Document: 502 U.S. 527 112 S.Ct. 841 117 L.Ed.2d 79 LECHMERE, INC., Petitionerv.NATIONAL LABOR RELATIONS BOARD. No. 90-970. Argued Nov. 12, 1991. Decided Jan. 27, 1992. Syllabus The National Labor Relations Act (NLRA) guarantees employees "the right to self-organization, form, join, or assist labor organizations," § 7, and makes it an unfair practice for employer "to interfere with, restrain, coerce employees" in the exercise of their 7 rights, 8(a)(1). Petitioner Lechmere, Inc., owns operates a retail store located shopping plaza large metropolitan area. Lechmere is also part owner plaza's parking lot, which separated from public highway by 46-foot wide grassy strip, almost all property. In campaign organize employees, nonemployee union organizers placed handbills on windshields cars parked employees' lot. After denied access they distributed picketed strip. addition, were able contact directly some 20% employees. filed charge with respondent Board (Board), alleging that had violated NLRA barring its An administrative law judge ruled union's favor, recommending inter alia, be ordered cease desist affirmed, relying ruling Jean Country, 291 N.L.R.B. 11, cases should balance (1) degree impairment if denied, against (2) private property granted, taking into consideration (3) availability reasonably effective alternative means exercising right. Id., at 14. Court Appeals enforced Board's order. Held: did not commit Pp. 531-541. (a) By plain terms, confers rights only unions organizers. Thus, as rule, cannot compelled allow onto his NLRB v. Babcock & Wilcox Co., 351 105, 113, 76 679, 684, 100 L.Ed. 975. Babcock's holding was neither repudiated nor modified this Court's decisions Central Hardware Co. NLRB, 407 539, 92 2238, 33 122, Hudgens 424 507, 96 1029, 47 196. See Sears, Roebuck San Diego County District Council Carpenters, 436 180, 98 1745, 56 209. 531-535. (b) At least applied organizers, Country inconsistent past interpretation 7. teaching straightforward: simply does protect except rare case where inaccessibility ineffective reasonable attempts nonemployees communicate them through usual channels." U.S., 112, S.Ct., 684. It when infeasible becomes appropriate rights. 535-538. (c) facts do justify application exception. Because Lechmere's reside property, are presumptively "beyond reach" message. Nor fact live area render "inaccessible." failed establish existence any "unique obstacles" frustrated erred concluding committed 539-541. 914 F.2d 313 (CA1 1990), reversed. THOMAS, J., delivered opinion Court, REHNQUIST, C.J., O'CONNOR, SCALIA, KENNEDY, SOUTER, JJ., joined. WHITE, dissenting opinion, BLACKMUN, STEVENS, opinion. Robert P. Joy, Boston, Mass., petitioner. Michael R. Dreeben, Washington, D.C., respondent. Justice THOMAS Court. 1 This requires us clarify relationship between under Act, 49 Stat. 452, amended, 29 U.S.C. 157, employers. 2 * stems efforts Local 919 United Food Commercial Workers Union, AFL-CIO, Newington, Connecticut, owned operated petitioner Inc. Shopping Plaza, occupies roughly rectangular tract measuring approximately 880 feet north south 740 east west. situated Plaza's end, main lot north. A strip 13 smaller "satellite stores" runs along west side facing To (where entrance located) Berlin Turnpike, four-lane divided highway. however, abut Turnpike; 46-foot-wide broken entrance. jointly developer satellite stores. (except four-foot-wide band adjoining belongs Lechmere). 3 began store's 200 none whom represented union, June 1987. full-page advertisement local newspaper drew little response, entered placing corner used mostly manager immediately confronted informed prohibited solicitation handbill distribution kind property,1 asked leave. They so, personnel removed handbills. renewed handbilling effort several subsequent occasions; each time leave removed. then relocated attempted pass out entering during hours (before opening after closing) drivers assumed primarily For one month, returned daily picket Lechmere; that, intermittently another six months. recorded license plate numbers employee area; cooperation Connecticut Department Motor Vehicles, thus secured names addresses 41 nonsupervisory (roughly total). sent four mailings these employees; made phone home visits. These visits resulted signed authorization card. 4 Alleging (Board). Applying criteria set forth Fairmont Hotel 282 139 (1986), (ALJ) favor. 295 15, ALJ slip op. (1988). He recommended ordered, among other things, post conspicuous places signs proclaiming part: 5 "WE WILL NOT prohibit representatives 919, Workers, AFL-CIO ("the Union") organization, distributing literature our adjacent will we attempt cause attempting so." App. 6 affirmed ALJ's judgment adopted order, applying analysis 11 (1988), replaced short-lived approach. panel States First Circuit petition review (1990). granted certiorari, 499 ----, 111 1305, 113 240 (1991). II A. Section provides relevant "[e]mployees shall have organizations." 157. 8(a)(1) turn, guaranteed [§ 7]." 158(a)(1). thus, 975 (1956), recognized insofar "right self-organization depends measure [their] ability . learn advantages others," id., may, certain limited circumstances, restrict employer's exclude nature those circumstances explore today. 8 arose factory isolated 100-acre tract. company policy groups. About 40% company's lived town 21,000 persons near factory; remainder scattered over 30-mile radius. Almost drove work adjoined fenced-in plant could reached 100-yard-long driveway connecting company-owned land, crossed 31-foot-wide right-of-way Union distribute right-of-way. (20% total), three mailings. Still contacted telephone visit. 9 successfully challenged refusal before Board. While acknowledging there alternative, nontrespassory whereby held workplace preferable. 109 485, 493-494 (1954). "[T]he absolute, but must accommodated circumstances. Where impossible unreasonably difficult organizational entirely off premises, nonworking area, such walkways gate, may warranted." 493. Concluding traffic unsafe leaflets right-of-way, contacts mails, streets, homes, would ineffective, exterior walkways. 486-487. 10 Fifth refused enforce 222 316 (1955), affirmed. recognizing has responsibility 'applying Act's general prohibitory language light infinite combinations events might charged violative terms,' " 111-112, 683-684 (quoting Stowe Spinning 336 226, 231, 69 541, 543, 93 638 (1949)), explained failing make critical distinction organizing activities (to self-organization) applies derivatively). while "[n]o restriction discuss themselves, unless can demonstrate necessary maintain production discipline," 684 (emphasis added) (citing Republic Aviation Corp. 324 793, 803, 65 982, 987, 89 1372 (1945)), "no obligation owed organizers," As then, many rules, location living quarters place beyond reach them," ibid., employers' "required yield extent needed permit communication information organize," Although occasion apply ensuing decades, described arising related contexts. Two cases, 122 (1972), 196 (1976), involved activity supporters employer-owned principal issue both whether, based upon Employees Logan Valley 391 308, 88 1601, 20 603 (1968), Amendment protected activities. rejected claims, clear overruled. Having decided constitutional grounds, remanded supporters' claims Babcock. quoted approvingly admonition accommodation "must obtained destruction consistent maintenance other," Hardware, supra, 544, 2241; Hudgens, 521, 522, 1037, 1038. There no hint invocation "accommodation" intended repudiate modify need accommodate otherwise inaccessible. Indeed, expressly noted claim even nonconsenting until "[a]fter requisite been shown." 545, 2241. 12 If question whether changed law, laid rest 209 (1978). substantive Sears subsidiary one; case's primary focus pre-empts state law. Among arguable pre-empt trespass because trespasses "far more likely unprotected than protected," 205, 1761; permitting courts evaluate therefore, "create unacceptable risk interference conduct Board, court reviewing decision, find ibid. following Babcock: "While indicates always bar so remains rule. gain access, burden showing communicating message exists rules discriminate solicitation. That imposed heavy evidenced struck principle rarely favor trespassory activity." 1761 added; footnotes omitted). 14 We further practice, trespassing generally prevented methods 205-206, n. 41, 1761-1762, 41. B 15 above, represents latest implement sets three-factor balancing test: "[I]n essential concern [1] balances [2] granted. view [3] especially significant process." N.L.R.B., 16 conceded unlikely foster certainty predictability declared "as legal questions involving multiple factors, 'nature problem, revealed unfolding variant situations, inevitably involves evolutionary process rational quick, definitive formula comprehensive answer.' Ibid. Electrical 366 667, 674, 81 1285, 1289, 592 (1961)). 17 Citing role agency implementing national policy," maintains entitled judicial deference. Brief Respondent 18, 8; Tr. Oral Arg. 22. certainly true, long recognized, "special function provisions complexities industrial life." Erie Resistor Corp., 373 221, 236, 83 1139, 1149, 308 (1963); see Phelps Dodge 177, 196-197, 61 845, 853-854, 85 1271 (1941). Like agencies, deference interprets ambiguous provision statute administers. See, e.g., 484 123, 108 413, 420, 429 (1987); cf. Chevron U.S.A. Natural Resources Defense Council, 467 837, 842-843, 104 2778, 2781-2782, 694 (1984). 18 Before first determine Country—at trespassing—is "Once determined statute's meaning, adhere determination doctrine stare decisis, agency's later prior meaning." Maislin Industries, Primary Steel, 497 110 2759, 2768, 94 19 Babcock, "of substance," nonemployees. activities, approval, "balanced conflicting interests receive fellow time, control use property." 109-110, 682-683. (like itself), permitted engage same (and reversed having done so). reversing distinguish nonemployees, saying, speaks channels," Our reference "reasonable" nothing commonsense recognition extraordinary feats inaccessible employees—not endorsement (which rejected) protects trespasses. exist, 7's authorize (as 684) "under regulations" established broadly "all cases," 14, misapprehends point. Its inspiration derives sentence Hudgens: locus th[e] [between rights] fall differing points spectrum depending strength respective asserted given context." 1037. From concluded approach every thrown "especially significant" consideration. purport much less alter fundamentally way suggests. say require true incomplete statement, go far establishing issue. So outside taken place. proper take inquiry second level, dictum. impermissibly conflates two stages inquiry—thereby significantly eroding rule "an validly literature," reaffirm today, reject recast multifactor test. C 21 threshold case, here below observed herein convince me [of employees] available Union," op., added).2 Reviewing decision different conclusion point, asserting "there reasonable, [Lechmere's] employees." 4-5. 22 accept conclusion, "rest[s] erroneous foundations," 684; Brown, 380 278, 290-292, 980, 987-988, 839 (1965). explained, exception narrow one. wherever cumbersome less-than-ideally effective, added). Classic examples include logging camps, Lake Superior Lumber 167 147 (CA6 1948); mining Alaska Barite 197 1023 mem., LRRM 2992 (CA9), cert. 414 1025, 450, 38 (1973); mountain resort hotels, H Grossinger's 372 26 (CA2 1967). crafted precisely who, virtue employment, ordinary flow characterizes society. isolation is, "a one," 1761, satisfied mere conjecture expression doubts concerning effectiveness communication. 23 short aware misunderstanding scope reach," (Greater Hartford), itself "inaccessible" sense contemplated Monogram Models, 192 705, 706 (1971). Their accessibility suggested success contacting substantial percentage directly, via mailings, calls, Such direct contact, course, element "reasonably effective" communication; advertising suffice. tried newspapers; said expensive Whatever merits readily available. (displayed, example, lot) about efforts. (Indeed, center's months came went day.) Access winning over, although success, lack thereof, determining exists. obstacles," 24 25 therefore reversed, enforcement order denied. ordered. 27 BLACKMUN joins, dissenting. 28 "We uphold formulated sat Board." Curtin Matheson Scientific, 494 775, 787, 1542, 801 narrow: supported evidence record whole, enforced. Beth Israel Hospital 437 483, 501, 2463, 2473, 57 370 seek purpose "[a]ccommodat[ed] other." slow overturn disagreed granting recognize required involved. 112-113, 684-685. "when channels, organize." Later said: "The others. Consequently, them, hold conditions shown records it. 30 us, holds stated correct rights; construing §§ contain forbidding third-party subject demonstrates business them. refuses rested because, view, misunderstood basic well narrowness announced case. 31 reasons, errs First, reason grant indicate circumstance warrant entry satisfy Of course show "reasonable efforts", without But I believe confine considerations single now seizes upon. indicated camp required, situations permitted. ignore difference secluded manufacturing center open limitation. indeed consider residences throughout major relied compact easily accessible. 32 Moreover, actual notice exists, vindicate others singularly unpersuasive suggest sufficient being up leading Second, reading reflected opinions consistently declined define exceptions, instead repeatedly reaffirmed standard neutral flexible accommodation. 2241, explicitly "guiding principle" adjusting conflicts enunciated contained language. gave provide guidance emphasized necessity-to-accommodate admonition, pointed differences left context. generic situation, making instance." surely narrow, iron-clad extracts what says means, doubt tension Hudgens. pronouncement question, issued directive controlling.1 34 majority today asserts "[i]t [reasonable alternative] rights." Ante, 538. alternatives important factor finding destructive majority's assertion effect notwithstanding, regarding precondition hardly fault "conflates inquiry," ante, 538, two-stage 35 Third, fundamentally, odds modern concepts administering statute. When construction statute, ask Congress spoken precise Chevron, 842, 2781. not, impose own statute; rather, permissible 843, specifically third parties explain how dealt concerned. inquiry, basis statutory settled i.e., found extends representatives. 685, lots. Courts 36 deferred judgment. Instead, concerned, treated favorably Furthermore, issuing rather remanding essentially took job, detailing organizer announcing newly coined 37 Had like presented governing 1991, am quite sure sounder ground doing so. differently mandated, enough accepted clear, me, reworked manner change mind. ----; J. Weingarten, 420 251, 265-266, 95 959, 967-968, 43 171 (1975). fails current agencies compounds error adopting lock, stock, barrel. And unnecessarily for, gives event put gloss recognize. 39 Finally, commits outdated union. Unless proposes turn back rulings longer 'erroneous foundations,' ante rationality consistency Litton Financial Printing Div. 501 2215, 115 177 (1991); supra; Fall River Dyeing Finishing 482 42, 107 2225, 2235, Institution Employees, 475 192, 202, 106 1007, 1012, 151 (1986); Hospital, 2473. enforced." record. Even defer application, depth objections remand arrives sitting assigned 40 adopt static commanded construction. Cf. leaving NLRA, delegated authority substitute 844, Under governs rests questionable foundations. contrast, resurrecting extending embodies principles since passed by. 42 evident, my With due respect, dissent. 44 reasons WHITE'S 541-545, affirm enforcing agree WHITE strict interpreting join suggests incorrectly decided, 545-548. applicable draw central agencies. Accordingly, respectfully years official statement provided, "Non-associates [i.e., nonemployees] soliciting times anywhere Company including Non-associates non-working areas selling connection use." On door posted in. sign reading: "TO THE PUBLIC. No Soliciting, Canvassing, Distribution Literature Trespassing Non-Employees Premises." 115-116. inside (against, others, Salvation Army Girl Scouts). (pre-Jean ) ALJ, deemed "relatively equal strength," 139, 142 adequacy became relevant. outweighed he address latter possibility evaluation relative weights upheld. 9. (1978), once again language, refined text notwithstanding 534-535, endorsed refinement analysis, points, pre-emption peripherally NLRB. Unlike ultimate disposition court. decisions). "general rule" recounting rarity allowing was, descriptive "experience teaches", exercised authority, prescription apply. already cited. 204, 1760. Contrary suggests, false ambiguity created Hudgens; addressed issues, detailed offered

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