Document: 417 U.S. 1 94 S.Ct. 2074. 40 L.Ed.2d 612 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.FOOD STORE EMPLOYEES UNION, LOCAL 347, etc. No. 73—370. Argued March 18 and 19, 1974. Decided May 20, Syllabus After finding that Heck's Inc. had engaged in pervasive unfair labor practices, the National Labor Relations Board (NLRB) issued a cease-and-desist order against it, but rejected argument of respondent union, charging party, for additional remedies, including reimbursement litigation expenses excess organizational costs incurred as result illegal conduct. The Court Appeals enforced NLRB's remanded case to NLRB further consideration remedies. again refused costs, reasoning its 'orders must be remedial, not punitive, collateral losses are considered framing order' Board, is entrusted with primary responsibility protect public interest. amended but, concluding meanwhile Tiidee Products, Inc., 194 N.L.R.B. 1234, changed policy, enlarged by requiring '(p)ay Union any extraordinary which reason policy resisting efforts refusing bargain' them' connection litigation. Sections 10(e) (f) Act authorize courts appeals 'make enter decree . modifying enforcing so modified' an order. Held: Appeals, although properly resolve inconsistencies Board's decisions this accepting counsel's rationalizations, erroneously exercised authority under §§ (f), since it was 'incompatible orderly function process judicial review' (NLRB v. Metropolitan Life Ins. Co., 380 438, 444, 85 1061, 13 591) court enlarge without first affording opportunity evaluate light enunciated decide whether should applied retroactively. Pp. 8—11. 155 U.S.App.D.C. 101, 476 F.2d 546, reversed remanded. Daniel M. Friedman, Washington, D.C., petitioner. Mozart G. Ratner, respondent. Mr. Justice BRENNAN delivered opinion Court. include, provision sought reimburse respondent's unlawful stated 'it would on balance effectuate policies (National Relations) require respect such circumstances here.' 191 886, 889 (1971). Respondent prevailed, however, enforcement review proceedings District Columbia Circuit. That adding provisions, paragraphs 2(e) bargain, determined at compliance stage these proceedings,' them investigation, preparation, presentation, conduct cases before courts, proceedings.' 546 (1973). We granted certiorari consider enlargement proper exercise Act, amended, 61 Stat. 146, 29 U.S.C. 160(e) modifying, 414 1062, 567, 38 467 reverse. 2 operates chain discount stores Southeast section country. Its resistance union organization has resulted some 11 Board.1 This grew out prevent employees store Clarksburg, West Virginia. twice Board. In decision, violated § 8(a) (1) 158(a)(1), threatening coercively interrogating during campaign, conducting nonsecret poll ascertain employee support union. Further, found 'flagrant repetition' similar practices other 'extensive violations Act' Clarksburg justified inference did entertain good-faith doubt concerning majority when company recognize bargain basis authorization cards signed employees. Accordingly, 8(a)(5) 158(a) (5) (1). Finally, because extensive were have made free fair election impossible, directing entered. rejected, union's adequate relief required certain behavior.2 172 2231 n. (1968). 3 Circuit order, remedies costs. 139 383, 433 541 (1970).3 On remand, original encompass supplemental remedies,4 costs.5 886. Although 'aggravated pervasive' intransigence probably caused incur greater rationale, previously mentioned, Act. reasoned order.' Id., (footnotes omitted).6 Moreover, party's participation is, found, primarily purpose protecting private interests, whereas therefore concluded that, interest might also arguably served 'in allowing Charging Party recover litigation,' 'override general well-established principle ordinarily recoverable.' Ibid. (Footnote omitted.) 4 Prior supplementary decision 1234 (1972), ordered context employer 'frivolous litigations.'7 industrial peace could best achieved if 'speedy access uncrowded dockets (were) available' assessment legal fees serve 'discourag(ing) future frivolous N.L.R.B., 1236. explain why those considerations led case. present abandoned award costs,8 stating 5 'Although Supplemental Decision nowhere characterized frivolous, used language 'clearly aggravated misconduct; questioned good faith repetition unlawful' stores. It appear now recognized employers who follow pattern organization, end unduly burden processes obliged, very least, respond terms making they put parties hold us appropriate one according relief.' U.S.App.D.C., 106, F.2d, 551. 6 viewed signal shift attitude toward Tiidee, "no nexus between (the employer's) conduct" been proved. Since, instant case, indicated proved accordingly held entitled 7 our view, improperly modify orders, returned Board.9 Congress invested broad discretion violator 'to take affirmative action will Act).' 160(c); see, e.g., Golden State Bottling NLRB, 168, 176, 414, 421, 388 does exceptional situation crystal-clear error renders remand unnecessary formality. See Express Publishing 312 426, 693, L.Ed. 930 (1941); Communications Workers 362 479, 80 838, 896 (1960). For cannot gainsaid here asserted least 'debatable' defenses practice charges, objections representation 'patently frivolous,' putting question remedy different light. say performing appointed balancing conflicting reasonably where asserted, interests determination his defenses, unfettered prospect bearing adversary's outweigh dockets. 8 There are, facial correctly declined substituting rationale 107 8, 552 8; see 1064, 951 (1965); Burlington Truck Lines, United States, 371 156, 168—169, 83 239, 245 246, 9 207 (1962). integrity administrative demands no less than representative, discretionary judgment it. But plausible reconciliation seeming inconsistency possible, review.' supra, clarify inconsistencies. guiding law, long Court, 'an imbedded open impliedly foreclose agency, after corrected, from legislative committed charge.' FCC Pottsville Broadcasting 309 134, 145, 60 437, 442, 84 656 (1940); Fly Heitmeyer, 148, 443, 664 FTC Morton Salt 334 37, 55, 68 822, 832, 92 1196 (1948); FPC Idaho Power 344 17, 73 85, 86, 97 15 (1952); Konigsberg Bar, 366 36, 43—44, 81 997, 1003, 105 (1961). Thus, reviewing concludes agency fashion apparently abused omitting court's view factual circumstances, reconsideration, course. Application respects congressional scheme investing powers national policy. affords opportunity, through evidence or findings, reframe better 86; 832. read having signaled change reimbursement, necessary, given determine new retroactively.10 10 insofar added direction proceedings. ordered. 12 Reversed direction. many cited 102 1, 547 1. requests provisions mailing notices employees; either companywide bargaining shifting proof demonstrate rejecting cards; injunctions 10(j) 160(j); increased 'make-whole' compensation collective-bargaining benefits lost employer's Appeals' intervening International Elec., Radio Mach. 138 249, 426 1243 (1970), known tiidee Products submission necessary refusal 'a clear flagrant violation law,' frivolous.' 254, 1248. directed mail homes all each locations; provide reasonable one-year period bulletin boards places normally posted; list names addresses locations, kept current year. respondent, assembled groups issued; whenever obtained card property granted; dues fees, benefits, proposition, relied upon Republic Steel Corp. 311 7, 11—12, 77, 79, (1940), Gullett Gin 340 361, 364, 71 337, 339, 95 337 (1951). following Appeals. 3, supra. filed April 25, 1974, modifed 163 502 349. based squarely perceived Tiidee. argued independently directed. said: 'There seems us, obvious difficulties (in relying subsidiary role party denial expenses), certainly appears look convenient means delaying—and thereby perhaps avoiding—the fatal day recognition collective bargaining. need pursue detail, itself subsequently departed based.' 105, 550 (emphasis added). thus occasion time address 10(c), 160(c), include power Appellate apply law effect appellate Bradley School 416 696, 711, 2006, 2016, (1974). However, permit instance giving retrospective underlying agency's governing act. posture not, course, failure, apparent warrant reversal review. Compare Barrett Line 326 179, 65 1504, 89 2128 (1945), WOKO, 329 223, 227—228, 67 213, 215, 91 204 (1946). L. Jaffe, Judicial Control Administrative Action 587—588 Shapiro, Choice Rulemaking Adjudication Development Policy, 78 Harv.L.Rev. 921, 947—950 (1965).

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