Document: 417 U.S. 790 94 S.Ct. 2737 41 L.Ed.2d 477 FLORIDA POWER & LIGHT CO., Petitioner,v.INTERNATIONAL BROTHERHOOD OF ELECTRICAL WORKERS, LOCAL 641, et al. NATIONAL LABOR RELATIONS BOARD, Petitioner, v. INTERNATIONAL AFL-CIO, Nos. 73—556, 73—795. Argued April 24, 1974. Decided June Syllabus A union does not commit an unfair labor practice under § 8(b)(1)(B) of the National Labor Relations Act (NLRA) when it disciplines supervisor-members for crossing a picket line and performing rank-and-file struck work during lawful economic strike against employer. Pp. 798—813. (a) Both language legislative history reflect clear congressional concern with protecting employers in selection representatives to engage two particular explicitly stated activities, viz., collective bargaining adjustment grievances. Therefore, union's discipline can violate only may adversely affect supervisors' conduct duties of, acting capacity grievance adjusters or bargainers, neither which capacities supervisors involved these cases were they crossed lines perform work. 802—805. (b) The that permit will deprive employer those full loyalty is problem Congress addressed, through 8(b)(1)(B), but §§ 2(3), 2(11), 14(a) NLRA, which, while permitting become members, assure his by reserving him rights refuse hire members as supervisors, discharge involvement activities membership, supervisors. 805—813. 159 U.S.App.D.C. 272, 487 F.2d 1143, affirmed. Norton J. Come, Washington, D.C., NLRB. Ray C. Muller, Miami, Fla., Fla. Power Light Co. Laurence Cohen, respondents. Gold, AFL—CIO, amicus curiae, special leave Court. Mr. Justice STEWART delivered opinion 1 Section Act, 61 Stat. 141, 29 U.S.C. 158(b)(1)(B), makes 'to restrain coerce . purposes grievances.' respondent unions consolidated called strikes companies. During strikes, supervisory employees companies, some whom units not, all performed work, i.e., normally nonsupervisory then on strike. later disciplined so doing. question be decided whether committed practices their 2 * Since 1909, Local 134, International Brotherhood Electrical Workers, one respondents No. 73—795, has been recognized Illinois Bell Telephone (Illinois Bell) its predecessors exclusive representative both certain personnel, including general foremen, P.B.X. installation building cable foremen. Rather than exercise right company agreed inclusion security clause collective-bargaining agreement required like employees, maintain membership 134. In addition, effect at time this dispute contained provisions conditions employment wages 3 Other higher ranking however, represented covered agreement, although permitted membership.1 By virtue within units, received substantial benefits, participation International's pension death-benefit plans group insurance old-age-benefit sponsored 4 Under constitution, could penalized committing any 23 enumerated offenses, '(w)orking interest organization cause detrimental to, opposed I.B.E.W.,' App. 76, individual declared difficulty (local union) I.B.E.W.' Id., 77. 5 Between May 8, 1968, September 20, 134 engaged company. At inception strike, informed personnel would have them come stoppage decision do left each individual, who chose penalized. other hand, warned subject disciplinary action if Some thereupon initiated proceedings found guilty fined $500 each.2 Charges filed NLRB Supervisors Protective Association, association formed five obtain counsel otherwise protect worked Board, member dissenting held thus disciplining had violated Act,3 accord same day 2150, IBEW (Wisconsin Electric Co.), 192 N.L.R.B. 77 (1971), enforced, 486 602 (CA7 1973), cert. pending 73—877, holding: 6 Accordingly, Board ordered rescind fines, expunge records thereof, reimburse portions fines paid. 7 Florida Co., (Florida Power), petitioner maintained 8 'The Union's fining Employer's severely jeopardized relationship between Employer 9 purpose selected completely faithful desires. This cannot achieved effective method, action, pressure such deviate from interests .' N.L.R.B., 78. AFL—CIO Locals 622, 759, 820, 1263, System Council U—4,4 since 1953. That require condition employment, many fact joined union. elected recognize aspects are provided agreement.5 othr allowed membership,6 and, purposes, benefits result pension, disability, death terms constitution. 10 was 73—556 bore obligations constitution did Bell. See supra, 793. With respect supervisor itself provided: 11 'It further (supervisory) classifications definite management responsibilities direct Company level Employees others jacked up Union machinery acts Company's interest. expect intend interfere proper legitimate performance Foreman's appropriate classification. 47. 12 From October 22, 1969, December 28, locals Power. nearly company's operation facilities, striking employees. Following brought charges well covered, alleging violations Those usual functions, ranging $100 $6,000 most expelled union, thereby terminating benefits. Upon Power, reliance upon prior decisions Wisconsin Bell, penalties imposed 'struck should able grievances therefore restrained coerced representatives,' violation Act. cease desist, refund proceedings, restore benefits.7 13 case first heard panel Court Appeals District Columbia Circuit, 242, 1113 (1973), rehearing considered en banc. 5—4 decision, court '(s)ection reasonably read prohibit though be—for work,' 300, 1171 accordingly refused enforce Board's orders.8 held, intended proscribe efforts actions representing It court's views forsakes role he no longer managerial hence 'no merits immunity discipline.' 286, F.2d, 1157. We granted certiorari, 414 1156, 913, 39 108, consider important novel federal law. II 14 8(b) provides pertinent part: 15 shall agents—(1) (B) 16 basic import provision explained Senate Report follows: 17 '(A) responsible agents without violating law, into joining resigning negotiates contracts behalf members; also, subsection dictate represent settlement employee grievances, compel removal director delegated function settling grievances.'9 18 For more 20 years after enacted 1947, confined application situations clearly falling metes bounds statutory language. Thus, Los Angeles Cloak Joint ILGWU (Helen Rose 127 1543 (1960), barred picketing attempt force dismiss industrial relations consultant thought hostile also 986, Miscellaneous Warehousemen, Drivers Helpers (Tak-Trak, Inc.), 145 1511 (1964); Southern California Pipe Trades (Paddock Pools California, 120 249 (1958). Similarly, attempts join resign multi-employer associations, United Slate, Tile Composition Roofers, 36 (Roofing Contractors Assn. California), 172 2248 (1968); Orange Belt Painters 48 (Painting Decorating America, 152 1136 (1965); General Teamsters 324 (Cascade Employers Assn., 488 select foremen ranks Typographical Baltimore (Graphic Arts League), 87 1215 (1949); (American Newspaper Publishers Assn.), 86 951 (1949), 193 782 1951); (Haverhill Gazette 123 806 (1959), 278 (CA1 1960), aff'd equally divided Court, 365 705, 81 855, (1961).10 19 significantly expanded reach San Francisco-Oakland Mailers' (Northwest Publications, 2173. case, three union-member allegedly assigning unit agreement. Despite absence coercion aimed securing replacement seeking influence manner interpreted contract: 'That Respondent sought substitution attitudes rather persons, exerted pressures Charging Party indirect means, alter ultimate here interfering Party's control over representatives. Realistically, replace face de facto nonrepresentation them.' 21 Subsequent extended grievance-adjusting functions possessed authority bargain collectively adjust Detroit Printing Pressmen's 13, 106 (1971); Meat Cutters 81, 185 884 (1970), 147 375, 458 794 (1972); Houston 87, 182 592 (1970); Dallas Mailers 143 (Dow Jones 181 286 144 254, 445 730 Sheet Metal Workers' 49 (General Products, 178 139 (1969), 430 1348 (C.A.10 1970); New Mexico Carpenters Joiners America (A. S. Horner, 797 177 500 454 1116 (CA10 1972); Toledo 15—P Lithographers Photoengravers (Toledo Blade 175 1072 437 55 (CA6 1971).11 22 These reflected evolution Oakland doctrine. Mailers, alleged misinterpretation misapplication reasoned natural foreseeable interpreting future, reluctant take position adverse subsequent cases, coercive likely arise whenever even grievance-adjustment involved. Through course decisions, began evolve view courts 'as prohibition employers.' International, 1080, 'performed (their) duties,' NLRB, U.S.App.D.C., 377, 796.12 present doctrine hold (1)(B) forbids theory activity furthering management's interests.13 agree broadly read. focused protection namely terms, statute proscribes restraint 'in grievances,' enacting exclusively concerned adjustment. 24 specific prevent trying out units.14 As Senator Taft, cosponsor legislation, explained: 25 'Under impossible say company, 'We you unless appoint your national employers' agent we nationally.' bill say, 'No, I bargaining. Here my representative, man deal with.' believe necessary one, accomplish substantially wise purposes.' 93 Cong.Rec. 3837. 26 creation sense cut broad swath attributed pointed observation Taft: 27 'This referred perhaps tremendous importance, employer, 'we X, meet X. You send us Y.' done. saying 'You fire Foreman Jones. Jones, him, go work." 3837.15 28 Nowhere there implication extend conclusion inescapable constitute supervisor's as, adjuster bargainer assume deciding fell outer limits test, not. adjustment, related thereto, work.16 III 30 strenuously asserted, Indeed, precisely recent holding 'restrain grievances' object change identity employer's representatives, properly encompass situation undivided Electric: 31 'During Union, among depend period. finding lawful, now drive wedge Employer, perform. count complete act adjusting Moreover, own 32 employer.' 33 echoes arguing 'where make subservient wishes performs future. carry allegiance over, Brief Petitioner 73 795, p. 34. 34 expressed argument very real different route. Specifically, 1947 amended definition 'employee' 152(3), exclude denominated 152(11), excluding coverage Act.17 Aerospace 416 267, 1757, 40 (1974). Further, 14(a), 164(a), providing: 35 'Nothing herein employed becoming remaining organization, subchapter compelled deem individuals defined either local, relating bargaining.' see Milwaukee County 107 55, 274 564 (1959); A. H. Bull S.S. Marine Engineers' Beneficial 250 332 (CA2 1957), because Beasley Food Fair North Carolina, Inc., 653, 2023, 443 (1974); Oil City Brass Works 357 466 (CA5 1966); Fullerton Publishing 283 545 (CA9 1960); Griggs Equipment, 307 275 1962); Edward G. Budd Mfg. 169 571 1948), denied, 335 908, 69 411, L.Ed. 441 (1949),18 them, L. Young Spring Wire Corp. 82 327, 163 905 (1947), 333 837, 68 607, 92 1121 (1948). 37 2(3) indicates response Packard Motor Car 330 485, 67 789, 91 1040 upheld included entitled them.19 recommending passage noted: 38 takes deprived There inherent tendency subordinate wherever conflict rank file.' 5. (Emphasis supplied.) similar conflict-of-loyalties House Report: evidence before committee shows unionizing inconsistent our policy employers; they, workers, loyal plants, unionize, claims 'independent' file, file instead bossing bosses them. forbid anyone organize. who, past, bargained continue so. What what law always said until modestly calls 'expertness', changed law: employee, need obligated side, whom, reason, trust.' 14—17.20 42 dealt manner.21 concluded U.S., 661—662, S.Ct., 2028: 43 compels Congress' dominant amending redress perceived imbalance labor-management relationships putting serving masters interests.' 44 While accommodation adopted fraught difficulties own, '(i)t justify Congress. enough find statute.' Colgate-Palmolive Peet 338 355, 363, 70 166, 171, 161 (1949).22 45 solution essentially providing option. On liberty demand absolute insisting, pain discharge, participate in, nor retain supra. Alternatively, unions, resolving conflicts traditional procedures bargaining.23 But quite apparent, given concerns motivated enact part generalized supervisor-member loyalties. 46 reasons, judgment 47 Affirmed. WHITE, THE CHIEF JUSTICE, BLACKMUN, REHNQUIST join, dissenting. Believing majority improperly substituted fair reasonable interpretation light dealing must dissent reason below. 50 might unreasonable interpret circumstances, certainly apparent represents classic 'use parties .(,) parcel process Insurance Agents' 361 477, 495, 80 419, 430, (1960).1 'As requested enhance involved.' 304, 1175 (1973) (en banc) (dissenting opinion) (footnote omitted). sanctions unavoidably decrease materially demands him. 77, 78 1973). Nothing contradicts 51 '(w)hen request interferes deprives where way 'normal' duties.' 305, 1176 opinion).2 52 steady progression leading instant interdicted means attempting, apparatus supervisor-members, responsibilities. Far seeing radical extension principle, realistic 8(b)(1)(B). part, findings based record enjoy 'a basis law.' Hearst 322 111, 131, 64 851, 860, 88 1170 (1944). true prompted provision, often written broadly. Nor anything foreclosing applying section imposing circumstances here. super-Board authorized overrule agency's choice constructions controlling statute. impose long stays boundaries charged administering. Respectfully, dissent. Letter Understanding signed 1954 reaffirmed 1971, Installation Superintendents Construction matter union-management negotiations discontinue accumulated vested However, owe disposition duties. supervision affiliations whatever, impartial Supervisory personnel.' 113. $1,000 Association. 85 (1971) (hereinafter Bell). U—4 named complaint, dismissed entered order local unions. district assistant plant superintendents, distribution assistants, results engineers, involved, actively affairs paid dues. 'honorary' withdrawal cards, return active paying normal initiation fees event returned cards holders fund. 'participating' continued pay fee equal monthly dues remained eligible death, disability affairs. Workers U—4, 30, Power). 1143 (1973). S.Rep.No.105, 80th Cong., 1st Sess. Report), pt. 1, (1947). Haverhill typical. demanded 'foreman clause' composing room foreman, power hire, fire, exempted management. out: 'Not limit give demotion foreman expelling union.' 12. Blade, working crew smaller contractually prescribed minimum doing production excess maximum. occurred Trial Examiner, foreshadowed us, noted unwarranted interference 'deprives entitled. If, therefore, actually designated Unions' unquestionably upon, continuing representative.' 1080—1081. enforcing order, operate future usefulness impaired.' 57. original spoke prohibiting 'for scope responsibilities.' 248, 1113, 1119. Seventh Circuit 'What complement regime determinative responsibility Otherwise, supervise, simply Insofar added leverage, team expected loggerheads fundamental disputes.' 602, 608 originally proposed. Proposed 9(f)(i) bill, H.R. 3020, prohibited altogether, H.R.Rep.No.245, 8—9, 56 vein, Ellender observed: prevents dictating association. 8(b)(1) page 14, official. Senators me discuss issue early afternoon recall few forced They taking themselves too strict amendment seeks prescribe remedy interferences.' 4143. To proscribed 8(b)(1)(b) expressly 8(b)(1)(A) construed Allis-Chalmers 388 175, 2001, 1123 (1967). inapposite fine employee-members excluded 8(b)(1)(A). protects prohibits engaging 'Congress outlaw weapons unions,' 639, 362 274, 282—283, 706, 711, 710 admonition regulation used absent particularized mandate particularly apt context. Agents, 490, 427, (1960). Summers, Disciplinary Powers Unions, Ind. Lab.Rel.Rev. 483 (1950); Legal Limitations Discipline, Harv.L.Rev. 1049 (1951); Wellington, Democracy Representation: Federal Responsibility System, Yale L.J. 1327 (1958); Cox, Internal Affairs Unions Reform 1959, 58 Mich.L.Rev. 819 Title 152(3) term 'employe' include ..' 152(11) provides: 'supervisor' having authority, transfer, suspend, lay off, recall, promote, assign, reward, responsibly effectively recommend connection foregoing merely routine clerical nature, requires use independent judgment.' limited extent with, restrain, protected rights, Talladega Cotton Factory, 213 209 1954), refusal unlawful activity, Lowe, 406 1033 1969). Prior 1935, workers unit, conflict-of-interest problems arose process. After organize affiliated Collieries Coal 961 (1942) Godchaux Sugars, 874 (1942), created thereby, reversed Maryland Drydock 733 (1943), except organized 1935 passed, Wagner again 4, 157 (CA6), aff'd, class self-organization 277, 1763, 658 n. 2026. 13—14. discussing proposed legislation stated: taken 1943 (49 733). words, organizing recognizing relieves free compulsion agency front anomalous status employees.' Instructive slightly modified versions 9(a) (c) Case 4908, 79th 2d (1946), passed 1946 vetoed President Truman. earlier bearing resemblance appeared 1126, Further support proposition addressed separate far loyalties differing themselves. purports cover whereas 2(11) broader range activities. 17; groups coincide denying something dilemma, pulled conflicting option afforded Congress, recognition necessarily incur Nassau Suffolk Contractors' 118 174, (1957). (1951). And, nonetheless expectations measure beneficiary advantages secured inherently inequitable strikebreaker incurring sanctions. is, course, bound clause, if, whatever chooses relinquishing Granite State Textile 1029, 409 213, 385, 422 Booster Lodge 405 412 84, 1961, 764 dilemma somewhat exaggerated petitioners. command individual. penalized, promoted ended. regular disclose event, functions. violates (1961), 7, propose Sakrete Northern Inc. 902 1964), 379 961, 649, 556 (1965). Compress Warehouse 398 631 1968); Corral Sportswear 383 1967). governing basically matters arbitration 796. below acknowledged practical realities strike: highly automated public utility industries small composed strikebreakers non-union evidently provide sufficient manpower vital services cutting strike's effectiveness.' 290 21, 1161 banc). allow customary dispute.

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