Document: 394 U.S. 759 89 S.Ct. 1426 22 L.Ed.2d 709 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.WYMAN-GORDON COMPANY. No. 463. Argued March 3, 1969. Decided April 23, [Syllabus from 760 intentionally omitted] Sol. Gen. Erwin N. Griswold for petitioner. Quentin O. Young, Boston, Mass., respondent. Mr. Justice FORTAS announced the judgment of Court and delivered an opinion in which CHIEF JUSTICE, STEWART, WHITE join. 1 On petition International Brotherhood Boilermakers pursuant to its powers under § 9 National Labor Relations Act, 49 Stat. 453, 29 U.S.C. 159, Board ordered election among production maintenance employees respondent company. At election, were select one two labor unions as their exclusive bargaining representative, or choose not be represented by a union at all. In connection with furnish list names addresses who could vote so that use purposes. The refused comply order, was held without list. Both defeated he election. 2 upheld unions' objections because had furnished list, new again obey order supply employees, issued subpoena ordering provide else produce personnel payroll records showing employees' addresses. filed action United States District Massachusetts seeking have enforced mandatory injunction compel order. 3 Board's valid directed comply. 270 F.Supp. 280 (1967). Appeals First Circuit reversed. 397 F.2d (1968). thought this case invalid it based on rule laid down earlier decision Board, Excelsior Underwear Inc., 156 N.L.R.B. 1236 (1966), been promulgated accordance requirements Administrative Procedure Act prescribes making, 5 553.* We granted certiorari resolve conflict circuits concerning validity effect rule. 393 932, 301, 21 268 (1968).1 I. 4 involved certification results elections lost companies. companies denied eligible vote. course proceedings, 'invited certain interested parties' file briefs participate oral argument issue whether should require employer lists employees. N.L.R.B., 1238. Various groups trade did so, amici curiae. After these Excelsior. It purported establish general such must provided, but declined apply case. Instead, would 'only those are directed, consented to, subsequent 30 days date (the) Decision.' Id., 1240, n. 5. Specifically, 'a requirement will applied all cases. That is, within 7 after Regional Director has approved consent-election agreement entered into parties * *, eligibility containing voters. Director, turn, shall make information available Failure grounds setting aside whenever proper filed.' 1239—1240. 6 Section empowers 'to manner prescribed rules regulations may necessary carry out provisions Act.' 156. contains specific governing agency defines 'an statement particular applicability future effect,' 551(4).2 requires other things, publication Federal Register notice proposed making hearing; opportunity heard; basis purposes; adopted. See 553. asks us hold discretion promulgate adjudicatory complying Act. rule-making avoid, designed assure fairness mature consideration application. H.R.Rep. 1980, 79th Cong., 2d Sess., 21—26 (1946); S.Rep. 752, 1st 13—16 (1945). They avoided process proceedings. There is no warrant law replace statutory scheme procedure own invention. Apart fact device fashioned does command, obviously falls short substance 'rule' created published Register, accepted means giving adopted; only selected organizations given 'hearing,' whereas character; terms stated hearing, making. 8 Solicitor General deny ignored Act.3 But appears argue Excelsior's command substantive regulation, binding upon such, proceeding, adjudication met. This misses point. question that, validly decide union. what even made entities properly subject rule: i.e., exercise quasi-legislative power. Adjudicated cases do, course, serve vehicles formulation policies, therein. H. Friendly, Agencies 36—52 (1962).4 generally guide expected take . Subject qualified role stare decisis administrative process, they precedents. far saying, suggests, commands, decisions, policies 'rules' sense must, more, obeyed affected public. 10 present case, however, itself specifically submit election.5 direction, part directing held, unquestionably valid. See, e.g., NLRB v. Waterman S.S. Co., 309 206, 226, 60 493, 503, 84 L.Ed. 704 (1940). Even though direction followed citation 'Excelsior 111,' required obey. Absent compulsion statute adopted do so. 11 Because proceeding reversed.6 II. 12 also argues need disclosure substantively invalid. lacks merit. raises clearly correctly answered decision. All Courts passed requirement,7 court below strongly intimated view one, F.2d, 396. 13 number Congress wide ensure fair free choice representatives. supra, 503; A. J. Tower 329 324, 330, 67 327, 91 322 (1946). furthers objective encouraging informed employee electorate allowing right access management already possesses. weigh against interest asserted avoiding problems solicitation present. III. 14 contends if valid, power enforce subpoena. 11(1) provides 'any evidence any person being investigated proceeded relates matter investigation question,' subpoenas 'requiring attendance testimony witnesses investigation.' 11(2) gives district courts jurisdiction, application requiring appear before there ordered, give touching *.' §§ 161(1), (2). 15 takes position authority here 'evidence' meaning language. 'in context proof hearing books papers assistance conducting investigation.'8 appeals construed term similar manner. Hanes Hosiery Division, 384 188, 191—192 (C.A.4th Cir. 1967). Rohlen, 385 52, 55—58 (C.A.7th 1967); Beech-Nut Life Savers, 406 253, 259 (C.A.2d 1968); British Auto Parts, Inc. NLRB, 405 1182, 1184 (C.A.9th Q—T Shoe Mfg. 409 1247 (C.A.3d 1969). agree scope exercised. 16 reversed, remanded directions 17 ordered. 18 Judgment reversed directions. 19 BLACK, whom BRENNAN MARSHALL join, concurring result. 20 I Parts II III prevailing FORTAS, holding requirement1 prior merits can cannot subscribe criticism adopting (1966). Nor accept novel theory manages uphold enforcement practice spite considers violations Although apparently intended rebuke encourage follow plurality's conception practice, result instead judicial control whatsoever regarding compliance procedures applicable federal statutes 151 et seq., 551 seq. Apparently, opinion, 'adjudication' incident agency, 'rule making' materially violated proceedings sanction illegal action. am convinced legitimate it, reason rather than making.' Since my reasons joining reversal differ substantially set forth spell them some length. Most agencies, like here, functions legislation creating them: (1) conditions having laws, speaking, power; (2) hear adjudicate controversies, quasi-judicial line between always clear merge many points. For example, exercising function frequently controversies doctrines, theretofore problem, drawn sure broader principles reflecting purposes invoked dealing related problems. If reached becomes precedent, guides conduct much same way power, both formal alike review. gave separate almost inseparably powers.2 No language grant exclude other. 23 conclusion. specify exercised, benefit provision heard, and, establishment provided then Register. laudable purpose prescribing requirements, evidently contemplated agencies when announce govern future. conferred proceed adjudication, specified distinct exercised.3 'agency order,' 'order' defined 'the whole final disposition, affirmative, negative, injunctive, declaratory form, including licensing.' 551(7), (6). Thus, although true approach frees procedural permits done satisfy definition imposes met adjudication. Under circumstances, long dealt satisfying either along read conferring decide, discretion, Our SEC Chenery Corp., 332 194, 1575, 1995 (1947), involve nonetheless equally here. As we explained individual, ad hoc litigation lies primarily agency.' 203, S.Ct., 1580. 24 dispute safeguards fully satisfied decision, seems plain me constitute prospectively applied. Great Northern R. Co. Sunburst Oil & Refining 287 358, 53 145, 77 360 (1932). abstractly blue brand activities future, established direct consequence powers. Sections 9(c)(1) empower investigations, hearings, supervise elctions determine representative wish represent them. key plan settle quarrels might interrupt flow commerce. A controversy arose Company agent desired act invoked, losing sought aside. Undoubtedly determination confirm order' thus Procedure. 25 considered parti itself, called inseparable process. principal ground, urged unions, 1236—1238. decided rejected contention unions. doing chose explain rejection claim, explanation, written source requirement. regarded less appropriate merely rejecting disagreed rather, see 1239, 5, while agreeing required, feel upset Company's justified reliance previous refusals 26 decisions 'new' party retroactively inherent parts think opposing today highly impractical one. effect, adjudicating retroactively. Obviously, until issues relevant adoption careful evaluation arguments presented fairer prospectively, faced unpleasant starting over evaluate question, time 'rule-making' overriding considerations applying anyway, preserve avoid duplication effort. good impose inflexible agencies. 27 foregoing acted well choosing did, reverse basis. 28 DOUGLAS, dissenting. 553(b) 'of Public participation—in essence 553(c). And 'interested' persons issuance, amendment, repeal rule, 1236, 1966 representation voters, contestants there. 31 followed; seven months 32 willing assume Boar treat each special facts perform conventional way, difficulty affirming different bound Brother HARLAN outlined When otherwise, let 'have cake eat too.' 33 Committee reports 'provides quite 'legislative' 'judicial' agencies.' S.Rep.No.752, 7; H.R.Rep.No.1980, 17. 553(b)(3) part: 34 'Except statute, subsection apply— 35 '(A) interpretative rules, statements policy, organization, procedure, practice.' 36 stop inquire word 'procedure' embraces. 553(d) provides, exceptions material1 that: 37 'The service effective mind, days. House report states (which 4(c) draft) 'does alternative public sections.' 25. added, 'It afford reasonable prepare issuance prompt.' Ibid. S.Rep., supra. 15. 38 'substantive' described possibly cover 'adjudications,' performance function. answer say review 'adjudicatory.' says, fit cased times. particularized facts. far-reaching policy covering represention elections. 39 therefore put 40 performs important functions. entire segment society controls regimentation forthcoming. heard. Recently Rules Highway Administration location design freeways, Fed.Reg. 15663, Governor every State appeared sent emissary. revision promulgated. 727. 41 uncommon experience. discover repositories ultimate wisdom; learn suggestions outsiders often advice. 45 (1962). 42 healthy helps viable. Multiplication growing more remote people aff cted likely arbitrary airing through makes bureaucracy responsive needs brake growth absolutism regime now governs us. 43 Many touch numerous aspects lives poor. Rule group discussed Bonfield, Representation Poor Rulemaking, Mich.L.Rev. 511, 512 (1969): 44 'An promulgating affecting poor automatically knows best people. Government administrators usually middle-class backgounds, experiences, associations; therefore, tend viewpoints, orientations, understandings. reflect accurately interests affluent economically underprivileged. Consequently, concern when, inadequately rulemaking process.' While suggestion labor-management area sophisticated opponents concerned, illustrate lax allow play fast loose precedent dangerous repercussions. 46 survival questionable somewhat submerged case' used. Shapiro, Choice Rulemaking Adjudication Development Policy, 78 Harv.L.Rev. 921, 946—947 (1965). Moreover, 'agencies freer disregard depart regulations.' 947. full attributable least inertia reluctance stand.' 972. 47 cure-all; force display responsible 48 governed strictly likes do.2 Appeals, used plainly flouted Act: 50 'Recognizing problem just solicit curiae, ultimately, thirty consider bluntly, Congressional mandate chose, rest.' 394, 396—397. 51 affirm judgment. 52 HARLAN, support Government's claim 'adjudicating' announces refuses it. 'adjudicates' 'formulation order.' 551(7). (Emphasis supplied.) An include disposition 551(6). apparent 551(4). promulgation, Act.1 54 natural interpretation immediate initiating proceeding. chooses represents departure preexisting understandings unfair pending matters. precisely situations, patterns revolutionized, vital DOUGLAS describes dissenting basically agree. 55 Given violation believe If, plurality adjudications, completely trivialized. today's approach, evade commands desires yet coerce regulated industry compliance. ' so,' ante, 766, threatening enforce. obedience rule? 56 One worlds. Either not. Before permitted adopt significantly alters pre-existing understandings, satisfactory wide-ranging enacts solution problem. 57 refusing position, undermines compromises most basic our past decisions. Court's landmark 318 80, 94, 63 454, 462, 87 626 (1943), obliged remand relied improper justify action: 58 'If rests determination—an entrusted agency—of reviewing empowered come play, stand misconceived law. orderly functioning disclosed adequately sustained.' 59 Chenery's teachings ffice raised Wyman-Gordon ground itself: '(It) known briefs, amicus curiae parties. nevertheless embodied undersigned (Acting Director) it.' Appendix 33. 61 'it substantial warranting review.' 35. 62 major invalid, remand. Bell States, 366 393, 412—413, 81 1230, 1240—1241, L.E.2d 365 (1961); Burlington Truck Lines 371 156, 167—168, 83 239, 245—246, 207 (1962); cf. Phelps Dodge Corp. 313 177, 196—197, 845, 853—854, 85 1271 (1941). explains leading 'There slightest uncertainty outcome (this) proceeding' Ante, 6, 767. perceive justification whatever assertion. invalidly promulgated, minimum, recanvass competing case.2 know reappraisal be. Surely, degree certainty embraced simply usurps says otherwise. Appeals. (Reporter's Note: citations opinions Supplement IV 1964 edition U.S.Code.) certiorari, Fifth expressly Howell 400 213 Two explicitly passing correctness method 188 three adopted, 253 1182 Q-T 1969); reaffirmed Groendyke Transport, Davis, 1158 (1969). Chief Judge Aldrich involves matters fall Act's exceptions. 553(b)(A). never utilized procedures. criticized contravening K. Law Treatise 6.13 (Supp.1965); Peck, Atrophied Rule-Making Powers 70 Yale L.J. 729 (1961). previously articulated questioning propriety procedure. He cites Republic Aviation 324 793, 65 982, 1372 (1945); Seven-Up Bottling 344 344, 73 287, 97 377 (1953); Brooks 348 96, 75 176, 99 125 (1954). none ruled sanctioned quasilegislative power—i.e., making—without NLRA his Decision Direction Election, '(a)n (7) Election. *' HARLAN'S dissent improperly issuing relies (1943). To idle useless formality. convert ping-pong game. Chenery, Commission wrong standards complex factual situation, undertake Commission's Here, contrast, seriously contestable. meaningless P. Stevens 1207 1969), cited 1, upra. F.Supp., 285. reach question. first referred lower courts, commentators rule.' understand imply necessarily kind sake clarity, chosen referring 9(c)(1), 10; 159(c)(1), 160. 'adjudication,' includes issues, pleadings, 554, 556, 557. exempts worker representatives' 554(a)(6), 556(a), 557(a), '(1) military foreign affairs States; '(2) relating property, loans, grants, benefits, contracts.' 553(a). These exclude, inter alia, Forest Service, Park System, Bureau Land Management, 'public property' Interior Department leases off-shore oil properties. compilation Pike Fisher, (2d series 1952). misuses methods uses press releases announcing ought rules. violating instances serious injustice.' (Supp.1965). advanced below, invoves exception 553(b)(A) indicated, 781, go further initiate where, recognized departs practices fairly absence employers during organizing campaigns.

Category: 8