Source: http://openjurist.org/627/f2d/77/carlson-roofing-co-inc-v-national-labor-relations-board
Timestamp: 2017-08-22 04:16:21
Document Index: 145030492

Matched Legal Cases: ['§ 158', '§ 8', '§ 8', '§ 8', '§ 158', '§ 158', '§ 8', '§ 157', '§ 158', '§ 7', '§ 8', '§ 8', '§ 8', '§ 158', '§ 8', '§ 8', '§ 8', '§ 8', '§ 8', '§ 8', '§ 7', '§ 8', '§ 8', '§ 8', '§ 8', '§ 8']

627 F2d 77 Carlson Roofing Co Inc v. National Labor Relations Board | OpenJurist
627 F. 2d 77 - Carlson Roofing Co Inc v. National Labor Relations Board
627 F2d 77 Carlson Roofing Co Inc v. National Labor Relations Board
627 F.2d 77
105 L.R.R.M. (BNA) 2145, 89 Lab.Cas. P 12,222
CARLSON ROOFING CO., INC., Petitioner,
Carlson Roofing Co., Inc. (the Company) has petitioned for review of an order of the National Labor Relations Board finding that the Company (1) violated Section 8(a)(1) and (3) of the National Labor Relations Act, 29 U.S.C. § 158(a) (1) and (3), by suspending its employees for the day of April 12, 1978, in response to their concerted protest of working conditions and their support of the Union position regarding the size of repair crews, and (2) violated Section 8(a)(1) by threatening to lay off its employees until June 1 for the same activities. The Board filed a cross-application seeking enforcement of its order.1 We grant enforcement of the Board's order based on violation of § 8(a)(1).
On May 4, 1978, an unfair labor practice complaint was filed with the N.L.R.B., charging that the Company had violated § 8(a)(1) and § 8(a)(3) of the National Labor Relations Act, 29 U.S.C. § 158(a)(1) and § 158(a)(3), by threatening employees with layoffs and by actually laying off employees on April 12, 1978.
Protected Activities under § 8(a)(1)
Section 7 of the Act, 29 U.S.C. § 157, provides in part that, "Employees shall have the right . . . to engage in . . . concerted activities for the purpose of collective bargaining or other mutual aid or protection . . . ." Section 8(a)(1) of the Act, 29 U.S.C. § 158(a)(1), makes it an unfair labor practice for an employer "to interfere with, restrain, or coerce employees in the exercise of the rights guaranteed" by § 7.
The Company argues that the employees, either individually or through their Union, did not engage in "protected" activity within the meaning of the Act since they refused to work singly on repair jobs despite a clear contract term allowing it and despite a consistent past practice of sending out only one man. The Company relies on N. L. R. B. v. Sands Manufacturing Co., 306 U.S. 332, 59 S.Ct. 508, 83 L.Ed. 682 (1939), which held that the repudiation of a contract term in a collective bargaining agreement is not protected by the Act.
The Board, however, found Sands inapposite because in that case it was clear the employees were "irrevocably committed not to work in accordance with their contract" (Id. at 344, 59 S.Ct. at 514), while in this case the contract was "clearly susceptible to a construction that at least two employees should be assigned to any job at which it can reasonably be contended that safety would be imperilled by anything less." Sands was distinguished further because Carlson had "acquiesced" in assigning two-man crews for repair work since September of 1977. The Board concluded also that even if the Union improperly interpreted the contract, it had not made an unequivocal declaration of its intent to enforce that construction. There is no evidence in the record that any employee was ever fined for working alone.7 Although several employees expressed a desire not to work alone, the Board found that none had flatly refused to do so.8 The Board found further that "these tentative and untested employee sentiments" did not constitute a "partial strike," which is not protected activity, as argued by the Company. Cf. Shelly & Anderson Furniture Manufacturing Co. v. N. L. R. B., 497 F.2d 1200, 1203 (9 Cir. 1974); C. G. Conn, Ltd. v. N. L. R. B., 108 F.2d 390, 397 (7 Cir. 1939).
The Board ruled that the employees' acts were protected because the employees were engaged in concerted activity covered by § 8(a)(1) of the Act when they voiced opposition to the one-man policy of the Company in an orderly fashion. Carlson's threats of layoffs on April 12, 1978, and the actual laying off of employees on that date as a result of their concerted protected activities, were found to be violations of § 8(a)(1) of the Act.9
Antiunion Motivation under § 8(a)(3)
Section 8(a)(3) of the Act, 29 U.S.C. § 158(a)(3), reads in pertinent part:
The Company contends that the Board erred in finding that its one-day lockout for a legitimate business purpose was a violation of § 8(a)(3) in the absence of proof of antiunion animus on the part of the Company. The Company relies upon American Ship Building Co. v. N. L. R. B., 380 U.S. 300, 85 S.Ct. 955, 13 L.Ed.2d 855 (1965), and the companion case of N. L. R. B. v. Brown, 380 U.S. 278, 85 S.Ct. 980, 13 L.Ed.2d 839 (1965). American Ship Building generally upholds lockouts where there is no specific evidence of antiunion animus. The Court held that the employer does not violate "s 8(a)(3) when, after a bargaining impasse has been reached, he temporarily shuts down his plant and lays off his employees for the sole purpose of bringing economic pressure to bear in support of his legitimate bargaining position." 380 U.S. at 318, 85 S.Ct. at 967. In Brown the Court held that
380 U.S. at 287-88, 85 S.Ct. at 286.
The Board in this case, however, relied on the balancing approach to the legality of lockouts found in N. L. R. B. v. Great Dane Trailers, Inc., 388 U.S. 26, 87 S.Ct. 1792, 18 L.Ed.2d 1027 (1967).10 In determining a violation of § 8(a)(3) under Great Dane, if the employer's conduct is "inherently destructive" of important employee rights, no proof of an antiunion motivation is needed. If, however, "the adverse effect of the discriminatory conduct on employee rights is 'comparatively slight', an antiunion motivation must be proved to sustain the charge if the employer has come forward with evidence of legitimate and substantial business justifications for the conduct." Id. at 34, 87 S.Ct. at 1798.
The Company has argued consistently, however, that its business justification was that the one-man repair crew was vital to the long-term health of the Company. Although repair work comprises only five per cent of its business, Carlson testified that two-man repair crews resulted in complaints from customers. He further testified that sometime down the road those customers would need new roofs, and it was that business he did not want to lose. The Company contends that it did not violate § 8(a)(3) of the Act merely because it engaged in a lawful, one-day lockout of its employees for this legitimate business purpose. The Company contends further that it was prevented from submitting all of its evidence on this issue.
In N. L. R. B. v. Wire Products Manufacturing Corp., 484 F.2d 760 (7 Cir. 1973), this court considered the standard of review where a § 8(a)(3) violation is alleged, saying in part:
American Ship Building and Brown, when read together, reflect that lockouts are not per se violations of the National Labor Relations Act. "(T)he Board must find from evidence independent of the mere conduct involved that the conduct was primarily motivated by an antiunion animus." (Emphasis added.) Brown, 380 U.S. at 288 (85 S.Ct. at 986). Nothing in N. L. R. B. v. Great Dane Trailers, Inc., 388 U.S. 26 (87 S.Ct. 1792, 18 L.Ed.2d 1027) (1967), leads to a contrary conclusion because there the Court concluded that the employer's conduct was "inherently destructive" of important employee rights, thus relieving the Board of proving antiunion motivation. Further, the Company there offered no evidence of legitimate motives.
Ordinarily, this case would be remanded for an evidentiary hearing to allow the Board to present any evidence of the Company's antiunion animus. Since we grant enforcement of the Board's order for the § 8(a)(1) violation, however, that would have no practical effect. We find the Company violated § 8(a)(1) by interfering with the employees' § 7 rights; but a violation of § 8(a)(3) does not necessarily follow,12 and we do not find substantial evidence to support a finding of a violation of § 8(a)(3). Enforcement of the Board's order, including back pay, for the violation of § 8(a)(1), is granted.
In Lane v. N. L. R. B., 418 F.2d 1208, 1209-12 (D.C.Cir. 1969), the Supreme Court's approach to § 8(a)(1) and § 8(a)(3) of the Act was described as being in a "state of flux". The D. C. Circuit did conclude, however, that "the result in American Ship (is) compatible with the tests enunciated in Great Dane " and "the principles enunciated by Chief Justice Warren in Great Dane are the present law governing Sections 8(a)(1) and 8(a)(3)." Id. at 1212