered question. deferred 17th, 31st. Only among applicants, subjected conditional 1-month plausible reason repeated extensions giving holder comply requirement. Yet except desire settlement. here innocent third 3177, (1983) (third hired based misrepresentations state-law causes action). Appeals, pre-empted, did merely idea upheld circumstances 3176-3177. interfered process—a NLRA—we exception applies case. 2396-2399,

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