ASSOCIATED GENERAL CONTRACTORS OF CALIFORNIA, INC. v. CALIFORNIA STATE COUNCIL OF CARPENTERS ET AL.
No. 81-334
Supreme Court of the United States
Argued October 5, 1982—Decided February 22, 1983
459 U.S. 519
James P. Watson argued the cause for petitioner. With him on the briefs was George M. Cox.
Victor J. Van Bourg argued the cause and filed a brief for respondents.*
JUSTICE STEVENS delivered the opinion of the Court.
This case arises out of a dispute between parties to a multi-employer collective-bargaining agreement. The plaintiff unions allege that, in violation of the antitrust laws, the multi-employer association and its members coerced certain third parties, as well as some of the association‘s members, to enter into business relationships with nonunion firms. This coercion, according to the complaint, adversely affected the trade of certain unionized firms and thereby restrained the
I
The two named plaintiffs (the Union)—the California State Council of Carpenters and the Carpenters 46 Northern Counties Conference Board—are affiliated with the United Brotherhood of Carpenters and Joiners of America, AFL-CIO. The Union represents more than 50,000 individuals employed by the defendants in the carpentry, drywall, piledriving, and related industries throughout the State of California. The Union‘s complaint is filed as a class action on behalf of numerous affiliated local unions and district councils. The defendants are Associated General Contractors of California, Inc. (Associated), a membership corporation composed of various building and construction contractors, approximately 250 members of Associated who are identified by name in an exhibit attached to the complaint, and 1,000 unidentified co-conspirators.
The Union and Associated, and their respective predecessors, have been parties to collective-bargaining agreements governing the terms and conditions of employment in construction-related industries in California for over 25 years. The wages and other benefits paid pursuant to these agreements amount to more than $750 million per year. In addition, approximately 3,000 contractors who are not members of Associated have entered into separate “memorandum agreements” with the Union, which bind them to the terms of the master collective-bargaining agreements between the Union and Associated. The amended complaint does not
In paragraphs 23 and 24 of the amended complaint, the Union alleges the factual basis for five different damages claims.1 Paragraph 23 alleges generally that the defendants conspired to abrogate and weaken the collective-bargaining relationship between the Union and the signatory employers. In seven subsections, paragraph 24 sets forth activities allegedly committed pursuant to the conspiracy. The most specific allegations relate to the labor relations between the parties.2 The complaint‘s description of actions affecting nonparties is both brief and vague. It is alleged that defendants
“(3) Advocated, encouraged, induced, and aided non-members of defendant Associated General Contractors of California, Inc. to refuse to enter into collective bargaining relationships with plaintiffs and each of them;
“(4) Advocated, encouraged, induced, coerced, aided and encouraged owners of land and other letters of construction contracts to hire contractors and subcontractors who are not signatories to collective bargaining agreements with plaintiffs and each of them;
“(5) Advocated, induced, coerced, encouraged, and aided members of Associated General Contractors of California, Inc., non-members of Associated General Contractors of California, Inc., and ‘memorandum contractors’ to enter into subcontracting agreements with subcontractors who are not signatories to any collective bargaining agreements with plaintiffs and each of them“; App. E to Pet. for Cert. 17-19 (emphasis added).3
Parаgraph 25 describes the alleged “purpose and effect” of these activities: first, “to weaken, destroy, and restrain the trade of certain contractors,” who were either members of Associated or memorandum contractors who had signed agreements with the Union; and second, to restrain “the free exercise of the business activities of plaintiffs and each of them.”4 Plaintiffs claim that these alleged antitrust viola-
After hearing “lengthy oral argument” and after receiving two sets of written briefs, one filed before and the second filed after this Court‘s decision in Connell Construction Co. v. Plumbers & Steamfitters, 421 U. S. 616 (1975), the District Court dismissed the complaint, including the federal antitrust claim. 404 F. Supp. 1067 (ND Cal. 1975).6 The court observed that the complaint alleged “a rather vague, general conspiracy,” and that the allegations “appear typical of disputes a union might have with an employer,” which in the normal course are resolved by grievance and arbitration or by the NLRB. Id., at 1069.7 Without seeking to clarify or further amend the first amended complaint, the Union filed its notice of appeal on October 9, 1975.
Over five years later, on November 20, 1980, the Court of Appeals reversed the District Court‘s dismissal of the Union‘s federal antitrust claim. 648 F. 2d 527.8 The ma-
II
As the case comes to us, we must assume that the Union can prove the facts alleged in its amended complaint. It is not, however, proper to assume that the Union can prove facts that it has not alleged or that the defendants have violated the antitrust laws in ways that have not been alleged.11
We first note that the Union‘s most specific claims of injury involve matters thаt are not subject to review under the antitrust laws. The amended complaint alleges that the defendants have breached their collective-bargaining agreements in various ways, and that they have manipulated their corporate names and corporate status in order to divert business to nonunion divisions or firms that they actually control. Such deceptive diversion of business to the nonunion portion of a so-called “double-breasted” operation might constitute a breach of contract, an unfair labor practice, or perhaps even a
The Union‘s antitrust claims arise from alleged restraints caused by defendants in the market for construction contracting and subcontracting.14 The complaint alleges that defendants “coerced”15 two classes of persons: (1) landowners and
We think the Court of Appeals properly assumed that such coercion might violate the antitrust laws.17 An agreement to restrain trade may be unlawful even though it does not entirely exclude its victims from the market. See Associated Press v. United States, 326 U. S. 1, 17 (1945). Coercive activity that prevents its victims from making free choices between market alternatives is inherently destructive of competitive conditions and may be condemned even without proof of its actual market effect. Cf. Klors, Inc. v. Broadway-Hale Stores, Inc., 359 U. S. 207, 210-214 (1959).18
III
We first consider the language in the controlling statute. See Consumer Product Safety Comm‘n v. GTE Sylvania, Inc., 447 U. S. 102, 108 (1980). The class of persons who may maintain a private damages action under the antitrust laws is broadly defined in § 4 of the Clayton Act.
“Any person who shall be injured in his business or property by reason of anything forbidden in the antitrust laws may sue therefor in any district court of the United States in the district in which the defendant resides or is found or has an agent, without respect to the amount in controversy, and shall recover threefold the damages by him sustained, and the cost of suit, including a reasonable attorney‘s fee.”
A literal reading of the statute is broad enough to encompass every harm that can be attributed directly or indirectly to the consequences of an antitrust violation. Some of our prior cases have paraphrased the statute in an equally expansive way.19 But before we hold that the statute is as broad as its
at 211, and that it would “cripple the freedom of traders and thereby restrain their ability to sell in accordance with their own judgment.” Kiefer-Stewart Co. v. Joseph E. Seagram & Sons, Inc., 340 U. S. 211, 213 (1951).
The critical statutory language was originally enacted in 1890 as § 7 of the Sherman Act. 26 Stat. 210. The legislative history of the section shows that Congress was primarily interested in creating an effective remedy for consumers who were forced to pay excessive prices by the giant trusts and combinations that dominated certain interstate markets.20 That history supports a broad construction of this remedial provision. A proper interpretation оf the section cannot, however, ignore the larger context in which the entire statute was debated.
“The statute does not confine its protection to consumers, or to purchasers, or to competitors, or to sellers. Nor does it immunize the outlawed acts because they are done by any of these. Cf. United States v. Socony-Vacuum Oil Co., 310 U. S. 150; American Tobacco Co. v. United States, 328 U. S. 781. The Act is comprehensive in its terms and coverage, protecting all who are made victims of the forbidden practices by whomever they may be perpetrated.” Id., at 236.
Similarly broad language was used in later cases holding that actions could be maintained by consumers, Reiter v. Sonotone Corp., 442 U. S. 330, 337-338 (1979), by a foreign government, Pfizer Inc. v. India, 434 U. S. 308, 313-314 (1978), and by the direct victim of a boycott. Blue Shield of Virginia v. McCready, 457 U. S. 465, 472-473 (1982). In each of those cases, however, the actual plaintiff was directly harmed by the defendants’ unlawful conduct. The paraphrasing of the language of § 4 in those opinions added nothing to the even broader language that the statute itself contains.
“One problem presented by the language of § 1 of the Sherman Act is that it cannot mean what it says. The statute says that ‘every’ contract that restrains trade is unlawful. But, as Mr. Justice Brandeis perceptively noted, restraint is the very essence of every contract; read literally, § 1 would outlaw the entire body of private contract law. . . .
“Congress, however, did not intend the text of the Sherman Act to delineate the full meaning of the statute or its application in concrete situations. The legislative history makes it perfectly clear that it expected the courts to give shape to the statute‘s broad mandate by drawing on common-law tradition.” National Society of
Just as the substantive content of the Sherman Act draws meaning from its common-law antecedents, so must we consider the contemporary legal context in which Congress acted when we try to ascertain the intended scope of the private remedy created by § 7.
In 1890, notwithstanding general language in many state constitutions providing in substance that “every wrong shall have a remedy,”23 a number of judge-made rules circumscribed the availability of damages recoveries in both tort and contract litigation—doctrines such as foreseeability and proximate cause,24 directness of injury,25 certainty of dam-
Notes
“The purpose and effect of the above described activities, plan and conspiracy are oppressive, unreasonable, and illegal, and are in restraint of trade and an unlawful interference and restraint of the free exercise of the business activities of plaintiffs and each of them, all in violation of
The majority read subparagraph (5) of paragraph 24 to charge that defendants had “coerced and aided each other to subcontract only with subcontractors who had not signed with the Unions.” Id., at 531 (emphasis added). Again using the word “only,” which does not appear in the complaint itself, the majority characterized the defendants’ alleged activities as “very similar to a concerted refusal to deal, or a group boycott.” Ibid. It concluded that the allegations “present virtually the obverse of the situation described in Connell“: the conspiracy, if successful, “would effectively lock union-signatory subcontractors out of a portion of the market for carpentry work.” Id., at 532.
Circuit Judge Sneed dissented. He first rejected the majority‘s characterization of the complaint, agreeing instead with the District Court. Second, assuming that the complaint alleged a boycott of certain employers, he concluded that neither the employees of a victim of the boycott nor their collective-bargaining representative had standing to assert the antitrust claim. Finally, he concluded that an injury that affected only the Union‘s organizational and representational activity was remediable under the labor laws rather than the antitrust laws.
The Court of Appeals denied the petition for rehearing and rehearing en banc on May 22, 1981. Accompanying the order was a statement by the majority rebutting the petitioners’ assertion that the opinion rendered multiemployer bargaining units unlawful, and a dissent by Circuit Judge Sneed. 648 F. 2d, at 543, 545.
The amended complaint also does not allege any restraint on competition in the market for labor union services. Unlike the two cases involving union plaintiffs cited by the Court of Appeals, see n. 10, supra, in this case there is no claim that competition between rival unions has been injured or even that any rival unions exist.
“A careful analysis of the terms of the bill is essential. We must know what it means, what its lеgal effect is, if we give force to it as it is written. . . . We must adopt, therefore, the known methods of the courts in determining what the bill means.” Id., at 1765.
“The chief and sufficient reason for this rule is to be found in the impossibility of tracing consequences through successive steps to the remote cause, and the necessity of pausing in the investigation of the chain of events at the point beyond which experience and observation convince us we cannot press our inquiries with safety.” T. Cooley, Law of Torts 73 (2d ed. 1888).
The federal judges who first confronted the task of giving meaning to § 7 so understood the congressional intent. Thus in 1910 the Court of Appeals for the Third Circuit held as a matter of law that neither a creditor nor a stockholder of a corporation that was injured by a violation of the antitrust laws could recover treble damages under § 7. Loeb v. East-
tion against S for assaulting and beating one of the paupers, thereby putting A to increased expense. Similarly, a purchaser under an output contract with a manufacturer had no right of recovery against a trespasser who stopped the company‘s machinery, and a creditor could not recover against a person who had forged a note, causing diminution in the dividends from an estate. 1 J. Sutherland, Law of Damages 55-56 (1882) (emphasis in original, footnote omitted).
Similarly, in contract, the common-law courts drew a distinction between direct and consequential damages; the latter had to be specifically included in the contract to be recoverable. See id., at 74-93; 1 T. Sedgwick, Measure of Damages 203-244 (8th ed. 1891) (discussing the rule of Hadley v. Baxendale, 9 Exch. 341, 156 Eng. Rep. 145 (1854)).
As this Court has observed, the lower federal courts have been “virtually unanimous in concluding that Congress did not intend the antitrust laws to provide a remedy in damages for all injuries that might conceivably be traced to an antitrust violation.” Hawaii v. Standard Oil Co., 405 U. S. 251, 263, n. 14 (1972). Just last Term we stated:
“An antitrust violation may be expected tо cause ripples of harm to flow through the Nation‘s economy; but ‘despite the broad wording of § 4 there is a point beyond which the wrongdoer should not be held liable.’ [Illi-
It is plain, therefore, that the question whether the Union may recover for the injury it allegedly suffered by reason of the defendants’ coercion against certain third parties cannot be answered simply by reference to the broad language of § 4. Instead, as was required in common-law damages litigation in 1890, the question requires us to evaluate the plaintiff‘s harm, the alleged wrongdoing by the defendants, and the relationship between them.31
IV
There is a similarity between the struggle of common-law judges to articulate a precise definition of the concept of “proximate cause,”32 and the struggle of federal judges to
tive, decisive, supervening, primary, original, contributory, ultimate, concurrent, causa causans, legal, responsible, dominating, natural, probable, and others. The difficulty now is in getting any one to believe that so simple a creature could have been so extravagantly garbed.”
The factors that favor judicial recognition of the Union‘s antitrust claim are easily stated. The complaint does allege a causal connection between an antitrust violation and harm to the Union and further alleges that the defendants intended to cause that harm. As we have indicated, however, the mere fact that the claim is literally encompassed by the Clayton Act does not end the inquiry. We are also satisfied that an allegation of improper motive, although it may support a plaintiff‘s damages claim under § 4,35 is not a panacea that will enable any complaint to withstand a motion to dismiss.36 Indeed, in McCready, we specifically held: “The availability of the § 4 remedy to some person who claims its benefit is not a question of the specific intent of the conspirators.” 457 U. S., at 479.37
ations . . . . What we do mean by the word ‘proximate’ is, that because of convenience, of public рolicy, of a rough sense of justice, the law arbitrarily declines to trace a series of events beyond a certain point“).
An additional factor is the directness or indirectness of the asserted injury. In this case, the chain of causation between the Union‘s injury and the alleged restraint in the market for construction subcontracts contains several somewhat vaguely defined links. According to the complaint, defendants applied coercion against certain landowners and other contracting parties in order to cause them to divert business from certain union contractors to nonunion contractors.44 As a re
If either these firms, or the immediate victims of coercion by defendants, have been injured by an antitrust violation, their injuries would be direct and, as we held in McCready, they would have a right to maintain their own treble-damages actions against the defendants. An action on their behalf would encounter none of the conceptual difficulties that
Partly because it is indirect, and partly because the alleged effects on the Union may have been produced by independent factors, the Union‘s damages claim is also highly speculative. There is, for example, no allegation that any collective-bargaining agreement was terminated as a result of the coercion, no allegation that the aggregate share of the contracting market controlled by union firms has diminished, no allegation that the number of employed union members has declined, and no allegation that the Union‘s revenues in the form of dues or initiation fees have decreased. Moreover, although coercion against certain firms is alleged, there is no assertion that any such firm was prevented from doing business with any union firms or that any firm or group of firms was subjected to a complete boycott. See nn. 9, 15, and 16, supra.
The indirectness of the alleged injury also implicates the strong interest, identified in our prior cases, in keeping the scope of complex antitrust trials within judicially manageable limits.50 These cases have stressed the importance of avoid-
“Permitting the use of pass-on theories under
§ 4 essentially would transform treble-damages actions into massive efforts to apportion the recovery among all potential plaintiffs that could have absorbed part of the overcharge—from direct purchasers to middlemen to ultimate consumers. However appealing this attempt to allocate the overcharge might seem in theory, it would add whole new dimensions of complexity to treble-damages suits and seriously undermine their effectiveness.” Id., at 737-738.
The same concerns should guide us in determining whether the Union is a proper plaintiff under
We conclude, therefore, that the Union‘s allegations of consequential harm resulting from a violation of the antitrust laws, although buttressed by an allegation of intent to harm the Union, are insufficient as a matter of law. Other relevant factors—the nature of the Union‘s injury, the tenuous and speculative character of the relationship between the alleged antitrust violation and the Union‘s alleged injury, the potential for duplicative recovery or complex apportionment of damages, and the existence of more direct victims of the alleged conspiracy—weigh heavily against judicial enforcement of the Union‘s antitrust claim. Accordingly, we hold that, based on the allegations of this complaint, the District
It is so ordered.
JUSTICE MARSHALL, dissenting.
Section 4 of the Clayton Act provides that a damages action may be brought under the antitrust laws by “[a]ny person who [has been] injured in his business or property by reason of anything forbidden in the antitrust laws.”
Congress’ adoption of the broad language of
In keeping with the inclusive language and remedial purposes of
The plaintiff unions fit comfortably within the language of
Far from supporting the Court‘s conclusion, ante, at 531-533, the common-law background of the antitrust laws highlights the anomaly of denying a remedy to the intended victim of unlawful conduct. Since antitrust violations are essentially “tortious acts,” Bigelow v. RKO Radio Pictures, Inc., 327 U. S. 251, 264 (1946),2 the most apt analogy is to the common law of torts. Although many legal battles have been fought over the extent of tort liability for remote conse-
This case does not implicate the sort of “articulated consideration of statutory policy” which we have deemed necessary to deny standing to a party encompassed by the language of
Nоr does the present case implicate the consideration of statutory policy underlying this Court‘s decisions in Illinois Brick Co. v. Illinois, 431 U. S. 720 (1977), and Hawaii v. Standard Oil Co., 405 U. S. 251 (1972). Critical to the denial of standing in those cases was the risk of duplicative recovery that would have been created by affording the plain-
There is no risk of double recovery herе. The plaintiff unions seek recovery for injuries distinct from those that other parties may have suffered. One such distinct injury
Any recovery of lost dues by the plaintiff unions would not duplicate recoveries that might be obtained by either unionized carpentry firms or employees of those firms. A recovery of lost dues by a union would not duplicate a recovery for lost profits that might be obtained by a firm for which union members worked, for union dues are not an element of a firm‘s profits. Nor would a recovery of lost dues by a union duplicate recoveries of lost wages that employees might obtain. Although periodic union dues are based on a percentage of wages, there would be no double recovery because union dues would be subtracted from lost wages in calculating the employees’ damages. The Hanover Shoe rule barring the assertion of a “pass-through” defense would not prevent subtraction of union dues from wages in determining the employees’ damages. The Hanover Shoe rule was designed to avoid the “additional long and complicated proceedings involving massive evidence and complicated theories” that would be required to determine the extent to which price overcharges were passed through to an indirect purchaser. 392 U. S., at 493. In sharp contrast, where union dues are a percentage of wages, there is no difficulty in determining the amount of dues that a union lost as a result of a reduction in the wages earned by union members.
Any concern the Court may have that the plaintiffs cannot prove their case does not justify throwing them out of court solely on the basis of the pleadings. If, during discovery, it becomes apparent that plaintiffs cannot establish a reasonable inference of causation or cannot provide evidence supporting a rational estimate of damages, they will be vulnerable to a motion for summary judgment. Dismissal for failure to state a claim is too crude a procedural device to be used to vindicate the “interest . . . in keeping the scope of complex antitrust trials within judicially manageable limits.” Ante, at 543.
“‘Cause,’ although irreducible in its concept, could not escape the ruffles and decorations so generously bestowed: remote, proximate, direct, immediate, adequate, efficient, operative, inducing, moving, active, real, effec-
As a number of commentators have observed, these labels may lead to contradictory and inconsistent results. See Berger & Bernstein, supra n. 31, at 835, 843; Handler, The Shift From Substantive to Procedural Innovations in Antitrust Suits, 71 Colum. L. Rev. 1, 27-31 (1971); Sherman, Antitrust Standing: From Loeb to Malamud, 51 N. Y. U. L. Rev. 374, 407 (1976) (“it is simply not possible to fashion an across-the-board and easily applied standing rule which can serve as a tool of decision for every case“). In our view, courts should analyze each situation in light of the factors set forth in the text infra.
J. Albert Woll, Laurence Gold, and George Kaufmann filed briefs for the American Federation of Labor and Congress of Industrial Organization as amicus curiae urging affirmance.
Kenneth E. Ristau, Jr., and David A. Cathcart filed a brief for the Pacific Maritime Association as amicus curiae.
