Document: 473 U.S. 95 105 S.Ct. 3064 87 L.Ed.2d 68 PATTERN MAKERS' LEAGUE OF NORTH AMERICA, AFL-CIO, et al., Petitionersv.NATIONAL LABOR RELATIONS BOARD al. No. 83-1894. Argued Feb. 27, 1985. Reargued April 22, Decided June Syllabus Petitioner national labor union's constitution provides that resignations from the union are not permitted during a strike. The fined 10 members who, in violation of this provision, resigned strike by petitioner local unions and returned to work. Respondent employer representative thereafter filed charges with National Labor Relations Board (Board), claiming such levying fines constituted an unfair practice under § 8(b)(1)(A) Act, which makes it for restrain or coerce employees exercise their 7 rights. agreed, Court Appeals enforced Board's order. Held: In related cases has invariably yielded decisions on whether imposed "restrained coerced" employees. Moreover, consistently construed as prohibiting fining who have contrary restriction constitution. Therefore, decision case is entitled Court's deference. Pp. 100-116. (a) was justified concluding restricting right resign, provision question impaired congressional policy voluntary unionism implicit 8(a)(3) Act. 104-107. (b) proviso 8(b)(1)(A), states nothing shall "impair organization prescribe its own rules respect acquisition retention membership therein," intended protect involving admission expulsion allow make resign. Accordingly, properly concluded "rule membership." 108-110. (c) legislative history does support petitioners' contention Congress did intend 110-112. (d) Nor there any merit argument because common law prohibit restrictions resignation, violate 8(b)(1)(A). 112-114. 724 F.2d 57 (CA 1983), affirmed. Laurence Stephen Gold, Washington, D.C., petitioners. Charles Fried, Cambridge, Mass., respondents. Justice POWELL delivered opinion Court. 1 Pattern Makers' League North America, AFL-CIO (League), union, when imminent. held these were 29 U.S.C. 158(b)(1)(A). We granted petition writ certiorari order decide reasonably may be tendered invalid 2 * composed associations (locals). May 1976, amended provide 3 "[n]o resignation withdrawal Association, League, accepted lockout, at time lockout appears imminent." 4 This amendment, known Law 13, became effective October after being ratified League's locals. On 5, 1977, collective-bargaining agreement expired, two locals began economic against several manufacturing companies Rockford, Illinois, Beloit, Wisconsin. Forty-three locals' participated. early September formally rejected contract offer, striking member submitted letter Beloit Association.1 He work following day. During next three months, more Rockford December 19, ended parties signed new agreement. notified had been violative 13.2 further informed that, members, they subject sanctions returning Each approximately equivalent his earnings 5 Rockford-Beloit Jobbers' Association (Association) represented employers throughout process. It locals, Relying claimed practice.3 Following hearing, Administrative Judge found petitioners violated tendering resignations. 265 N.L.R.B. 1332, 1339 (1982) (decision G. Wacknov, ALJ). agreed prohibited imposing employees.4 supra. holding 13 justify imposition attempted relied earlier Machinists Local 1327 (Dalmo Victor II), 263 984 (1982), enf. denied, 725 1212 (CA9 1984).5 6 United States Seventh Circuit (1983). stated members' freedom "frustrate[d] overriding free choose engage concerted activities." Id., 60. Noting "mutual reliance" theory given little weight NLRB v. Textile Workers, 409 213, 93 385, 34 422 (1972), court participating vote, "waived Section abandon strike." F.2d, 60-61. Finally, reasoned Scofield NLRB, 394 423, 89 1154, 22 385 (1969), organizations impose disciplinary only if "free leave escape rule[s]." 61. certiorari, 469 814, 79, 83 27 (1984), resolve conflict between Courts over validity resign.6 do resign union. Because "special competence" field relations, interpretation Act accorded substantial Weingarten, Inc., 420 251, 266, 959, 968, 43 171 (1975). today thus narrowed construction reasonable. See City Disposal Systems, 465 822, 830, 104 1505, 1510, 79 839 (1984). believe ineffective therefore affirm judgment enforcing II A. 8 157, grants "refrain all [concerted] . activities. ."7 general implemented latter section commits "restrain[s] coerce[s] exercise" rights.8 When employee refuse (whether rule prohibits strike), refraining "concerted activity." "restrain[s]" Indeed, terms "refrain" "restrain coerce" interpreted literally, enforce compliance would 9 Despite language Allis-Chalmers Mfg. Co., 388 175, 2001, 18 1123 (1967), current members. supra, 412 84, 1961, 36 764 (1973) (per curiam ), corollary fine former lawfully. Neither nor Machinists, however, involved like precluded constitution.9 B reasoning Allis-Chalmers, supports conclusion court-enforceable workers rights.10 so concluding, Taft-Hartley noted sponsor never " 'to interfere internal affairs unions,' U.S., 187, S.Ct., 2010, quoting Cong.Rec. 4272 (1947) (statement Sen. Ball), other proponents measure likewise disclaimed intent unions' "internal affairs." 187-190, 2010-2012. From history, present matter. emphasized crux Allis-Chalmers' distinction external enforcement rules. ." 428, 1157. also Boeing 67, 73, 1952, 1956, 752 (1973). 11 purpose preserve control affairs" suggest authorize Traditionally, discipline.S11 1947, constitutional provisions uncommon, unknown.12 allowing "extend employee's obligation through resignation" "expan[d] definition action" beyond contours envisioned Congress. International Assn. 1414 (Neufeld Porsche-Audi, Inc.), 270 209, p. (1984).13 C 12 Language opinions confirm upheld setting ceiling daily wages working incentive basis could earn. critical within meaning "reasonably [were] rule." 430, 1158. deemed important unable take full advantage contractual earn additional pay, "chosen become remain members." 435, 1160 (emphasis added). view punishing There, 31 resumed them, reaching conclusion, we said "the vitality requires refrain November actions he endorsed May." 217-218, 387. Restrictions curtail Workers important. III 14 allows those "impai[r] no imbedded laws. Scofield, inconsistent 8(a)(3).14 supra; N.L.R.B., 992 (Chairman Van de Water Member Hunter, concurring). inconsistency invalid. 15 Closed shop agreements, legalized Wagner 1935,15 quite 1940's. Under hire retain employ good standing. R. Gorman, Law, ch. 28, 1, 639 (1976). Full compulsory closed shop; keep jobs, required attend meetings, leaders, otherwise adhere mounting objections shop, 1947—after hearings consideration—Congress enacted effectively eliminated outlawing shop. security agreements require pay dues, but cannot discharged failing abide policies disagrees.16 16 longer can requirement employment. If refuses join himself discipline, fired. initially joins subsequently resigns. think noteworthy protects employment rights dissatisfied member, well worker assumed membership. By time, whose views come diverge 17 curtails Nevertheless, contend contravene They assert workers' offending discharged, fined. find unpersuasive, left "worker's inviolate exacts [his entire] paycheck satisfaction working." Wellington, Union Fines Workers' Rights, 85 Yale L.J. 1022, 1023 1947 sought eliminate completely maintain membership.17 impairs unionism. IV now consider specifically arguments advanced petitioners: (i) protected 8(b)(1)(A); (ii) shows resign; (iii) should allowed restrict so.18 19 Petitioners first argue expressly place therein." places withdraw "rul[e] membership," proviso.19 20 ever resign.20 Rather, "rules membership" union.21 consistent interpretation. Senator Holland, proviso's sponsor, outlaw "which ha[ve] 4271 Taft proviso, believed "refuse [a] man expel him union." Furthermore, Labor-Management Reporting Disclosure 1959, 401 seq., confirms expulsion.22 refusing defer proviso. 21 made considered 8(c) House bill contained detailed "bill rights" H.R. 3020, 8(c), 80th Cong., 1st Sess., 22-26 (1947). Included making "deny [union] time." 8(c)(4), 23. Senate bill, hand, set forth specific rights, generally 81 (as passed Senate). contains bill's rather than prohibitions. omission decided "right resign." contention. resign" apparently included original "closed shop" agreements. constitutions limiting uncommon see n. 12, often impeded Report, H.R.Rep. 245, Sess. (1947), provided impetus inclusion bill. Report simply even proposed legislation, dues pursuant 32. outlawed 8(a)(3), 158(a)(3), surprising thought unnecessary explicitly 23 Even 8(c)(4) directed restrictive rules, convince us unreasonable. Conference upon primarily rely, state prohibitions "omitted practices," H.R.Conf.Rep. 510, 46 U.S.Code Cong.Serv.1947, 1135. But arguably unprotected. Cf. id., ("[T]he primary recognition prohibited"). Apparently, merely inform Members separately conference "unfair practices." reluctant reach thereby overturn decision, summary statement Report. must aware broad some same conduct proscribed rights."23 24 concede "absent history," Tr. Second Oral Arg. (Apr. 1985). argue, "in instance materials too clearly opposed what permit result reached." 17. agree. ambiguous rely falls far short showing unreasonable.24 25 216, 387, 88, 1964 purport "law normally reflected our institutions" applicable. quoted language, valid. resignation,25 argument. absence time. Although common-law rule, determined reference law. 26 Marine & Shipbuilding 391 418, 88 1717, 706 (1968), demonstrates many although valid associations, run afoul Act.26 There expelled failed comply requiring "exhaust[ion of] remedies appeals before resort tribunal outside Union." 421, 1720. law, exhaust remedies. See, e.g., Medical Soc. Mobile Cty. Walker, 245 Ala. 135, So.2d 321 (1944). "considerations public policy" mandated exhaustion 424, 1721; 1158 (union "impairs laws"). "restrains coerces" employees, whatever merits V 28 responsibility applying 'the complexities industrial life.' Ford Motor Co. 441 488, 496, 99 1842, 1848, 60 (1979), Erie Resistor Corp., 373 221, 236, 1139, 1149, 308 (1963), turn citing Steelworkers, 357 357, 362-363, 78 1268, 1271-1272, 1383 (1958). Where reasonable, "merely courts might prefer another statute." 497, 1849. case, factors particularly hold impermissible. First, employees.27 Second, constitution.28 conclude here VI resignations, though purported render ineffective. 30 ordered. WHITE, concurring. 32 I agree §§ permissible one upheld. include, among others, joining assisting engaging activities mutual aid protection. includes forbids except extent, any, interference section, preserves read permitting strike, since seem relate "retention" sensibly refer determine view, saved issue enforced. 33 For administered necessary flexibility responsiveness actualities relations," 362-364, (1958), construing Board, where placed it. "[W]e 'recognize without hesitation function Board' apply particular, complex, situations. 1849, Insurance Agents, 361 477, 499, 80 419, 432, 454 (1960). statutory rationally susceptible readings, search unenlightening, deference appropriate, necessary. case. adopted sensible imprecise negated That consideration certain practices indicating intention foreclose reading. token, indicate acceptable relevant sections urged arguing accord appropriate 35 understand foregoing views, opinion. BLACKMUN, whom BRENNAN MARSHALL join, dissenting. 37 Today supinely defers divided-vote determination enforces worker's promise fellow return freely democratically awareness promise. adopt NLRB's promise, matter how limited violates breaching activity. finds either purports goals ignores. undeserved produced improperly restricts federally traduces broader aim federal implicated right: balance power management guaranteeing 38 39 Having individual standing alone lacked sufficient bargaining achieve fair conditions employment, NLRA employees' together act collectively. 151. Thus, heart protection self-organization collective bargaining, 157 158. 40 collectively, long settled promulgate binding adopted. requirements association met, "through reasonable discipline," including fines. 181, 2007, (1967). Unless enforced, status will eroded, collectively jeopardized. Ibid. "Union activity, very nature, group grounded notion strength garnered unity, solidarity, commitment. concept particular force draw commitments carried rest fundamentally reliance inheres 'pact.' 389, (1972) (dissenting opinion); 2007. 41 158(b)(1)(A), preserved establish relationship member." 217, Recognizing institutions," define creation action As recognized previously concedes, indicates meant ensure refrain" understood "to unions." Ante, 102, Ball). "was give regulate affairs, fines, consequent enforcement, bylaws." 71, 1955, 1157, (1969). 42 Sensitive both Act's central goal facilitating action, coercion distinguish kinds Reasonable represent obligations voluntarily incurred regulation 8, while seek utilizing employer's status, compel duties consented to, Board. used into becoming job, impair "[T]he repeated debates [was] propose limitations unions, aside barring regulations affect member's status." 195, 2014. designed clear [a]ll trying cover [in 8] coercive restraining acts efforts organize unorganized employees." 4433 Until today, proposition impact confines organization, 431-432, 1158-1159, about ante, words, imposes condition unit acquire stands willing incur others rely; such, literally Conversely, way employer. An risk losing assistance collecting imposed. neither coerces will, affects powers enact standards itself," pursue goals. (remarks 44 nonetheless activity reaches giving cramped reading protecting concerning 108-110, ignoring process plain Further, addresses fact prerequisite much rule. entirely fails explain why "with enervating understanding all, obliged acquired 45 relies 7(a) version (House bill). divided subsection (a), granting "employees" (b), "[m]embers organization" "affairs organization." Corresponding 8(b), anyone 7(b) created dealings establishing regulated major facets member-union relationship. Among enumerated deny regarded illegal "representatives partisans adherents harass abuse organizations." And proscription suggestion include agreed-upon undertaking will. distinct arose separate 47 therefore, recognize 8(c). not, intimates, encompass 7(a), formulation code trade receive extended study special joint committee." S.Rep. 105, Taft's nonmysterious explanation Senate's stance union-member relationship: 48 "In initiation fees providing immunities arbitrary officers belonged. so-called conferees refused felt unwise agency Government undertake elaborate policing contemplated structure 6443 49 reflecting understatement vanquished, equally clear: 50 "Section dealing relations One section—[involving shops]—is already discussed. parts omitted practices. 51 face merits, treatment 111, inaccurate inadequate.1 52 Not surprisingly, alternative amendments. told House, having won illegal, 110-111. indeed explains House's actions, concession reinforces explicit: proscribe coerced job. insofar regulating similar aimed preventing choice impermissible ways. Drawing different distinction, less narrowly circumscribed discretion: taking threatening prohibited, unregulated being. Perhaps evil. obviously prevailed. 53 faces situation addressed recognitional-picketing Drivers, 362 274, 706, 710 (1960) (Curtis Bros.). "Plainly, [union's] instant abandoned proposal." 289, 715. Curtis Bros., recall 54 was, marked degree, compromise strong contending forces deeply role organized life Nation. counsels wariness finding when, words statute itself, interested just condemnation secure embodiment law.' 289-290, 715, Carpenters 93, 99-100, 1011, 1016-1017, 1186 55 Here, too, "strongly militates declined enact." Gulf Oil Corp. Copp Paving 419 186, 200, 392, 400, 378 (1974).2 56 attempts suggesting mandating "voluntary unionism" unenforceable 8(a)(1) 104, says, reason enforceable. Both "protec[t] 106. Court, again ignores fashioned prior cases, misunderstands added "preven[t] inducing use emoluments job rules." 429, ensured effect impinge 58 serves purpose—to manifest grant authority basic binds reciprocal involve individual's implicate 8(a)(3). A fined, remains unaffected. suggestions contrary, chosen therein, knowledge specified nevertheless disregard regardless taken them.3 59 At bottom, unspoken extreme, member—in name participation voluntary—the meaningful co-workers. understands voluntariness mean enforceable commitment, treating juvenile incompetent presumed consequences paternalism misplaced offensive threatens center Congress' intervene reflects union—if precondition one's employment—is association. looked lawful. establishes formed4—here, "reflects legitimate interest." Makers evidently promulgated interest maintaining united front Such families' welfare workers, furthers ability bargain equal terms, comports policy, guarantees and, 61 Specifically, "shall impede diminish qualifications right." 163. threat most means pressuring employers, lies "The ultimate weapon labor's arsenal achieving terms." Consequently, '[t]he strikebreakers essential agent.' Ibid., Summers, Legal Limitations Discipline, 64 Harv.L.Rev. 1049 (1951). 62 To effective, respected minority until revoked. lightly, entails considerable costs. Mackay Radio Tel. 304 333, 345, 904, 910, 82 L.Ed. 1381 (1938) (employer permanently replace strike). Before course, assurance withstand pressures able lawfully them. means. ensuring solidarity "legitimate presenting seeing dissipated stature denigrated subgroups pursuing interests." Emporium Capwell Western Addition Community Organization, 50, 70, 977, 988, 63 Once opportunity participate faithfulness quid pro quo benefits received band bargaining. fellows forgoing risking jobs now-weakened effort pressure concessions—is rider, enjoying live risks share. More perniciously, dissenting predictably snowballing effect, causing lose effectiveness majority commenced now-breached wish continue action. hardly out revocable procedures few individuals interests work, breaking majority's setting, "[t]he voted outweighs admitted resigns work." 223, 390 opinion). 65 Enforcement then, limitation right, vindication made. effectuate majority-rule [that] unquestionably policy.' 180, 2006, Democracy Fair Representation: Federal Responsibility System, 67 1327, 1333 advance ends, preserving defining 66 sum, position fairly principled application manner expressed scheme amply documented misplaced. owed expert slip judicial inertia results unauthorized assumption Congress." American Ship Building 380 300, 318, 955, 967, 855 (1965). stand rubber-stamp administrative [are] mandate frustrate underlying Brown, 278, 291-292, 980, 988-989, Chemical Pittsburgh Plate Glass 404 166, 92 383, 390, 341 (1971); 706(2)(A) (C). precepts bind promises knowingly make. 89, 1964, prevent evidence lost force. 91, 1965 (opinion concurring judgment). Though waived, here, Metropolitan Edison 460 693, 705, 103 1467, 1475, 75 387 (1983); 2006; Mastro Plastics 350 270, 280, 76 349, 356, 100 309 (1956), waiver "must unmistakable." 708, 1477. attempt collect explicit supra.5 record unaware disagreed try influence colleagues view. enactment objection. begun, acting best interest, end decertify 191, 2012. persuade break workers. 69 principle fidelity word ancient one." C. Contract Promise (1981). misguided context principle. focusing exclusively assuming arid artificial conception circumscribing intentions promulgating instance, proper mediators conflicting debilitates detriment odds affront autonomy worker. dissent. 70 STEVENS, 71 discussed Part I-B BLACKMUN's opinion, coupled persuades me respectfully William Kohl complained letter: "I feel men. need negotiators solve problems." Record, General Counsel Exhibit 2. Kohl, January 14, 1978, Kohl's "union Two weeks later, gain readmission employed, paid back fee, $4,200 "damages deserting 1337 denied amounts allegedly due. charged committed practices: physical harm loss accrued pension strike; (2) attempting employee, John Nelson, These unrelated presented express disposition claims ALJ, Appeals. Writing separately, Fanning asserted functioned removing names rolls. 1335 (Member Fanning, part). Jenkins dissented, Machinist 1984). infra. during, days preceding, strikes. accepted, aiding abetting Chairman Hunter Act; "external matters." embodied discipline premised 988. Zimmerman legitimately period days. restricted indefinitely, 987. Jenkins, lone dissenter, contended "prescribe 993. Ninth discussion enforce. provides: "Employees self-organization, form, assist organizations, representatives choosing, protection, extent affected authorized 158(a)(3) title." "It agents— "(1) (A) guaranteed title: Provided, paragraph therein. open Act." 192, 1955 ("This ., part section") (citation omitted). Bossert Dhuy, 221 N.Y. 342, 365, 117 N.E. 582, 587 (1917) ("The obey orders liberty therefrom"); Barker Painting Brotherhood Painters, App.D.C. 322, 324, 743, 745, cert. 276 631, 72 741 (1928) (It "not unlawful punish fine, suspension, infraction purely voluntary"); Bayer Decorators Paperhangers 301, 108 N.J.Eq. 257, 262, 154 759, 761 (1931) ("association one, workmen decline membership, affairs"); Mische Kaminski, 127 Pa.Super. 66, 91-92, 193 410, 421 (1937) (members "had union"); Longshore Printing Howell, Ore. 527, 540, P. 547, 551 (1894) ("No methods kind increase, up, membership"). Our attention called extant 1947. 1970's, constitutions. Millan, Disciplinary Developments Loyola L.Rev. 269 (1974); 1042 employer— "(3) discrimination regard tenure term encourage discourage organization: subchapter, States, preclude therein thirtieth day beginning date agreement, whichever later .: Provided further, nonmembership grounds believing available applicable (B) terminated reasons failure tender periodic uniformly acquiring retaining 8(b)(2) 158(b)(2), complements that: "(2) cause discriminate (a)(3) ground 8(3) 372, Stat. 452, barred based stated, "nothing aspect payment dues. Officers 347 17, 41, 74 323, 336, 98 455 (1954) "any fees"). 'Membership,' whittled down financial core." Motors 734, 742, 1453, 1459, 670 (1963). Ellis Railway Clerks, 466 1883, 428 (1984) (under compelled activities). assume "membership" discipline. "member" sense. focus understandable accompanying text. Taft, example, discharge nonpayment 4885-4886 usual type abuse, testified to." 4886. dissent suggests 163, believe, we, impedes [will] anybody want[s] using All [is] restraint people going wished go 4436 Taft). strikes unduly hampered decision. joined up Dean Wellington said: dissident remember distasteful exclusive agent. resigning, surrenders vote officials, determining amount forced clause." 1046 asserts "literally involv[es] Post, 121. say "furthered none purposes self-organization." 132, 5. illusory. absolute enhance power, short, dissent's interprets novel manner. "seek 120. (1968). "utilizing violating bound exhaustion. 2012, carry expulsion. pending expelling discriminatory reasons. 15721 (1959). sponsors Representatives Landrum Griffin, amendment repeal 15722-15723. observed 291, (1960): "[W]hat 1959 However, step evolving pattern conduct, consideration." 8(c)(9) 25, "intimidat[ing member's] family." unlikely proscribed. threats family crossed picket line, BLACKMUN "explicitly rejected" post, 121, 122, leaves shows, result. warn "they 4025 (1960), controlling. recognitional picketing banning picketing. Other highly probative desirability peaceful widely debated 287-288, 714. prohibited.' 8(b)(4), 158(b)(4), limits weapons (such secondary boycotts) 282-284, 711-712. reached Congress; allowed, curtailed. least "common associations." Haynes Annandale Golf Club, Cal.2d P.2d 470 (1935) (a bylaw purporting withholding consent unreasonable arbitrary). irrelevant question. governed 119. rationale "enters contract, by-laws." 1049, 1054 analyzed contracts. repeatedly refers "promise" 129. adopted, "promised" unlike traditional commentator recognized: "Membership contemplates continuing changing legislates monthly meetings annual conventions. creates complex cluster removed main channel relationships marriage, purchase stock certificate, hiring servant." 1055-1056. "essentially Board." deferred ruling accept excess union-imposed ceiling. Four years "reasonable" amount. Automobile, Aerospace Agricultural Implement 647 (General Electric Co.), 197 608 resigned, Their last fiscal year. crossing line. "a method severing 609. (Master Lock 748 1384, (Ex-Cell-O Corp.), 219 729 claim enough prohibition governing lent assertion. "by intimidating 8(b)(1) Bros. controlling regards 112, 24. "no 'right resign.' correct: am persuaded compromise. response infringement reasons, apparently, money exacted currency, permits away gains 106-107. This, circular: works because—the Troy Iron Nail Factory Corning, Barb. 231, 256-257 (N.Y.Sup.Ct.1864); Leon Chrysler 358 F.Supp. 877, 886-888 (NJ 1973), affirmance order, 474 1340 (CA3 1974). Note, Union's Right Control Strike-Period Resignations, Colum.L.Rev. 339, 354-355, nn. 107-110 (1985) (Columbia Note). Gould, Solidarity Forever—Or Hardly Ever: Taft-Hartley, Resign, Cornell 74, 106-114 (1980); Columbia Note 366-367. ends association, necessarily implicates impinged furthered fit comfortably 367-369; cf. UAW, 227 1045 (1977) (rule 10-day once year illegitimate vindicate interest). Thus access speedy 10(b) 160(b), "beyond 1722. inconsistently labels standard "illusory," 108, then inaccurately chastises 109, 20.

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