Opinion ID: 560347
Heading Depth: 5
Heading Rank: 3

Heading: Reasoned explanation

Text: 92 In Peoples Gas, we refused to enforce a bargaining order for want of a reasoned justification. We explained: 93 Before the Board is entitled to the considerable respect and deference with which we normally approach any review of its choice of remedy, its orders must reflect a responsible exercise of discretion and clearly articulate the basis for its decision. A remedial order should recognize the competing considerations which are potentially affected by the remedy chosen, be grounded in factual determinations rather than speculation, and explain how, in light of present circumstances[,] its remedy can be expected to effectuate the purposes of the Act. 94 Peoples Gas, 629 F.2d at 45 (footnote omitted). We went on to hold that 95 before we will enforce a bargaining order, we must be able to determine from the Board's opinion (1) that it gave due consideration to the employees' section 7 rights, which are, after all, one of the fundamental purposes of the Act, (2) why it concluded that other purposes must override the rights of the employees to choose their bargaining representatives and (3) why other remedies, less destructive to employees' rights, are not adequate. 96 Id. at 46; see also Amazing Stores, 887 F.2d at 330-31 (applying same factors). 97 Here, the ALJ briefly discussed the first two factors. He acknowledged in passing that a secret ballot election is the preferred measure of employee choice; and with respect to the other purposes that he believed should override the Avecor employees' section 7 rights, he detailed the company's violations and their potential impact on the employees' freedom of choice. He made no mention, however, of turnover; in fact, he refused to accept evidence on the subject. 98 As to the inadequacy of traditional remedies, the ALJ wrote: 99 Considering the total circumstances of this case and all those factors noted above regarding the small size of the unit, the unlawful discharge of two employees, the likely impact of all the unlawful conduct on unit employees, and the fact that much of the unlawful conduct was committed by high Respondent officials, I find that it is improbable that the use of traditional remedies here would be sufficient to ensure a fair rerun election. 100 ALJ Decision at 50. This is a promising topic sentence; unfortunately, no elaboration follows. The ALJ never explained why the cloud created by these violations was likely to linger. He pointed to no evidence, for example, that the managers would resume their anti-union practices. See Amazing Stores, 887 F.2d at 331. He never explored the possibility that other remedies might cleanse the environment enough to permit a fair election. Instead he offered only conclusory statements that a fair rerun election cannot be held. St. Agnes, 871 F.2d at 148. We require a more comprehensive accounting. 101 The need for a real demonstration of the inadequacy of alternative remedies is particularly acute, of course, in a case such as the present one, where the Board relies on a weakly supported inference for its belief that the unfair practices undermined the election that immediately followed them. If the basis for thinking that the unfair labor practices affected that election is weak, a claim that they would fatally contaminate a new election months or years later is even weaker. 102 Our insistence on a full explanation is not the caprice of one crotchety circuit. As we pointed out in St. Agnes, id. at 148-49, other courts are equally adamant that a bargaining order must be accompanied by something meatier than because I say so. See, e.g., M.P.C. Plating, Inc. v. NLRB, 912 F.2d 883, 888-89 (6th Cir.1990) (remanding with instructions not to issue bargaining order where Board failed to provide requisite analysis); Montgomery Ward & Co. v. NLRB, 904 F.2d 1156, 1159-60 (7th Cir.1990) (remanding where Board failed to explain why traditional remedies would be inadequate); NLRB v. American Spring Bed Mfg. Co., 670 F.2d 1236, 1247-49 (1st Cir.1982) (remanding with instructions to hold election where Board failed to explain why fair election was unlikely); see also NLRB v. Pace Oldsmobile, Inc., 739 F.2d 108, 111-12 (2d Cir.1984) (vacating bargaining order without remand where Board provided only conclusory analysis); NLRB v. Apple Tree Chevrolet, Inc., 671 F.2d 838, 841-42 (4th Cir.1982) (same); NLRB v. Gibson Prods. Co., 494 F.2d 762, 766-70 (5th Cir.1974) (same); T. Kheel, Labor Law Sec. 15.05, at 15.41 n. 14 (1989) (citing additional cases). 103 The courts have imposed these requirements because of the Board's evident partiality for bargaining orders. See NLRB v. J. Coty Messenger Serv., 763 F.2d 92, 101 (2d Cir.1985). We emphasize once again that a bargaining order is not a snake-oil cure for whatever ails the workplace; it is an extreme remedy, St. Agnes, 871 F.2d at 147, that must be applied with commensurate care. By requiring specific findings, the courts try to keep the Board from overprescribing.