Document: 340 U.S. 474 71 S.Ct. 456 95 L.Ed. UNIVERSAL CAMERA CORP.v.NATIONAL LABOR RELATIONS BOARD. No. 40. Argued Nov. 6, 7, 1950. Decided Feb. 26, 1951. [Syllabus from pages 474-475 intentionally omitted] Mr. Frederick R. Livingston, New York City, pro hac vice by special leave of Court, for petitioner. Mozart G. Ratner, Washington, D.C., respondent. Justice FRANKFURTER delivered the opinion Court. 1 The essential issue raised this case and its companion, National Labor Relations Board v. Pittsburgh Steamship Co., 498, 453, infra, is effect Administrative Procedure Act legislation colloquially known as Taft-Hartley Act, 5 U.S.C.A. § 1001 et seq.; 29 141 seq., on duty Courts Appeals when called upon to review orders Board. 2 Court Second Circuit granted enforcement an order directing, in main, that petitioner reinstate with back pay employee found have been discharged because he gave testimony under Wagner 151 cease desist discriminating against any who files charges or gives Act. court below, Judge Swan dissenting, decreed full roder. Cir., 179 F.2d 749. Because views regarding new relation between courts appeals Board's conflicted those Sixth Circuit1 we brought both cases here. 339 951, 70 842 962, 998. clash obviously required settlement I. 3 Want certainty judicial decisions partly reflects intractability formula furnish definiteness content all impalpable factors involved review. But part doubts nature reviewing power uncertainties application derive history, extent elucidation history may clear them away. 4 provided: 'The findings facts, if supported evidence, shall be conclusive.' July 5, 1935, 10(e), 49 Stat. 449, 454, U.S.C. 160(e), 160(e). This read 'evidence' mean 'substantial evidence,' V. & M. Coach Co. Board, 301 142, 57 648, 81 965, said '(s) ubstantial evidence more than a mere scintilla. It means such relevant reasonable mind might accept adequate support conclusion.' Consolidated Edison 305 197, 229, 59 206, 217, 83 126. Accordingly, it 'must do create suspicion existence fact established. * must enough justify, trial were jury, refusal direct verdict conclusion sought drawn one jury.' Columbian Enameling &! Stamping 306 292, 300, 501, 505, 660. very smoothness evidence' standard evidentiary validity established currency. inevitably variant applications conflicting soon contrariety due course bred criticism. Even though whole record canvassed determine whether foundation determination was 'substantial,' phrasing Court's process readily lent itself notion supporting result 'substantial' considered itself. If fair say imperceptible steps regard fact-finding function led assumption requirements met could find which, viewed isolation, substantiated findings. Compare Waterman Corp., 309 60 493, 84 704; Bradford Dyeing Ass'n, 310 318, 918, 1226; see Nevada Copper 316 105, 62 960, 86 1305. not every member consciously guided view ever explicitly avowed practice doctrine. What matters belief justifiably arose had so construed obligation review.2 6 Criticism contracted reinforced dissatisfaction felt various quarters administration years preceding war. scheme attacked inherently unfair fusion functions prosecutor judge.3 Accusations partisan bias wanting.4 'irresponsible admission weighing hearsay, opinion, emotional speculation place factual 'serious menace.'5 No doubt some, perhaps even much, criticism baseless some surely reckless.6 here relevant, however, climate thereby generated Congress. Protests 'shocking injustices'7 intimations 'abdication'8 which stimulated pressures legislative relief alleged administrative excesses. 7 strength these pressurs reflected passage 1940 Walter-Logan Bill. vetoed President Roosevelt, imposed unduly rigid limitations process, investigation into actual operation then being conducted experienced committee appointed Attorney General.9 worth noting despite aim tighten control over determinations fact, Bill contented conventional agency's decision set aside 'the are substantial evidence.'10 8 final report General's Committee submitted January, 1941. majority concluded '(d)issatisfaction existing standards scope derives largely procedures now employed bodies.'11 Departure test, thought, would either unnecessary uncertainty transfer responsibility ascertaining assaying significance lies outside competence. recommended Legislation embodying general review.12 9 Three members registered dissent. Their 'present system lack review' inconsistency uncertainty. They reported 'prevalent' interpretation rule 'if what anywhere conclusions obliged sustain without reference how heavily countervailing preponderate—unless indeed stage arbitrary reached. Under interpretation, need only side and, they there, action sustained contrary ignored.'13 recommend Congress enact principles applicable agencies excepted unique characteristics. One expressed extend 'findings, inferences, unsupported, record, evidence.'14 So far movement enlarged reveals, phrase 'upon record' makes first appearance recommendation minority Committee. close relationship out important, substance way statute books unquestioning—we uncritical—unanimity enacted Act.15 10 Once tempted 'uncritical' hardly speaks clarity purpose supposedly furnishes enable enforce true will. On hand, sponsors indicated reaffirming prevailing test.16 equal disapproval manner applying their own standard. reports houses refer rely 'suspicion, surmise, implications, plainly incredible indicate exact higher 'in exercise independent judgment' consideration record.'17 11 Similar too restricted test Act.18 bill House provided 'findings facts conclusive unless made appear satisfaction (1) manifest weight (2) evidence.'19 left provision. Early prints Senate 'weight 'clearly erroneous' standards.20 But, Report relates, 'it finally decided conform corresponding section where prevails. In clearify ambiguity statute, inserted words 'questions *."21 12 phraseology adopted Senate. conferees agreed. House: 'It believed provisions conference agreement relating courts' will preclude N.L.R.B. Consol. 1305 Wilson, Columbia Products, Union Pacific Stages, Hearst, Republic Aviation, Le Tourneau, etc. cases, supra, burdening courts.'22 version became law. 13 mood. And mood merely oratory but legislation. As respected, can serve judgment body rules assuring sameness applications. Enfrocement broad implies subtlety solidity judgment. us question assume qualities federal judiciary. 14 From story summarized, two concrete emerge. identity proof decision. other has no room kind scrutiny give before satisfy rests proof. 15 mischievous wordplaying different clause expressly regard, wording Acts purposes identical. hold specifically same exacted subject 16 Whether permissible substantiality basis justified it, taking account contradictory inferences drawn, definitively precludes theory bars practice. take whatever fairly detracts weight. clearly requirement statutes consider record. adoption demonstrate enjoin important eventuated enactment. 17 To sure, canvassing ascertain does calculus value assess evidence. Nor intended negative presumably equipped informed experience deal specialized field knowledge, whose within carry authority expertness possess therefore respect. requiring expertise displace choice views, matter de novo. barred setting cannot conscientiously substantial, light entirety furnishes, including opposed view. 18 There remains, then, enactment altered require determined relevantly presents. A afford grounds certitude assure application. Some discretion avoided falsifying judging using instrument futile casuistry. often repeated judges automata. ultimate reliance judiciary high competence character constant play professional critique work. 19 Since precise interfere agency imprisoned form words, formulas attempting rephrase old likely helpful old. talismanic avoid difficulty escape, problem, use undefined defining terms. 20 Whatever changes area definition impossible. Retention familiar terminology indicates drastic reversal attitude intended. 21 leaving unavoidable margin individual at large wholly fence in. demonstrates impose always recognized. Of interpreting. art proliferating purpose', Brooklyn Corp. Commissioner, 157 450, 451, revealed demonstrable forces produced phrasing. judicially-constructed response stricter uniform practice, reflection approval practices. change elusive precisely defined ignored. We should fail our effectuate denied recognition Congressional finality accorded lower courts, atmosphere favored decisions. 22 conclude, therefore, reasonableness fairness shown past. Reviewing influenced feeling abdicate function. keeps grounds. That less real limited enforcing viewed, whole, invested enjoying prestige Appeals. entitled respect; nonetheless estimate witnesses both. 23 follows alter majority—have applied explore particular divert attention prescribed inquiry formerly used court. 24 Our correctness present ought seldom action. there placed keeping intervene rare instance appears misapprehended grossly misapplied. II. 25 disagreement below unaltered recent itself, noted, satisfies requirement. 26 assailed erred holding examiner questions insofar rejected apart court's portions examiner's report. 27 latter contention easily met. earlier among disapproved Congress.23 disapproval, seen, well caused unintended event, did 'record whole,' deem echo conclusion. company's inconsistent, complaining officer time him his hearing. error grant enforcement. 28 contention, raises serious turn. III. deemed bound rejection 'as unassailable master's.'24 752. not. Section 10(c) Management provides 'If preponderance taken person named complaint engaged engaging labor state *.' 61 147, U.S.C.(Supp. III) 160(c), 160(c). thus inconsistent reverse erroneous.' Such limitation make departure prior explicitness required. 30 premise 'that, although wrong totally disregarding findings, practically impossible court, substitutes, factor say, middle ground doing treating error, whenever such, done judge master equity.' 753. Much respect logical acumen Chief Appeals, ourselves pinioned horns dilemma. 31 aware master's yet entitle striking account, introduce another unruly judgmatical fashion exclusionary reduce number imponderables courts. 32 148, Surely much testimony. According 'All (including initial, recommended, tentative decisions) become 8(b), 242, 1007(b), 1007(b). Act's provision meaning similarity language also requires 'record' term 33 difficult escape plain directs confirmed indications enhancement status reform. 34 forth Procedure: 'In general, appeal hearing commissioner considerable appellate Conclusions, interpretations, law, policy should, course, open commissioner, having heard seen witnesses, best qualified decide, reluctant disturb shown.'25 35 Apparently Committee's recommendations obligatory. For accompanied Final officers initial absence further action, differed examiners reasons citations conclusion.26 proposal moderated permits evaluate contains rather obscure reviews 'all powers making decision.'27 36 mandatory repudiation them. Nothing suggests opportunity observe hears sees probative force intrinsically commands. contrary, detailed designed maintain independence examiners. 'shall proposed report, together order'. Both evince increase importance role process. High public counsel attribute imposes discharge it.28 37 thought Thus, responsible explained examiners' 'would consequence, example, material depend credibility demeanor conduct hearing.'29 attitude;30 likewise devolving examiner.31 38 given reason deserve. modified disagree. intend recognize impartial, observed lived reached along consistency inherent probability depends case. seem materially heed sum 'substantial.' 39 direction law moves guide serves confirm However halting progress, trend litigation toward rational truth, tribunal considers everything 'logically proved.' Thayer, Preliminary Treatise Evidence, 530; Funk United States, 290 371, 54 212, 78 369. refused assumptions demonstrably false, States Provident Trust 291 272, 389, 793, agreed parties, Swift Hocking Valley 243 281, 287, 722. Machinery discovery strengthened; boundaries notice slowly perceptibly enlarged. deny affairs courtroom. 40 remand cause reconsideration accord relevance reasonably command answering comprehensive substantial. limit reexamination free thinks dictate. 41 Judgment vacated remanded. 42 BLACK DOUGLAS concur parts I II III agree 749, 180 731; Id., p. infra. five circuits power. Eastern Coal 176 131, 134—136; La Salle Steele 178 829, 833 834; Minnesota Mining Mfg. 323, 325—326; Continental Oil 552, 555; Booker, 727, 729; Caroline Mills, Inc., 167 213. See Dean Stason Subcommittee Judiciary Hearings S. 674, 77th Cong., 1st Sess. 1355—1360. See, remarks Laird Bell, Chairman Law Chicago Bar Association, writing American Association Journal. A.B.A.J. 552. Gall, Current Problem: View Industry, Iowa L.Rev. 381, 382. charge Special 1939 investigate H.R.R.ep. 1902, 76th 3d 76. Professor Gellhorn Linfield after extended denunciations fact.' Linfield, Politics Relations, Col.L.Rev. 339, 394. Millis Brown, Taft-Hartley, 66—75. Wilson 126 114, 117. Standard 138 885, 887, Learned Hand said, 'We understand practical all; certainly once 'disestablished' union immediately preceded period during 'dominated' union. '(W)e momentous abdication Cong.Rec. 13942—13943, reprinted H.R.Doc. 986, 915, H.R. 6324, Sess., 5(a). Report, 92. Referring proposals enlarge permit said: 'Assuming desirable determinations, objection change, any, amendment produce. judgments tribunals carefully problems legislated line drawn—particularly confined written amount time, seems hazy leaves lingering unanswered. 'Substantial equivalent confidence greater opportunities accurate already decided. second wisdom questionable. independently preponderates, turned little media transmission destroy values adjudication experts specialists involved. divide adjudications.' 91 210—211. enumerated four 'existing deficiencies' These haphazard, uncertain, variable results review,' permitting (3) failure 'to differences types determinations,' (4) determining 'case-to-case procedure courts.' 'Until finds practicable examine situation agencies, provide definitely availability variability. recognizes several principal subjects review—including constitutional questions, statutory procedure, last think, experience, technical competence, discretionary each agency. framed appendix statement.' 210—212. text follows: '(e) Scope review.—As conclusions, case, regardless proceeding, decide necessary of: right, power, privilege, immunity; jurisdiction agency; lawfulness adequacy procedure; evidence; (5) otherwise capricious. Provided, conferred it.' 246—247. 237, seq. reads 'Sec. 10. Except committed discretion. Review.—So presented interpret provisions, applicability terms (A) compel unlawfully withheld unreason- ably delayed; (B) unlawful arbitrary, capricious, abuse discretion, accordance law; excess jurisdiction, authority, limitations, short right; observance unsupported sections reviewed statute; (6) unwarranted novo foregoing thereof cited party, prejudicial error.' 243—244, 1009(e), 1009(e). (Italics ours.) originally Congress, read, 'unsupported competent, material, 8.' 1203, 79th quoted S.Doc. 248, 2d 155, 160. References competency materiality deleted sentence added S.Rep.No. 752, 28; S.Doc.No. 39—40, 214. deletion. statement General appended 'is embody declared, 126.' 10(e) Appendix B S.Rep. 230. McFarland, Law, testified effect. 85—86. following quotation position sponsors. exceedingly important. language, expression comes about (and tacitly approve) something less—to suspicion, analysis judgment, sufficiently finding, conclusion, instance, sufficiency acts—and proper performance duties undertake careful dispassionate manner. Should objectives worded fail, supplemental required.' 30—31. substantially H.R.Rep. 1980, 45. 216—217, 279. Senator McCarran debate, changed 'rule' 'powerless interfere' 'was evidence.' 322. comment Congressman Springer, Committee, id., 376. 136, (Supp. 3020, 80th Legislative History 1947, 71. evolution Morse. 93 5108, 1504—1505. approved 26—27, 432—433. explain be; noted italicized indistinguishable party Taft explanation section: place, substantial; still look entire go saying reversed quite circuit district-court decision, goes great unjust Board.' 3839, 1014. 510, 56, 560. 107, 961, 1305, refusing examination evidence'. three made. Hearst Publications, 322 111, 64 851, 88 1170; Aviation (Labor Tourneau Co.), 324 65 982, 89 557. offers probable 117, Seventh finding employer dominated company stating 'recognized (or tried to) sustained, ignored, least endeavored ignore, shocking injustices overwhelming produce.' Products 687, 688 per curiam sustaining discriminatory discharge. decison 'Though strain credulity, break down, 99 153, apparent. Ninth enforced portion directing disavow discrimiantion members, appeared disputed,' officials discouraged employees joining. 179. bulk lengthy devoted discussion discharges sustained. 885; 687. notes 22, supra. Rule 53(e)(2), Fed.Rules Civ.Proc., U.S.C.A., erroneous. ruling excluding apparent conflict circuits. Ohio Calcium 133 721, 724; A. E. Staley 117 868, 878; 123 411, 418; cf. International Ass'n Machinists App.D.C. 175, 180, 110 29, 34. 51. §§ 308(1) 309(2) bill, 200, 201. 8(a), 1007(a), 1007(a). introduced 7. published modifying draft, change. 32—33. draft prepared initially 'affirm, reverse, modify, record.' 309(2), included bills House. 184, 7(c), 138, 143. Salaries range $7,600 $10,750 year. Budget Government fiscal year ending June 30, 1952, 47. 24, reproduced 210. 38—39, 272—273. sense agencies' compared bill.' statement. 9, 415.

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