Document: 467 U.S. 883 104 S.Ct. 2803 81 L.Ed.2d 732 SURE-TAN, INC. and Surak Leather Company, Petitionersv.NATIONAL LABOR RELATIONS BOARD. No. 82-945. Supreme Court of the United State Argued Dec. 6, 1983. Decided June 25, 1984. Syllabus A certain union was elected as collective-bargaining representative employees petitioners, two small firms that constitute a single integrated employer for purposes National Labor Relations Act (NLRA). Petitioners then filed objections to election with Board (Board), asserting six seven eligible voters were illegal aliens. After being notified their overruled, petitioners' president sent letter Immigration Naturalization Service (INS) asking it check into status number employees. As result INS's investigation, five voluntarily left country avoid deportation. Subsequently, held petitioners had committed an unfair labor practice, in violation § 8(a)(3) NLRA, by reporting employees, known be undocumented aliens, INS retaliation employees' activities. Concluding conduct constituted "constructive discharge" entered cease-and-desist order, directed "conventional remedy reinstatement backpay," thereby leaving until subsequent compliance proceedings determination whether fact been available work so not toll backpay liability. On appeal, Appeals enforced Board's order modified court require offers open period four years allow them reasonable time make arrangements legal reentry, written Spanish delivered verification receipt. Although recognizing would entitled when they legally present employed States, decided serve NLRA's policies set minimum amount must pay any event, suggested consider months' appropriate amount. The accepted suggestion, its final approved included award backpay. Held: 1. interpretation NLRA applying practices against aliens is thus will upheld. Pp. 891-894. (a) terms—defining "employee" include "any employee," listing among few groups specifically exempted workers—fully support interpretation. Similarly, extending coverage consistent purpose encouraging protecting process. 891-892. (b) There no conflict between application mandate Nationality (INA), which does employment relationship alien unlawful. Enforcement respect compatible INA's restricting immigration preserve jobs American workers, since if there advantage wages conditions preferring incentive employers hire lessened. In turn, demand declines, may fewer incentives themselves enter federal laws. 892-894. 2. properly practice under constructively discharging through participating merit contention although acted "anti-union animus," nevertheless did force workers' departure from country, instead "proximate cause" departure. evidence showed sole cause investigation resulted departure, foresaw precisely this result. criminal laws ordinarily should encouraged, penalized, view violated only establishes presence employee employee's protected activity, both INA NLRA. Nor claim request enforcement aspect First Amendment right "to petition Government redress grievances" therefore could burdened guise enforcing Bill Johnson's Restaurants, Inc. v. NLRB, 461 731, 103 2161, 76 277, distinguished. 894-898. 3. erred modification remedial order. 898-906. By directing impose without regard actual economic losses or availability work, exceeded limited authority review also effectively compelled take action lie within powers. tailored expunge actual, speculative, consequences practice. probable unavailability Act's more effective remedies light practical workings cannot justify judicial arrogation fairly encompassed 898-905. modifying draft ensure Such matters call superior expertise long experience handling specific details relief, believed failing such requirements, course remand reconsideration. court's requirement vulnerable similar attack. 905-906. 672 F.2d 592, affirmed part, reversed remanded. Michael R. Flaherty, Chicago, Ill., petitioners. Edwin S. Kneedler, Washington, D.C., respondent. Justice O'CONNOR opinion Court. 1 At issue case are several questions arising (NLRA Act) employer's treatment We first determine (NLRB Board) find engages engaging causing immediate States. address validity Appeals. 2 * leather processing located Chicago that, Act, employer. July 1976, organization drive begun. Eight signed cards authorizing Workers Union, Local 431, Amalgamated Meatcutters Butcher Workmen North America (Union), act representative. Of 11 most Mexican nationals illegally States visas papers work. Union ultimately prevailed conducted on December 10, 1976. 3 Two hours after election, president, John Surak, addressed group including some involved case. He asked why voted cursed doing so. inquired valid papers. Many indicated not. 4 arguing executed accompanying affidavit stated he about months prior election. January 19, 1977, Acting Regional Director overruled certified next day, agency soon possible. response letter, agents visited premises February 18, investigate all Spanish-speaking discovered living working arrested them. Later each form, acknowledging accepting grant voluntary substitute end bus bound Mexico. 5 22 March 23, issued complaints alleging various practices. 29, letters who returned Mexico offering reinstate them, provided subject Sure-Tan violations remain May 1, 1977. 6 charges heard Administrative Law Judge (ALJ), whose findings conclusions merits adopted Board. Specifically, ALJ's conclusion §§ 8(a)(1) (3)1 requesting "solely because supported Union" "with full knowledge question permits." Sure-Tan, Inc., 234 N.L.R.B. 1187 (1978). Board, therefore, agreed finding "the discriminatees' deportation proximate discriminatorily motivated [petitioners] constitutes constructive discharge." Id., at 1191.2 7 violations, recommendation ordered cease desist practices, notifying Union. However, declined adopt recommendations remedy. ALJ recommended offer discharged months. addition, concluded since, past precedent, normally tolled during those periods employment, ordinary Nevertheless, invited awarding 4-week provide measure relief deter future 8 however, analysis "unnecessarily speculative." N.L.R.B., 1187. Since record contained substituting work.3 Ibid. 9 592 (CA7 1982). fully It concurred judgment usual these circumstances. did, modify significant respects. First, proper free presented reinstatement. form deficient reentry. years. further Spanish, 10 backpay, required deemed unavailable Recognizing likely have lawfully receive all, "it better effectuate his discriminatory caused lose jobs." 606. Believing purpose, backpay.4 granted certiorari, 460 1021, 1270, 75 492 (1983). now affirm insofar determined but reverse direct remanded II A. predicate apply has consistently "employees" meaning 2(3) Act.5 That provision broadly provides "[t]he term 'employee' shall 29 U.S.C. 152(3), enumerated exceptions. task defining one "has assigned primarily created Congress administer Act," NLRB Hearst Publications, 322 111, 130, 64 851, 860, 88 L.Ed. 1170 (1944), construction considerable deference, we uphold reasonably defensible. See, e.g., Ford Motor Co. 441 488, 496-497, 99 1842, 1848-1849, 60 420 (1979); Iron Workers, 434 335, 350 (1978); Erie Resistor Corp., 373 221, 236, 83 1139, 1149, 308 (1963). 12 terms breadth 2(3)'s definition striking: squarely applies employee." limitations exemptions agricultural laborers, domestic individuals spouses parents, independent contractors supervisors, person See 152(3). workers expressly Congress, plainly come broad statutory "employee." 13 avowed supra U.S., 126, S.Ct., 858. previously recognized: "[A]cceptance substandard can seriously depress wage scales citizens admitted aliens; diminish effectiveness unions." De Canas Bica, 424 351, 356-357, 96 933, 936-937, 47 43 (1976). If excluded participation activities protections intimidation, subclass comparable stake collective goals resident co-workers, eroding unity impeding bargaining. Jones & Laughlin Steel 301 33, 57 615, 622, 893 (1937). Thus, categorization furthers B 14 Counterintuitive though be, do 66 Stat. 163, amended, 1101 et seq. This observed central concern admission country." 359, 938. evinces "at best peripheral entrants." 360, 939. For whatever reason, provisions making unlawful authorization. While "concea[l], harbo[r], shiel[d] detection" reside see 1324(a)(3), explicit proviso statute explains "employment (including normal incident employment) harboring." supra, n. 9, 939, 9. Moreover, made separate offense accept entering illegally. 119 Cong.Rec. 14184 (1973) (remarks Rep. Dennis). hence INA, reason conclude affecting necessarily INA. 15 persuasive argument primary workers; immigrant "will adversely affect similarly employed." 1182(a)(14). S.Rep. 748, 89th Cong., 1st Sess., (1965), U.S.Code Cong. Admin.Serv.1965, p. 3328. Application helps assure lawful residents affected competition standard employment. realizes correspondingly clearly reconcilable serves presently written. III 16 Accepting premise applicable difficult whether, circumstances case, Section makes "by discrimination tenure condition encourage discourage membership organization." 158(a)(3). approval lower courts, violates when, discouraging directly dismisses employee, purposefully creates intolerable option resign—a so-called Haberman Construction Co., 641 358 (CA5 1981) (en banc); Cartwright Hardware 600 268, 270 (CA10 1979); J.P. Stevens 490, 494 (CA4 1972); Holly Bra California, 405 870, 872 (CA9 1969); Atlas Mills, 17 T. Kheel, 12.05[1][a] (1982). dispute anti-union animus element test was, expressed court, "flagrantly met." F.2d, 601. "The replete examples Sure-Tan's blatantly supporting Union." 601-602. contend, country; instead, argue, Brief 13-15. 18 unavailing. According testimony agent before ALJ, taken custody. undisputed amply supports "but [petitioners'] Immigration, discriminatees continued indefinitely." 1191. And little doubt having months, Union's electoral victory assured. 887; 19 observe quite contend never report INS. Bloom/Art Textiles, 225 766 (1976) (no discharge activist where activities, worker state law). penalized. re Quarles, 158 532, 535, 959, 960, 39 1080 (1895).6 activity finds 8(a)(3). Absent antiunion animus, employee. supra. holding 20 Finally, Court's recent decision 277 (1983), mandates NLRA.7 filing suit seeking damages injunctive libelous statements injury business enjoinable unless retaliatory lacks basis. stressed access courts wrongs government, concluding construed way "sensitive" values. 741, 2169. noted compelling interest maintaining peace providing civil tortious disputes. allowed enjoin lawsuit simply motive, "be totally deprived injury," strong undermined. 742, 21 reasoning Restaurants situation. desire exercise rights, personal own reputation law. upheld forum pursue "actual injury." "right . 'for alleged wrongs.' " suffered comparable, hands invoke administrative process seek Cf. California Transport Trucking Unlimited, 404 508, 92 609, 30 642 (1972). Indeed, private persons judicially cognizable procuring Linda R.S. Richard D., 410 614, 619, 93 1146, 35 536 (1973). concerned preempt touching interests 'deeply rooted local feeling responsibility.' 2169 (quoting San Diego Building Trades Council Garmon, 359 244, 79 773, 779, 775 (1959)). Here, asserted interest, federalism concerns stake. short, efforts obligations IV 23 remains us challenges attack portions Appeals' original irreducible detailing language, acceptance period, method offers.8 narrow scope imposing modifications. 24 10(c) empowers committed, requiring violator "cease affirmative policies" 160(c). repeatedly interpreted command vesting responsibility discretion devise review. J.H. Rutter-Rex Mfg. 396 258, 262-263, 90 417, 419-420, (1969); Fibreboard Paper Products Corp. 379 203, 216, 85 398, 405, 233 (1964); Phelps Dodge 313 177, 194, 61 845, 852, 1271 (1941). appeals power decree modifying, modified" orders 160(e), (f), determining how undo effects practices: 25 "Because relation policy peculiarly matter competence, allowable area guard danger sliding unconsciously confines law spacious domain policy." 852. 26 Seven-Up Bottling 344 344, 346, 73 287, 289, 97 377 (1953) (power fashion "is wield, courts"). 27 impermissibly expanded discriminatee least ground "six assumption" "minimum [time] might remained apprehension INS, practice." agree exceeds limits imposed NLRA.9 Not overstep reviewing authority, 346-347, 289,10 Under 10(c), "effectuate Act." rather vague obviously permits discretion, encompasses proposed intended redress. Quite early on, established adapted situation calls redress." MacKay Radio Telegraph 304 333, 348, 58 904, 912, 82 1381 (1938). D. McDowell K. Huhn, Remedies Unfair Practices 8-15 course, general legitimacy means restore "as nearly possible, obtained discrimination," beyond dispute. Yet, cardinal, albeit frequently unarticulated assumption, sufficiently merely 198, 854 ("[O]nly good ."). To end, have, example, give due consideration mitigate fashioning equitable award. 288; 854. Likewise, long-standing deduct earned interim another job, Pennsylvania Greyhound Lines, 51 (1935), enf'd, 91 198 (CA3 1937), rev'd other grounds, 303 261, 571, 831 28 contrast, compensable injuries itself sought recompense lost wages, 6-month selected "obviously conjectural." imposition total absence individual pure speculation comport reparative NLRA.11 generally approve conventional calculations amounts any, recognized tailoring discharge. 260, 418; Nathanson 29-30, 80, 83-84, (1952); Trico 489 347, 353-354 (CA2 1973). Teamsters 431 324, 371, 1843, 1872, 52 (1977) (individual Title VII claims resolved hearings District remand). These able concrete individually entitled. Mastro Plastics 354 170 1965), cert. denied, 384 972, 86 1862, 682 (1966); Case-handling Manual 10656 (preparation specification). Nonetheless, recognized, implementation traditional conditioned upon readmittance devising obliged account "equally important Congressional objectiv[e]," Southern S.S. 316 31, 47, 62 886, 894, 1246 (1942) wit, objective deterring unauthorized embodied conditioning potential avoided. computing "unavailable" (and accrual tolled) Casehandling 10612, 10656.9 (1977).12 31 assumed circumstances, awarded underlying well financial disincentive repetition acts future. share uncertainty concerning either establish period. laws, Act. Any perceived deficiencies existing arsenal congressional action.13 Act.14 32 requirements appear unobjectionable trivial burden, represent just type informed relief. J. Weingarten, 251, 266-267, 95 968-969, 171 (1975); 1149. back Food Store Employees, 417 94 2074, 40 612 (1974). "best respects scheme investing powers national 2080; 7.04[3][e] (1984). 33 justifiable basis displacing discretionary offers. Rather than enlarging fashion, alternative grounds decide new forms V 34 reasons given above, mandated specifics instructions permit formulation opinion. ordered. 36 BRENNAN, whom MARSHALL, BLACKMUN, STEVENS join, concurring part dissenting part. 37 I extent holds, first, (NLRA), and, second, 158(a)(3), reported Accordingly, join Parts I, II, departs completely our cases, dissent Part 38 mistake ignore remand, urged satisfied "effectuates NLRA." Respondent 11. true, observes, ante, 900, inadequate attempting instance rule protects congressionally delegated policy" usurpation courts. 2080, acquiesced developed consequently, served remanding question. approach motion compounds initial error propriety outset discussion, correctly states 160(c), "vesting review." Ante, 898-899. goes concoct review, considers "sufficiently tailored" 901. Applying newly minted challenged here "d[o] powers." 900. Our whatsoever standard. explained "[w]hen restoration pay, 'should stand shown patent attempt achieve ends said Act.' (emphasis added) Virginia Electric Power 319 533, 540, 63 1214, 1218, 87 1568 (1943)). emphasized Rutter Rex Because pattern cases considered particular harm seeks cure. applied clear entirety urges. absent conduct, certainly receiving 1977—the date discharged. equally clear, loss income attributable perfectly designed possible [to situation] Dodge, sense "punitive," dual whole injured vindicating public 543, 1220. month's reflect, my view, wholly effort purposes. 41 Court, identifies what problems award, rests solely "conjecture" "speculation" employees." Second, insists "in 'unavailable' States." 903. 42 With assertion, estimates fair degree precision points out, speculative conjectural situations commonly confronted Buncher 787, 789-790 1968), 828, 77, 78 Superior Roofing 1240, 1241 Miami Coca-Cola 360 569, 572-573 1966).1 second explanation law, following return entitlement otherwise accrued tolled. place, overlooks longstanding forgiving conduct. Graves 246 345 (1979), enf'd modified, 692 470, 474-477 1982); Moss Planing Mill 414, 206 557 1953); cf. Truett Payne Chrysler Motors 451 557, 566-567, 101 1923, 1929, 68 442 (1981) ("[I]t very grace wrongdoer insist proof inflicted"). explains, 45, 44, found unavailable, presuming foreclose prepared grant, today far guilty usurping functions Appeals.2 44 More importantly, addresses disturbing anomaly status, same remedy, despite concludes notwithstanding while here. But flatly contradicted assertion entitled, are, press fail stripped 45 contradiction total. explaining policy, observes: 46 "Application lessened." 893. logic blunted restrict drastically Once employers, realize violate fear "incentive aliens" decline, increase. (INA) supposedly today's unquestionably undermined.3 48 permitting awards risk undermining reentry Board-ordered create is, notes, 902-903, removed. 49 drafted receipt verified, serve, "reasonably [to] case." 47. Although, said, unilaterally modifications sort, 905-9066, seems measures accommodate competing remand. 50 POWELL, REHNQUIST joins, unlikely include—for accorded benefits protective statute—persons wanted hold Given holding, opinion.a1 Sections (3) 140, 158(a)(1) (3), "unfair practice" "(1) interfere with, restrain, coerce rights guaranteed section 157 title" "(3) grants self-organization, organizations concerted 157. (1) threatening less promising not; (2) interrogating sentiments; immediately notify Union; (4) go out won General Counsel clarification legality status. denied Counsel's motion, over dissents members, argued order's failure 788 (1979). regarding submitted evidently incorporate Upon still uncertain App. Pet. Cert. 28a. rehearing suggestion en banc three judges dissenting. 677 584 bargaining units, Duke City Lumber 251 53 (1980); 231 138 (1977), 583 355 1978), discharge, Apollo Tire 236 1627 (1978), 604 1180 Amay's Bakery Noodle 227 214 (1976), threats Hasa Chemical, 235 903 established, pretextual, even praiseworthy controlling. Transportation Management, 462 393, 2469, 2472, 667 finds, here, legitimate pretext, nature pretext immaterial, involves reliance New Foodland, 205 418, (discriminatory underage employee). 230, 8, 1146 (1963), "good-faith motive" absolute defense charge." 10(e) "[n]o objection neglect urge excused extraordinary circumstances." 160(e). argument, raised intervening, substantial change controlling occasioned qualifies "extraordinary circumstanc[e]." Lundy Manufacturing 286 424, 426 1960). intervening certiorari countenance presentation challenge Blonder-Tongue Laboratories, University Illinois Foundation, 402 313, 320-321, 1434, 1438-1439, (1971). contempt sanctions again resort tactics country. 12, infra. BRENNAN asserts "fully acquiesced" reviewed post, 907. misses mark levels. deference premised appreciation duly brought bear "special competence" 265-266, 967-968, (1975). disparity patently inapplicable mere acquiescence correct main deficiency—its development usurped function appraise relevant factors believes consideration. 899; mindful instant claimed knowledge, attempted regardless issues secure fact, already rejected speculative" argues greater reconstructing happened 1240 1972) (per curiam); 787 (1969). proceedings, facts formula length compensation permitted forward mitigating 1240-1241 (upholding use "seniority formula" compute earnings "representative employee" approximation roofer's earnings). "estimated" affording opportunity evidence. factual information adequate analysis, inappropriate conclude, estimated precision," 909. Conditioning deeming 606 ("Consistent [except award] ."); 32a (modified order). Contrary BRENNAN's 910, argue exempt "unavailability" refers exception counter somehow logically "inconsistent" calculating 44. agreement noting parts id., 43, limiting alone, 43-46, below entirety. stands creating "disturbing anomaly" by, hand, bring claim, then, "effectively ." 911. ignores leaves intact 7, cases. Were engage penalties. threat deterrent time, recognize afford deterrence meaningful directives distortion placed authority. solution disposition issue, unnecessary Republic 311 9-12, 78-79, (1940). bog logomachy" "remedial" "punitive." 290, (1953). guidelines covered includes rejects bona fide reinstated. 10530.1(a) (1977). applied. Instead, estimate explained, reflects estimate, establish—because status—that reemployment reinstatement, 606; But, bore "discriminatory act[s] jobs," necessary brief, "where illness, injury, event occurred liability period." struggle created, recognizes, must, "reinstatement 13. resolute position result, am understand denying seen fit provide. a1 difference essentially degree, former reenter

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