Document: 465 U.S. 822 104 S.Ct. 1505 79 L.Ed.2d 839 NATIONAL LABOR RELATIONS BOARD, Petitionerv.CITY DISPOSAL SYSTEMS INC. No. 82-960. Argued Nov. 7, 1983. Decided March 21, 1984. Syllabus Section 7 of the National Labor Relations Act provides that employees shall have right to join or assist labor organizations, bargain collectively, and "to engage in other concerted activities for purpose collective bargaining mutual aid protection." The collective-bargaining agreement between respondent union representing its truckdrivers not require operate any vehicle is safe operating condition, "[i]t be a violation Agreement where refuse such equipment unless refusal unjustified." One respondent's (James Brown) was discharged when he refused drive truck honestly reasonably believed unsafe because faulty brakes. After declined process Brown's grievance under agreement, filed an unfair practice charge with Board (NLRB), challenging his discharge. An Administrative Law Judge concluded that, even though Brown acted alone asserting contractual right, constituted "concerted activit[y]" protected by § had therefore committed discharging him. NLRB adopted Judge's findings conclusions ordered reinstatement backpay, applying longstanding "Interboro doctrine," which based on individual's reasonable honest assertion contained extension action produced affects rights all covered agreement. However, Court Appeals denied enforcement NLRB's order, finding taken solely own behalf thus activity within 7's meaning. Held: 1. Interboro doctrine interpretation Act. Pp. 829-839. (a) language does confine itself situations two more are working together at same time place toward common goal, lone employee intends induce group acts as representative least one employee. invocation rooted unquestionably integral part gave rise entirely consistent Act's purposes, include encouragement practices fundamental friendly adjustment industrial disputes arising out differences wages, hours, conditions. Moreover, general history reveals no inconsistency congressional intent equalize power management labor. As long employee's statement belief being, has been, asked perform task required directed collectively bargained there justification overturning judgment engaged activity. 830-837. (b) fact necessarily mean may impunity. If engages manner overly abusive violative actions would unprotected. P. 837. (c) There merit argument undermines arbitration providing possibility provoking discharge then filing claim. who purposefully follows this route run risk find but nonetheless More importantly, extent factual issues raised can be, addressed through process, defer process. 837-839. 2. free obligation trucks, did explicitly refer truck, meaning 7. nature complaint clear person whom it communicated, refers perceived complaining enforcing Respondent's erred only unsafe, objectively confuses threshold question whether conduct ultimate protected. latter should considered remand. 839-841. 683 F.2d 1005, reversed remanded. Norton J. Come, Washington, D.C., petitioner. Robert Ufer, Detroit, Mich., respondent. Justice BRENNAN delivered opinion Court. 1 James Brown, driver employed respondent, Article XXI Local 247 International Brotherhood Teamsters, Chauffeurs, Warehousemen Helpers America, provides: 2 "[t]he Employer take streets highways condition equipped safety appliances prescribed law. It unjustified."1 3 decided trucks (NLRA Act), 29 U.S.C. 157.2 (NLRB Board) held was, therefore, 8(a)(1) Act, 158(a).3 256 N.L.R.B. 451 (1981). disagreed enforcement. 1005 (CA6 1982). At three Courts Appeals, however, accepted Board's activities" including individual grounded agreement.4 We granted certiorari resolve conflict, --- ----, 103 1496, 75 928 (1983) now reverse. 4 * facts dispute current posture case.5 Respondent, City Disposal System, Inc. (City Disposal), hauls garbage Detroit. Under Union 247, drivers haul from Detroit land fill about 37 miles away. Each assigned particular she operates each day work, disrepair. 5 245. On Saturday, May 12, 1979, observed fellow difficulty brakes another 244. result brake problem, 244 nearly collided truck. unloading their fill, brought truck-repair facility, they were told repaired either over weekend morning Monday, 14. 6 Early 14, while transporting load experienced wheels truck—No. 245—and repair. repair backlog 245 could day. reported situation supervisor, Otto Jasmund, punch go home. Before leave, Jasmund changed mind instead. refused, explaining "there's something wrong . [S]omething grease seal leaking causing affecting brakes." not, general. In response 244, angrily point, ensued Madary, intervened, repeating Jasmund's request Again, "has got problems I don't want it." Madary replied half if tried fix them unable do business. He went tell "[w]e've here you me drive." responded, "Bob, what going do, put ahead men?" Finally, office Later day, received word been discharged. immediately returned work attempt gain unsuccessful. 15, after discharge, written grievance, pursuant defective, improper him also improper. union, found objective it. 8 September NLRB, (ALJ) refusing NLRA, ALJ nevertheless 7: 9 "[W]hen makes complaints concerning matters embodied contract, acting interest, attempting enforce contract provisions interest contract. Such we engaging Act." N.L.R.B., 454 (quoting Roadway Express, Inc., 217 278, 279 (1975)). 10 reinstated backpay. 11 petition Board. Finding behalf, This holding followed court's prior decision ARO, v. 596 713 1979), held: 12 "For claim amount must made employee, object inducing preparing some arguable basis agreement." Id., 718. II 13 NLRA "[e]mployees representatives choosing, 157 (emphasis added). case applied recognized accorded protection 7.6 See Contractors, 1295, 1298 (1966), enforced, 388 495 (CA2 1967); Bunney Bros. Construction Co., 139 1516, 1519 (1962). relied justifications doctrine: First, Construction, supra, 1519; second, 1298. 14 often reaffirmed defining scope "is first instance considers wide variety cases come before it," Eastex, 437 556, 568, 98 2505, 2513, 57 428 (1978), and, issue implicates expertise relations, construction entitled considerable deference, Iron Workers, 434 335, 350, 651, 660, 54 586 (1978); Hearst Publications, 322 111, 130-131, 64 851, 860, 88 L.Ed. 1170 (1944). today narrowed application reasonable.7 Several reasons persuade us is. 15 Neither nor appears derived meets requirement "for purposes explained case, single type generalized effect, our demonstrated, sufficient bring "mutual protection" standard, regardless interests most mind. See, e.g., Weingarten 420 251, 260-261, 95 959, 965, 43 171 (1975). 16 term defined clearly enough embraces joined order achieve goals. Meyers Industries, 268 73, (1984). What self-evident elucidate, precise linked permit said turn consider analysis expressed doctrine. 17 Although interpret phrase, activities," narrow fact, defines both joining assisting organizations—activities engage—as activities.8 Indeed, courts rejected recognize alone. They limited recognition activity, situations: (1) (2) Aro, F.2d, 713, 717 1979); Northern Metal 440 881, 884 (CA3 1971). disagreement doctrine, merely reflects differing views regarding relationship exist apply. cannot say view relationship, unreasonable. 18 That process—beginning organization continuing into negotiation extending agreement—is single, activity.9 Obviously, invoke negotiating employees. Nor make sense negotiate thereby created against employer. invokes stand Instead, brings bear employer When, instance, effect reminding employees, signed, extracted promise trucks. persisted ordering reharness ensure promise. just reassembling members reenact A is, very real sense. 19 Furthermore, organization, recognizes concerted, related essentially way action. When joins assists divorced time, location well, Because among employees' actions, Congress viewed organizing Conversely, utility forming once formed. Thus, formation integrally provided neither complete without other.10 20 "practices conditions." 151. Although, said, nothing legislative specifically expresses understanding enacting language, intent. begins early days movement, employers invoked law doctrines criminal conspiracy restraint trade thwart workers' attempts unionize. Automobile 232 Wisconsin Employment (Briggs & Stratton), 336 245, 257-258, 69 516, 523, 93 651 (1949). Jones Laughlin Steel Corp., 301 1, 33, 615, 622, 81 893 (1937), "was helpless dealing employer; dependent ordinarily daily wage maintenance himself family; pay wages thought fair, leave employ resist arbitrary treatment; essential give laborers opportunity deal equality employer." 21 Congress's labor, use "concert" context, came 1914 enactment §§ Clayton exempted antitrust laws certain types peaceful activities. 17; 52.11 followed, 1932, Norris-LaGuardia declared "the worker interference, restraint, coercion, self-organization 102 source enacted 7(a) Industrial Recovery then, 1935, NLRA. generally Gorman Finkin, Individual Requirement "Concert" 130 U.Pa.L.Rev. 286, 331-346 22 Against background, evident sought allowing band confronting terms conditions employment. indication intended limit combine way. Nor, specifically, appear withdrawn alone, participates aspect emerges background 7—and purpose—is create throughout entire organizing, bargaining, agreements. 23 potential inequality continues beyond point mitigates duration employment fully invoking preserves integrity process; reality, breathes life, promises envisioned means peace. 24 To sure, principal tool processing according whatever procedures establishes. No doubts Ford Motor 156, 159 1982); Crown Central Petroleum Corp. 430 724, 729 (CA5 1970). little cover mechanism protect utilize 25 practice, unlikely bright-line distinction incipient employer, perhaps initial job believes duty perform. expect violates will protest Whether files depend employer's reaction upon issue. addition, might susceptible grievance. provide alternative method enforcement, involved see 825, silent matter. reasons, anemployee's being violated, obligated serve natural prelude to, efficient substitute for, formal 26 loses 1970); Yellow Freight 177, 181 (1980). Cf. Babcock Wilcox 351 105, 76 679, 100 975 (1956). wish tolerate methods rights, provision limits availability methods. No-strike provisions, agree work. general, provision, unprotected concerted. Mastro Plastics 350 270, 349, 309 unprotected, us. B 27 Respondent argues Brief 34-42. argument, misses mark several reasons. discussed above. 28 Second, shift resolution adjudication different position pressed stated above, 828, allow represents addition these situations, underlying substance himself. claiming violated those discharged, identical equally well positioned singling undermining than approach Collyer Insulated Wire, 192 837 (1971); Spielberg Manufacturing 112 1080 (1955). reason, constrained concern maintaining III 30 faulty. supervisors reason confrontations, condition," equipment, 825. doubt, doubt during confrontations supervisors, right. available enforced gone driven moot. 31 21-22. Board, never explicit reference reasonable. importance special function complexities life." Erie Resistor 373 221, 236, 83 1139, 1149, 308 (1963). does, context workplace dispute, participants likely unsophisticated matters, trap unwary. 32 further unsafe. 38. bases "unless allows Regardless correct, express view, rationale compels conclusion constitutes turns correct violated. Part II. suggest, meritorious. enforced. true enforces hand, imposes limitation invoked, limitation. 33 avoid driving prohibits perfectly safe. so, passed IV 34 conclude Accordingly, accept reverse remand proceedings opinion, inquiry continue defend theory 35 so ordered. 36 O'CONNOR, THE CHIEF JUSTICE, POWELL REHNQUIST join, dissenting. deemed activity," (Act), 157, good faith asserts agreement.1 reasonable, agreement; alternatively, affect workforce. ante, 829. "interfere[s] with, restrains, coerces" latter's alleged enables file (Board). 158(a)(1). concepts personal activity" intuitively incompatible,2 defers necessary safeguard exercise previously won Since undelegated respectfully dissent. 38 my ultimately self-interested could, every complaint. But cannot, itself, C Plywood, 385 421, 427-428, 87 559, 563, 486 (1967); Dowd Box Co. Courtney, 368 502, 509-513, 82 519, 523-25, 483 proposal given "general jurisdiction violations agreements." 427, S.Ct., 563. realized "[t]o conferred determine parties agreements step governmental regulation Ibid. expressly "[o]nce [the] contract[,] left usual processes Board." H.R.Conf.Rep. 510, 80th Cong., 1st Sess., 42 (1946) U.S.Code Cong.Serv. 1947, pp. 1135, 1147. By basing determination "concerted" assertion's grounding agreement,3 doctrine's proviso transfers final authority interpreting contracts resolving back arrogation Congress' contrary. 39 Of course, discretion act incident proceedings. supra. claims themselves. statutory disputes.4 broad indicates difference meaningful one. light scheme less Trojan Horse dressed up legal form. 40 designed encourage together. Weingarten, 260-264, 965-67, Even too fearful, inarticulate, lacking skill relate accurately event investigated relevant extenuating factors. Other disinterested especially knowledgeable stewards, eliciting preventing misunderstandings hard feelings. participation save production reduce administrative expenses, unnecessary discharges disciplinary increased degree coverage participating preserve "practice procedure bargaining." Emporium Capwell Western Addition Community Organization, 50, 62, 977, 984, receive laws' emphasis Allis-Chalmers Mfg. 175, 180, 2001, 2006, 1123 Republic Maddox, 379 650, 653, 85 614, 616, 580 (1965). 41 insist asserted, expression treated rights. mistaken. substantive entitlements vindicated. expressing concern, otherwise, statute authorizes seek vindication processes.5 contrast, "concerted;" cases, instructs necessary, courts. (1965); Hines Anchor Freight, 424 554, 96 1048, 47 231 (1976). scenario, preserved. vindicated private judicial processes. "day-to-day adjustments rules, resolutions new existing agreements, already secured contract," Conley Gibson, 355 41, 46, 78 99, 102, 80 (1957) added), suitably handled, 842-843. how best case. evidence truck's problem support remedying requested union's assistance protesting warn others initially union. simply asserted drive. term, "protected," "concerted." unreasonable concluding otherwise. imply dissent crucial notes, group. 830-831. certainly And, appeals concluded, stretched takes proven inducing, initiating, 1971); Kohls 629 173, 176-177 (CADC 1980). stretches past snapping benefit. 44 App. 64. ask until approved mechanical department." Employees self-organization, form, protection. employer— interfere restrain, coerce guaranteed section [7]. Ben Pekin 452 205 (CA7 Selwyn Shoe 217, 221 (CA8 1967). four circuits share Sixth Circuit question. Royal Development Ltd. 703 363, 374 (CA9 1983); 700 687, 693-694 (CA11 Buddies Supermarkets, 481 714 1973) (dictum); 881 1980) (expressing validity doctrine). 532 751 (CA4 1976), Fourth 278 (1975), Krispy Kreme Doughnut 635 304, 308-310 1980), court indicated remained open Circuit. argued below motivated issue, recently unionized presumed 73 distinguished involving existence relevance here. 'concerted activities' clause jurisdictional Act," need 13. never, exception exists normal standard review interpretations Act; indeed, hesitated substantially similar presented E.g. 266-267, (1975) (right present investigatory interview employee). Bayside Enterprises, 429 298, 302-303, 97 576, 579-80, 50 494 (1977) (definition agricultural workers). lists concludes list phrase "other indicating enumerated n. noted (1957), "[c]ollective Among things, involves day-to-day contract." (Emphasis added.) become remotely For purely "griping," Capital Ornamental Concrete Specialties, 248 851 although relies bears noting 8(a)(1), commits [or] restrain[s]" possible, commit whose render interference still restrain "no injunction prohibit persons, singly concert, ceasing [or specified activities]." 52 read cover, over, personal, work-related, 10; 16, 9. mere labeling 6; disturbing respect, since supporting aware 839-841; accord, Pet. Cert. 18a-19a. think rule idea rather glibly suggests proceeding 838-839. Yet discuss why determined 827. length elsewhere, hardly applies deferral criteria evenhandedly consistently. Schaefer 362, 323 (O'CONNOR, J., dissenting). occur appropriate place, precisely decide today. may, satisfaction procedures. William E. Arnold Carpenters District Council Jacksonville Vicinity, 417 94 2069, 620 (1974). properly filed, requires instance.

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