Document: 437 U.S. 556 98 S.Ct. 2505 57 L.Ed.2d 428 EASTEX, INCORPORATED, Petitioner,v.NATIONAL LABOR RELATIONS BOARD. No. 77-453. Argued April 25, 1978. Decided June 22, Syllabus Employees of petitioner corporation sought to distribute a four-part union newsletter in nonworking areas petitioner's plant during time. The first and fourth sections urged employees support the extolled solidarity. second section encouraged write their legislators oppose incorporation state "right-to-work" statute into revised constitution. third criticized Presidential veto an increase federal minimum wage register vote "defeat our enemies elect friends." After representatives refused permit requested distribution, filed as unfair labor practice charge with National Labor Relations Board (NLRB), alleging that refusal interfered employees' exercise rights under § 7 Act (Act), which provides "[e]mployees shall have right . engage concerted activities for purpose collective bargaining or other mutual aid protection ," thus violated 8(a)(1). Following hearing, at contended letter were not protected by because they did relate association union, NLRB ordered cease desist from violation, having determined both those came within ambit 7's protection. was held be security is "central concept strength through solidarity" "a mandatory subject than right-to-work states," fact Texas already has diminish interest matter. even though paid more vetoed wage, on ground "minimum inevitably influences levels derived bargaining, far above minimum," concern "for plight might gain them some future time when dispute employer." Court Appeals enforced NLRB's order, rejecting contention "mutual protection" clause protects only activity directed conditions employer authority power change control, constitute such activity. court concluded "whatever reasonably related jobs status condition may handouts we treat here, distributed premises manner interfere work material met test. Held : 1. Distribution challenged 7. Pp. 563-570. (a) Act's definition "employee" 2(3) intended protect otherwise proper employers own, it long been encompasses 564-565. (b) do lose seek improve terms employment lot channels outside immediate employee-employer relationship, err holding distribution parts he protection." 565-570. 2. property take place does give rise countervailing can assert outweighing its location. Under circumstances this case, required apply rule different one applied Republic Aviation Corp. v. NLRB, 324 793, 65 982, 89 L.Ed. 1372, effect prohibit his distributing literature (in case organizational material) industrial time, absent showing ban necessary maintain discipline production. Here, Aviation, "already rightfully employer's property," so context management interests rather primarily are implicated. Petitioner, however, made no attempt show would prejudiced objected, any incremental intrusion together minimal. In addition, viewed context, closely tied vital concerns Act. 570-576. 5 Cir., 550 F.2d 198, affirmed. John B. Abercrombie, Houston, Tex., petitioner. Richard A. Allen, respondent. Mr. Justice POWELL delivered opinion Court. 1 urging discussing proposal incorporate constitution wage. also called action respect these two issues. question presented whether allow 8(a)(1) Act, amended, 61 Stat. 140, 29 U.S.C. 158(a)(1), interfering with, restraining, coercing 157, "concerted 2 * Petitioner company manufactures paper products Silsbee, Tex. Since 1954, production represented Local 801 United Paperworkers International Union. It appears many, although all, approximately 800 members 801. State statute,1 barred obtaining agreement requiring all become members. 3 March 1974, officers 801, seeking strengthen employee perhaps recruit new anticipation upcoming contract negotiations petitioner, decided employees.2 divided four sections. participate and, generally, benefits then consideration, warning "weake[n] Unions improv[e] edge business table. ' noted President recently had bill $1.60 $2.00 per hour, compared prices profits oil industry administration policies, admonished: "As working men women must defeat friends. If you haven't registered vote, please today."3 4 On 26, Hugh Terry, vice president asked Herbert George, assistant personnel director, permission "clock alley" leads clocks.4 George doubted "hand out propaganda like that," but agreed check superiors. Leonard Menius, confirmed clock alley. A few days later communicated decision gave reasons it. Boyd Young, 801,5 Terry another employee, could alley.6 conferring again reported allowed thought ways communicate employees. (Board), restrained, coerced violation 8(a)(1).7 6 At hearing charge, Menius testified objection newsletter. He denied "didn't see way [the were] Union." App. 19. Administrative Law Judge bearing relat onship between contents Because evidence "special circumstances" justify matter violation.8 affirmed Judge's rulings, findings, conclusions, adopted recommended order. 215 N.L.R.B. 271 (1974). 198 (CA5 1977). rejected argument control. Without expressing full range "when exercised off F.2d, 202, purported balance against ." Id., 203 (emphasis original). further here 204-205.9 8 apparent differences among Courts scope 7, n. 17,infra, granted certiorari. 434 1045, 888, 54 795 (1978). We affirm. II 9 Two distinct questions presented. whether, apart location activity, kind interference §§ is, takes gives outweighs See Hudgens 424 507, 521-523, 96 1029, 1037-1038, 47 196 (1976); Central Hardware Co. 407 539, 542-545, 92 2238, 2240-2242, 33 122 (19 2); Babcock & Wilcox Co., 351 105, 112, 76 679, 684, 100 975 (1956); 797-798, 985, 1372 (1945). address turn. 10 Section ."10 contends language "specific dispute" own "over issue affect." Brief 13. position, asserts term "employees" refers particular employer, behalf themselves same protected. 18, 24. argues "collective bargaining" "indicates direct relationship whereas 'other protection' refer similar nature Thus, view, "the relationship." rejects idea characterized "political," suggests discharge who engages violate Act.11 11 believe misconceives reach clause. defined 152(3), "include limited unless subchapter explicitly states This own.12 recognition intent, courts activity.13 Petitioner's point ignores settled construction. 12 find warrant view relationship. 74th Congress knew well enough labor's cause often advanced fronts grievance settlement context. recognized choosing, makes clear, somewhat broader narrower purposes "self-organization" bargaining."14 retaliation resort administrative judicial forums,15 appeals clause.16 To hold entirely unprotected—irrespective means employed—would leave open much legitimate As "frustrate policy workers act better conditions," Washington Aluminum 370 9, 14, 82 1099, 1102, 298 (1962), think narrow insists.17 13 true, course, bears less assume becomes attenuated cannot fairly deemed come neither nor appropriate, us delineate precisely boundaries That task perform instance considers wide variety cases before it.18 U.S., 798, S.Ct., 985; Phelps Dodge 313 177, 194, 845, 852, 85 1271 (1941). decide determine erred section, constitution, states." N.L.R.B., 274. warned affect adversely "by weakening improving table." render strong, for, noted, "one thing face statutory scheme legislative modification repeal" "quite prospect will frozen concrete constitutional mandate." 205. say relation guarantee cited 16, supra. 14 criticizing "defe t friends," despite reasoned "concern [petitioner's] 274 (internal quotation marks omitted). acted discretion holding. Few topics level wages. entitled note widely impact negotiated wages generally,19 phenomenon lost union's call, back persons it, generally. 15 sum, 7.20 B 16 remains Consideration begin Court's decisions supra, (1956). upheld Board's ruling obtained shown ineffective. 798-799, 985-986, 987. reached acceptable "adjustment undisputed self-organization assured Wagner equally establishments." 797-798,21 985. 17 Wilcox, hand, nonemployees enter literature. situation, there distinction "of substance" "rules law applicable nonemployees." 113, 684. difference trespass property, not. Striking keep strangers entering prevent "nonemployee [on property] if reasonable efforts available communication enable message emphasized cases: "A wholly struck carried since involved." 521-522, n.10, 1037; 543-545, 2241-2242. 18 instant resembles closely. there, attempted And clearly took property. possible part purely matters, question, then, Aviation. 19 distinguish distributions basis content each distribution. Echoing earlier argument, urges should "does involve request over degree control .." 28. "unnecessary intrusio[n] rights," id., 29, absence alternative fellow available. 20 adopt hand. place, reliance largely misplaced. "employer's [its] interests" Hudgens, 1037 n.10. proposed here. Even mere said intrude meaningful sense, va y material. cognizable preventing bringing onto there—not choosing wishes suppress.22 21 side balance, argued deals matters affecting employees, removed central application Although force circumstances, 522, 1037, date generally chosen refinement rules regarding employers' prepared took. 22 complexity difficulty compounded greatly without subcategories whatever literature, quite adequately properly account particularly appropriate material, "is where [employees] share common traditionally persuade life employees." Gale Products, 142 1246, 1249 (1963). 23 need go every in-plant falls protective area yet received mature consideration.23 "nature problem, revealed unfolding variant situations," requires "an evolutionary process rational response, quick, definitive formula comprehensive answer." 761, Electrical Workers 366 667, 674, 81 1285, 1290, 592 (1961). For reason, confine facts case. 24 concedes substantial portion above, objected suppress. Yet sections, Moreover, undertook order boost position Act.24 applying judgment therefore 25 Affirmed. APPENDIX TO OPINION OF THE COURT NEWS BULLETIN LOCAL MEMBERS FROM BOYD YOUNG—PRESIDENT WE NEED YOU 26 member, help build Union your understanding. Too disinterested look upon being something separate themselves. Nothing truth. 27 good make policies practices membership—the active membership. ever missed target views known final made—The Meeting. 28 impossible satisfy everyone member opportunity bring majority around thinking. how democratic organization works it's best system around. Through participation voice felt throughout 30 PHONY LABEL—"right work" 31 Wages table stronger Union, improvements. "right simply weaken Unions. misleading title anyone job. weakens negotiating outlawing provisions contracts shops, agency modified shops. e laws just free riders. Free riders people paying dues. They ride dues pay life. very organized financed drive supported big business, namely, Right-To-Work Committee Chamber Commerce. successful, itself States consistently higher conditions. weak concerning class add insult injury. fail up future. I urge congressman senator protest incorporated Write representative let delegate know feel. POLITICS AND INFLATION 32 Minimum Wage Bill, HR 7935, Nixon. termed inflationary. raise present hour most covered workers. seems almost unbelievable inflationary remain silent about companies ranging 56% 280%. 34 disturbing, after price gasoline increased 50 cents gallon, fuel crisis beginning disappear. reaches 70 gallon probably couldn't closed filling station empty pump Northern Hemisphere. 35 now pr[o]ceeding hopefully sign law. 40 hours week, 52 weeks year never earn money family. 36 today. FOOD FOR THOUGHT 37 strength, justice, moderation; 38 disunion, nothing alternating humility insolence. COMING TOGETHER WAS BEGINNING STAYING IS PROGRESS WORKING MEANS SUCCESS 39 PERSON WHO STANDS NEUTRAL, NOTHING! WHITE, concurring. 41 understand record engaged circulars encompassed nevertheless permitted forbid report Judge. 42 agree least sense propagandizing materials right-towork laws, current claims record, Accordingly, join 43 doing so, easy explain why used subjects unrelated convenient latter use "management interests." Ownership normally confers Here finding connected relationship; doubt always solicitations protection, times. Such goals ends force, considered whole, public, deeply divided, sympathy whatsoever, connection care inferred supports other. All these, substantiated appear factors weighed determining strictures 44 However be, us, am affirm Appeals. 45 REHNQUIST, whom CHIEF JUSTICE joins, dissenting. 46 conclude require opening private sort political advocacy involved owner prescribe fully " 'A licensee goes beyond privileges license trespasser.' Burton Construction Shipbuilding Broussard, 154 50, 58, 273 S.W.2d 598, 603 (1954) (citation Brown Dellinger, 355 742 (Tex.Civ.App.1962); 56 Tex.Jur.2d, Trespass (1964). effort leaflet defiance infringing right. There indication "only there." Ante, 573. So appears, admit certain leaflets exclude others, pleases him. mean cognizance greater constitutionally so. From earliest construing weight rights, Fifth Amendment Constitution. quick given authorized displacement federally created Fansteel Metallurgical Corp., 306 240, 59 490, 83 627 (1939), dealt compel reinstatement discharged violating engaging sitdown strike. Chief Hughes wrote Court: 48 "We unable retain employ regardless unlawful conduct,—to invest strike immunity acts violence enjoyed remained work. Apart validity enactment sort, intention found definite unmistakable expression. expression provision." 255, 496. 49 265, 500 (Stone, J., concurring part). An effectuate Act: "to safeguard promotion peace remove obstructions flow commerce Act." 257, 497. Those six years There, displace accommodate wear insignia. (1956), invoke solicit membership, extremely limited.1 Later, (1972), explained 51 "The principle accommodation rights. 'yielding' campaign. facilitate requisite access shown, (i) organizers; (ii) prescribed premises; (iii) duration short, announced campaigns temporary minimal." 544-545,2 2242. today cites anyone, nonemployee, anything simple control.3 eschewing analysis deference supposed expertise Board, permits rights" certainly "temporary"; deprivation dismissed "minimal." Commerce Clause advocacy, but, "such expression." Fansteel, Finding away 53 reverse Tex.Rev.Civ.Stat.Ann., Art. 5154g, 1; 5207a, (Vernon 1971). testified: going negotiations, [sic ] trying reorganize group group. get members, non-members, try motivate conviction organize little." 11. reprinted appendix opinion. described passageway feet wide, flanked either offices. addition clocks, contains bulletin board benches chairs waiting transact Clock alley physically discrete plant." 271, longtime serve Young "permission Company non-working hours, non-production areas, specifically alley; posed willing move Company, end walk guardhouse parking lot, hand leaving plant, wouldn't litter problem 8-9. credited Young's testimony 9. restrain, coerce guaranteed in" presented, judge consider 275 alternative, whole 274, relying Samsonite 206 343 (1973). maintained overbroad no-solicitation rule. 272. rely refusing newsletter, 272 4, Appeals, 201 us. went disapprove decision, 8, stating presence rescue significantly protected." express correctness statement. denying rehearing en banc, reaffirmed balanced deleted references First Amendment. 1280 set forth full: "Employees self-organize, form, join, assist organizations, bargain collectively refrain except extent affected membership 158(a)(3) [29]." Tr. Oral Arg. 17: "QUESTION: [Suppose the] banding want pass public street; says, 'I don't fellows getting I'm fire you.' "Now, practice? "MR. ABERCROMBIE: Your Honor, submit not, 7." 191-192, 851-852, (1941); S.Rep.No.573, Cong., 1st Sess., (1935); H.R.Rep.No.1147, 9-10 (1935). E. g., Fort Wayne Corrugated Paper 111 869, 874 (CA7 1940), enf'g Cayuga Linen Cotten Mills, Inc., 1, 4-5 (1939) (right organizing employees); J. G. oswell 136 585, 595 (CA9 1943), 968 (1941) striking employer); Redwing Carriers, 137 1545, 1546-1547 enf'd sub nom. Teamsters 117 U.S.App.D.C. 84, 325 1011 (1963), cert. denied, 377 905, 84 1165, 176 (1964) honor picket line Alamo Express 430 1032, 1036 1970), 400 1021, 91 584, 633 (1971), 170 315 (1968) (accord); Service Employees, 188 957, 959 (1971) demonstrate Yellow Cab, 210 568, 569 (1974) employees). opinion, above-cited cases. modeled Norris-LaGuardia 70, 102, declares "shall interference, restraint, coercion labor, agents, designation expresses Congress' earners jointly wages, welfare S.Rep.No.163, 72d (1932) supplied). Similar 7(a)(1) Industrial Recovery 1933, 198; 449, 151 (declaration policy); 2(a) Labor-Management Reporting Disclosure 1959, 73 519, 401(a) (findings, purposes, policy). Walls Mfg. N.L. .B. 1317 enf'd, 116 321 753, 375 923, 166 (1963); Socony Mobil Oil 153 1244 (1965), 357 662 (CA2 1966); Altex Ready Mixed Concrete 542 295, 297 1976), 223 696 Wray Electric Contracting, 757 (1974); Alleluia Cushion 221 999 (1975); King Soopers, 222 Triangle Tool Engineering, 226 1354 (1976). what "concerted" Cf. Weingarten, 420 251, 260-261, 95 959, 965, 171 (1975). Bethlehem 114 930, 937 (CA1 motion 312 710, 448, 1141 (1941), 105 (1939); Peter Cailler Kohler Swiss Chocolates 130 503, 506 1942) (dicta), 1170 Kaiser Engineers 538 1379, 1384-1385 213 752 cf. Machinists Street, 367 740, 800-801, 812-816, 1784, 1815, 1821-1823, (1961) (Frankfurter, dissenting). Other limits spheres. CIO, 335 106, 68 1349, 1849 (1948); Auto Workers, 352 567, 77 529, 563 (1957); supra; Railway Clerks 373 1158, 235 Pipefitters States, 385, 2247, (1972); Abood Detroit Bd. Educ., 431 209, 97 1782, 261 (1977). relies several construe narrowly we. Leslie Metal Arts 509 811 (CA6 1975), Shelly Anderson Furniture 497 1200 1974), quote treatise proposition specific remedy" "work-related complaint grievance." 813, 1202-1203, quoting 18B T. Kheel, 10.02[3], pp. 10-21 unnecessary treatise's formulation, "rule," relied nn. 13, 15, R. Gorman, 296-302 Sixth Ninth Circuits taken reference seem suggest. See, e. Kellogg 457 522-523 1972), cited; 1384-1385. Similarly, Fourth Circuit stated Bretz Fuel 392 (1954), intimately employment," 396, turned consisted wildcat collective-bargaining 397-398. leaves G&W Specialty 360 873 1966), enforce there—circulation petition employee-run credit union—"involved control." 876. narrowing bstantial contrary, including Seventh Circuit's prior 874. persuasive position. Ford Motor 663, 666 (1975), 546 418 (CA3 1976) (holding "purely tract" unprotected election candidate ultimate conditions"); (Rouge Complex), 233 698, 705 (1977) (decision Judge) (concession General Counsel Revolutionary Communist Party celebration, Party's newspaper, unprotected). clear altogether, premises. comes clause, forms permissibly depend object lack affords 'mutual unconvincing. economic pressure convincing." Getman, Protection Economic Pressure 115 U.Pa.L.Rev. 1195, 1221 (1967). N. Chamberlain, 435-437 (1958); L. Reynolds, Economics (5th ed. 1970). issues advancing political, frustrated characterization conduct speech differently another. types remotely But determination left case-by-case consideration. rulings insignia distinguished oral solicitation, former Stoddard-Quirk 138 615 (1962). test squared itself, "involve [had] sure, inflammatory threatening disorder interruption normal functioning exception applicable. Procter Gamble 160 334, 395 (1966). extended encompass nonorganizational complaining incumbent leadership (1973); McDonnell Douglas 280 Motors 212 133 Singer 220 1179 663 (1 75), 1976). exhorting alleged antilabor combination." 569. political" premises, arguably n.18, approved extension cover dissident advocating union. Magnavox 415 322, 94 358 327, 1102 (STEWART, dissenting occasion state: "Unions continuing recognition. Whether goal merely preserve majority, achieve 100% membership—a agreements permitted, .—these Letter Carriers Austin, 264, 279, 2770, 2778, 745 assertion contrary notwithstanding, "trespass ante, 571, override entry accept implications dictum 1036-1037, (1976), turn traced quoted 803-804, 987-988, disregarded characterizing interes[t]." complied there. subordinated various governmental enactments read "§ suggestion rest paragraph suggested distinctions drawn "lawful activity" "organizational activity," 1037. Earlier Term, Sears, Roebuck Carpenters, 436 180, 1745, conceded trespassory picketing "Even assumption standards instances." 206, 1762 (footnote No "almost political," 527 n.20, contrasts markedly assurance, "common-sense" commercial speech. Ohralik Ohio Bar Assn., 447, 455-456, 1912, 1918, 444 little complain. Where reason him committed elsewhere.

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