Legal Document

363 U.S. 144 80 Supreme Court Reporter 1146 4 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1109 George DE VEAU, Appellant,v.John M. BRAISTED, Jr., as District Attorney of Richmond County. Number 71. Argued March 1, 1960. Decided June 6, Mr. Thomas W. Gleason, New York City, for appellant. R. Sullivan, Staten Island, N.Y., appellee. Justice FRANKFURTER announced the judgment and delivered an opinion in which CLARK, WHITTAKER STEWART joined. 1 This is action brought County, York, a declaratory regarding constitutional validity § 8 Waterfront Commission Act 1953 (N.Y.Laws 1953, chapters 882, 883; McK.Unconsol.Laws, 6700aa et seq.), injunction restraining its operation. The section claimed to be conflict with Supremacy Clause Constitution; it also challenged under Due Process Fourteenth Amendment, ex post facto law bill attainder forbidden by Article I, 10, Constitution. 2 formulates detailed scheme governmental supervision employment on waterfront Port York. relevant part specific provision, 8, attack follows: 3 'No person shall solicit, collect or receive any dues, assessments, levies, fines contributions within state from employees registered licensed pursuant provisions this act (pier superintendents, hiring agents, longshoremen port watchmen) behalf labor organization representing such employees, if officer agent has been convicted court States, territory thereof, felony unless he subsequently pardoned therefor governor other appropriate authority jurisdiction conviction was had received certificate good conduct board parole executive remove disability.' compliant upon based makes following allegations. Appellant member, beginning 1950 Secretary-Treasurer, Local 1346, International Longshoremen's Association, offices 'employees to' Act. As Secretary-Treasurer appellant control Local's funds served bargaining representative. In 1920 pleaded guilty charge grand larceny suspended sentence. It not alleged that ever applied pardon 'certificate conduct.' Three years after enactment Act, 1956, President Association informed appellee, who because appellant's prohibited collecting dues so long remained agent. Appellee threatened prosecute anyone while officer. By reason threat whereupon action. 5 appellee moved dismiss complaint, pleadings his favor. motion granted. court, holding meaning sustained section. 11 Misc.2d 661, 166 N.Y.S.2d 751. affirmed Appellate Division Court, A.D.2d 603, 174 596, Appeals N.Y.2d 236, 183 793, 157 North Eastern Reporter, 2nd 165. See Hazelton versus Murray, 21 N.J. 115, 121 Atlantic 1. Since statute State upheld highest against federal attack, case properly here appeal. 361 806, 51, 53.1 6 consideration claims are made requires placed context structure history legislation part. endeavor Jersey cope long-standing evils their joint solution evolved between two embodies only each but way compact them, approved Congress, including establishment bi-state Commission. 7 For presented notoriously serious situation. Urgent need drastic refrom generally recognized. Thorough going investigations mounting abuses were begun 1951 Crime Law Enforcement Council Jersey. After extensive hearings, May published report (4th Report Commission, Leg.Doc.No.70 (1953)) investigation disclosed legislative remedies these thought require. reported skulduggeries largely due domination over gained then conducted. Its practices easily led corruption, many officials participated dishonesties. presence felons influential positions important causative factor appalling thus described Congress submitted consent: '* * conditions employed district depressing degrading labor, resulting lack systematic method hiring, adequate information availability employment, corrupt fact persons conducting frequently criminals lacking moral character integrity neither responsive responsible employers nor uncoerced will majority members organizations employees; result laborers suffer irregularity fear insecurity, inadequate earnings, unduly high accident rate, subjection borrowing at usurious rates interest, exploitation extortion price securing loss respect law; does there destruction dignity segment American direct encouragement crime imposes levy greatly increased costs food, fuel necessaries handled through district. 9 above causes public loaders piers terminals; serve no valid economic purpose operate parasites exacting unwarranted toll flow commerce district, have used force engaged discriminatory coercive desiring employ them; 10 stevedores induce hire carriers freight water officers representatives betray trust organizations.' 67 Statutes-at-Large 541—542. Shortly report, Governor conducted hearings report. result, introduced into passed Legislatures both 1953. N.Y.Laws N.J.Laws 202, 203, N.J.S.A. 32:23—1 seq. 12 Part & N Dec. Immigration Nationality Decisions Acts constitutes what became States. heart legislation. establishes agency Harbor power license, register regulate pier watchmen, license stevedores. entirely prohibits one class loading, found unnecessary particularly infested corruption. Manifestly, main aims keep away waterfront. issue licenses engage occupations, right registered, depends findings character. particular, past convictions certain felonies constitute disabilities occupation, discretion lift disability, except where absolute bar employment. A new procedure provided replacing archaic, 'shape-up.' 13 Under requirement Constitution consent, approved. perfunctory consent. independently investigated gave rise Acts, Subcommittee Senate Committee Interstate Foreign Commerce endorsed embodied Acts. S.Rep.No.653, 83d Cong., 1st Sess., Pages 49—50. compact's submission held Judiciary House Representatives, arguments interested parties compact. Approval recommended Commerce. concluded '(t)he evidence crime, racketeering committee recent (S.Rep.No. 653, supra), clear beyond all question plan proposed eradicate those urgently needed.' H.R.Rep.No.998, Page stated conclusion similar terms. S.Rep.No.583, August Aug. 12, 541, chapter 427. 14 addition compact, enacted, Parts II III supplementary dealing, most part, administration York's responsibility contains substantive furtherance objectives calling enforcement, included These challenged, prohibition loitering enacted provision essentially 8. 32:23—80. Although require enforcement therefore formally giving approval explicitly accord providing clause granting consent '(t)hat hereby given set forth carrying out effectuation said enactments thereof.' 15 authorization fully mindful Not already when but, before Judiciary, specifically urged counsel ground opposition congressional would carry sanction Hearing H.R.6286, H.R. 6321, H.R.6343, S.2383, 136. objection primary reliance here, namely, conflicts existing policy, rejecting light approved, 'enactments 16 With background mind, we come consider pre-empted National Labor Relations §§ 29 Code KF62 151, 157, Annotated KF65 U5 157. argument takes course. Section declares protect 'the exercise workers full freedom association, self-organization, designation own choosing, negotiating terms mutual aid protection.' grants bargain collectively choosing.' do complete choice selection representatives, they choose felon union disabled dues. Thus, said, Hill Florida, 325 538, 65 1373, 89 L.Ed. 1782, must fall. 17 situation operation obviously contradicts preclude functioning together or, least, impede effectiveness measure. deprive opportunity representatives. disable them choosing ex-felons 'good conduct' certificates. some restriction settle pre-emption. doctrine pre-emption present problem physics adjustment interdependence interests interaction powers. Obviously, exclude every policy may restrict group designate 'representatives example, surely convict imprison defendant criminal merely official could 18 misconceive pre-emption—of exclusion regulation otherwise conceded power—to decide mechanically concept free heedless shed our guidance. whether fairly infer incompatible very narrow historically explained restrictions representative Would lively regard find true, real frustration, however dialectically plausible, policy? 19 purpose, scope Congress' relation it, inference incompatibility foundation. imaginatively summon likely reaction legislation, basis ascertaining bars regulation. Here program urgent local unambiguously supported core reform. Had written even subtle casuistry conjure up claim 20 revealed Formal inclusion called since unilateral State. Both time same kind contained compact: effectively disqualifies office, just prior favorable execulative discretion. total represents effort rid elements excluding ex-felons. What sensible suppose approve major effort, expressly done disapprove application who, proved, emerged powerful corrupting influence second none? all. seen, attention effect adjunct raised heeded interfered policy. Finally, great significance approving did remain silent implementing extraordinary unique compacts. Of instances compacts—the process began 1791, Feb. 4, 189, more than hundred compacts since—we instructive occurred connection dealing prevention where, peculiarly nature problem, strongest policies thwarted. 22 sum considerations offend attribute pre-empt decision wise obstructs conclusion. An element persuasive attention, case. Nor true program, canvassed investigations, vindicate legitimate compelling interest combatting infesting particular industry. 23 asks us Labor-Management Reporting Disclosure 1959, 73 519, 401 Title V 1959 officers, defines qualifications officers. Specifically, 504(a) provides '(n)o of, prison term (a felonies) serve—(1) officer, director, trustee, member governing body, business agent, manager, organizer, employee (other performing exclusively clerical custodial duties) five end imprisonment, fiveyear period, imprisoned, (A) citizenship rights, having revoked conviction, restored, (B) Board Parole Department determines person's service capacity referred (1) contrary purposes Act.' itself imposed type employees' seeks impose disqualification view policies. Appellant, however, argues disablement office account variance 504(a), impliedly barred it. Just opposite indicated reflects awareness problems area leave questions inference. When meant provided. Sections 205(c) 403, margin,2 express law, supplementing No 504(a). That alone sufficient deciding pre-empts addition, sections case, affirmatively preserve laws. enumerated 604 Act: 'Nothing construed impair diminish enact enforce general laws (the felonies, exception violations, listed 504(a)).' And make matter conclusive, 603(a) disclaimer regulating responsibilities officials, provides: 'Except contrary, nothing reduce limit shop steward, *.' explicit elaborate treatment can possibly arise 24 Appellant's Amendment depends, must, proposition barring pardoned, certificate, not, circumstances reasonable means achieving aim, eliminating corruption 25 disqualifying exercised favor, well deemed But involved ex-convicts Legislative established minor episode constituted principal influence. '(c)riminals whose records belie suggestion reformed monopolizing controlling unions. regimes gambling, narcotics traffic, loansharking, shortganging, payroll 'phantoms,' 'shakedown' forms—and brutal ultimate murder flourished, often virtually unchecked.' S.Rep. Sess. (1953), 7. 26 findings, effect,3 indeed necessary central devices acting employing others, either absolutely, Commission's conducive none, left unregulated, felt able waterfront's Duly promising record rehabilitation ex-felons, emphasis modern penological efforts, substitute social surgery required gangrenous exposure revealed. 27 Barring employments familiar device insure specified, vital areas. Federal old utilized disqualification. Convicted entitled enlisted mustered Army, Air Force, Secretary authorize exceptions, meritorious cases.' 3253, 8253, 8253. dates 1833. citizen competent petit juries 'convicted punishable imprisonment year (sic) civil rights restored amnesty.' 28 1861, 1861. large statutes disqualify 'from honor, trust, profit States' crimes, involving misconduct. 205, 206, 207, 216, 281, 282, 592, 1901, 2071, 2381, 205—207, 2381. examples see 2387, 2387; 2282, 2282; 1481, 1481. history. See, e.g., Hawker People 170 573, 42 1002. noted quoted earlier opinion, adopted attempt unions elements. done, face wide utilization closely touching remitting removed, cannot say open clean has. guessing indulging airy assumptions deleterious impressive mortifying contributing law. distinguishing feature substitution judicial determination guilt. Lovett, 328 303, 66 1073, 90 1252. Clearly, further implications guilt conviction; manifestly attainder. mark imposition designated punishment acts. unpleasant consequences bear individual conduct, aim punish activity, comes about incident situation, proper profession. doubt justified proof overwhelming sought devise much-needed waterfront, individuals previously felony. Affirmed. 30 HARLAN took 31 BRENNAN demonstrated intent should stand despite displace He believes circumstances, area, deny violate Accordingly, agrees affirmed. 32 DOUGLAS, whom CHIEF JUSTICE BLACK concur, dissenting. 33 nearly comprehend thrust Court's ruling overruled dissenting my Brother Frankfurter. sustain struck down Florida adjudications turn whimsical 34 ineligible solicit unlawful U.S., page 540, 1374. compatible guarantee Act1 reads 35 'Employees form join, assist organizations, concerted activities, collective protection answer supra, 1374, 36 'It apparent selected capacity, fixed Florida. declared Wagner shown first section, encourage bargaining, 'full freedom' choice. To illegal employer interfere with, restrain coerce selecting attached whatsoever respect. Their best judgment, someone else, guide. 'Full pass agent's qualifications. 37 'Section circumscribes possess. requiring 'business agent' prove satisfaction measures standards among things, performs exact function extent limits union's 'agent' representative, substitutes Florida's workers' judgment.' 38 Nothing change, language supra. If foreclosed prescribing fail why foreclose Much Compact2 Jersey, knew Act3 now litigation. naught XV, Compact read: 39 'This designed granted derived rule organize individually, collectively, choosing. Without limiting generality foregoing, strike.' (Italics added.) 40 Yet how maintain (representatives choosing' tell choose? 41 Moreover (1958 ed., Supp. I) 401, shows unmistakably kept unto 2(a) part: 'The finds that, continues Government organize, activities 43 504 'during after' imprisonment. federal, state, obtain plain Act.4 44 robbery, bribery, extortion, embezzlement, larceny, burglary, arson, violation laws, murder, rape, assault kill, inflicts grievous bodily injury, conspiracy commit crimes.' 45 know twofold purpose: first, determine offices; second, 'general laws' remains unimpaired. 46 adopting respected We seem forsake adopt dissent do. me determined VI calls reversal Appeals. Hence reach presented. Appellee's cause moot, since, commencement action, 1346 disbanded came local, fail. On us, is, simply dress. furnish filed title, copy portion thereof containing information, furnished 403 elections greater frequency different manner constitution bylaws, title. remedy title challenging election exclusive.' Hearings 6286, 6346, S. 2383, 88, 97. encouraging protecting Compact, licensing requirements types creation centers, administered regulatory agency, eliminate extortionate regularize casual registration rolls. purport Laws disability. 'As 'labor organization' mean include exists whole concerning grievances, protection; federation congress organized national international though constitutent represent licensed.' State, and, take State.' reference fiduciary created 501 187, 86th 19, 'Individual suing courts common invoking statute.' There like saves office) pre-empting

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