Document: 456 U.S. 645 102 S.Ct. 2071 72 L.Ed.2d 398 WOELKE & ROMERO FRAMING, INC., Petitioner,v.NATIONAL LABOR RELATIONS BOARD et al. PACIFIC NORTHWEST CHAPTER OF the ASSOCIATED BUILDERS CONTRACTORS, Petitioner, v. NATIONAL OREGON-COLUMBIA CHAPTER, GENERAL CONTRACTORS AMERICA, Nos. 80-1798, 80-1808 and 81-91. Argued March 3, 1982. Decided May 24, Rehearing Denied Oct. 4, See 459 899, 103 198. Syllabus Section 8(e) of National Labor Relations Act (Act) proscribes secondary agreements between unions employers—that is, that require an employer to cease doing business with another party. However, § contains a proviso which exempts from proscription union in construction industry concerning contracting or subcontracting work be performed at jobsite. In No. petitioner Woelke Romero Framing, Inc. (Woelke), respondent union, negotiating new collective-bargaining agreement, reached impasse over union's demand for clause would prohibit any jobsite "except person, firm corporation, party appropriate, current labor agreement appropriate Union, subordinate body signatory this Agreement." When Woelke's sites were picketed support clause, filed unfair practice charges Board, asserting clauses are sheltered by 8(e)'s only if they limited application particular jobsites both nonunion workers employed. argued because sought violated 8(e), picketing 8(b)(4)(A) Act, prohibits coercing "to enter into is prohibited by" 8(e). The Board held lawful whenever negotiated context relationships, therefore obtain such was permitted under 8(b)(4)(A). 81-91, dispute resulted being against member (petitioner 80-1808) association employers 81-91), challenging validity substantially similar involved included association. protected proviso. Court Appeals consolidated petitioners' requests review Board's orders ultimately decided enforce orders, holding so long as relationship may used clause. Held: 1. ordinarily shelters relationship, even when not issue here Pp. 2076-2083. (a) plain language legislative history clearly indicate Congress intended protect like those here. 2076-2080. (b) does argument primarily response decision NLRB Denver Building Construction Trades Council, 341 675, 71 943, 95 L.Ed. 1284—which general contractor's entire project order protest presence subcontractor illegal boycott—and thus should interpreted permitting designed reduce friction where forced alongside workers. serves variety purposes unrelated case's holding, case partly concerned friction. 2080-2081. (c) While create "top-down" pressure unionization—requiring subcontractors, work, force their employees become members—such implicit accept whatever top-down might entail. Moreover, organizing effect other provisions Act. 2081-2083. 2. without jurisdiction decide do violate picket Neither nor General Counsel raised during proceedings before judicial barred 10(e) provides "no objection has been urged . shall considered court." bar applies though banned failure object petition reconsideration rehearing prevents consideration question courts. P. 2083. 654 F.2d 1301, affirmed part, vacated remanded. 1 John W. Prager, Jr., Los Angeles, Cal., 2 Lewis K. Scott, Portland, Or., Pacific Northwest Chapter Oregon-Columbia Associated Builders. 3 Norton J. Come, Washington, D.C., NLRB. 4 Laurence Gold, unions. 5 Justice MARSHALL delivered opinion Court. 6 these cases, petitioners ask us whether (Act), 29 U.S.C. 158(e). Such except subcontractors who signatories Petitioners also violates 158(b)(4)(A), it pickets 7 United States Ninth Circuit It further 1301 (1981) (en banc). We affirm Because we conclude did have consider question, portion its decision. 8 * A. 9 These cases arise out two separate disputes. first involves framing southern California. From July 1974 June 1977, Brotherhood Carpenters Joiners America (Carpenters). Shortly expire, commenced bargaining purpose successor agreement. August however, parties Carpenters' This App. 86.1 10 locals sites, causing some stoppages. party, influence relations restriction 8(b)(4)(A), 158(b)(4)(A).2 11 agreed thrust. ruled, saved rejected contention According "in collective relationship." Local 944 (Woelke Inc.), 239 N.L.R.B. 241, 250 (1978), citing Connell Co. Plumbers Steamfitters, 421 616, 1830, 44 418 (1975). indicated since lawful, proposal 944, supra, 251. B 12 second concerns Contractors America, (Oregon AGC), 701 International Union Operating Engineers, AFL-CIO (Engineers). Oregon AGC approximately 200 southwest Washington. Since 1960, contract Engineers contained prohibiting "any company existing [Engineers] covering work." 9-10; see id., 12.3 addition, authorized take "such action deem necessary," including strikes economic self-help, awards obtained through grievance arbitration process on matters covered Id., 10. 13 April Builders Contractors, (Pacific Northwest), AGC, charges, Relying same reasoning employed clauses, standing alone, 274, 277 (1978). With one dissenting, provision 276.4 C 14 Woelke, all Appeals.5 panel reversed decisions. reasoned solely minimize Thus, "only exists then his members time wishes engage subcontractor." 609 1341, 1347 (1979) (three-judge panel). found unlawful, reach questions striking either valid lawful. 1351. 15 At respondents' request, reheard en banc. banc entirety. (1981). majority relationship.6 1322. but 1323-1324. 16 asked conclusion respondents clauses.7 granted certiorari. 454 814, 90, 70 83 II 17 added 1959 Landrum-Griffin Pub.L. 86-257, 73 Stat. 543-544, 158(e), states: 18 "It organization express implied, whereby ceases refrains agrees refrain handling, using, selling, transporting otherwise dealing products employer, entered heretofore hereafter containing extent unenforceable void." 19 fall within prohibition 8(e); contractor boycott services policies subcontractor. states, 20 "nothing subsection (e) apply relating done site construction, alteration, painting, repair building, structure, 21 must answer 22 Read literally, seem shelter agreements—it expressly states limit work. U.S., 628, S.Ct., 1837, warned "must light statutory setting circumstances surrounding enactment." case, exempt statute. intend authorize agreements.8 23 relationships. argue, confine scope They contend solve problems projects 24 After examining enactment," Co., 1637, confined suggest. indicates 25 Prior 1959, there gaps protections boycotts. NLRB, 357 93, 78 1011, 1186 (1958) (Sand Door), could concerted activity "hot cargo" agreements—agreements required goods whom had dispute. Sand Door free hot cargo agreements, compliance voluntary. 108, 1020. 26 eliminate loophole created 1837. Woodwork Manufacturers Assn. 386 612, 634, 87 1250, 1262, (1967). represents compromise bills reported Senate House. bill outlawed trucking industry. 105 Cong.Rec. 6556 (1959), Legislative History Labor-Management Reporting Disclosure pp. 1161-1162 (1959) (Leg.Hist.). legislation proposed House—the bill—was much broader. made "cease person." H.R. 8400, 86th Cong., 1st Sess., 705(b)(1) Leg.Hist. 683. Conference Committee adopt House bill. conferees insisted exempted garment industry, project. 17899 1432. 27 several references noting extends Report 28 "The committee conference construed change present state law respect specific type remove limitations imposes agreements. Picketing contracts (Local 1976, 93 [78 1186] (1958)). To legal today section 8(b)(4) amended, prevent legality affected 8(e)." H.R.Conf.Rep.No.1147, 39 943 (emphasis added). Senator F. Kennedy, chairman Committee, provided explanation subsequent congressional debate.9 30 preserve project." 17900 1433. Kennedy said: 31 extended 'hot cargo' bill, applied Teamsters, concern. upon qualification clothing apparel industries Both changes necessary avoid serious damage pattern industries." 32 Other legislators expressed views. emphasized final 18128 1715 (remarks Rep. Barden); 18135 1721 Thompson); 19849 1823 (post-enactment memorandum Sen. Dirksen); 19772 1858 (postenactment Goldwater). 33 statements reveal wished status quo" regarding contractors Assn., 637, 1264. part wanted ensure remained Given expression intent, can determine challenged proviso—or narrow interpretation appropriate—by Congress' perceptions quo 34 There ample evidence believed Comments he broad 1959: 35 "Agreements promises subcontract appear today. will unlawful applicable involving undertakings regardless precise relation them." 36 Kennedy's views shared legislators. Curtis, testifying stated illegal, "extensively" building trades Reform Legislation: Hearings S. 505, 748, 76, 1002, 1137, 1311 Subcommittee Public Welfare, 752 (Senate Hearings). heard testimony. Representatives independent complained lawfully that, result, whose selected denied opportunity compete jobs. described very 3540, 3302, 4473, 4474 Joint Education Labor, 2363 (statement Howard Lane) (House Hearings); 2365-2366 Edward M. Carlton).10 37 argue perception inaccurate. petitioners, extensively prior neither courts ruled "the relevant inquiry correctly perceived law, rather what was." Brown GSA, 425 820, 828, 96 1961, 1965, 48 402 (1976). event, belief common accurate. 38 District Columbia upheld clauses. (St. Maurice, Helmkamp Musser ), 119 1026 (1957), enf'd sub nom. U.S.App.D.C. 307, 266 905, cert. St. 361 834, 80 86, 76 (1959).11 Significantly, unable point pre-1959 A report published examined prevalence characteristics industry," quite common. Lunden, Subcontracting Clauses Major Contracts, 84 Monthly Lab.Rev. 579 (1961). study 155 contracts, 700,000 workers, 444,000 provisions. 582. most frequent requirement, more than 50 major obligated "terms conditions" master 715-716. Lunden describe single applicability employed.12 40 short, them apparently endorsing fully consistent III 41 attach little significance just described. Instead, focus Court's 1284 (1951) (Denver Trades), believe potent organizational weapon. arguments compels adoption restricted 42 adopted overrule Trades, supra. That boycott. disliked rule lead uneasy employee relationships jobsite: result. purpose, jobsites. 43 correct suggesting contributed 629, 1838. considering proper proposals effectively overruled See, e.g., 702(d) 8342, Sess. 752-753 (Elliot bill). frame reference [construction industry] written." 20005 1861 Kearns). clear, about possibility Critics working together sort neutral protect. pointed right place employment. And various close community interest, wages conditions set affect others.13 fact, noted, problem received relatively emphasis. F.2d, 1319. 45 helps mitigate impact decision: although ban picketing, confirms firms. argument—that protecting friction—rests faulty premises. As already shown, 2077-2080 problem. friction.14 46 approved, powerful tool. Subcontractors able unless represented union. effect, unionization; representation hands employers. 47 undoubtedly true central aims amendments restrict ability campaigns. 632, 1839 (discussing history). pressure. employed, effect. bare assertion encourages resolve confront cases: how tolerate 8(e)? explained, endorsed relationship—and concluded interests justified consequences attend protection legitimate objectives.15 number ways Act.16 cannot subjected unlimited regard employees. 158(b)(7)(C).17 An additional safeguard 8(f), 158(f), authorizes designated representative. obtains contractor, frequently attempt remain eligible entering 8(f) agreement—known prehire agreement—with If so, challenge representative filing election Board. themselves, stable among secured majority, repudiate demonstrated Iron Workers, 434 335, 98 651, 54 586 (1978); Giordano 256 47, 47-48, 107 LRRM 1164, 1165-1166 49 Despite assertions contrary, frozen job market Even successfully negotiate hiring halls, refer nonmembers available §§ 158(a)(3), 158(b)(2).18 Courts suggested obligations membership security after seven days normal financial membership.19 Finally, remains firms primary off job. proviso, forms activity. 943; IV 51 Petitioner asks reverse Appeals' question. Woelke. 160(e), "[n]o court, neglect urge excused extraordinary circumstances." De ¢s666¢s Edison 440 301, 311-312, n.10, 99 1123, 1129-1130, 59 333 (1979); Garment Workers Quality Mfg. 420 276, 281, n.3, 972, 975, 189 (1975); Ochoa Fertilizer Corp., 368 318, 322, 82 344, 347, 312 52 N.L.R.B., objected rehearing. n.3. 53 lacks objections vacate judgment relates issue, remand instructions dismiss. V hold supported language, well history. below, insofar holds opinion. 55 ordered. full: Contractor painting structure (including quarries, rock, san[d] gravel plants, asphalt ready-mix concrete established adjacent supply materials convenience use) 86. expiring 28. selfemployed person join "Employers Agreement 9-10. use self-help measures 8(b)(4)(B) 158(b)(4)(B). makes technically proceeding. position taken Northwest. conclusion. Donald Schriver, 204 25, 635 859, 880 (1980), denied, 451 976, 101 2058, 68 (1981), pending, 80-1257. None Connell, confronted novel fool-proof tactic: "stranger" aimed pressuring no interest representing, signing recognitional objective 8(b)(7), 158(b)(7). appeared arguably bans secure concluded, "extends relationships." 633, 1840. left unresolved : relationship. conferees' insistence, conferees, entitled substantial weight. representatives testified opposed arguing business. 2366; 752. despite testimony, exclude approved complying engineering observe terms contract. referred case. 2364, 2367. text introduced record Hearings. 801, 803-807. suggest adequately distinguish standards clauses—clauses permit willing comply forth Counsel, conducted own restrictions types restrictions, roughly 12% studied. Counsel's Memorandum, Dec. 15, Lab.Rel.Rep. 390, 404, reprinted 1976 Lab.Rel. Yearbook 295, 309. Broad California, arose, 1941. Pierson, Building-Trades Bargaining Plan Southern 14, (1950); 20-22. Pierson noted arrangements existed localities, Ore., area, arose. 15. Aaron, Harv.L.Rev. 1086, 1119 (1960) (construction "approves promise subcontractor"). 17881, 1425 Morse); 15541 1577 (memorandum Reps. Thompson Udall); 15551-15552 1588 Elliott); 15852 1684 Goodell). important recognize, reducing purpose. serve goal ensuring need true, emphasize, give monopoly market. previously markets, apart minor overlaps, representing craft. 240 252, 261 (1979). recognized, S.Rep.No.187, U.S.Code Cong. Admin.News p. 2318, skilled craft belong Many note infra, 2082-2083, Radio Officers 347 17, 40-42, 74 323, 335-336, 455 (1954); Teamsters 365 667, 673-677, 81 835, 838-840, Hershey Foods 513 1083, 1085-1087 (CA9 1975); 1104, Communications 520 411, 417-420 (CA2 1975), 423 1051, 778, 639

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