Document: 489 U.S. 426 109 S.Ct. 1225 103 L.Ed.2d 456 TRANS WORLD AIRLINES, INC., Petitionerv.INDEPENDENT FEDERATION OF FLIGHT ATTENDANTS. No. 87-548. Argued Nov. 7, 1988. Decided Feb. 28, 1989. Syllabus Although petitioner airline (TWA) and respondent flight attendants' union (IFFA) pursued all the required dispute resolution mechanisms of Railway Labor Act (RLA), their negotiations over a new collective bargaining agreement were unsuccessful. The parties bargained wages working conditions but not existing agreement's seniority system, which ensured that most senior qualified attendant who bid on vacant job assignment, schedule, or base operation (domicile) would obtain it, be least affected by periodic furloughs. During IFFA's subsequent strike, TWA continued operations hiring permanent replacements for strikers, continuing to employ attendants chose rehiring strikers abandoned filled strike-created vacancies application f bidding system attendants. After strike ended, pursuant its preannounced policy, refused displace junior nonstriking ("crossover" employees) with full-term many whom therefore left without an opportunity return work. poststrike arbitral guaranteed reinstated returned work as arose precisely they have had if no occurred, IFFA filed instant action contending that, even assuming was economic, entitled newly hired less crossover either under terms prestrike RLA itself. District Court denied relief part, Appeals, relying reading judicial interpretation National Relations (NLRA), reversed lower court's ruling more could crossovers. Held: An employer is lay off employees in order reinstate at conclusion strike. Pp. 423-443. (a) Nothing federal common labor law developed NLRA, may provide guiding precedent cases, indicates TWA's policy unlawful. In fact, NLRB v. Mackay Radio & Telegraph Co., 304 333, 58 904, 82 L.Ed. 1381, progeny, it unfair practice NLRA refuse discharge replacement make room end economic argument rule inapplicable crossovers because those workers must treated differently than (who, concedes, need displaced) rejected, since TWA, once reinstated, lost absolute relative terms, will able attendants—whether hires, crossovers, strikers—with regard future reductions force, desirable assignments domiciles, bids scheduling, any "cleavage" between merely inevitable effect lawful use weapons available during period self-help. Erie Resistor Corp., 373 221, 83 1139, 10 308, distinguished. To differentiate hires manner proposes penalizing exercised right protected both benefit did result NLRA. 432-439 (b) forbidden itself, which, provides greater avenues self-help exhausted statute's extensive Section 2 Fourth RLA—which prohibits carriers from "influenc[ing] coerc[ing] . join organization"—does prohibit section addressed primarily precertification rights unorganized organize choose representatives, intent protecting procedures' effectiveness assuring employees' putative representative subject control neither party enlist courts further own partisan ends. Where, here, procedures reached impasse, are free, threat involvement, turn peaceful, measures do fundamental blow activity process Moreover, nothing policy. 439-442 (c) decision guarantee same protections lawfully applied apply pre-existing uniformly employees. That this encouraging remain abandon before simply exercise peaceful power. P. 443 819 F.2d 839, (CA8 1987), reversed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., WHITE, STEVENS, SCALIA, KENNEDY, JJ., joined. BRENNAN, dissenting opinion, MARSHALL, joined, post, p. 443. BLACKMUN, Parts I II 452. Murray Gartner, New York City, petitioner. Lawrence S. Robbins, N.L.R.B., amicus curiae, support special leave Court. John Hurley, Kansas Mo., respondent. Justice O'CONNOR 1 We decide today whether, (RLA Act), 44 Stat. 577, amended, 45 U.S.C. § 151 et seq., worked striking seniority. * March 1984, Trans World Airlines, Inc. (TWA), Independent Federation Flight Attendants (IFFA Union) began 6 RLA, 156, replace prior due expire July 31, 1984. created complex general insure greatest best preferred assignments, schedules, bases appeared, furloughs endemic industry. Thus, example, should vacancy appear highly Los Angeles San Francisco "domiciles," such it. Conversely, reduction force eliminate position domicile, furloughed opt equal rank entire domicile system. 1981-1984 TWA/IFFA Collective Bargaining Agreement, Arts. 12-13, 18-A, 18-B, reprinted App. 31-62. 3 For two years Union unsuccessfully including They direct negotiation, 152 Second, mediation, 155 First, final 30-day "cooling off" period. Ibid. By early 1986 seemed imminent, 1986, went out 4 informed continue attendants, striker made unconditional offer vacancies. also applicati n effective after ended. 120-122, 132-134, 137-139. permitted promise incentives specifically linked system: gave incentive at, to, retain jobs assignments; remain, previously occupied senior, 5 As promised, 72-day utilizing approximately 1,280 fully training 2,350 some 1,220 first few days On May 17, behalf 5,000 remained accepted Union's 27th demand 17th ("cross-over" employees). Accordingly, initially recalled only 197 fill agreement, these subsequently occurred. 1988, 1,100 been full effort displacing employees, proceeded fronts. brought injunction alleging "economic strikers" "unfair reinstatement principles has interpreting (NLRA). 29 seq. See Mastro Plastics Corp. NLRB, 350 270, 76 349, 100 309 (1956). ultimately ruled against claim. Inc., 682 F.Supp. 1003 (WD Mo.1988), appeal pending, 88-1984M (CA8). At time, cross motions partial summary judgment, held employed immediately commenced. (The require status remaining hires.) 463 trained displaced strikers. 643 470 Mo.1986). 7 Meanwhile, sought declaratory judgment security clause containing provisions checkoff dues requirement survive impasse. part negotiations, survived Attendants, 640 1108 8 Appeals taken judgments. affirmed Court's 809 483 1987). separate panel untrained hires. 839 however, so holding, court relied and, secondarily, interpretations Id., 843-845. 9 granted petitions writs certiorari cases. 482 913, 107 3183, 96 671 (1987) (TWA ); 485 958, 108 1219, 99 420 (1988) ) (certiorari consider displacement crossovers). Last Term, we equally divided 175, 1101, 150 (1988). Today, reverse hold observed past carefully drawn analogies helpful deciding cases RLA. Trainmen Jacksonville Terminal 394 369, 377, 89 1109, 1114, 22 344 (1969). case, examined turned precedents guidance. E.g., Air Line Pilots Assn. International United Lines, 614 1020, 1041, 1045-1046 (ND Ill.1985), aff'd rev'd other grounds, 802 886 (CA7 1986), cert. denied, 480 946, 1605, 94 791 (1987); Machinists Aerospace Workers, 416 998, 1004-1006 (CA5 1969). 11 considered 1381 (1938). Radio, radio telegraph operators offices national telecommunications firm operations, strikers' places. replaced others "in carry business," 345-346, S.Ct., 910-11. there observed, "[t]he assurance [the employer] employment desired places might nor filled." 346, 911. various o casions reaffirmed holding Radio. 232, 1147, 308 (1963) ("We intention questioning vitality ."); Fleetwood Trailer 389 375, 379, 88 543, 546, 19 (1967) (Employers " 'legitimate substantial business justifications' refusing engaged when claimed operations"); Belknap, Hale, 491, 504, n. 8, 3172, 3180, 77 798 (1983) ("The refusal fire commitments them course satisfies justification' strikers"). 12 asks us line decided determine argues completely anomalous when, conceded, statute. Union, contrast, differences because, replacements.1 13 relies Resistor, supra, distinguish struck down employer's award 20 years' superseniority within meaning 8(a)(1) 8(a)(3) §§ 158(a)(1), 158(a)(3). observed: 14 ". Super-seniority affects tenure whereas replacement, proper Mackay, are, actuality, replaced. It one thing say loss his strike's quite another addition inferior 15 16 Unlike ceases issue over, [superseniority] plan here creates cleavage plant long Employees henceforth into camps: stayed thereby gained extra This breach reemphasized each layoff stands ever-present reminder dangers connected activities general." U.S., 230-231, 1147. 17 does cannot contend clear terms. unlike situation perm t exactly case absence Similarly, develop maintain priority whether vein, scheduling find maintaining colleagues. short, way 18 Nevertheless, create "long ended." 231, domiciles see through conclusion. crossover. permitting likely occur domiciles. unlikely back her domicile. Resentful rifts among persist argues, nondisplacement "set up competition individuals participated original undermined group's ability take very purpose [RLA] protect." Brief Respondent 36-37. reject expand Resistor. Both protect employee's Fourth; 157, thereby, "the individual decisions ." Post, 448, (BRENNAN, dissenting).2 virtually every disagree union's abide decision. exacerbated resentments created. hire inevitably dividing who, fearful permanently losing jobs, stalwart situation, apart "pressure group strike," dissent refers, 439 dissenting), "competition" arise avoid being replacement. employee awareness transfer necessary positions isolate coveting committed creating work, "puts pressure ibid., does. None scenarios, present prospect diminution upon central our All occurred Some doubtless experienced needed dissent's observation "at discrimination filling "available positions" based impermissible beside point. 450 dissenting). replacements, filled. noted above, "according principle, seniority, neutral .." divide secondary fairly arsenal employers 21 did. Because discharged unsuccessful, certain number themselves reason why gamble success suffer consequences proves Requiring "who lowest seniority," 447 visit risk. While circumstances reach back-to-work unilaterally permit displacement, statute requires result. agreements typically mark successful yet indication opted gamble; advantage declining disappears. III TWA's, statutory framework forbids 23 useful emphasized "cannot imported wholesale railway arena. Even rough circumspectly schemes." Terminal, 383, 1118. itself declined examine "panoply detailed developed" what kind picketing enjoined state courts. Rather, Congress en irely withdrawn injunctive power States: "[P]arties Act's major [may] range whatever can muster, conflicts obligation imposed law." 391-392, 1123. Terms ago Burlington Northern R. Co. Maintenance Way Employees, 481 429, 1841, 95 381 (1987), implied limit resort analogy These read "virtually endless," id., 444, 1850, backdrop contention understand parties] muster,"Trainmen, 392, 1123, beyond limitations decline do. 24 points source limitation provides, pertinent part: 25 "No carrier, officers agents shall deny question join, organize, assist organizing organization choice, unlawful carrier interfere influence coerce induce members organization. Fourth. 26 constituted coercion was, therefore, 27 enacted 1934 amendments 48 1185. From time interpret amendments, viewed addressing freedoms Virginian 300 515, 57 592, 81 789 (1937), freedom "to choice representatives 'coercive interference' 'pressure' company explicit amendment 1934." 597, citing Third, Fourth, Texas N.O.R. Clerks, 281 548, 50 427, 74 1034 (1930). Switchmen's Mediation Bd., 320 297, 64 95, 61 (1943), jurisdiction review certification Board acting Ninth amended 1934. majority agreed, directed particularly initial step bargaining—the determination representatives." 317, 105 (Reed, dissenting); 302, 97 (opinion Court); Street, 367 740, 759, 1784, 1795, 1141 (1961). 28 explanation focus clear. exhaustively procedural facilitate voluntary settlement disputes." 378, 1115. veness private depends Chicago N.W.R. Transportation 402 570, 596-597, 91 1731, 1744-1745, 187 (1971) dissenting) (the duty exhaust "does contemplate governmental should, failure accord, added scales favor thus compel agree aided party's point, impasse free self-help"); Northern, 451-452, 1854-1855 availability rather remedies "may increase settling disputes settle exhaustion procedures"). understood intervention limited where "but remedy enforce commands written Act." Switchmen's, 300, 96; 595, 1744 underlying cohesiveness [permitting interference] lies fact instance scheme begin involvement"). Here, followed interference unsuccessful then stage regulated wholly inexplicit scope allowable self-help." Trainmen, 391, 1122; 447-448, 1852-1853. Such silence amount congressional imprimatur forms postnegotiation does, indicate hesitate imply just saw basis limiting unions prohibiting fall squarely "full muster" "unsuccessfully dispute. Neither measure prevented working; inherently destructive activity. Clerks Florida East Coast 384 238, 86 1420, 501 (1966), heavily contrary. recognized carrier's depart reasonably operate 1, adopted TWA. departure examination reasonable necessity. IV 30 rossover simple preexisting power, legally deploy 31 Reversed. 32 MARSHALL joins, dissenting. 33 (RLA) employer, allocating unit discriminate giving preference crossed picket over. conclude "inherently destructive" dissent. 34 Notwithstanding suggestion portion addresses "primarily" context, ante, 440, employer. (1969), overlooks teaching case: 35 "[E]mployees enjoy engage primary strikes disputes. Whether found particular provision whole, integral 384-385, 1118-1119 (footnote omitted). 36 "particular provision," clear, 385, 20, 1119, 20. extent antistrike injunction, RLA's context State: "However, 1934, designed primarily, exclusively coercive practices." (emphasis added). Whatever "primary" too late day suggest provision, 37 compounds error mistake appears assume sanctioned mere "self-help" Ante, 440-442. Clearly case. am confident agree, But so, contains consists actions permissible protects coercion—for surely does—but protection goes far specific here. 38 key command alike, textually anchored Fourth: employees—whether stage, strike—on degree involvement strike.1 falls class justified involvement." 1744, "central theme" is, course, bring about settlement." "unless represented employees; unless certified quo maintained bargaining, mechanism hope negotiated true here: incapable bringing name "self-help," impermissibly retaliated strike.2 A. 39 broadly enjoins necessarily issue, course. occasion exception nondiscrimination "necessity." little guidance privileged, give noted, 1122. 40 arena," 1118, frequently "referred assistance construing Given paucity us, properly looks 432-439. arrives incorrect conclusion, mischaracterizes unwilling seriously seen fit afford 41 conception clearly expressed paragraph summarizes discussion law: 42 "To risk." 438. 43 understanding positi factual legal error, infect analysis place, "those risk," given risk immaterial. Rather universally work-force unionized enterprise—it vulnerable. point More fundamental, fear, inherent objection "penalizing did." opposite: allows single penalty faithful until end, What unarticulated choosing other. If indeed "penalized,"3 determining work? none, perhaps hostility toward strikes. resolving question. making reinstatements account That, 911—the familiar having dictum. discriminate—in direction—on activity, follows criterion, asks.4 B 46 narrow principle exercising Since "permanent replacements" i returning expanded cover involving lines, outside unit. Despite superficial similarity situations, strong reasons counsel applying 47 lines different bargaining-unit permanence puts others. (or outset) produces additional dynamic: now seek save improve) expense offers "individual benefits expected undermine mutual interest place jeopardy." 1146-1147, (1963). "divide conquer" tactic "strike[s] itself." 442. contravention (a)(3) 231-232, 1147-1148. my view Beyond outlawing superseniority, stand tools use, permissibility discriminatory evaluated weighing "necessity" (i.e., strike) prejudice strike.5 seems me forbid preferential treatment impact interest. recalls proceed according them.6 failed do.7 49 Precedent burden done like difficult conjure parade horribles position. Forbidding do, makes impossible want unable persuade colleagues adopt stance, sure she job. control, downturn. notion longest enterprise stake whose protected. Permitting mean six months' experience, 20-year veteran collectively fellow whole Unfo tunately injustices whichever adopt. favor—and believe provided for—the errs side preferring solidarity 51 BRENNAN joins II, 52 supported ("full-term strikers") solely chooses active ("crossovers").1 53 answers negative, concluding conduct never violates regardless necessity dictated action. dissent, JUSTICE takes diametrically opposite view, Appeals. finds destructive," 443, violative proffered justification. accurately captures delicate balance attempted achieve public's dual interests maintenance transportation service long-term stability relations rail industries. 54 My scope. Concisely stated, weight he accordingly remanded showing truly purpose. presents concerns, much false assumptions underlie erroneous 55 threshold policies acknowledges limit. Indeed, distinguish, 436, (1963), relevance legality grants other, egregious, discriminatory, practices. adopts stingy reserving protective extraordinary circumstances. doing, uses language suggests "impl[ied]," 442, express text sit comfortably results restrictive 56 When hat permits "parties 1123 facts rejects proposition relevant conflicting obligation. stated rejecting applicability sweeps broadly. great emphasis introduced "precertification focus." 441. postcertification blindspot. faced evidence railroad efforts self-organization thwarted tactics, employer-dominated unions. Certainly, cause concern: representative, legitimate relationship. There indication, Congress' concern enacting satisfied moment certification. aimed "with asserting himself hours, conditions, wages," 78 Cong.Rec. 11720 (1934) (remarks Rep. Monaghan)—not "primary revisions strengthen organizations vis-a-vis carriers, furthering basic self-adjustment industry's problems." 1795. notwithstanding, activities, coercion. reliance "an applies 59 Finding entirely proper. Officers 347 323, 98 455 (1954), affords discourage membership organization," 158(a)(3), extends "discrimination participation well adhesion membership." 40, 335. similar i.e., "join fashion. Cf. Neither, apparently, And bars retaliation Executives' Boston Maine 808 150, 158 (CA1 484 830, 102, 62 886, 897 (1987). 60 iexpress levels leads willing "imply" policies. uncertainty carries danger undermining Under longstanding jurisprudence, "represents interruption continuity relation" union, invitation "labor-management [to] revert jungle." 246-247, 1424-1425, (1966). Stated otherwise, "bounded conflict." Estreicher, Strikers Replacements, Lab.L.J. 287, 288 Contract matters raised parties' notices, 156; following often exclusive representative. See, e.g., 483, 492 depend relationship aware effectively negate other's, lest become unilateral," 246, 1424, reap rewards excess negotiation "have prolong break union." 247, 1425. view. Empresa Ecuatoriana de Aviacion Lodge 100, 690 838, 845 (CA11 1982), dism'd, 1250, 104 1457 (1983); 1006 leaves concerns. affording unusual circumstances, encourages test limits, knowing demonstrate artificially high barrier "implied" tolerance needlessly longterm natural bounds. sum, consistently difference traditional derogation law. continues recognize selective "implication." prohibition conduct. 63 standards articulates today, reaches stand. said violate (implied otherwise) fails significant rests patently inconsistent tenets "vacancies" fill, "discrimination" factor allocation force. Contrary occupies entitle illustrated precedents. 347, 911, (1938), "not bound men them" replacement" good resist flows permanence; absent necessity, furlough discharge) return. 378-379, 545-546, (1967); 514, 517, 3185, 3186, concurring judgment). not, game musical chairs: governed capture, claims entitlement. 65 tacit recognition happenstance, elevates preeminent position, naturally NLRA's strike." deduces "employees strike" "suffer unsuccessful." 66 ignores, threatens vitiate, 'majority-rule concept [that] unquestionably center policy.' Allis-Chalmers Mfg. 388 180, 87 2001, 2006, (1967), quoting Wellington, Democracy Fair Representation: Federal Responsibility System, 67 Yale L.J. 1327, 1333 (1958). "Congress clothe powers comparable possessed legislative body restrict represents." Steele Louisville Nashville 323 192, 202, 226, 173 (1944) (discussing fair representation). characterizes "their 437 added), democratic processes. member collectivity going gets normal incident process. long-recognized flow personal union. Hanson, 351 225, 714, 721, 1112 (1956); 762, 1796. elevating "free rider[s]," 762-763, nn. 14, 1796-1797, law, forgets definition, burdens borne collectively. 68 asserted dissidents buckles heavy load bear. concedes recognizes, agreements, displacement. Petitioner 29; Copaz Packing 115 LRRM 1008, 1008 (NLRB General Counsel Advice Memorandum) (employers "privileged enter provide[s] recall purposes"); Lab.Arb. 1001, 1006-1007 (recommendation Presidential Emergency new-hire "occupants covered Carrier seniority"). central, bargain away ignore 69 concludes assumptions: resulting distribution acts consequence respect crossovers' considering adverse rights. foundation, reach. 70 analyzing lawfulness conduct, starting discourages 545, show justifications.' Ibid., Great Dane Trailers, 26, 34, 1792, 1798, 1027 (1967). meet burden, inquiry end. Furthermore, introduces motivated considerations," 'the justifications invasion rights.' Metropolitan Edison 460 693, 703, 1467, 1474, 75 387 (1983), Dane, 33-34, 1797.3 71 consistent resorted facial violation Seventh unilateral changes embodied agreements. fulfill public accommodate service, interpreted granting "closely confined supervised" alter presented 1424. appropriate standard reviewing alteration concluded, adequately captured words "reasonably necessary," "provided 'reasonably necessary' construed strictly" "only operation" carrier. 248, 72 address facially RLA: Fourth's bar tendency, induces influences refrain supporting activities. logic applicable strikers—conduct face, tendency adversely willingness strikes—is 73 presumption Hot Shoppes, 146 N.L.R.B. 802, 805 (1964); 3179, presumptive NLRA). "improvis[e] emplo[y] emergency force" operations. supplying strikers." 345, proposition, "permanent" status. industries 552, 601, (1937). A presumes offered infringe stability. "There argu[e] chances elect go doubt firms principle. hand, concerned ordinary industry vital public. Experience prospects achieving 'peaceable settlement' jeopardy presence newly-hired replacements. persists, means put Controversy needs passengers shippers. railroads tempted follow example provoking bitter disruptive sections country." Lab.Arb., 1006-1007. absolutely Presuming gratuitous damage interests.4 case-specific differ: prove offering case.5 contrary (new crossovers) later placed layoff. There, found, insistence overriding super-seniority keep open unacceptable 'to excuse greatly diminish, destroy, Act.' 225-226, 1144 (quoting 132 621, 630 (1961)). concluded justification outweigh operation, claim otherwise operated necessary. Two considerations ways BRENNAN's ante 449, sufficiently egregious identified factors harmful Several, all, harms 1146-1147. stressed face overarching identifying dispositive, dispositive 79 generally, abstract, concrete evidentiary record, lead endanger unique services disputes, Railroad employers, held, "reasonable times, beset labor-management controversies." 245, stopped short imposes strikes, 250, 1426 (WHITE, outweighed case-by-case record. expect rare gravely proved strict established Coast. ultimate prevail unanswered facts. 80 "truly necessary" vacate remand consideration issue.6 Inasmuch reversing outright, irrelevant arguments persuaded below, I, 4, 6. concession Our affirmance Eleventh bear paying dues. Free riding come foreclosed. 760-762, 1795-96, "comparable" concerted discern representation (1944), Of explained preceding paragraph, advocates "penalize" strikers—in force—may lose reflection replacements," downturn factors. "penalized" apparent belief (although apparently objects "penalizing" voted repented ended). "[u]nion nature, activity," Textile 409 213, 93 389, 422 (1972) (BLACKMUN, fundament decision—even impose costs minority. rule, moreover, allow abandons rider, enjoying gains won sharing Pattern Makers 473 129, 3064, 3082, (1985) 464-466, weigh categories situations basis. per se illegal, difficulty callbacks—even superseniority—is notwithstanding assert event, BLACKMUN's 466, rarely shown "necessary" acceptable (e.g., skills), exceptions rare. Indeed described "overriding importance" "determin[ing] keeps job." Humphrey Moore, 375 335, 346-347, 84 363, 370, 370 (1964). pretense brief, may, must, accord ground resumed work—which available—the occupy "vacant" Amicus Curiae 13-15; begs prohibited discriminating theirs permanently, presents, answer assumed stating premise. Laidlaw 171 1366 (1968), dealt statement employees," again assumes proved. "working" refers period, function crossovers; instead remains parties, 6, infra, essentially remedial nature. Lone Star Industries, 279 550 (1986) (employer nondiscriminatory decisions). liability turns duration discriminatory. 496-497, 500, 3175-3176, 3177, (1983). motive analysis. 700, 1472, generally Christensen Svanoe, Motive Intent Commission Unfair La Practices: Supreme Fictive Formality, 1269 (1968). arise, actions. varies depending severity Where relatively slight, deemed antiunion animus. 1797. severe render 'inherently destructive' important rights," inferred 228, 1145, resolve element violation. think rights: motive-based 8(a)(3). reason, note, afoul set forth Count complaint seeks establish pre-strike workforce violated doing so." 3, 5; App.to Pet. Cert. 55a-56a. tried pending. Tr. Oral Arg. 42. complaint, drafted, proceeds theory rebuttable operation. 39. although "there erecting 'truly placing injured crossovers." presuming But, indicated text, further: Adopting uniform disposes treating harshly 434, 436; 43. longer endure inducement. legitimately promising laid anomalous, however; disparate unlawful, (noted supra seeks: suggested (1986), criterion. "[i]t recognized, matter sound relations, equitable employment," criterion choice. implemented proposal calling order. 90-91; 52a-53a (Complaint ¶ 28). undertaking bind litigation, note entitlement seniority-based ground. Nor argued (at explicitly) collective-bargaining Eastern 1005 (interpreting reinstatement). purely merit bounded nature used closest possible approximation imposing expanding contractual contemplated light likelihood voluntarily remand, reached.

Category: 6