Source: https://m.openjurist.org/587/f2d/90
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Document Index: 612796776

Matched Legal Cases: ['§ 8', '§ 158', '§ 158', '§ 8', '§ 8', '§ 151', '§ 157', '§ 8']

587 F2d 90 Waterbury Community Antenna Inc v. National Labor Relations Board | OpenJurist
587 F. 2d 90 - Waterbury Community Antenna Inc v. National Labor Relations Board
587 F.2d 90
99 L.R.R.M. (BNA) 3216, 84 Lab.Cas. P 10,887
WATERBURY COMMUNITY ANTENNA, INC., Petitioner-Cross-Respondent,
Nos. 943, 944, Dockets 78-4008, 78-4030.
Decided Oct. 27, 1978.
Albert H. Turkus, Washington, D. C. (Thomas H. Wall, Marshall F. Berman, Washington, D. C., of counsel), for petitioner-cross-respondent.
Alan Banov, N. L. R. B., Washington, D. C. (John S. Irving, Gen. Counsel, John E. Higgins, Jr., Deputy Gen. Counsel, Carl L. Taylor, Associate Gen. Counsel, Elliott Moore, Deputy Associate Gen. Counsel, Elinor Hadley Stillman, N. L. R. B., Washington, D. C., of counsel), for respondent-cross-petitioner.
Before FEINBERG and MESKILL, Circuit Judges, and PORT,* District Judge.
This case is before us upon a petition for review and a cross-application for enforcement of an order of the National Labor Relations Board. The principal issue is whether the record contains substantial evidence to support the Board's finding that the petitioner violated § 8(a)(3) of the National Labor Relations Act, 29 U.S.C. § 158(a)(3), by discharging one of its employees.FACTS
It is undisputed that Tabaka's job was a temporary one: "Baker intended and Tabaka understood that Tabaka was being hired in connection with plant construction only and that his job would end when the work for which he was being hired came to an end."1 Because of a back injury, Tabaka was unable to perform normal tasks, such as climbing telephone poles, required of post-construction operating personnel, such as installers or repairmen. Baker gave Tabaka the title of construction engineer/draftsman. Forms completed by Baker at the time Tabaka was hired indicate that Tabaka was "Needed for Pole survey to replace Bill Boone" and that he was hired "to do pole survey with telco/Permit work & drafting." The pole survey consisted of a physical inspection, by Tabaka and a telephone company employee, of each telephone pole. With respect to each pole, they would note what, if anything, had to be done to ensure that the pole would conform to legal requirements when petitioner's cable was attached. Tabaka's immediate superior was Petruzzi.
At Fraser's request, Tabaka arranged a meeting of petitioner's employees at a restaurant on October 21, 1975. Nine employees attended, including Tabaka, and all nine signed union authorization cards.2 On October 22, Fraser sent a mailgram to Baker in which recognition was requested. The union filed an election petition with the Board on October 28. Two days later, counsel for petitioner sent a letter responding to the mailgram by declining to recognize the union and suggesting that an election petition be filed.
(footnote omitted.)3
In the fall of 1975, some construction errors were discovered, and, according to Tabaka, Petruzzi told him to "go out there in the field and check the whole area." Tabaka then began conducting an inspection independently of Sullivan in order to make sure that corrections that had been ordered after the final inspection were done properly. When Tabaka found errors, he would bring them to Sullivan's attention. Sullivan objected to this practice. He did not like being rushed by Tabaka during the first inspection, so that petitioner could get its refund sooner, only to discover that Tabaka had conducted yet another inspection on his own and found new errors. The practice was either discontinued or modified. As Sullivan explained, "I said, no way. I said when we look at that pole, that pole is going to be right or we're not going to leave that site until it is. And, that's the way it worked . . . ." In theory it would have been possible for Tabaka to continue his independent "final final" inspections after the conclusion of the joint final inspection.4 As a practical matter, however, by the end of the final inspection there were so few corrections to inspect that they could hardly have justified his continued employment. Some of the work Tabaka began to perform near the end of the final inspection was actually the responsibility of Magnavox. The construction contract between petitioner and Magnavox called for Magnavox to supply petitioner with a map of the system "as built." In effect, as the system neared completion, and as Tabaka updated his maps, he came more and more to perform a function that petitioner was paying Magnavox to perform. Thus, early in January, 1976, Petruzzi instructed Tabaka to turn over this work to Jack Reed of Magnavox.
Section 8(a)(3) of the National Labor Relations Act makes it an unfair labor practice for an employer "by discrimination in regard to hire or tenure of employment or any term or condition of employment to encourage or discourage membership in any labor organization." 29 U.S.C. § 158(a)(3). This provision reflects the Act's general policy "to permit workers to exercise freely the right to join unions, to be active or passive members, or to abstain from joining any union at all without imperiling their right to a livelihood." NLRB v. Milk Drivers & Dairy Employees, Local 338, 531 F.2d 1162, 1163 (2d Cir. 1976), Citing Radio Officers' Union v. NLRB, 347 U.S. 17, 39-42, 74 S.Ct. 323, 98 L.Ed. 455 (1954). In the interpretation of this provision, the courts have been mindful of "the employer's right to manage his enterprise." American Ship Building Co. v. NLRB, 380 U.S. 300, 311, 85 S.Ct. 955, 964, 13 L.Ed.2d 855 (1965). Thus, the courts "have consistently construed the section to leave unscathed a wide range of employer actions taken to serve legitimate business interests in some significant fashion, even though the act committed, may tend to discourage union membership." Id., citing NLRB v. Mackay Radio & Telegraph Co., 304 U.S. 333, 347, 58 S.Ct. 904, 82 L.Ed. 1381 (1938); See NLRB v. Advanced Business Forms Corp., 474 F.2d 457, 464 (2d Cir. 1973), Citing NLRB v. Jones & Laughlin Steel Corp., 301 U.S. 1, 45-46, 57 S.Ct. 615, 81 L.Ed. 893 (1937); NLRB v. Dorn's Transportation Co., 405 F.2d 706, 712 (2d Cir. 1969).
An accommodation of the interests of both the employer and the employee in a case such as this one "requires a delicate factual determination," NLRB v. Park Edge Sheridan Meats, Inc., 341 F.2d 725, 728 (2d Cir. 1965), in which "the 'real motive' of the employer . . . is decisive." NLRB v. Brown, 380 U.S. 278, 287, 85 S.Ct. 980, 986, 13 L.Ed.2d 839 (1965), Quoting Associated Press v. NLRB, 301 U.S. 103, 132, 57 S.Ct. 650, 81 L.Ed. 953 (1937). See Radio Officers' Union v. NLRB, supra, 347 U.S. at 43. Although the general rule is that the burden rests with the General Counsel to prove discriminatory intent, it is clear that "some conduct carries with it 'unavoidable consequences which the employer not only foresaw but which he must have intended' and thus bears 'its own indicia of intent,' " NLRB v. Great Dane Trailers, Inc., 388 U.S. 26, 33, 87 S.Ct. 1792, 1797, 18 L.Ed.2d 1027 (1967), Quoting NLRB v. Erie Resistor Corp., 373 U.S. 221, 228, 231, 83 S.Ct. 1139, 10 L.Ed.2d 308 (1963), and in such cases, which involve conduct of an "inherently discriminatory or destructive nature," NLRB v. Erie Resistor Corp., supra, 373 U.S. at 228, 83 S.Ct. at 1145, the burden is on the employer to justify its conduct by showing " 'legitimate and substantial business justifications.' " NLRB v. Fleetwood Trailer Co., 389 U.S. 375, 378, 88 S.Ct. 543, 546, 19 L.Ed.2d 614 (1967), Quoting NLRB v. Great Dane Trailers, Inc., supra, 388 U.S. at 34, 87 S.Ct. 1792. However, there is nothing inherently discriminatory or destructive about the discharge of a single employee for cause, even if that employee is a union activist. It is well established that employees who are active in union affairs do not thereby obtain a special immunity from ordinary employment decisions. Local 357, International Brotherhood of Teamsters v. NLRB, 365 U.S. 667, 679, 81 S.Ct. 835, 6 L.Ed.2d 11 (1961) (Harlan, J., concurring), Citing NLRB v. Universal Camera Corp., 190 F.2d 429 (2d Cir. 1951) (L. Hand, J.). See Firestone Tire & Rubber Co. v. NLRB, 539 F.2d 1335, 1337 (4th Cir. 1976); NLRB v. Bausch & Lomb, Inc., 526 F.2d 817, 821 (2d Cir. 1975); Cain's Coffee Co. v. NLRB, 404 F.2d 1172, 1175 (10th Cir. 1968); NLRB v. Billen Shoe Co., 397 F.2d 801, 803 (1st Cir. 1968); NLRB v. Ogle Protection Service, Inc., 375 F.2d 497, 505 (6th Cir.), Cert. denied, 389 U.S. 843, 88 S.Ct. 84, 19 L.Ed.2d 108 (1967); NLRB v. Birmingham Publishing Co., 262 F.2d 2, 8-9 (5th Cir. 1959) (Wisdom, J.). At least where, as here, "the employer asserts a business justification for the layoffs, some basis for concluding that they were motivated at least partially by anti-union considerations must be shown." NLRB v. M. H. Brown Co., 441 F.2d 839, 843 (2d Cir. 1971); See Western Exterminator Co. v. NLRB, 565 F.2d 1114, 1117 n.2 (9th Cir. 1977).
If partial motivation were the complete test, then the only issue before us would be whether there is substantial evidence on the record as a whole to support the conclusion that Tabaka's discharge was partly motivated by his activity on behalf of the union. If this were the issue, then its resolution would be simple. In all cases involving the discharge of a union activist, there is always sufficient evidence to pass such a test, and this case is no exception. It is unrealistic to expect management to ignore the fact that an employee is a union activist. When a union activist is discharged for cause, human nature is such that little employer disappointment can be expected. In such cases, more is required to support a finding of discrimination than an absence of remorse. NLRB v. Fibers International Corp., 439 F.2d 1311, 1312, n.1 (1st Cir. 1971); NLRB v. Milco, Inc., 388 F.2d 133, 138 (2d Cir. 1968); NLRB v. Park Edge Sheridan Meats, Inc., supra, 341 F.2d at 728. Thus, a "partly motivated" test, while accurate so far as it goes, must be incomplete, for it fails to account for situations where union activists are discharged for good cause.5 Accordingly, we must determine what the other part of the test is and apply it.
(1) if it appears that the reason put forward by the employer is a pretext, NLRB v. Lizdale Knitting Mills, Inc., 523 F.2d 978, 980 (2d Cir. 1975); NLRB v. Advanced Business Forms Corp., supra, 474 F.2d at 463-64; NLRB v. Pembeck Oil Corp., 404 F.2d 105, 109-10 (2d Cir. 1968), Vacated on other grounds and remanded sub nom. Atlas Engine Works, Inc. v. NLRB, 395 U.S. 828, 89 S.Ct. 2125, 23 L.Ed.2d 737 (1969); NLRB v. Milco, Inc., supra, 388 F.2d at 138; Cf. Beazer v. New York City Transit Authority, 558 F.2d 97, 101 (2d Cir. 1977), Cert. granted, --- U.S. ----, 98 S.Ct. 3121, 57 L.Ed.2d 1146 (1978); NLRB v. Local 294, International Brotherhood of Teamsters, 470 F.2d 57, 62 (2d Cir. 1972), or
(2) "(i)f employees are discharged partly because of their participation in a campaign to establish a union and partly because of some neglect or delinquency," NLRB v. Jamestown Sterling Corp., 211 F.2d 725, 726 (2d Cir. 1954); See NLRB v. Advanced Business Forms Corp., supra, 474 F.2d at 463-64; NLRB v. George J. Roberts & Sons, Inc., 451 F.2d 941, 945 (2d Cir. 1971); NLRB v. M. H. Brown Co., supra, 441 F.2d at 843; United Aircraft Corp. v. NLRB, 440 F.2d 85, 91-92 (2d Cir. 1971); NLRB v. Gladding Keystone Corp., 435 F.2d 129, 131-32 (2d Cir. 1970); NLRB v. Midtown Service Co., 425 F.2d 665, 670-71 (2d Cir. 1970); NLRB v. Pembeck Oil Corp., supra, 404 F.2d at 109-10; NLRB v. Milco, Inc., supra, 388 F.2d at 138-39; J. P. Stevens & Co. v. NLRB, 380 F.2d 292, 300-01 (2d Cir.), Cert. denied, 389 U.S. 1005, 88 S.Ct. 564, 19 L.Ed.2d 600 (1967); Socony Mobil Oil Co. v. NLRB, 357 F.2d 662 (2d Cir. 1966); NLRB v. Park Edge Sheridan Meats, Inc., supra, 341 F.2d at 728; NLRB v. Great Eastern Color Lithographic Corp., 309 F.2d 352, 355 & n.4 (2d Cir. 1962), Cert. denied, 373 U.S. 950, 83 S.Ct. 1680, 10 L.Ed.2d 705 (1963); Cf. NLRB v. Local 282, International Brotherhood of Teamsters, 412 F.2d 334, 336-38 (2d Cir. 1969), Cert. denied, 396 U.S. 1038, 90 S.Ct. 682, 24 L.Ed.2d 682 (1970). In the former situation, when the employer's ostensible justification for the discharge is shown to have been pretextual, it is unnecessary to resort to any rule of causation, for the pretextual reason is ignored, and the only remaining reason for the discharge is the employer's anti-union animus. In the instant case, not even the General Counsel suggests that petitioner's justifications are pretextual. In the latter situation, where the employer was motivated by both valid and invalid reasons, a rule of causation is indispensable. A simple example will illustrate why this is so. If an employer discharges a union organizer in part because of organizational activities and in part because of repeated acts of industrial sabotage, it would be absurd to hold the discharge of that employee to be unlawful. The rule of causation applied in this Circuit is that "the General Counsel must at least provide a reasonable basis for inferring that the permissible ground alone would not have led to the discharge, so that it was partially motivated by an impermissible one." NLRB v. Park Edge Sheridan Meats, Inc., supra, 341 F.2d at 728; Accord, NLRB v. Dorn's Transportation Co., supra, 405 F.2d at 712-13; NLRB v. Milco, Inc., supra, 388 F.2d at 138-39; NLRB v. L. E. Farrell Co., 360 F.2d 205, 208 (2d Cir. 1966). The magnitude of the impermissible ground is immaterial, Compare NLRB v. Great Eastern Color Lithographic Corp., supra, 309 F.2d at 355 ("final straw"), With NLRB v. D'Armigene, Inc., 353 F.2d 406, 409 (2d Cir. 1965) ("significant part" of motivation for discharge), as long as it was the "but for" cause of the discharge, Accord, Midwest Regional Joint Board v. NLRB, 183 U.S.App.D.C. 413, 419, 564 F.2d 434, 440 (1977); NLRB v. Klaue, 523 F.2d 410, 413 (9th Cir. 1975); NLRB v. Fibers International Corp., supra, 439 F.2d at 1312; NLRB v. Ayer Lar Sanitarium, 436 F.2d 45, 49-50 (9th Cir. 1970); Southwest Latex Corp. v. NLRB, 426 F.2d 50, 54-55 (5th Cir. 1970).
Mt. Healthy City Board of Education v. Doyle, 429 U.S. 274, 285-86, 97 S.Ct. 568, 575, 50 L.Ed.2d 471 (1977). It may be argued that a "but for" test is inadequate to protect the organizational rights of employees, but this argument fails for two reasons. First, it is doubtful whether a test which is adequate to protect First Amendment rights would prove inadequate to protect organizational rights. Second, and more important, it is not the purpose of the statute to pressure employees into undertaking organizational efforts. Embodied in the statute is a principle of free choice.6 Without a "but for" test, we "could place an employee in a better position as a result of" his organizational efforts "than he would have occupied had he done nothing." Id. Such a result would actually undermine the purpose of the statute by inducing employers to tread especially lightly when a union activist is involved thereby violating the Act by encouraging pro-union activity. Cf. NLRB v. Milk Drivers & Dairy Employees, Local 38, supra, 531 F.2d 1162. Thus, we hold that the Board was correct in applying a "but for" test in this case.
Finally, while the Board may have been justified in drawing an inference of anti-union animus on the basis of the timing of Tabaka's discharge, NLRB v. M. H. Brown Co., supra, 441 F.2d at 843; NLRB v. United Mineral & Chemical Corp., 391 F.2d 829, 832-35 (2d Cir. 1968); NLRB v. Montgomery Ward & Co., 242 F.2d 497, 502 (2d Cir.), Cert. denied, 355 U.S. 829, 78 S.Ct. 40, 2 L.Ed.2d 41 (1957), it was not justified in completely ignoring the innocent motivations for the timing of the discharge. Petitioner had relatively little control over when the final inspection would be complete. In November of 1975, Baker said he thought it would be done sometime after the first of the year, not later than February. Tabaka had greater control over the timing, for he was doing the inspection. Tabaka and Sullivan announced the completion of the inspection roughly on schedule on January 6. The next payday was Friday, January 9. Inasmuch as the task for which Tabaka's job was extended had ended, Friday was the logical day for his discharge.
Based on this record, we can reach but one conclusion. Tabaka would have been discharged on January 9, 1976, regardless of his union activities. Put in the language of prior decisions, the General Counsel has not provided "a reasonable basis for inferring that the permissible ground alone would not have led to the discharge." NLRB v. Park Edge Sheridan Meats, Inc., supra, 341 F.2d at 728. In view of this conclusion, the bargaining order cannot stand.7
The majority describes the controlling question as "whether there is substantial evidence in the record considered as a whole to support the Board's conclusion that Tabaka would not have been discharged but for his union activities." The recent cases in this circuit, unlike those from other circuits cited in Judge Meskill's thorough opinion, have not usually framed the issue in "but for" terms when the employer has both valid and invalid reasons for discharge.1 However, I see no need for an extended discussion of problems I have with the "but for" test, because the majority's result cannot be justified even under its own test.
In the last sentence of the decision, the majority vacates without discussion the portions of the Board's order that required the Company to recognize and bargain with the union. I assume the reason for this action is that in the absence of a § 8(a)(3) violation, the majority concluded the Company's conduct did not warrant a bargaining order. On this record, I would disagree with this conclusion,2 but since I think the Board correctly found that Tabaka's discharge violated § 8(a)(3), a fortiori, I think the bargaining order was appropriate.
Decision of Administrative Law Judge Blackburn at 4
A tenth employee signed a card on December 12, 1975
Tabaka's version was as follows:
(Petruzzi) said if I didn't bring up this business with the union, I could of had my job for another year, year and a half, so I says, you mean to tell me if this union, these boys didn't want a union, I could still have my job for a year, year and a half? He says, yes, he says maybe even two, but he said you started this trouble, he says, now things are going to be different.
As ALJ Blackburn explained, Tabaka's testimony was somewhat suspect not only because of his self-interest, but also because of "(h)is strained efforts to put the best possible gloss on all his testimony." Other employees gave a different version. According to Richard Moffo, Petruzzi said, "it was out of his hands that he could have found work for him, but now it's out of his hands." John Harris recalled Petruzzi saying simply, "(t)hat when the system was completed that his job was over with." David Wilson testified that Petruzzi "said that he had been creating work for (Tabaka) to keep him on and (Tabaka) said thanks, Mike, I appreciate it. They were talking and Michael said he probably could have created more work for him. (sic) but that it was now out of his power." According to Wilson, Petruzzi never said how much work might have been created. It was Remo Ceniccola's testimony that Petruzzi "said to (Tabaka) since the union issue has flared up, Ben, he could have created work for Ben for at least a year but now it's out of his hands." According to ALJ Blackburn, "Petruzzi's version, couched in defensive terms, gives . . . the flavor of what was said."
The Witness: I told him that I was sorry that it was going to happen but that his job was terminating and that because of the very unique situation that we had there was nothing I could do to prolong it. We were under an unusual set of circumstances I guess we still are and I don't pretend to understand them but
Judge Blackburn: Are you referring to the Union situation Mr. Petruzzi?
Under questioning by ALJ Blackburn, Tabaka gave the following rather illuminating description of his role:
Judge Blackburn: From your point of view, Mr. Tabaka, would there ever have come a time when you were when your role in the construction of the system was finished? Would there ever have come a time when the construction of the system was done and that, all that remained to be done was something non-construction?
The Witness: It's a continuous thing
Judge Blackburn: So, from your point as far as you are concerned, you had an ongoing job because there would always be something that had to be done in connection with the with the cables on the poles that would require
The Witness: And, there is always new construction.
Judge Blackburn: you would have to be there to look at it.
The Witness: Yes, I would say so.
Judge Blackburn: Okay.
The Witness: But, it's a continuous thing.
Thus, it would seem that the term "final final" is inadequate to describe what Tabaka considered his function to be. Sullivan's denomination is more accurate: "final, final, final, final, final, final, final inspection."
ALJ Blackburn's recognition of this fact is reflected in the following passage in his decision
The fact that they were glad of an opportunity to end Tabaka's employment is, under those circumstances, coincidental only. It cannot supply the element of motive requisite to a finding of discrimination for union activities under the Act which is otherwise missing.
In summary, the issue posed by the layoff of Ben Tabaka comes down to this. An employee was hired for a definite term which was to end at the occurrence of a particular event, i. e., completion of the pole survey. Before that event occurred, the term was extended until the occurrence of a second related event, i. e., completion of the telephone company final survey. Before the second event occurred, the employee engaged in known union activities. When the second event occurred, he was discharged. The employer was glad to be able to take advantage of this opportunity to get rid of the employee rather than extend the term a second time.
The statute itself makes it clear that Congress intended to accomplish its goals in two ways: (1) "by encouraging the practice and procedure of collective bargaining" and (2) "by protecting the exercise by workers of full freedom of association, self-organization, and designation of representatives of their own choosing, for the purpose of negotiating the terms and conditions of their employment or other mutual aid or protection." 29 U.S.C. § 151 ("Findings and declaration of policy"). We have no qualms about acknowledging "the importance of union recognition in securing collective bargaining." NLRB v. Pennsylvania Greyhound Lines, Inc., 303 U.S. 261, 267, 58 S.Ct. 571, 574, 82 L.Ed. 831 (1938). Nor do we doubt that "(t)he Act contemplates the making of contracts with labor organizations. That is the manifest objective in providing for collective bargaining." Consolidated Edison Co. v. NLRB, 305 U.S. 197, 236, 59 S.Ct. 206, 220, 83 L.Ed. 126 (1938). But Congress did not pass the Act to insure that workers would promote, organize, vote for, join or otherwise assist unions. Quite to the contrary, the purpose of the Act is to encourage the "practice and procedure" of collective bargaining once employees have freely chosen to bargain collectively. No matter how wise or foolish the decision to join or not join a union, that decision belongs to the individual worker, at least until a bargaining representative selected by a majority of the workers negotiates a union security agreement. It would be incongruous indeed for Congress to guarantee to employees "the right to self-organization, to form, join, or assist labor organizations, to bargain collectively through representatives of their own choosing, and to engage in other concerted activities for the purpose of collective bargaining or other mutual aid or protection" And also "the right to refrain from any or all of such activities," 29 U.S.C. § 157, and at the same time imply in its declaration of policy that workers are to be encouraged to do the former rather than the latter
The Board remains free to order the new election originally recommended by ALJ Blackburn
E. g., in NLRB v. George J. Roberts & Sons, Inc., 451 F.2d 941, 945 (2d Cir. 1971), we said in an analogous situation: "Even if there were ample grounds to fire Moller, (a union leader) . . . if his discharge was even partially motivated by his union activity, there is a violation of § 8(a) (3)." See also NLRB v. Gladding Keystone Corp., 435 F.2d 129, 131-32 (2d Cir. 1970); J. P. Stevens & Co. v. NLRB, 380 F.2d 292, 300-01 (2d Cir.), Cert. denied, 389 U.S. 1005, 88 S.Ct. 564, 19 L.Ed.2d 600 (1967). The majority opinion cites all three of these cases with approval. For agreement in other circuits with this phrasing of the test, see, e. g., Allen v. NLRB, 183 U.S.App.D.C. 83, 89, 561 F.2d 976, 982 (1977); NLRB v. Big Three Industries, Inc., 497 F.2d 43, 49 (5th Cir. 1974)
Where, as here, there is a showing that the union once had authorization cards from a majority of the employees in the unit, a bargaining order is proper even though the employer's violations were less than "outrageous" or "pervasive" if the Board properly concludes that the practices had "the tendency to undermine majority strength and impede the election process." NLRB v. Gissel Packing Co., 395 U.S. 575, 613-14, 89 S.Ct. 1918, 1940, 23 L.Ed.2d 547 (1969). And in NLRB v. International Metal Specialities, Inc., 433 F.2d 870, 872 (2d Cir. 1970), Cert. denied, 402 U.S. 907, 91 S.Ct. 1378, 28 L.Ed.2d 647 (1971), we held that under Gissel the Board has "almost total discretion to determine when a bargaining order is appropriate." It has been recognized that when violations of the type found in this case "(t)hreatening employees with discharge, loss of benefits, or more onerous working conditions for engaging in union activity," occur in a small closely-knit unit, the impact is overwhelming and a fair re-run election is unlikely. E. g., NLRB v. Scoler's Inc., 466 F.2d 1289, 1293 (2d Cir. 1972). Thus even disregarding Tabaka's discharge, the reasons given by the Board for imposition of the bargaining order in this case adequately explain and justify its decision