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419 U.S. 215 95 Supreme Court Reporter 409 42 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 399 AMERICAN RADIO ASSOCIATION, AFL-CIO, et al., Petitioners,v.MOBILE STEAMSHIP INC., al. Number 73-748. Argued Oct. 21, 1974. Decided Dec. 17, Syllabus Respondents, an association representing stevedoring companies, and a shipper, sought injunctive relief in Alabama state court against picketing of foreign-flag ship by petitioner maritime unions which were protesting as substandard the wages paid foreign crewmen who manned ship. The trial issued temporary injunction, affirmed. Petitioners contend that courts without jurisdiction to grant relief, issuance injunction interfered with their free speech rights. Held: 1. was not pre-empted National Labor Relations Act (NLRA). Windward Shipping versus American Radio Assn., 415 104, 94 959, 39 195. Pp. 219-228. (a) Even if there is dispute between petitioners respondents independent petitioners' ships, it subject state-court disposition unless satisfies jurisdictional requirements NLRA. Pacific KF135 P2 221. (b) fact court's invoked stevedores shippers, rather than foreign-ship owners Windward, supra, does convent into 'commerce' within meaning NLRA's requirements, activities plainly such Windward. 221-225. (c) Neither shipper seeking his products, contracted unload vessel's cargo, nor longshoremen employed do unloading, were, for purposes Board over directly affecting operations vessels, 'engaged or commerce' purview NLRA, therefore did even 'arguably' constitute unfair labor practice under § 8(b)(4) Act, secondary boycott provision. 225-228. 2. courts' action enjoining violated no right conferred upon First Fourteenth Amendments, because well 'broad field State, enforcing some public policy, whether its criminal civil law, announced legislature courts, could constitutionally enjoin peaceful aimed at preventing effectuation policy,' International Brotherhood Teamsters, Local 695, A.F.L. Vogt, Inc., 354 284, 293, 77 1166, 1170, 1 1347. 228-232. Since here prohibited purpose, entitled protection on ground place where occurred constituted forum presentation lawful communications. Amalgamated Food Employees Union 590 Logan Valley Plaza, 391 308, 88 1601, 20 603, distinguished. 230. supported 'valid policy.' In context stated policy be prevention 'wrongful interference' respondents' businesses, term obviously refers third parties' efforts induce employees cease performing services essential conduct employer's business, third-party participation being critical categorized interference.' 230-231. Petitioners' contention record fails support conclusion substantial question interference,' merit, since evidence sufficient make out cause created law tried matter decision those courts. 231-232. 291 Ala. 201, 279 So.2d 467, Howard Schulman, New York City, petitioners. Frank McRight, Mobile, Ala., respondent Mobile Steamship Association, Incorporated Alex Federal KF105 F3 Lankford, III, Robert E. Malone. Mr. Justice REHNQUIST delivered opinion Court. are six appeared before this (London) Limited 195 (1974). We granted petition certiorari Alabama, 947, 1468, 562, order review contentions case distinguishable from pre-emption issue, upheld had infringed rights guaranteed them Amendments Constitution.1 2 As arises designated publicize adverse impact seamen carriers employ substantially below seamen. during 1971, but took directed Aqua Glory, Liberian registry. pickets displayed same signs distributed literature they Windward,2 instructions. 3 each also similar results. we observed: 'The picketing, although neither obstructive violent, effect. Longshoremen other port workers refused cross picket lines load vessels.' U.S., 108, S.Ct., 962. Here, affirming Circuit Court, said Mobile: 4 'Posting pickets, done dock adjacent brought about immediate refusal stevedore locals Longshoremen's Association line appellant unions. About eighty percent cargo ships enter Port alien crews.'3 5 * It apparent facts already Houston all practical identical. refer 'involving union identical national part Committee's program . ..' Brief 7 n. But plaintiffs picketed ship, instead companies seek service ship4 wishes have crops loaded it, preemption should answered differently Windward.5 reason charged provision 8(b)(4), 49 Statutes-at-Large 452, amended, 29 Code KF62 158(b)(4), arguably section, exclusive remedy Board. Cf. San Diego Building Trades Council, Millmen's Union, 2020 Garmon 359 236, 79 773, 775 (1959). 6 position respect contrasts markedly posture litigation. There petitioners, urged 'peaceful truthful primary non trespass private property, benefits paid,' 'actually protected Act.' Respondents 72-1061, O.T.1973, Page 15. They 'the seamen's bar constitutes [sic] typical sanctioned Garner [v. Teamsters 346 485 [74 161, 98 L.Ed. 228 (1953), Ariadne Co., 397 195, 202 90 872, 25 218 (1970).' 16. apparently arguments Texas Civil Appeals, whose judgment reviewed stated: '[A]ppellees' carefully remained guidelines permissible premises employer promulgated Sailor's Pacific, 92 N.L.R.B. 547 adopted 761, Inter. Elec., Mach. Wkrs. NLRB, 366 667, 81 1285, 592 (1961)'6 8 Petitioners, having failed persuade 157, now least 8(b)(4)(B) 158(b)(4)(B). would us hold only controversy unions, seamen, contracting represented respondent, 9 Acceptance argument result rule whereby complaint filed owner claiming interfering business relationships contract stevedore, precisely grounds. anomaly enough believe more fundamental flaw claim. 10 is, semantic sense, regard, note necessary predicate finding 8(b)(4)(i) individual induced encouraged must 'person engaged commerce industry commerce.' Similarly, 8(b)(4)(ii) person threatened, coerced, restrained been 'commerce commerce,' practices 10(a) 160(a) 'affecting 11 interpret nothing establish 'in assume either persons deal whether, these purposes, able §§ satisfied because: 12 'Unquestionably, constituting employing discharge vessels 'employer' equally unquestionably, Malone, delivering soybeans elevator, 'person' 'commerce,' 15-16. 13 believe, however, cases7 commencing Benz culminating permit bifurcated view effects single group site. 14 our task determine 'whether complained Act,'8 concluded not. 105-106, 961, recognized involve inescapable intrusion affairs present Incres, went say latter cases 'do purport fully delineate threshold interference makes LMRA inapplicable.' 114, 965. further 15 'At very least, hoped exert pressure so forced raise operating costs levels comparable lost resulting longshoremen's wage increases awarded virtual self-imposed tariff regain entry ports. Such large scale increase negligible 'maritime operations' effect means limited incurred while Unlike Ariadne, protest accommodated shipowners affect country.'9 Ibid. (Emphasis supplied.) While thus spoke quoted passage shows produced solely messages carried signs. workmen domestic coming ships. held commerce, wholly inconsistent hold, insofar concerns respondents, honored line, goods handle, commerce. 16 That found unnecessary expressly suggests point undecided one, inevitably flows response crucial mechanism affected. exaction 'selfimposed ports' depend shippers heeding message declining cargoes bottoms. will refuse thence operations, convert Windward.10 17 Our dissenting Brethren Court's Hattiesburg Council Broome, 377 126, 84 1156, 172 (1964), Board's Sailors' (Moore Dry Dock), (1950).Hattiesburg dealt quite different applying own limitation statutory 'asubstantial 23 N.L.R.B.Ann.Rep. (1958) (emphasis added). series administratively established standards, ceding agencies disputes involving entities admittedly 'affected volume interstate 'sufficiently warrant exercise [Board] jurisdiction.' 164(c). standards provided 'satisfied reference employer.' Hattiesburg, 1157. Because provision, ceded particular presented Mississippi InHattiesburg enforce natural consequence holding deprived jurisdiction. find what here. CertainlyHattiesburg not, STEWART's dissent stand proposition may basis beyond itsstatutory authority 160(a). 18 dissent's treatment Moore Dock, reads great 1950 language analysis can support. itself contains whatever employer, vessel Phopho, Trial Examiner's report considered challenge presently confronting report, quotes, Board, unreported determination, previously dismissed election aboard 547, 560-561. later acknowledged 'left somewhat obscure precise legal basis' ruling, comment evoked 'clearly ruling based defect. Id., 568. This Compania Naviera Hidalgo, 353 138, 699, 709 (1957), noted Dock involved situation, pointedly 'We need inapposite, without, course, intimating any result.' 143 5, 702. A precedent scarcely regarded controlling when clearly contrary thrust Benz-Windward cases. 19 Petitioner rely Chauffeurs, Warehousemen Helpers America N. Y., Haw. Hawai‘i KFH45 A2 & R. 350 155, 76 227, 100 166 (1956), Plumbers, Steamfitters, Refrigeration, Petroleum Fitters, Apprentices 298, Atlantic L. County Door, 354, 844, 872 (1959), though relations party excluded Act's definition 'employer,'11 nonetheless competent consider party. railroad barred boycott. 'employer,' 8(b)(4). reached Door County, non-'employer' county employees, claimed arising nonunion subcontractor working addition courthouse. entity boycotts, decided has complaints alleged Indeed, inquired out-of-state origin construction materials jurisdictionally required 356, 845. farmer soybeans, vessel, whom carry undertaking, Act. Therefore violate Congress intend strain through filament NLRA martime apply resolving unless, claim, resolution Amendments. II 21 After concluding jurisdiction, Relying 1347 compromised valid policies, putative purpose conveying information. thought narrowed objective 'wrongfully interfere' businesses. Recognizing appealing equitable discretion preserve status quo pending final dispute, judge abused 'wide discretion' he possesses matters. testimony local official carrying picketing. He expressed hope men lines, become cluttered unable unload, docks shut down. On discretion. 22 repeat Amendment expressive informing injuries suffer hands 'imploring public' "Buy American' 'Ship American." 21. conduct, contend, speech,' injunction. think foreclosed supra. Frankfurter, interests disseminating State protecting various competing economic social interests. Vogt endorsed involves expression ideas, 289, 1168, referred 'growing awareness much questions balance struck 'publicity' 290, 1169. 'established broad 1171. Alabama's field.' 24 escape three ways. First, squarely controlled 603 (1968). case, claim 'identical bar, [designed] peacefully truthfully concomitantly request patronize entity,' protected. 20. rejecting contention, concerned location purpose; indeed, exactly distinguished Vogt. 314, 1606. circumstances property thoroughly clothed attributes completely closed wish otherwise second define term. We, obvious parties business. clear Pennington Birmingham Baseball Club, 277 336, 170 410 cited Alabam case. 26 indicated analogous federal prohibiting considerations. State's appears interest preserving economy stagnation pickets' disruption businesses employers dispute. At threatened eliminate 70% 80% stevedores' depended shipping, serious losses farmers agricultural harvesting shipping.12 Under prefer speech-plus device dockside 27 existed law. Insofar score read suggest enjoined reject it. seem argue bound statements appearing literature, event one official's hopes expectations picketing's override purposes. ignores wide latitude open triers factual determinations rational inferences arise nature, location, See 286, 295, 1167, 1171; 10, Journeymen, Plumbers Steamfitters Canada Graham, 345 192, 197-200, 73 585, 587-589, 97 946 (1953). 28 Concluding affirm Alabama. Affirmed. 30 DOUGLAS, dissenting. 31 N Immigration Nationality Decisions agree my Brother STEWART Liberian. Hence add few observations generated Noe l Mostert's Supership (1974) discussing problems big new oil tankers vast pollution oceans world. puts Liberian-flag following perspective: 32 'Liberia world's largest merchant marine, followed Japan Britain, her lead rapidly increasing; flag convenience fleets regularly grown rates twice world whole. Liberia Panama together own, paper, nearly quarter shipping. Tankers dominate expatriate fleets. 33 'Thirty-five 40 tonnage American-owned, additional American-financed, helps explain fleet, steady decline end war, taken itself. According American-flag built three-quarters Americans. shipbuilding used double elsewhere (inflation abroad helped competitive again), still higher elsewhere. 34 'Flag operators often especially many flag, among largest, best-equipped, most modern true. good run them, impressive. Old traditionally casualty rate ones. 1966 1970 averaged high major nations, but, rule, losing whole ones, certainly newer ones principal marines: average age four-year period 8.7 years, Japanese Europeans years. 35 'To disconcerting degree, recent years improperly trained uncertificated officers navigating defective equipment.' 58—59. 36 tanker, passages demonstrate scope people keeping marine traffic responsible 'flag convenience' commonly uses. No issue today important, life well-being force. Large ride today's decision. Congress, type appropriately made arbiter controversy, convincingly demonstrates. accordingly reverse below. 37 STEWART, BRENNAN, MARSHALL join, 38 last Term 'affects falls reglatory power us. Shipping, managing agents two several attempting advantage enjoyed disparity wages. vessels' asked tortious crews break pre-existing contracts. lacked reversing reaffirmed earlier 'Congress, words [Labor Management Act], simply erase longstanding principles comity accommodation international trade.' 112-113, 964. 2(6) amended LMRA, 152(6). Therefore, 'affect 709; McCulloch Sociedad Nacional, 372 83 671, 547; Incres S. company Maritime Workers, 24, 611, 557. 41 Although activity degree internal Benz, McCulloch, shipping unions' might severely disrupt vessels. 'Virtually none predictable responses shipowner type,' noted, 'would sort cost benefitting workingmen designed regulate.' 115, 1416, A.F.L.C.I.O. 218. Accordingly, shipowners' contracts crews. outside Shipping. Rather, caused wrongful companies' underlying 43 began consequences low shipowner. member vessel. allegedly unlawful 44 formed Association's concerted regulation 8(b)(4)(i)(B) 542, 158(b)(4)(i)(B). shield neutral involved, organization 'to encourage engage in, strike course employment use, manufacture, process, transport, handle work goods, articles, materials, commodities object thereof forcing requiring doing 45 cannot lawsuit satisfy 8(b)(4)(B).1 relied far concerned. decisions both American-and ports A.F.L.-C.I.O. 200, 874, servicing regulatory Consequently, 8(b)(4)(B), necessarily 46 premise 'wholly inconsistent' involved. Ante, 224. indicate never unlike 47 If shipowners, fall power. To avoid inconsistency presumably conclude situation determination requirement, entirely privy 48 More importantly, conflicts 172. subjected suit premises. ruled doctrine Garmon, applicable. then union. unanimously reversed judgment, showed met [Board's] requirements. union's practice, injunction.' 127, 1157 added; citations omitted). unanimous Broome exists finds solid section requires neutral, However, 'person.' defined 2(1) 152(1), requirement 'person,' includes 'individuals, organizations, partnerships, associations, [and] corporations,' industry, 298 A.F. (governmental unit); 25. York, N.H. H.R.R., (railroad). Thus, 50 considerations 'reluctance intrude willy-nilly complex trade,' 110, 963, justifies disregard failure follow target activity. ship-owners lawsuit. approved contractual Mobile. members face injunction.2 51 short, boundaries Incres. such, indistinguishable number exercised For example, charges drydock Panamanian tied up attempt bargaining representative shipowner's crew. Prior consideration certification Regional Director NLRB. "inasmuch registry ownership involved." Upon appeal, sustained Director's "upon existing appear [e]mployer." Notwithstanding assumed owner. observed assumption assert shipowner, 702, 709.3 52 implicates literal recognizing way undermine emphasized decide 8(b)(4)(B). Exercise 'thrust 'a delicate relations." Assn. 1416 199, Certainly risk trade. Nor endanger integrity These permitting court. 53 Where general exclusive, pre-empting federal-and 245, 779-780; see 201-202, 875-876 (White J., concurring). Despite Solicitor General suggested amicus curiae recognize concurrent proposal award damages violates 303, 187; 20, Chauffeurs Morton, 252, 1253, 280. rejected exception 8(b)(4).4 distinction amendment providing scheme Government limit shipowner.Windward protects maintaining injunctions. justify overruling congressional enjoy securing 54 argues justification position, 172, applicable 55 Moreover, continuing development conflicting rules substantive governing conduct. Through initial subsequent certain types illegal regard identity employer. just deliberately, chosen prohibit resort pressure. boycotts applied proscribe enacted inevitable frustrate leave weapon self-help available, upset management policy. 'For impinge area combat obstruction declare methods prohibits." 260, 1258; quoting 776, 485, 500, 74 171, 228. 56 desirability leaving agency 'primary doctrine.' Vaca Sipes, 386 180, 87 903, 912, 842. challenged instant 57 sum, should, therefore, reversed. reported 467 (1973). validated remanded merits, raised 438, Construction Laborers Curry, 371 531, 514 (1963), conclusive finality 1257. read: 'ATTENTION TO THE PUBLIC WAGES AND BENEFITS PAID ABOARD VESSEL [name vessel] ARE SUB- STANDARD THOSE OF SEAMEN. THIS RESULTS IN EXTREME DAMAGE OUR WAGE LOSS JOBS. PLEASE DO NOT PATRONIZE [THIS VESSEL]. HELP WE HAVE NO DISPUTE WITH OTHER VESSELS AT SITE.' [Printed names unions.] App. 6a. Public—American Seamen approximately 50% jobs past fraction Seamen. 'American dollars flowing Seamen, hurting payments loss jobs. 'A strong Merchant Marine defense. fewer are, weaker emergency. 'PLEASE FLAG VESSELS, SAVE JOBS, ECONOMY SUPPORT NATIONAL DEFENSE BY HELPING CREATE STRONG MERCHANT MARINE. 'Our site, _____' 7a. 205, So.2d, 470. representative, which, flying flags, owned. direct attention Agua Glory. event, factor irrelevant, light Nacional de Marineros Honduras, 19, 676, (1963). 482 South Western Reporter, 2nd 675, 678 (1972). (1957); etc., (1963); S.S. Workers 557 relevant definitions 152(6) (7): '(6) trade, traffic, transportation, communication States, District Columbia Territory Territory, country Columbia, points country. '(7) burdening obstructing flow led tending (1970), reversal here, court, distinguishing '[t]he informed statutue' 'are inapplicable crew longshore centered residents, serve casual work.' 874. reiterated distinction: picketers primarily hire unionized nonunionized perform work, fellow workers.' 112, Here triggered toward conditions longshoremen. throughout worldwide operations. contrary, workers, berthed surpass inapplicable,' 965, provides former threshold. holding, cast doubt located States. Madden Grain Elevator, Flour Feed Mill 418, 334 1014 (CA7 1964), cert. denied, 379 967, 85 661, 560 (1965); 126 U.S.App.D.C. 219, 376 774, 389 932, 296, 285 (1967). 152(2): '(2) acting agent indirectly, shall include owned corporation, Reserve Bank, political subdivision thereof, corporation hospital, net earnings inures benefit shareholder individual, Railway time time, (other employer), anyone capacity officer organization.' indicates grain storage facilities full. Additional harvested stored transferred waiting 77a-80a. Nobody 'labor organizations' 2(5) 152(5), 'employees' 2(3), 152(3). officers, members, from: '1. Loitering, congregating, standing, walking, marching, sitting, otherwise, near owned, occupied, Complainant '2. manner obstructing, actions, desiring '3. Interfering whatsoever. '4. Picketing members' calculated intimidate entering premises, facility members. '5. relations. '6. exist owning and/or calling Mobile.' Courts Appeals addressed despite (CA7); 774. When considering Taft-Hartley bill 1947, proposed Senate given injured suffering go district relief. 93 Cong.Rec. 4835. Senator Taft opposed amendment, arguing resistance committee authorizing alone obtain retained. sue damages. 4843-4844. thereafter defeated, id., 4847; Taft's private-damages remedy, 187, adopted. 4874-4875.

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