Document: 429 U.S. 507 97 S.Ct. 891 51 L.Ed.2d 1 NATIONAL LABOR RELATIONS BOARD, Petitioner,v. ENTERPRISE ASSOCIATION OF STEAM, HOT WATER, HYDRAULIC SPRINKLER, PNEUMATIC TUBE, ICE MACHINE AND GENERAL PIPEFITTERS NEW YORK VICINITY, LOCAL UNION NO. 638, etc. No. 75-777. Argued Oct. 6, 1976. Decided Feb. 22, 1977. Syllabus A subcontractor (Hudik) had a subcontract with general contractor (Austin) for the heating, ventilation, and air conditioning work in construction of home aged. The job specifications provided that Austin would purchase certain climate control units manufactured by Slant/Fin Corp. to be installed home, internal piping these was cut, threaded, at factory. However, collective-bargaining agreement between respondent union Hudik pipe threading cutting were performed on jobsite. When arrived job, steamfitters employed refused, union's instigation, install them ground factory-installed violated steamfitters' work. then filed complaint National Labor Relations Board, alleging committed an unfair labor practice under § 8(b)(4)(B) Act, which makes it induce employees refuse handle particular goods or products coerce any person, where "an object" inducement coercion is require person cease doing business other section shall not construed make unlawful primary strike picketing. Specifically, charged action taken force dealing Slant/Fin's products. Administrative Law Judge held 8(b) (4)(B), because seeking enforce obtain object reality influence exerting pressure Hudik, employer who no power award union. NLRB agreed, noting although refusal climate-control based valid work-preservation clause agreement, exerted undertaken its effect employers, thus secondary prohibited 8(b)(4)(B). Court Appeals set aside NLRB's cease-and-desist order, disagreeing both legal factual grounds. Held: activity 8(b)(4)(B), rather than beyond reach provision. Pp. 514-532. (a) existence adequate defense charge. To hold, as did, stoppage necessarily when aims enforcing promise inconsistent statute Local 1976, United Brotherhood Carpenters v. NLRB, 357 93, 78 1011, 2 1186 (Sand Door ), accepted has never been abandoned Congress. 514-521. (b) also erred taking view "control" test, commits coerces order assign, invalid matter law fails comply standard Woodwork Mfrs. Assn. 386 612, 87 1250, 18 357, conduct judged light all relevant circumstances. It does appear either agreeing him, articulated different from recognized proper Woodwork, applying test failed consider 521-528. (c) record amply supports conclusion objectives confined employment relationship but included influencing manner 8(b)(4) (B). 528-531. (d) obliged review case statutory whether findings "supported substantial evidence considered whole," reweighing facts setting improperly substituted own views those NLRB. 531-532. 172 U.S.App.D.C. 225, 521 F.2d 885, reversed. Norton J. Come, Washington, D.C., petitioner. Laurence Gold, respondent. Mr. Justice WHITE delivered opinion Court. Under 29 U.S.C. 158(b)(4) (B),1 induces engaged commerce, person. proviso, added 1959, declares "shall (not) unlawful, otherwise picketing." Although without proviso face seem cover aimed forcing cessation business, Board (Board) judiciary have more narrowly, before after added, prohibit only secondary, primary, strikes picketing.2 Among things, violation picket purpose preserving traditionally members even though demand another employer. (1967) (National ). question now us kind site violates engage against over assignment sought More specifically, issue union-instigated subcontractor's factory-piped units, contractor's site, statute. As we see, this turns boycott "addressed relations contracting vis-a-vis his employees," supra, 645, S.Ct., 1268, therefore conduct, "tactically calculated satisfy elsewhere," id., 644, event activity. 3 * Co., Inc. (Austin), engineer project known Norwegian Home Aged.3 result competitive bidding, awarded Hudik-Ross (Hudik), perform air-conditioning construction. employs regular complement about 10 20 steamfitters. For many years, represented Enterprise Association (Enterprise), plumbing pipefitting Over years entered into successive agreements, such time dispute involved present litigation arose. regarding done project. 4 incorporated Austin's specifications. These (Slant/Fin) Home. further At Austin, aware called upon do 5 Traditionally, heating Also, Rule IX then-current contract jobsite accordance V, turn specified two employees.4 There similar identical provisions previous contracts. designated factory referred IX. 6 refused them. agent told superintendent "would inside work." Steam Pipefitters, 204 N.L.R.B. 760, 762 (1973). informed "that 638's Ibid. persisted thereby interfering completion Act engaging encouraging furtherance impermissible object. Slant/Fin. position merely preserve covered 7 found there could obtained through alone, if forced abandon contract, unless until changed so provide subcontractor. concluded jobsite, 8 agreed. Assn., supra. noted first "was preservation subcontractor, they performed." 760. This did settle legality however; "Hudik incapable assigning work; Hudik's assign place. . Respondent change terminate Austin. Since Section 8(b)(4)(B)." (as amended Aug. 30, 1973). 9 divided District Columbia Circuit, sitting en banc, Board's order. 885 (1975). We granted certiorari apparent conflict Circuits.5 424 908, 96 1101, 47 311 (1976). II In disagreed deal Appeals' proposition struck requiring him what he lawfully contracted benefit can (n)ever neutral bystander own." U.S.App.D.C., 243, F.2d, 903 (footnote omitted). view, itself warrant inference objectives, whatever impact immediate employers might be. Thus, seeks stoppage, always (4) approach untenable our cases construing it. 11 (1958) Door), containing provision, quite legal, " 'workmen required non-union material.' Id., 95, 1014. arose nonunion doors notified hung. disputed door manufacturer. stood squarely contract; here sole provision "defense charge 8(b)(4)(A) when, absence unquestionably violation."6 101, 1017. 12 argued protecting becoming involuntarily disputes others, "protection should extend agreed hot cargo fact dispute," especially "when takes steps repudiate goods." circumstances, "(t)he inform their contractual rights urge take effective them." 105, 1019. arguments rejected: 13 "Nevertheless, seems most probable freedom choice contemplated arises concrete situation calling exercise judgment policy. Such choice, free pressures maintain normal concern must federal policy available notwithstanding private parties. See Licorice Co. 309 350, 364, 60 569, 577, 84 L.Ed. 799. employer's intelligent responsible, collective bargaining drawn up covering multitude subjects, often abstract manner, Congress may rightly assumed hoped scope industrial economic effects effectively limited." 105-106, 14 went hold inducements are countenancing "are likewise provision," U.S., 106, 1020. true making voluntary observance contracts contrary Sand decided; however lawful, enforced "by means specifically prohibited" section. 108, viewed boycott. 15 Door's holding promises disturbed. contemplating 1959 amendments Landrum-Griffin part suggested having forbidden creating loophole Act. 8(e) enacted close loophole. 634, 1262. 8(e), 158(e) (1970 ed., Supp.V), practice, provisos, unions enter whereby ceases agrees limited agreements closing left broader itself. made "primary" purposes, including themselves 635, 16 By stretch imagination, however, thought, enacting intended disagree ease 8(b)(4), perfectly intention aspect clearer. exempted industry prohibited, Committee Report explained "proviso applies leaves unaffected developed 8(b)(4)," particularly picketing saved illegal case." H. R. Conf. Rep. 1147, 86th Cong., 1st Sess., 39 (1959), Legislative History Labor-Management Disclosure p. 943 (1959) (hereafter Leg. Hist.); U.S.Code Cong. & Admin.News pp. 2511. Undoubtedly, embraced rule followed approved permitting justifying challenged Door, 17 Nor modify Woodwork. induced four contractors precut prefitted respective sites. three instances, architect owner; fourth, decision use contractor-employer, Frouge each case, carpenters doors.7 General Counsel charges cases, asserting (4)(B). trial examiner, whose adopted none refusing situations owner, situations, immunized "the then-lawful 'hot-cargo' Metropolitan Dist. Council Phila., 149 646, 658 (1964). On hand, situation, lay "therefore granting request jobsite," 659 n. 21, regulate protect legitimate interest unit Neither execution nor enforcement Only appealed. Seventh Circuit reversed part, concluding 8(e). reversing (B) violated, neither maintenance illegal. Our rationale striking violating Expressly recognizing continuing validity immunize violative forbade designed basis determine employees' permissible coercion, inquired: 19 "(Whether) surrounding Union's objective Frouge's employees, tactically elsewhere. Were latter Frouge, boycotting employer, bystander, would, within intent Congress, become secondary. need actual boycotted manufacturer, fall category, long tactical benefits aim. touchstone addressed employees." 644-645, 1258 (footnotes sustain finding related solely traditional tasks carpenters. consequence, (4)(B) practice. 21 doubt pipes cut hand conducted sufficient answer whether, occurred proscribed meaning If was, save not, reason it, contract. regardless violate 8(b)(4).8 III 22 Again, think error. 23 seen, practices instances inferring improper sustaining respect posing circumstances elsewhere, purport announce new ourselves assess modified assessment task instance;9 yet remand proceedings newly fashioned standard. sustained examined not. simply supported evidence, questioning resolution Furthermore, expressly came raised results Frouge. 616-617, 3, 1253-1254. 24 Here, Judge, cognizant precedents, history pipe, assessed conditions New York market, 'under circumstances,' "only instrumentality whom Union dispute."10 Woodwork.11 25 standard, Surely distinguishes one indicate ignored material circumstance. rationally inferred. Of course, presence much weight Appeals, far demonstrates departure totality-of-the-circumstances Wordwork.12 26 little statute, legislative history, distinction deliver controlled others erroneous law. least since 1958, decided Clifton Deangulo, 121 676. one, Limbach, contractor, comfort induction units. claimed Limbach reserved Therefore, behest, Relying Joiners, 113 1210 (1955), ruling union, rejected "main contentions employer; right voluntarily advance, privileged activity, activity." N.L.R.B., 684. observed "had given jurisdiction powerless, give additional which, fact, very derived standing job." 685-686. 27 time, exemplifies, continued interpret apply s find product claim award,13 declined power, awarding cause employer.14 cease-doing-business consequences incidental former work, intend exert employers. 28 No disagreement interpretation expressed contrary, adding primary-secondary section, reports clearly show, reflect existing "This eliminate, restrict, limitations law." H.R.Conf.Rep. 38 Leg.Hist. 942, 2510. Courts regularly interpretations let alone overrule sub silentio. some like error.15 reading application established, remained undisturbed well category courts defer agency's understanding administers. Bayside Enterprises 298, 303-304, 576, 580-581, 50 494 (1977); Boeing 412 67, 75, 93 1952, 1957, 36 752 (1973); Insurance America, 390 254, 260, 88 988, 991, 1083 (1968); Udall Tallman, 380 1, 16, 85 792, 801, 616 (1965); 356 107, IV 30 Wholly apart determination justified measure applied incorrect determining liability, "no 'to elsewhere,' guilty stand." 244, 904. disagree. 31 That existed disputed. depends (its) 1268.16 32 ample support question. asserted uncontrovertible secured well. convince bid jobs prepiped alter belonged members.17 error conclude 8(b)(4)(B).18 33 inferences possible. court, example, "clearly see possible created. void suggestion attempted negotiate compromise exchange extra pay special benefits." 239, 899. How observation impugns clear. commonsense securing 34 same whole." 160(e). Babcock Wilcox 351 112, 76 679, 684, 100 975 (1956); Packard Motor Car 330 485, 491, 67 789, 793, 91 1040 (1947); Consolidated Edison 305 197, 229, 59 206, 216, 83 126 (1938). appears Board. 35 Reversed. BRENNAN, STEWART (except Part V) MARSHALL join, dissenting. 37 I dissent. Today's protest conceded lawful parties' patently precluded (1967). Briefly summarize detailed Court's opinion, thread Hudik. concededly obtaining prefabricated Corp., threaded thereupon that, breach constituted "prohibited Austin," 760 (1973) (the members) performed," ibid., nevertheless lacking control, mere dispute. analysis, (1975), adopts 40 cannot squared purports apply. Ante, 524. virtually indistinguishable respects. ordered fitted workers hang doors, initial NLRA "whereby (the) refrain handling employer," (B), "to using "1 41 difficulty rejecting overliteral sections, read context evolution national policy, demonstrated Taft-Hartley prohibition boycotts, refined Amendments, prohibiting former: 42 "Congress, returned regime Duplex Printing Press (v. Deering, 254 443, 172, 65 349 (1921),) Bedford Cut Stone Journeyman Cutters' 274 37, 522, 71 916 (1927),) barred directed carried elsewhere." 632, 43 While "(t)his will simple apply," 1269, intended, deep roots American 44 exemplifies precisely instant case: negotiated materials industry. crux following passage: 45 "The 'will handle' sentence inquiry vis-a -vis 1268 46 Two principles follow passage. First, §§ term generally understood secure primary; affect policies toward Second, goal. Pressure members, centers almost weapon dispute, regarded primary. objective, legitimate. examination "all circumstances" indicated preservation, acknowledgment rings hollow conclusion. here, actions "for (its Cf. 645-646, 1268-1269. defies deny principal members. acceded desired protection. And breached clause. Nothing remotely suggests quarrel Those companies vehicles used created slightest "other (Hudik)." 1268. Rather, "preserving employees) performed" Hudik.2 finding, holds 48 distinguishable, contended, "right control" piping. Any totally premises Woodwork.3 "neutral" sense warranting 624-628, 1257-1260. preservation. But defiance obligations assumed, knowing disabled keeping bargain. completely escapes me how said neutral, target, facts, Thus get How, then, it? insistence compliance pretext unrelated dispute; action, original impossible anyone target pressure. 49 powerless demands. pointed out, truly presumably willing substitute full compliance, premium pay, replace lost indicates attempt solution, satisfied result.4 Moreover, run, demands, decide future. certainly reasoned knowingly undo necessary deter repeating Third, "real" shows, except artificial erected today's unpersuasive reasoning indication, effort prevent specifying installation projects. Further, nothing reaction someone units; accomplished wrong independently ordering difference injured employees. Either way, found, grievance else. wholly treating treated deference actions. "Right may, "inquiry (u) nion's pressured employer's) (union was) once determined factfinding completed. despite target. law, finding.5 52 maintains irrelevant pressure, relying With respect, misapprehends relevance us, misapplies Door. 53 manufacturer defended response employer-contractor's "workmen material," illegal,6 pressure.7 54 remains itself; authority (which, enactment primary), anything pressure.8 argue, magically transformed prior pari passu," 649, 1270. (Harlan, J., concurring), honor admittedly primary.9 short, purpose; brought compel agree himself, entering less V* 55 Technological threatened stability number industries. Workers industries understandably concerned possibility technological advances increased reliance render skills superfluous, eliminate jobs, reassurance fears bargaining. run better served proceed pace, unhampered demands labor, problems unemployment "progress" dealt method Court, problem best solved. 1268; 649-650, 1270-1271 concurring). consistently "management solutions significant difficult problems." 640, 1266. Fibreboard Paper Products 379 203, 398, 233 undermines subvert "assigning party (it) guaranteed Note, Secondary Boycotts Work Preservation, 77 Yale L.J. 1401, 1417 (1968). surely serious setback hardly conducive peace. 56 STEWART, 57 650, 1271, 357. Until overruled, stands authoritative reasons stated BRENNAN'S dissenting today "patently precluded" case. join V opinion. forth 158(b), provides part: "It organization agents "(4)(i) in, encourage individual commerce affecting course use, manufacture, process, transport, otherwise, goods, articles, materials, commodities services; (ii) threaten, coerce, restrain thereof "(B) using, selling, handling, transporting, producer, processor, recognize bargain representative certified 159 title: Provided, contained pre- post-1959 developments fully canvassed "Radiator branches, convector branches coil connections V." App. 89. provided: "MEN TO WORK IN UNITS TWO "All journeymen apprentices working two, steamfitter. composed of: "A. Steamfitter steamfitter, "B. apprentice." 87-88. discussion decisions issues presented 15, infra. renumbered 1959. substantive changes established '(n)o employee cabinet fixtures, millwork, sash, trim millwork Union-made bears Label Joiners America.' 615 2, 1253 2. consistent prevailing See, e. g., Amalgamated Lithographers 31, 35-36 (C.A.9 1962), cert. denied, 372 943, 936, 968 (1963); Employing Greater Miami 301 20, 29-30 (C.A.5 1962). will-not-handle charging party, Because prohibitions essentially identical, proscriptions provisos anomalous ignores substance Even intendment contexts, efforts George Koch Sons, 490 323, 327 (C.A.4 undermine process suggests. appropriate lack determinative, Painters (Uni-Coat), 185 930 (1970), declared continue eschew mechanical ascertain unoffending 438, Pipe Fitters (George Inc.), 201 59, 64 "(A)n administrative upheld grounds agency acted exercising powers sustained." SEC Chenery 318 U. S. 80, 63 454, 462, 626 (1943). FPC Texaco, Inc., 417 380, 397, 94 2315, 2326, 141 (1974); FTC Sperry Hutchinson 405 233, 249, 92 898, 907, 170 (1972); K. Davis, Treatise 16.01, 397 (Supp.1976). duty "correct body, and, (agency) afford opportunity examining ICC Clyde S.S. 181 29, 32-33, 512, 514, 729 (1901). 764. while adopting remainder Judge's report, ambiguity earlier decisions. "Specifically, late, characterized terms right-of-control test. imply looked 'contract control' ever. "Rather, proceeded analysis (1) (2) i.e., approach, (been) ever addition determining, studied study finds himself situation. 'unoffending employer' merits Act's protections, purely surface look appearance parallel situation." preferred foreclose producers market. disturb findings: "If prepaid large commercial, public, buildings area areas organized building trades unions, manufacture materially affected engineers specify buildings." "In my subject official notice City, probably major cities country, unionized, industrial, public Unionized craft affiliated AFL-CIO represent projects source supply furnish employer-contractors. strategic confirmed governmental increase minority concentrated industries, steamfitter else 764 10. supra; International Heat Frost Insulators, 12, 193 (1971); 183 516 (1970); 742, Carpenters, 178 (1969); 636, Plumbers 177 189 120, 168 991 (1967); 53, 1075 (1964); Ohio Valley Council, 144 Longshoremen's 137 1178 (1962); 5, Journeymen, 828 124 (1959); 123 225 (1959). 992; (1964) Woodwork). Prior uniformly award. 339 142 (C.A.6 1964); Int'l 331 712 (C.A.3 Journeymen 116 100, 321 366, 375 921, 266, 165 285 642 (C.A.2 1960); 108 24, 278 858 (1960). Generally, treat per se rule, instead strong being pre-National agreements. argument variety reasons. flatly validate 145; 369-370. six Circuits issue. Fourth well-reasoned 323 Ninth same. Associated Contractors California 514 433 Western Monolithics Concrete 446 522 1971). Eighth, theory. Circuit's 139 165, 430 906 Boiler 404 556 (C.A.8 1968); 164, Electrical Workers, 388 105 1968). First thing dictum. Beacon Castle Square Bldg. 406 188 (1969). dissenters assert definition constitutes activity: secondary." Post, 535. adopt group benefit. purposes directly nonstruck rendered employer: "There aim." (Emphasis added.) announced, faced giving fitting persons commercial dealings. Operating Engineers, 400 297, 304, 402, 407, 398 (1971) ("Some disruption relationships consequence purest form activity"). occasion questions arise carry out monopolize acquire tasks." 630-631, 1261. reservation apparently meaningless, theory dissent, seemingly itself, legally company If, past opposition demanded fulfill dissenters' exonerate Respondents view. Tr. Oral Arg. 22. disagree, preserve, aggrandize, namely, developer prefers uses Home, objects Austin; falls statement strike" inducing Denver 341 675, 689, 951, 95 1284 (1951). Wilson Milk Drivers Dairy Employees, 471, 491 200, 203 1974); Riverton Coal Mine 453 1035, (C.A.6), 407 915, 2439, 690 584, (C.A.2), 382 816, 86 39, (1965). "(n)othing Austin." 563 539-540. held, occurred. quoted 1947, provisions, 619-644, 1254-1268, text pertinent ante, 509-510. provides, express implied, refrains transporting heretofore hereafter extent unenforcible ." Supp. V). argues, had," by" 530 16. aim acquisition, disposes argument. rate, "acquire" assigned workers, type majority correctly points 529 implications 1260-1261, here. rejection doctrine quickly realized commentators. modern (of ) requires complete abandonment 'right rule. bargained signed happens removed direct confrontation, enters picture made, receives placement complaining derivatively ancillary vindicating concerns. assured (T)he estopped 1416-1417 (Footnote omitted.) fail "(h)ow object." 531. "finding" exclusively real protest, advantage them, premise falls. 174 456, 467-468, 533 683, 694-695 (1976), pending, 75-1706. successful "forcing There, succeeded likely terminated doors. common disputes, where, alternative outcomes 538-539, 4. "hot cargo" clauses, entirely employer-contractor commentator ago: "Of misreading indeed entire evolution, notion (work-preservation agreements). secondary; spoke 8(b)(4). prohibits 'primary' i. e., equally employer." Lesnick, Job Security Boycotts: Reach U.Pa.L.Rev. 1000, (Footnotes "a boycott," 8, correct 903. presumes pretext. companies, (enforcing agreement), (influencing manufacturer). 1269. concur Part.

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