Document: 388 U.S. 175 87 S.Ct. 2001 18 L.Ed.2d 1123 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.ALLIS-CHALMERS MANUFACTURING COMPANY et al. No. 216. Argued March 15, 1967. Decided June 12, Thurgood Marshall, Sol. Gen., and John Silard, Washington, D.C., for petitioner. Howard C. Equitz, Milwaukee, Wis., respondent. Martin Seham, New York City, Times Display Advertising Salesmen Steering Committee, as amicus curiae. Mr. Justice BRENNAN delivered the opinion of Court. 1 The question here is whether a union which threatened imposed fines, brought suit their collection, against members who crossed union's picket line went to work during an authorized strike employer, committed unfair labor practice under § 8(b)(1)(A) National Labor Relations Act engaging in conduct 'to restrain or coerce' employees exercise right guaranteed by 7 'refrain from' concerted activities.1 2 Employees at West Allis, La Crosse, Wisconsin, plants respondent Allis-Chalmers Manufacturing Company were represented locals United Automobile Workers. Lawful economic strikes conducted both support new contract demands. In compliance with UAW constitution, called approval International Union after least two-thirds each local voted secret ballot strike. Some lines worked strikes. After over, proceedings these charging them violation constitution bylaws. charges heard trial committees charged respresented counsel. No claim unfairness made. trials resulted member being found guilty 'conduct unbecoming Unionmember' fined sum from $20 $100. did not pay fines one obtained judgment amount fine its members, Benjamin Natzke, test Milwaukee County An appeal pending 3 filed Wisconsin Supreme 4 8(b)(1)(A).2 A complaint issued hearing examiner recommended dismissal. Board sustained on ground that, circumstances this case, actions locals, even if restraint coercion prohibited 8(b)(1)(A), constituted excepted section's prohibitions proviso that such 'shall impair organization prescribe own rules respect acquisition retention membership therein.' 149 N.L.R.B. 67. Upon Allis-Chalmers' petition review Court Appeals Seventh Circuit, panel court upheld Board's decision. Following rehearing en banc, however, court, three judges dissenting, withdrew opinion, held locals' violated remanded appropriate proceedings. 358 F.2d 656. We granted certiorari, 385 810, 54, 17 51. reverse. I. 5 majority banc thought reversal NLRB orde w ould be required literal reading §§ 8(b)(1)(A); cross would regarded exercising rights refrain particular activity, discipline form activity therefore 'restrain read sanction no other than expulsion union. rejected reading. adopted it, stating 'mistakenly took position was unwarranted light history purposes' sections, F.2d, 659, holding '(T) he statutes present ambiguities whatsoever, do require recourse legislative clarification.' Id., 660. 6 It highly unrealistic regard 8(b)(1), particularly words coerce,' precisely unambiguously covering involved case. On face enforcement obligations more satisfaction penalties citizens income taxes, awards damages contracting party nonperformance contractual obligation voluntarily undertaken. But inherent imprecision may overlooked, determine sense Congress used foreclosed. have only Term again admonished legislation peculiarly product compromise strongly views, Local 1976, Broth. Carpenters Joiners America v. Board, 357 93, 99—100, 78 1011, 1016—1017, 1186, disregarded merely because it arguable provision embrace question. Woodworkers Mfrs. Assn. NLRB, 386 612, 619—620, 1250, 1266, 357. Indeed, we applied principle construction itself section must construed fact 'is many interwoven sections complex Act, mindful manifest purpose fashion coherent national policy.' Drivers, etc., 639, 362 274, 292, 80 706, 716, 710. policy has been built premise pooling strength acting through freely chosen majority, unit most effective means bargaining improvements wages, hours, working conditions. extinguishes individual employee's power order his relations employer creates vested representative act interests all employees. 'Congress seen fit clothe powers comparable those possessed body create restrict whom represents * *.' Steele Louisville & N.R. Co., 323 192, 202, 65 226, 232, 89 L.Ed. 173. Thus terms conditions employment,3 provisions processing grievances; bargain away term,4 refuse lawful line.5 employee disagree decisions but bound them. 'The majority-rule concept today unquestionably center our federal policy.'6 complete are hardly expected. wide rng e reasonableness allowed statutory serving represents, subject always good faith honesty discretion.' Ford Motor Co. Huffman, 345 330, 338, 73 681, 686, 97 1048. 8 unions necessary duty fair representation. That 'has stood bulwark prevent arbitrary individuals stripped traditional forms redress law.' Vaca Sipes, 171, 182, 903, 912, 842. For same reason 1959 Landrum-Griffin amendments, Stat. 519, enacted code fairness assure democratic affairs guaranteeing free speech assembly, equal vote elections, attend meetings, participate deliberations voting upon business meetings. 9 Integral protect erosion status reasonable violate regulations governing membership.7 vital when engage ultimate weapon labor's arsenal achieving agreement terms, '(t)he expel strikebreakers essential agent *.'8 Provisions constitutions bylaws recalcitrants, including strikebreakers, common-place commonplace time Taft-Hartley amendments.9 10 addition, judicial view current passed defining punishable procedures part between courts' role enforce contract.'10 Association Machinists Gonzales, 356 617, 618, 923, 924, 1018, recognized '(t)his conception relation widely prevails country Although state courts reluctant intervene internal affairs, law establishing standards grew up around doctrine. See Parks Electrical Workers, Cir., 314 886, 902—903.11 11 To say meant 1947 amendments strip strikebreaking, however vote, disciplinary penalty, preceded pervasive regulation unions. also attribute intent war understanding union-membership heart effort policy' predicate underlying action courts. More importantly, limited discharge exclusive agents impairing usefulness cherished weapon. answer preserves offending member. Where strong valuable, visits far severe penalty fine. weak, little value, faced further depletion ranks real choice except condone member's disobedience.12 Yet just weak execute taken benefit critical function. 12 Congressional meaning course ordinarily discerned uses. application imprecise employed produces extraordinary results meti oned should confirmed section. II. 13 explicit wording 8(b)(2), concerned affect employment, sharp contrast 8(b)(1)(A). Section 8(b)(2) limits compel terminated 'failure (of employee) tender periodic dues initiation fees uniformly condition acquiring retaining membership.' significant expressly disclaimed connection any intention interfere self-government regulate affairs. Senate Report stated: 14 committee desire limit either selection therefrom. wish job unreasonably expelled denied membership. tests provided amendment based facts readily ascertainable inquire into union.' S.Rep.No.105, 80th Cong., 1st Sess., 20, I Legislative History Management (hereafter Leg.Hist.) p. 426. (Emphasis supplied.) 15 Senator Taft, protestations Pepper 'deny man betrays objectives *,' 16 measure does propose limitation They still will able fire they fire, try members. All do, enactment bill, this: If some nonpayment cannot make him throw out work. result discussion.'13 consideration Taft said this. emphasis insulated job, left self-government, evidence contemplating discipline. This borne made special study, among things, 'the administration 402(3), 61 160. What materials there dealing contain single word referring general, particular. contrary number assurances sponsors 19 contained House bills reported committee, introduced floor Ball. Conference without enlightenment report committee. first suggestion appears Statement Supplemental Views Report, minority Senators Ball, Smith, concurred. mischief inveighed organizational campaigns. instances about threats reprisal families organizing campaigns; direct interference mass picketing violence.' supra, 0, Leg.Hist. 456. Ball proposed stated, simply provide where unions, campaigns, indulge practices which, indulged them, practices, making false promises statements, shall practices.' 93 Cong.Rec. 4016, II 1018. gave numerous examples kind cover. Each related campaigns.14 reiterated several times thereafter,15 remarks added passage amendment.16 consistent thrust arguments necessity controlling Holland eliminating reach replied, 20 'I offered Florida perfectly agreeable me. never unions.'17 21 acceptance proviso, day itself, proviso: 'That modification designed clear trying already organized. cover coercive restraining acts organize unorganized employees.'18 22 Another co-sponsor amendment, echoed purpose: freedom decide join organizations, restrained coerced.'19 23 initially confined comments tactics.20 However, debate Pepper, suggested broader application: 24 'If anything development past years come orders leaders. bill provides protest exercised leaders.'21 25 reply Pepper's can themselves 'tyranny,' think case deal opportunity select labor-union leader.'22 observed leaders sometimes penalize then attempted draw analogy shareholders corporation, gone much protecting stockholders corporations Even tell how *.'23 twice clarify effect answered nonunion men well.24 26 week bill. There reference debates applicability anyone else, despite repeated statements bore relationship At point, Saltonstall asked covered responded bodily harm, coercion, campaigns prevented dispute going work.25 inference envisioned intruded regulated negated categorical contemporaneous 8(b)(2). 27 true references impose employers regards rights.26 However apposite parallel might tactics, clearly inapplicable allows choosing very refuses adhere, conduct, voice union.27 28 Cogent interpretation 8(b)(1) reaching imposition attempts 8(b)(1). states nothing 'impair therein immediately accepted way unions.28 lesser expulsion, carry implicit threat nonpayment. Therefore, rule valid practice. Assuming authorize need reach,29 remains interpret apply collection impute concern permissible narrow disre interest banning fines. evidencing congressional concern. And, pointed out, distinction anomalous reasons. First, operating within context 'contract theory' union-member prevailed time. efficacy legal enforceability. lawsuit ordinary performance private money compelled. Second, noted, visit potentially punishment while facility requiring misconduct deplete ranks. 29 permit large fines.30 shared concern,31 justify bar fines.32 30 comprehensive affairs,33 negate given below. 'To de sure, what establish 1947. another major step evolving pattern relevant consideration. Courts properly take account later extend earlier Act's vague language literally, permit.' 291—292, seek adopting measures insure provison processes procedural due process subjected then, emphasized 'in enforcing great care taen undermine weaken collective-bargaining agents.' S.Rep.No.187, 86th 7, U.S.Code Cong. Admin.News 1959, 2318. Eighty-sixth thus plainly 'fined, suspended, expelled, otherwise disciplined,' requirements observed. 523, U.S.C. 411(a)(5). Moreover, guarantee assembly disclaiming adopt responsibility every toward institution 411(a)(2). 31 reason. indication over beyond tactics coerce nonmembers Taft's undemocratic leadership. addressed protected 'right leaders.'34 embodied Act. adherence principles, election officials aspects affairs.35 followed calling disciplining recalcitrant fully comported requirements, democratic. Whether proscribes disobedience fiat leader, matters presented express ivew. 32 conclusion activities included prohibition decline honor collect Rather, jusitifed throughout limitations aside barring employment status. III. 33 collective agreements incorporate security clauses. Full compelled clauses: become remain 'a extent payng monthly below nevertheless full voluntary insertion (this) substantial forced inquiry motivated line. herein enjoyed executed pledge allegiance oath record Natzke discloses two disciplined testified had participated leading attended meetings renewed taken. similar 'had purposes proceeding presum contrary. Cf. Street, 367 740, 774, 81 1784, 1787, 1141.36 allis-Chalmers' whatever nature whose paying before us intimate view.37 34 reversed. 35 Reversed. 36 WHITE, concurring. 37 makes rights, permits Hence, tis rules, though serious brand 'coercion' derogation rights. Such oe rcion permitted adding Thus, neither nor dissent questions validity crossing strike, propriety rule. therefore, 'Coercive' enforceable expulsion. 38 dissenting although questioning enforceability membership, violating all, otherwise. hold practice, apparently collectible My Brother BRENNAN, Court, takes different view, reasoning since explsion cases—certainly involving union—be technique collecting enforcement, basis thinking Congress, having intended method less coercive. 39 mean indicate, otherwise, conceivable impinges action. well wholly invalid unenforceable. seems unanimous upholding written persuasive sensible statute am doubtful implications generalized statements. 40 BLACK, DOUGLAS, HARLAN, STEWART join, dissenting. 41 Workers refusing activities, continued Allis-Chalmers. 'concerted activities' amended, 140, 141, Despite emphatic guarantees go back Though therein,' attempt refused Instead, payment now affirms find fining lines. agree and, affirm set order. 42 determining holds, helpful note hold. Since resorted instead relying sanctions correctly assumes holding. Neither sustain gives activities. characterizing 'contractual' emphasizing situations 'full member' union, implies joining waives participating resort addition activities.' According phrase Committee 'make line.' 6859, 1623. added.) 43 With reliance Court's boils down court-enforced nonparticipation does, interprets directly opposed meaning, admits taxes. ambiguous, clear,' 4021, 1025 official sufficient intelligence learning could fail comprehend plain, simple English words, insists finding 'inherent imprecision' words. And characterization '(w)hat are.' doing so, finds things: (1) 'not word' indicate 'traditional particular'; (2) 'repeated refrain' running intend 'internal unions'; (3) supported primarily drives violence general. 44 observations alone disregarding plain section, me so either. decision especially ones, court. enough, says failure participate; latter punitive. entire mood curtail previously curtailed employers, equalize two, unwilling believe weapon.'1 subscribe unarticulated add whenever believes needs 45 recognizes coercive, seeks holding—that 8(b) (1)(A)—by authorizes protects discouraging From assumption suggests '(a)t nonpayment.' finally, departing third arrives preclude alternative judicially 46 Contrary certain includes charge thing power, association, specific quite leave courtlike punish Just free, threaten discover 'lesser penalty,' fine, normally unaware compelling payment, often 47 long fundamental error recognize practical theoretical difference here, enforced drastic intra-union means.2 As recognizes, may, But, value great, court-enforcement punishment, why desires criminal court's imprison defendants 48 strikebreaking $100, initiated 'test case' notifying warned considered separate offense cases, lasted months. minimal case,' too difficult imagine absolutely willing loss paid indeed risk $100 worked. Of course, suggests, defeat showing 'unreasonable' few courage financial risk. Ex parte Young, 209 123, 441, 52 L.ed. 714. 49 disposes tremendous union-enforced suggesting fines' consequence relationship. cautions 'reasonable fines.' Apparently considerations somehow bring ambit affairs.' historically logically based. passed, prohibit discipline' saying so. authorities cited indicates 1947, contrary, until recently rarely fines.3 Congress' unfamiliarity recent innovation consequent unconcerned 'means' uses enacting 'rules game' abide by. 4436, 1206. noted year '(i)n Section, aiming means, ends.' Perry Norvell 225, 239. use clear, insulating persuading nonpaying withhold 8(b)(2).4 shop contract, employees' extra dues, decision, jeopardized jobs.5 equally outside assistance holds discipline.' impact per job—they totally discourage all—and see 'internal' empoy er enforcement. undeniable resorts help enough obedience internally. physical officers doubt 50 Finally, comparing commercial contract—a comparison according authority, fabrication.'6 theory recently, fiction intervention employees, effectiveness impaired fiction,7 content rely coercion.8 Particularly 'contract' involuntary shop. surprising 'what motivated' immaterial. entered involuntarily. insulate secured 'full' coerce. 51 While correct proper certainly justified ignoring inconclusive points to. place, legislativema terials (1)(A)' floor. cleared Committee. House, reports brief. second deems 'imprecise,' magical quality clarity unions.' certainty careful heated response criticism repeatedly itself. actually aimed secure 'equality employees.'9 Over again, others indulges practice.10 'this union,' Several times, tried persuade occasion, difference.' 4022, 1026, 1027. When replied: 53 years, ever (the Act) came existence. Its organizations slightly implication, point cases parallel. Certainly accept entitled protection objection 4023, 1028. replied overlooking workers elect officers, whereas employers'—precisely inapplicable—Senator 54 leader; elected various leader. coercing expels subjects treatment interferes American citizens.' 55 'amendment leaders,'Senator deny it.11 He stated warn 'that 4025, 1032. 56 abuse referred nonmember covers comes close doing, ignore history. tactics. Also, nonviolent violence. put it: 'But actual *.'12 noted: 'There plenty methods short violence.'13 Examples double waited join.14 doubling 'within affairs' not. commenting abuses correct, Wiley 'instances $20,000 lines—dared place employment.'15 Twice debate, emphatically wished so.16 occasion strikes, reads reference.17 Once utilizes extemporaneous circumvent unambiguous carefully drafted statute. knew so.18 57 strongest Holland. observed, 'Apparently admission members,'19 repied, 'It unions.'20 statement accepting unjustifiably broaden it. suppose 'part' referred. announced leaders, impossible said, 'None unduly employees.'21 Third, recognizes—without 'arbitrary' understand arbitrariness nonarbitrariness determines scope affairs.'22 58 write 8(b)(1)(A): paragraph nonarbitrarily rights.' Nothing supports creation proviso. IV. 59 'thought thinks construe unions.'23 60 fails distinguish kinds indicated preserve common mode adopted. doubt, incidentally flat seldom-used discipline—expulsion expulsion—were Taft-Hartley, V. clause ones 8(a)(3) utilization urpose fees.' Radio Officers' Union, etc. 347 17, 41, 74 323, 336, 98 455. characterizes imposing 62 problem failed prove dues. reasons, unable approach. Few 'members' virtue aware 'limit' avoid brash unfamiliar Must signing routine membership? restrains How names appear rolls hope convince union? By prohibits shop, adds impetus Today's dangerous name only. VI. 63 originally amendmed time, draftsmen skilled experience These thoroughly understood terminology, oft-used coerce.' Sections together bespeak engage. field, completely unhampered pressures basic my ill behooves diligently unequivocally declared Sips, 203, 842 (dissenting opinion). affects joined obtaining defeats clauses situation contracted waived 64 follow fraught dangers best brief, inconclusive, ambiguous. convinced ignored give need. prvi sions 157 158(b)(1)(A), 'Sec. 7. *, 8(b). agents— '(1) (A) 7: Provided, Two involved, 248 Allis plant, 401 Crosse plant. mentioned proof specifically consisted letter 1959. 1962 mention occurred over. 1960 letters sent fines; informed outcome enforceable, UAW, 756 Woychik, Wis.2d 528, N.W.2d 336 (1958). 401's J.I. Case 321 332, 576, 88 762; Medo Photo Supply Corp. 678, 830, 1007; ILGWU 366 731, 737, 1603, 762. Mastro Plastics 350 270, 280, 76 349, 356, 100 309. Rockaway News 71, 832. Wellington Democracy Fair Representation: Federal Responsibility System, 67 Yale L.J. 1327, 1333 See, e.g., Summers, Legal Limitations Discipline, Harv.L.Rev. 1049 (1951); Philip Structure Government Unions 117—180 (1954); Taylor, Role Democratic Society, Selected Readings Regulation Internal Affairs Affecting Rights Members, prepared Subcommittee Public Welfare (Committee Print, 85th 2d 1958) Readings); Kerr, Leaders Their Own Choosing, Readings, 106, 109. n. 1049. 'Strikebreaking prohibition, undercuts principal objective exists.' Disciplinary Powers Unions, Ind. Lab. Rel.Rev. 483, 495 (1950). Industrial Leader, 40, 69—71; Lab.Rel.Rev. 508—512 (1950); Procedures Constitutions, Dept. Bulletin 1350, Bur.Lab. Statistics (1963). element (1), background loses cogency explicitly call potental ity binding obligation. Surely absence 'court enforceability' sale parties foresee possible rather innovation.' known early 1867. Master Stevedores' Walsh, Daly (N.Y.). Law Discipline: Do Fact, 175, 180 (1960). generally Chafee, Associations Not Profit, 993 (1930); Note, Judicial Control Actions Private Associations, 983 (1963); Cox, Under Reform Mich.L.Rev. 819, 835—836 'Since largely degree controls available labor, expulsions tend numbers undercutting rates, strikebreakers. small unless entrenched effectively challenged 487—488 4193, 1097. 4016—4017, 1018—1021. join. necessarily joining, primary 4271, 4432, 4434, 1139, 1199, 1203. A—2252, 1524—1525. 4272, 1141. 4433, 1200. 4435, 1204. 4021—4022, 1025—1027. 483: changes Wagner purported corrupt leaders.' 4024, 1030. quoted limiting Ives' matter investigated, broad remark '(m)erely govern matter, easy determine, agree.' 1029, colloquy refers 'Senator it.' accurate evaded issue. 4435—4436, 1205—1206. following vis-a -vis preventing work—'mass picketing, prevents office force plant.' exactly say, 'Here th game. You cease desist want earning earn.' 'You them; you signs; propaganda cannot, reprisal, work.' amendment.' His Morse context. 1207. 'up plementary Analysis Bill Passed' striking unit. distinguished concerning '(i)ts parallel.' Only proposition. S.Rep. 105, 50, 456; 1032, Stone South Carolina State Hwy. Barnwell Bros., 303 177, 184—185, 2, 510, 513, 82 734: 'State affecting interstate commerce, gain advantage expense without, burden corresponding within, impinge constitutional acted. (Citations omitted.) 'Underlying thought, expressed character falls principally cipally state, likely political restraints exerted adversely state.' commentator inducing accordance desire.' Wellington, 1329 1141, Our unnecessary pass actions. notification constitute 248, 401, 248. decided Most important, drawn collection. argued sought large. Wiley's directed 5000, 1471. courts, reviewing discipline, ways 'discipline, (which) involves hardship.' 1049, 1078 (1951). allow 'new arsenal,' inconsistent eliminated, possessed. 1958, Machinests 620, 925, said: '(T)he undertaken law, assertion denied.' 852: expands area Previously relationships management 411—415, 431(c), 461—464, 481—482. Significantly, rendered unlawful suspend, expel, *' 529. Railway relief using payments purposes. S.Ct., 1803: 'Any remedies, funds causes object. safeguards dissenters' interest, presumed—it affirmatively employee. identified action.' 'expressly 'Membership' whittled core.' General Motors Corp., 373 734, 742, 83 1453, 1459, 670. pre-empted law. Compare 100, Ass'n Journeymen Apprentices Borden, 690, 1423, 638. Those concern, outlaw anybody wanted legitimate *. people Comment, 115 U.Pa.L.Rev. (1966); 683 (1967). opinion. One notes 'discipline limitations' union' sultimate 487 removed hidling. Bell Aircraft 206 235 (collective promote union). Associated Home Builders Greater Green Bay, 145 1775, grounds, 352 745. fabrication contract? provisions, notoriously fall contract. adhere inflexible presented. bound, retains unlimited amend term short, main channel created marriage 1055—1056 theory,' history, opponents curtailing power. frequent fiction. 210, infra. was, indeed, cope with. 1031. 1025. 4432—4436, 1199—1207. 1018; 1025; 1029. 4017, 1020. 1020; 1, supra; 8(b)(4)(B). 1139 (emphasis added). 5001, 1472 'fine coercive.' 138, Operating Engineers, 148 679, H. B. Roberts, Business Manager 674, enforced, 121 U.S.App.D.C. 297, 427, filing NLRB. concluded fils files alleged conflict allegedly N.L.R.B., 682. 138 Roberts 'beyond competence enforce' 67, 69. WHITE resting concurrence 'valid.' aim proscribing accomplish ends, depend views 'valid' 'vague language' used, deprive 103 523 (1959), 413, provides: 'Nothing title remedies

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