Document: 380 U.S. 650 85 S.Ct. 1192. 14 L.Ed.2d 133 BROTHERHOOD OF RAILWAY AND STEAMSHIP CLERKS, FREIGHT HANDLERS, EXPRESS STATION EMPLOYEES, Petitioner,v.ASSOCIATION FOR the BENEFIT NON-CONTRACT EMPLOYEES. UNITED AIR LINES, INC., Petitioner, v. NATIONAL MEDIATION BOARD et al. al., Petitioners, ASSOCIATION Nos. 138, 139, 369. Argued March 4, 1965. Decided April 28, Archibald Cox, Sol. Gen., for respondents in No. 139 and petitioners [Syllabus from pages 650-652 intentionally omitted] James L. Highsaw, Jr., Washington, D.C., petitioner 138. Stuart Bernstein, Chicago, Ill., 139. Alex Arguello, San Francisco, Cal., respondent 138 Mr. Justice CLARK delivered opinion of Court. 1 These consolidated cases involve claims United Air Lines (United) Association Benefit Non-Contract Employees (the Association), attacking form ballot that Board intends to use a representation election among United's employees under § 2, Ninth Railway Labor Act, 44 Stat. 577, as amended, 45 U.S.C. 152, (1958 ed.).1 also contends National Mediation (Board) should hold hearing same section, with its participation, determine appropriate craft or class which be held. Before conflicting unions Brotherhood Steamship Clerks (Brotherhood) International Machinists (Machinists)—agreed held was 'clerical, office, stores, fleet passenger service employees'; over objection ordered an this unit union, if either, would bargaining representative. then filed suit against raising questions it presses here. This case dismissed is here, after affirmance by Court Appeals, After dismissal Board, being permitted intervene, raised substantially claims. The District enjoined conducting did not permit employee cast vote collective representation; other issues were remanded further consideration. 218 F.Supp. 114. Appeals affirmed these divided court they are here 117 U.S.App.D.C. 387, 330 F.2d 853. Judge Wright, dissenting, thought without jurisdiction enjoin election, citing Switchmen's Union 320 297, 64 95, 88 L.Ed. 61 (1943). We granted certiorari all three cases. 379 814, 44, 13 27. 2 satisfied statutory duty investigate dispute; entitled party proceedings determines scope class; Board's choice future elections does exceed authority therefore open judicial review. 1. THE FACTS 3 In January 1947, lengthy hearings airlines participated at request determined service' grouping constituted class, within meaning purposes. Case R—1706, N.M.B. Determinations Craft Class 423 (1948). All parties save Association, public hearing. Since time have involving decided but, some exceptions, has continued through years class. 4 August 1962 application dispute United. original proposed exclude those stores personnel represented Machinists. had advised Brotherhood's each informed because conform what found constitute supra. Alternatively, requested order proper Upon receiving notice opposition amended include full approved R—1706. agreed conduct election. 5 concluded existed requiring scheduled one 1963. It standard provided printing names labor organizations—in case, Machinists—with box below name check representative preferred. A third space could write any organization individual he wished represent him. There place on specifically 'no union.' 6 December 19, 1962, directed list involved supplied later than 14, On 11 premature application. outlined detail past practices dealing such requests attacked suitability R—1706 determination, asking re-opened group into separate crafts classes. 17 denied request. pointed out September 7, objected sole ground R—1706; been notified change October 8, 1962; 24 furnish number furnished information November stating there 12,451 given date; failed employees. commented 'the carrier dispute'; review * received either NMB 3590' pending Brotherhood); 'not timely made, since authorized election.' reconsideration decision, but success. 7 Meanwhile, 18, 1963, when 'willing allow Company property follows used Relations Board,' i.e., 'would well representation' (Emphasis original.) replied 1934 saw no reason depart it. Thereafter February 11, date refused action begun next day Columbia. dismissed, we noted. 8 appears while delayed organized By 1963 claimed 6,400 members, about 50% total sought, like United, heard proceeding amended. stated, however, seek recognition representative, want ballot. intended dissolve applications. 9 similar court, seeking relief. appeal disposed already stated. 10 certiorari, adopted following directly above representative: 'INSTRUCTIONS VOTING 12 'No required vote. If less majority valid ballots, will certified.' effect, stated face practice inception. announced intention elections, including may particular matter. 2. PURPOSES ACT BOARD'S FUNCTION. 15 major objective §§ 151—188 ed.), avoidance industrial strife, conference between representatives employer employee.' Virginian R. Co. System Federation 40, 300 515, 547, 57 592, 599, 81 789 (1937). Section set up machinery selection upon request, disputes 'designate' who affected; secret means ascertaining employees; establish rules governing certify so chosen negotiations. issuance certificate employer, 'treat' certified Board. As said Co.: 'The statute undertake compel agreement employees, command preliminary steps can reached. least requires meet confer listen their complaints, make reasonable effort compose differences—in short, enter negotiation settlement contemplated section First.' Id., 548, 599. 16 95 (1943), sued cancellation certificate. Act precluded certification Ninth. question construction, whether division classes single smaller units consider merits claim, holding courts, finally resolve questions. Fourth,' said, 'writes law 'right' 'majority employees' 'determine shall purposes Act.' That protected gives power controversies concerning incident thereto held.' 301, 97. goes note Congress method might employed protect 'right'; where 'has expressly review,' id., 97, 'this often even involved,' 303, 98. Court's conclusion intent seems plain—the reach last terminal point administrative finding made. dragging controversy tribunals law.' 305, 99. Thus, sometimes Leedom Kyne, 358 184, 79 180, 210 (1958), created 'exception' doctrine Union. afforded remedy courts unlawful inflicted injury dispute. But exception Rather careful '(t) his 'review,' sense term decision made jurisdiction. strike down excess delegated powers contrary specific prohibition 188, 184. supplied.) limited nature re-emphasized only Term referred 'narrow limits' 'painstakingly delineated procedural boundaries Kyne.' Boire Greyhound Corp., 376 473, 481, 84 894, 899, 849 (1964). principles mind turn instant 3. CRAFT OR CLASS DETERMINATION. 18 369 enjoins 'in voting *.' concedes until reconsiders determination; nor petitioned portion decision. need Association's right demand participate leading determination. 19 true sought relief, comes contending denial error. argues compels treat held, direct substantial interest unit; provides review, due process accorded opportunity participate. 20 designating do result statutorily investigation— which, contends, take evidence findings—but arbitrary relying solely unions. 21 position control claim ignored express Act. reserved 1943 General Committee Missouri-Kansas-Texas Co., 323, 146, 76 companion Union, stated: 'Whether ever exerted require exercise 'duty' imposed Ninth, and, so, type types situations invoked present here.' 336, n. 12, 152. think reviewable extent bears performed 'investigate' dispute.2 Reviewing action, conclude contention completely devoid merit. 22 makes 'to both parties, writing, thirty days receipt invocation services, individuals organizations designated dispute, carrier.' broad sweeping. outset investigation requires.3 An 'essentially informal, adversary'; form.' Inland Empire Council Millis, 325 697, 706, 65 1316, 1321, 89 1877 (1945). particularly apt simply told left task selecting methods procedures employ case. 23 sufficiency necessary examine experience resolving appropriateness. experience, insofar concerns unvolved dates back 1946 supra, called first apply crinciple airline industry. At before fledgling industry, relatively new huge whom recognized five groupings, invited extended participating fact supported very eventually adhered Because cautiously denying determination subject re-examination began period workability R 1706 tested practice, go unchallenged. 1948 voluntarily ramp based reasons departing usual policy. noteworthy voluntary preclude belong. 1951 withstood challenge Matter Representation Northwest Airlines, Inc., R—2357, 60 (1955). submitted statement proceeding, emphasizing disagreement requesting disregarded. reiterate implied 1947—that 'of *, advisable reexamine view making modifications justified time.' 67. cases—R R—2357—the competing status Again 1952, R—2482, 72 (1955), Line Dispatch general dispatch clerks, clerks A, B, C crew schedulers; disputed grouping, established sustained position, to. argued schedulers merely components unit, group. ultimately discussed terms: 25 precedents heretofore cannot Moreover, record stable relations followed Determination must 26 '* industry still expanding, agency charged certifying necessity hesitate acquiescing desires certain small segregated groups, course retard, destroy job opportunities. Flexibility talent carries just many advantages carrier. fully aware taken herein have, end result, withholding immediate select collective-bargaining agent nevertheless, convinced basic better served adherence policy preserving classes.' 76. 27 Nor subsequent brought our attention strip continuing validity. matters—Cases' C—2252 C—2389, (1961)—the stock storeroom North Central Trans-Texas Lines. Neither proceedings. Both feeder lines, disagreed event, pursuing R—1706—that re-examine determinations purpose furthered thereby. itself belies notion blindly ruling.4 28 light background decide reaffirmation sufficient investigation, reject Time again acknowledged determining appropriateness nothing suggests abdicated responsibility Where untested actual consistently propriety well-established circles, usually full-scale hearings, agree well-recognized prior proven satisfactory experience. 29 application; requested, considered statements basis actions, correspond accepting studying detailed proceed Viewed alongside air transport procedure clearly complied missing element now promptly. 30 issue 'party interest.' designates designate appoint committee neutral persons ten Indeed, this, brief hearing, 'investigation," proceeding. Clearly, then, 31 whatever uses define electorate. chosen, carriers'. Whether carriers views matter leaves discretion 32 gist therefore, greater role investigation. argument rejected. Here establishing cognizable opportunities evidence. remembered compulsion Chief Stone quality compelled, reasonableness, lowfulness compulsion, judged conditions occasioned governmental power.' 558—559, 605. Likewise, observed Hannah Larche, 363 420, 442, 80 1502, 1515, 1307 (1960), requirements articular depend '(t)he alleged involved, possible burden noted performs 'function referee.' another; investigates, defines electorate, holds certifies winner. resolution rather another impose additional carrier, say latter's rises panoply protections. find support acceptance contentions visit administration To full-dress fly Congress' instruction services. places beyond speed Act's framers order. 33 considerations, manner satisfying constitutional exist. Its there, 'highly selective orders Act,' 99, indicates confidence reposed fair equitable discharged difficult function attested admirable results attained. 34 4. FORM BALLOT. 35 representation. believe empowers elections. utilize duly insure interference, influence, coercion exercised fail spell details caveat 'insure' freedom interference. final buttressed legislative history indicating much.5 See Hearings H.R.7650, House Interstate Foreign Commerce, 73d Cong., 2d Sess., 34—35. 36 summary, disputes. says much, instructing alone clear showing acted authority. 37 apparently contend exceeded Fourth, class' union' box. They urge 560, 605, votes cast, eligible voters, upheld nonvoters 'are presumed assent expressed voting.' And inconsistent rationale. presumption Indeed refutes assumption. rule representation, plain is, assumption more favorable represents. or, indeed, all. 38 9(a) 49 453, 143, 159(a) ed.) designed encourage box, also. Even assuming implement far cry saying so. Given latter tailored vote, safely acquiesced voters. refuses treated having voted 39 venture best effectuate suggest framing 40 Unable requirement arguing terms generalities provide. arguments avoid haggling delays litigation matters courts. Board—a creature Congress—has been, provide fair, yet effective, feel continue acceptable, Congress, us. 41 Accordingly, reverse judgments affirm judgment ordered. 42 Partly partly reversed. 43 BLACK concurs result. STEWART, dissenting. My dissent stems approval I understand opinion, devised 'acted authority.' With agree. statute. I. 46 Nothing 61, forecloses validity contrary, insulated ultimate determinations, imperative operate lawful procedures. Compare Silver New York Stock Exchange, 373 341, 361, 83 1246, 1259, 389. interpreting (44 amended) deprive deprived fundamental arriving indeed 'turn blade inward." Graham Firemen, 338 232, 237, 70 17, 94 22. 47 lies heart mechanism. thousands occasions future. What happened illustrates vital salutary effect scrutiny illegal years. Yet Solicitor General, consequence grant persuaded modify reduce ambiguities.1 understood today ballot's structure, would, course, free return older historic virtually conceded unfair unlawful.2 II. 48 revised response continues spaces actually blank writing unlisted organization. No confronted mark representatives, attributable pattern act contemplate achieved, *.'3 choose them collectively. language belie reason, reconsider Fourth 'Employees organize bargain collectively own choosing. function, familiar rest legislation, furnishing be. compulsory. organize, anyone else representatives. always option rejecting Report bill 50 '2. (H.R. 9861) join union likewise refrain joining desire forbids interference carriers' officers rights.' (H.R.Rep. 1944 accompany H.R. 9861, 1934, p. 2.) 51 Much testimony Commissioner Joseph B. Eastman, Federal Coordinator Transportation principal draftsman legislation. His reply Congressman Huddleston reflects contemporary understanding Act: 52 'Commissioner EASTMAN. No; part wish prefer deal individually management regard matters, why, them, be.' (Hearings 7650, 57.) Senate, Senator Wagner insisted bill: 53 'Senator WAGNER. didn't provisions compelled union. opposite, see men absolute liberty remain unorganized. 54 'Mr. CLEMENT. way hope read amended.' S. 3266, Senate 76.) 55 Hearings, 12. counter conception reflected spelled particularized case.4 56 markedly different evolved contained almost identical wording designed.5 Originally July 1937, placed slot employee's spring feeling vying alternatives available. sure recorded default possibility expressing disapproval representatives.' re Interlake Iron N.L.R.B. 55, 61. unwilling guarantees protects chooses it.' Ibid. Certainly alternate devices divining device framework. purports gain traditional system balloting rely yield meaningful exclusively. unambiguously convey choices available him law.6 58 hewn mistaken belief remand consideration expressed. attempt dictate precisely take. Within range, surely discretion. confront correct law. provides: 'If arise carrier's accordance chapter, chapter. indicated govern *' Keystone recite voters unnecessary conclusive absent finding, commented: 'But omits facts majority), omitted inquiry asked enforce Such trial thus correctness conclusion.' 562, 606. Ruby American Cir., 323 248, 255; WES Chapter, Flight Engineers' Int'l Ass'n 114 229, 314 234, 237. noted, nearly C—2252, clerical, re-examining noticeable protest. Thompson, Executive Secretary lists affidavit supporting motion dismiss. hardly supports clinging obsolete. proposes comports Using refuse valid. practicalities voting—the favor vote—are wants effective providing since, added, failure approving voting. General's changes leave slots intact (not supplying box) append caption: approves, old Appeals. several decisions clarifying interpretations 'decisions helpful serve settle past, frequently arisen trouble orderly prompt adjustment factions employees.' Annual 1938, pp. 5—6. Administration 1934—1957, 15. letter Lines, objections ballot, 'Introduction 'yes' 'no' contribute to, encourage, circumvent mandate described First Second Letter Charles Mason 24, 9(c) language: 'Whenever affecting commerce arises selected. notice, conjunction otherwise, suitable ascertain iin ed.). similarity report amplification clarification enacted H.R.Rep. 1147, 74th 1st Op.Atty.Gen. 541 (Attorney Clark). Prior litigation, 'free choice.' 'It manifest voters.' McNulty 494, 501 (D.C.N.D.N.Y.).

Category: 8