Document: 427 U.S. 132 96 S.Ct. 2548 49 L.Ed.2d 396 LODGE 76, INTERNATIONAL ASSOCIATION OF MACHINISTS AND AEROSPACE WORKERS, AFL-CIO, et al., Petitioners,v.WISCONSIN EMPLOYMENT RELATIONS COMMISSION al. No. 75-185. Argued March 22, 1976. Decided June 25, Syllabus During negotiations for renewal of an expired collective-bargaining agreement with respondent employer, petitioner union and its members engaged in a concerted refusal to work overtime. The employer filed charge the National Labor Relations Board (NLRB), claiming that such was unfair labor practice under Act (NLRA), but dismissed on ground did not violate NLRA therefore conduct cognizable by NLRB. also complaint Wisconsin Employment Commission, which held refusal, while neither protected nor prohibited NLRA, state law, entered cease-and-desist order against union. Circuit Court affirmed judgment enforcing order, Supreme affirmed. Held: union's overtime peaceful constituting activity must be free regulation if congressional intent enacting comprehensive federal law relations is frustrated. Congress meant self-help economic activities, whether or employee, were regulable States any more than NLRB, NLRB "afforded flexibility picking choosing devices management shall branded as unlawful." v. Insurance Agents, 361 477, 498, 80 419, 432, 4 454, rather, both are without authority attempt "introduce some standard properly 'balanced' bargaining power," Id., at 497, S.Ct., 431, define what "economic functions might permitted negotiating parties 'ideal' collective bargaining." 500, 433. International Union, U. Automobile Workers A. F. L., Local 232 Emp. Rel. Bd., 336 245, 69 516, 93 L.Ed. 651 (Briggs-Stratton case), overruled. Pp. 136-155. 67 Wis.2d 13, 226 N.W.2d 203, reversed. Gerry M. Miller, Milwaukee, Wis., petitioners. Norton J. Come, Washington, D. C., N. L. R. B., amicus curiae. James C. Mallatt, respondents. Mr. Justice BRENNAN delivered opinion Court. 1 question decided this case policy pre-empts board grant covered enjoining from continuing refuse pursuant put pressure agreement. 2 A between Lodge 76 (Union) Kearney & Trecker Corp. (employer) terminated terms 19, 1971. Gd-faith over continued year thereafter, finally resulting signing new effective July 23, 1972. particularly controverted issue during employer's demand provision which, prior 17 years, basic workday seven one-half hours, Monday through Friday, workweek 371/2 replaced providing eight hours 40 rates pay payable changed accordingly. 3 few days after old unilaterally began make changes conditions employment provided contract, E. g., eliminating checkoff Union dues, Union's office plant, lost time. No immediate change made workday, 1972, announced it would implement, proposal 40-hour week eight-hour day. response membership meeting 7 strike action authorized resolution adopted binding overtime, defined excess day week. Following vote, offered "defer implementation" agree call off however, refused offer indicated continue ban Thereafter, proposed before became Although all very employees complied acceptance negotiations, discipline, employee refusing Instead, continued, violated § 8(b)(3) Act, Stat. 452, amended, 29 U.S.C. 158(b)(3). Regional Director "policy prohibiting member . does appear violation Act" 454 (1960). However, Commission charging constituted law. motion dismiss want "jurisdiction subject matter" jurisdiction "the complained (is) pre-empted by" Act. App. 11. denied Conclusion Law Examiner arguably Section 8 ., therefore, asserting regulate said conduct." further "by authorizing effort interfere production committed within meaning 111.06(2)(h). ."1 Commsion thereupon Inter alia, "(i)mmediately cease desist authorizing, encouraging condoning accept assignments ." Commission's order. 203 (1975). We granted certiorari, 423 890, 186, 46 121 reverse. 5 * "The national leaves much states, though has refrained telling us how much. spell out conflicting indications will area still permissible." Garner Teamsters, Chauffeurs Helpers 346 485, 488, 74 161, 164, 98 228 (1953). Federal reflected been construed preclude regulating aspects involve "conduct touch(ing) interests so deeply rooted local feeling responsibility we could infer had deprived power act." San Diego Building Trades Council, Millmen's Garmon, 359 236, 244, 79 773, 779, 775 (1959). Policing actual threatened violence persons destruction property most clearly matter States.2 Similarly, governing withdraw "from where regulated merely peripheral concern Management Act." 243, 779.3 6 Cases have tend fall into one two categories: (1) those reflect "one forum enjoin, illegal, other find legal" (2) "that (application by) courts restrict exercise rights guaranteed Acts." Russell, 356 634, 644, 78 932, 938, 1030 (1958). "(I)n referring decisions holding laws care taken distinguish pre-emption based protection predominantly primary although often easily separable." Brotherhood Railroad Trainmen Jacksonville Terminal Co., 394 369, 383 n. 89 1109, 1118, 22 344 (1969). Each these distinct own history our decisions, now turn. consider first Board. This line analysis developed Unions supra, recently summarized Amalgamated Association Street, Electric Railway Motor Coach Employees Lockridge, 403 274, 290-291, 91 1909, 1920, 473 (1971): "(V)arying approaches initially grappling problem. Thus, example, early cases suggested true distinction lay judicial application general common permissible, opposed rules specifically designed relations, pre-empted. See, e. 645, Others turn purported apply remedy scheme, Weber Anheuser-Busch, Inc., 34U.S. 468, 479-480, 75 480, 99 546 (1955), others undertook thorough scrutiny ascertain had, fact, arrived conclusions inconsistent provisions, (1949). (N)one proved satisfactory, each ultimately abandoned. It was, short, experience pure logic taught methods sacrificed important uniform centrally administered expert agency yielding anything return way predictability ease application. 9 failure alternative analyses interplay foregoing considerations, then, led hold U.S., 773: 10 " 'When clear may fairly assumed activities State purports constitute 8, due regard enactment requires yield. To leave plainly central aim involves too great danger conflict asserted requirements imposed law.' 11 See 244-247, 779-781; 286-290, 1917-1920. 12 second focusing upon crucial inquiry intended involved unregulated because left "to controlled play forces." Nash-Finch 404 138, 144, 92 373, 377, 30 328 (1971).4 Concededly 1949 so-called Briggs-Stratton case, Board, (1949), decision heavily relied court below reaching In Briggs-Stratton, union, bring plan whereby meetings called irregular times working advance notice when workers return. proceeding Peace issued forbidding engage efforts methods. inquire should reserved Rather, "neither right it" there "was no basis denying power, her internal affairs, regulate" conduct. 265, 527. 13 premised statement "(t)his governable entirely ungoverned," 254, 521, undercut subsequent For soon recognized particular "protected" only fell 7, "unrestricted Any governmental among permissible weapons reserve, (of which) occasion parties, part parcel system Wagner Taft-Hartley Acts recognized." 488-489, 426-427 (emphasis added). "(T)he legislative purpose dictate certain 'neither prohibited' deemed privileged regulation." Hanna Mining Co. Marine Engineers, 382 181, 187, 86 327, 331, 15 254 (1965). II 14 bargain good faith occurred good-faith directed on-the-job harassing nature business, avowed putting accede demands. peaceful, insurance agents included time solicit (after writing business resumed) comply company's reporting procedures; participate company campaign business; late district offices scheduled attend them; perform customary duties office, instead engaging "sit-in-mornings," "doing comes naturally," leaving noon group; absenting themselves special conferences arranged company; picketing distributing leaflets outside various specified union; policyholders soliciting policyholders' signatures petitions presenting signed home simultaneously mass demonstrations there. 480-481, 422-423. tactics support finding failed required rejected Per se rule applied use "economically activities" alone sufficed prove section. here 'protected' und Act," 483 6, 424, beyond apply. scope limitations design 8(d) exceeded, hold, inferring lack deficiencies performance table reason attempted pressure, solely simply exert employed course negotiations. Thus guise determining bad party summon aid. And choice used bargaining, position considerable influence substantive contract. As parties' limited, Government enter even directly negotiation agreements. Our presently erected foundation government control results S.Rep. 105, 80th Cong., 1st Sess., p. 2. Nor contain charter act large equalizing disparities union." 490, 427. 16 noted "Congress rather specific come outlaw unions" never outlawed Congress." 432. Accordingly, Board's claim brand ones bar bargaining," 492, 428, scheme dispute process 495, 430. earlier forces. recognitional picketing, said: 18 detailed prescription procedure restraint types seem imply sources restraint. condemn ascertained prescribed processes prohibitions. Otherwise, implicit public interest served freedom weapon picketing. impinge combat quite obstruction declare purposes prohibits." 499-500, 170-171.5 19 Moreover, expressly decide prohibited, thereby raise States." 780.6 20 true, many fleshing concept them regulate," 426 review process. American Ins. 343 395, 72 824, 1027 (1952); Drivers 362 706, 710 (1960); Brown, 380 278, 85 980, 839 (1965); Ship Bldg. 300, 955, 855 cf. Truck 353 87, 77 643, 676 (1957); H. K. Porter 397 99, 90 821, 25 146 (1970); Florida Power Light Electrical Workers, 417 790, 805 16, 94 2737, 41 477 (1974). But Agents came full bloom 20, Morton, 377 252, 84 1253, 280 (1964), award damages secondary Morton volved "protected prohibited" necessity 'Congress occupied field closed regulation.' 258, 1257. Central Morton's observation "(i)n selecting forms struck 'balance uncontrolled their respective interests,' 258-259, 1258,7 and: 21 "This self-help, formed integral petitioner's achieve goals respondent. Allowing balance employees, community. If Ohio boycott can proscribe same type focused enacted 303, inevitable result frustrate determination available, upset expressed policy. 'For prohibits.' Teamsters 228." 259-260, 1258. past concerning forces address context prerogative he, too, employ unregulable. Harlan concurring 109, 826, stated obvious: 23 drawn contemplate unions always secure able weak, strikes lockouts impasse. cannot forbids rely strength try obtain 24 "(R)esort measures avail" well 317, 966,8 prohibit "add legal obligations bargaining" employees. Cox, Supra, 4, 1365. g. Beasley Food Fair North Carolina, 416 653, 2023, 443 Whether regarding same: plenary curtail implementation Act's processes." .Railroad 380,9 1116. III There frustrated instant State's ruling stand. invoked unable overcome tactic means.9 previous agreement, 134, apparently lacked sufficient i demands policy," 260, 1258.10 weakness affected justify aid contrary for, developed, grudging exception (under) (federal) Act; filling "a regulatory void exist," 196, 335 (Brennan, J., concurring). "(entered) extent countenanced." 26 Ibid. power' 431 (footnote omitted), "what sanctions 433.11 sanction "desirabl(y) contending forces, (to fill) gap (by) outlaw(ing) fails outlaw; contest him available." Lesnick, Preemption Reconsidered: Apparent Reaffirmation Col.L.Rev. 469, 478 (1972).12 impermissible 'stands obstacle accomplishment execution objectives Congress.' Hill Florida, 325 538, 542, 65 1373, 1375, 1782 (1945). IV 27 remains vitality Briggs-Stratton. 245 780, approach "no longer application." 493 429. today permitting partial likewise application."13 28 "management disabled kind cope coercive union" "take steps resist incurring 264, held, "protected," unregulated, discharged appropriate disciplinary participating." 493, presented 7,14 available counter lockout, (1965), hiring permanent replacements Mackay Radio Tel. 304 333, 58 904, 82 1381 (1938). Prince Lithograph 205 N.L.R.B. 110, 115 (1973); Right Engage Concerted Activities, Ind.L.J. 319, 339 (1951); Getman, Protection Economic Pressure U.Pa.L.Rev. 1195, 1236 (1967). since abundantly attempts agreements NLRB: "Since operates here, paramount, free, necessarily State." Chauffeurs, Warehousemen America, A.F.L.-C.I.O. Oliver, 358 283, 296, 297, 305, 312 indubitably regulation, State, (exerts) contract." availability "depend (opponent) presses claims." Howard Johnson Inc. Hotel Employees, 249, 256, 2236, 2240, (1974).15 unmindful Stare decisis "important considerations militat(ing) favor continuity law," Boys Markets, Retail Clerks, 398 235, 240, 1583, 1587, 199 (1970), "stands significant departure emphasis policy" statutory enacted, later plain "does frustrates realization goal 241, Its "has 'so restricted decisions' (it) regarded having 'been worn away erosion time' authority." United Raines, 17, 26, 519, 524, 524 V 31 survey police employers another compels conclusion contended, record enforced threats intimidation injury property. plant end workshift volunteer Saturday work. sustaining dispositive pre-emption, Wis.2d, N.W.2d, 206. nther 23-24, 208, largely inapplicable circumstances case. distinguished dealt tactics" "regulation states." 207. Finally, argument relying affirmatively "permitted" under, stating: 'focused upon' strikes," "(p)olicing wholly 209. 32 Since overruled, frustrated, 33 Reversed. 34 POWELL, whom THE CHIEF JUSTICE joins, concurring. 35 correctly identifies critical respect 380, 1116, Ante, 147-148. 36 equally Union. I curtails capability members, shift Congress. write my understanding Court's not, enforcing, dispute, "neutral" statutes decision: toward altering positions incidental effect relative strength. Except otherwise, generally remain enforce, torts contracts, reflecting neutral policy.* Revisited, Harv.L.Rev. 1337, 1355-1356 (1972). 37 With understanding, join 38 STEVENS, STEWART REHNQUIST join, dissenting. 39 protected, supported Council 775. (Briggs-Stratton), comparable 7. understand today, assumes unprotected.1 Gaon. ever prohibited. problems activity, legislation dealing matter, form disclosed 280. Despite numerous statements about Congress' found expression evidence scrutinized activity.2 previously Held no-man's land nevertheless unexpressed intent, follow holding. none reviewed holds.3 Ever 1949, decided, States. 42 adherence permit substantially disrupt readily overruling it. am persuaded essential illegal.4 43 Stability enhanced resists temptation overrule decisions.5 inappropriate do purporting implement yet address. Edelman Jordan, 415 651, 671 14, 1347, 1359, 662. nearly sanguine likelihood clarify harmonize confused sum, adhere precedent point. 111.06(2) (1974) provides: "It employe individually concert others: "(h) take unauthorized possession except premises orderly manner going strike." Automobile, Aircraft Agricultural Implement (1958), upheld state-court common-law tort recover compensatory punitive malicious interference plaintiff's lawful occupation prevented plaintiff entering his employment; Youngdahl Rainfair, 355 131, 206, 151 (1957), sustained enjoin striking threatening provoking obstructing attempting obstruct streets adjacent ingress egress property; 351 266 (1956), vest violent conduct; Constr. Laburnum Corp., 347 656, 833, 1025 (1954), precluded hearing forced abandon projects area. "historic powers traditionally matters safety highways," Allen-Bradley 315 740, 749, 62 820, 825, 1154 (1942), 253, Machinists Gonzales, 617, 923, 1018 ordering reinstatement wrongfully expelled awarding damages, practice, remote possibility enforcement resolved "troublesome lies federally preempted (the) presented, 183, 328, concluding amendment exclude supervisory definition "employees" eliminated serious "many provisions employing pivotal term operate supervisors focus concern." 188, 331. Further, Linn Plant Guard 53, 657, 582 (1966), libel 1352 (1972): "An appreciation character LMRA indicates framework organization, disputes, protection, prohibition, laissez-faire disputes enforce resting views accommodation interests." Cf. 478, 480 warrant(s a) negative inference proper, indeed desirable least, outlaws available. premise judged illicit legitimate, 'legitimate' connotes, neutral, assimilated residual regime 'economic warfare,' you prefer thought wisdom." course, seeds Garmon "primary NLRB" contained opinion. addition textual quotation, Garner, 490-491, 165-166. took "be powerless underlying 784, (concurring result), opinions point disagreement concerned concept. "In word fraught ambiguity. 'Protected conduct' may, refer prohibit, retaliate." 1117, Indeed, thereafter formulation. 330. '(p)ermitted activities' better shorthand category state, interference." 1346 omitted). marked degree, compromise strong Carpenters 357 93, 99-100, 1011, 1015, 1186 96, 647, (1957): "Although protects demands, absolute deny legitimate collide." suspended, discharged, locked increased already enormous (and) exacerbated substantial strain Brief Respondent 36. "Question: (I)f fish cut bait extreme alternatives, they lesser like this. Doesn't side coin, seems me. "Mr. Mallatt: Well, choices: last strike, negotiate unilateral plant. You see, can't that, why it? contract expired. He lock out. Couldn't adopt program? in. tried to? That little didn't see." Tr. Oral Arg. 35. 25-26, 30-31, 33. 1347: "(In Briggs-Stratton,) beguiled fallacy supposing allowed discharge series 'quickie' surely pursuing relatively mild redress courts. facing discipline efficient sanction." realized equated academic search truth ideal one. granting modification interdependence proceed antagonistic viewpoints concepts self-interest. reached philosophic notion perfect people lead values. presence recognized. (T)he present stage policy, factors incline one's exist side. Doubtless factor influences other; less need areas controversy discussion; time, apt weak accordance degree possess." 426-427. disturb remarked 494 430, 163, guarantees qualified independent limitation apart structure determine implication 430; 501(2) amendments 142(2), considered connection construction 8(b)(4), 158(b)(4), NLRA. note, sense entire structure, respecting insignificant defining "strike" refers "any slow-down interruption operations employees." hardly conceivable 'strike' obvious 511 438 (opinion Frankfurter, J.). extent, "evidence threats," vital unexceptional instance consistent recognition physically injuring 2251, assumption, Arguendo, "unprotected" fact bearing least resemblance "sit-down" unprotected Fansteel Metallurgical 306 59 83 627 (1939), "disloyal" 1229, 464, 172, 195 492-494, 428-430. overtones. case-by-case adjudication unaccompanied (overtones violence, 250 520, specify 519; see 487, 426), countervailing employer. 110 (1973). Compare Ibid.; Dow Chemical 152 1150 Decision, 166 479 (1967); John S. Swift 124 Polytech, 695, 696 placed voluntary individual deciding volitional ban. light disposition issue. "From (the ) fortiori agencies interject standards 'unjustifiable' 'abusive' dispute." Michelman, Govern Employee 641, 669 (1961). employers, unions, self-organization, bargaining. recognize ambiguity discussion, 152-153, implies action, including discharge, then immediately casts doubt assurance indicating reprisal protected. rationale assumption fear committing practice. events, misreading opinion, assume rests predicate scholar who criticized observed: omission prohibition certainly implied desire embrace restraint; silence almost attributable happy circumstance urgently unanimously tactics." Cox 1347 argues passage 61 136, passed House, Conference Committee, declared unlawful sit-down conducted remaining premises." H.R. 3020, 12(a)(3)(A) (1947). H.R.Rep.No.245, 27-28, 43-44 (1947); H.R.Conf.Rep.No.510, 38-39, 42-43, 58-59 U.S.Code Cong.Service 1947, 1135. "concerted duty faith; words, 8. Contrary implication, 141, so. amounts withdrawal Ibid., 330, read context, nothing reference 775, poses, answer, extends 2, Supra. Briggs- Stratton, overruled numbers eroded preserved. 151-154, 12. distinguishable. 3, limited facts insofar actually 291, 473; 780; nn. established reaffirmed fully

Category: 9