Document: 362 U.S. 274 80 S.Ct. 706 4 L.Ed.2d 710 NATIONAL LABOR RELATIONS BOARD, Petitioner,v. DRIVERS, CHAUFFEURS, HELPERS, LOCAL UNION NO. 639, Etc. No. 34. Argued Jan. 14, 1960. Decided March 28, Mr. Dominick L. Manoli, Washington, D.C., for petitioner. Herbert S. Thatcher, respondent. Justice BRENNAN delivered the opinion of Court. 1 The question in this case is whether peaceful picketing by a union, which does not represent majority employees, to compel immediate recognition as employees' exclusive bargaining agent, conduct union 'to restrain or coerce' employees exercise rights guaranteed § 7,1 and thus an unfair labor practice under 8(b)(1)(A) National Labor Relations Act, amended Taft-Hartley Act.2 2 Curtis Bros., Inc., has retail store warehouse it carries on moving, warehousing furniture business. In 1953 respondent Teamsters Local 639 was certified Board, following Board-conducted election, be representative Company's drivers, helpers, warehousemen finishers. However, when called strike over contract terms February 1954 only nine 21 unit left their jobs Bros. replaced with new employees. continued but gradually lost membership, after year petitioned Board another wrote that did claim nevertheless ordered 114 N.L.R.B. 116, held October 1955, then voted 28 one favor 'no union.'3 3 A month November withdrew picket line had been maintained before entrance during period from 1954. at customers' continued, limited more than two pickets any time. were orderly all times made no attempt prevent anyone entering store. They simply patrolled carrying signs reading side, 'Curtis employs nonunion etc. Unfair Union AFL,' other 'Teamsters AFL wants employes join them gain wages, hours, working conditions.' After about six months, subject charge against alleged violation 8(b)(1)(A). complaint issued alleged, substance, activity 'restrain 7 rights, 8(b)(1)(A), because 'recognitional' picketing, is, designed induce recognize agent although 5 Trial Examiner recommended dismissed ground Local's even if 'recognitional,' coerce.' member dissenting, disagreed entered cease-and-desist order, 119 232. On review instance Local, United States Court Appeals District Columbia Circuit, divided court, set aside Board's holding 8(b) (1)(A) 'is inapplicable 'organizational' nature * *.' 107 U.S.App.D.C. 42, 43, F.2d 551, 552.4 Because importance administration we granted certiorari. 359 965, 79 876, 833. 6 certiorari, Congress enacted Labor-Management Reporting Disclosure Act 1959, which, among things, adds 8(b)(7) Act.5 It stated oral argument arose 1959 might have proceeded 8(b)(7). This not, however, relegate litigation status unimportant controversy meaning statute significantly changed. For contends displace merely 'supplements power already conferred Section 8(b)(1)(A).'6 argues may proceed conducted minority situations are specified without regard limitations 8(b)(7)(C).7 Basic right form, assist organizations, engage concerted activities persuade mutual aid protection. Indeed, Norris-LaGuardia 47 Stat. 70, 29 U.S.C.A. 101 et seq., Wagner 49 449, recognized unions 'use lawful propaganda enlarge membership.' American Steel Foundries v. Tri-City Central Trades Council, 257 184, 209, 42 72, 78, 66 L.Ed. 189. added also protection, namely, refrain joining except affected agreement authorized 8(a) (3). Thus tension exists between protected 7—their doing so. necessarily quite real economic weapons organize who do want union. here lawfully employed weapon further self-organization its objective 'recognitional.' stated: 'Because object Union's force Company commit act prohibited itself (that chosen employees) directly deprive expressly same there occasion balance conflicting interests rights.' 232, 238.8 therefore found justification threat job security thought inherent pressure directed employer picketing. said taint unlawful forbid. 8 We first consider light 13, amended, provides, shall taken restricting expanding either qualifications right, these understood prior 1947, unless 'specifically provided for' itself.9 upon wide authority protect strikers retaliation. fashioned doctrine should deny reinstatement engaged strikes manner objective. See example Southern S.S. Co. 316 31, 62 886, 86 1246; Fansteel Metallurgical Corp., 306 240, 59 490, 83 627; Sands Mfg. Co., 332, 508, 682; News 55 1302. These 'limitations qualifications' referred 13. S.Rep. 105, 80th Cong., 1st Sess. 28. makes 1947 authorized, 'limitation' 'qualification,' issue order picketing; indeed full protections extended recognition. Fur Workers 21238 Union, 308 522, 60 292, 84 443, per curiam affirming 70 App.D.C. 122, 105 1; Lauf E. G. Shinner & 303 323, 58 578, 82 872. Therefore, since would obviously 'impede' strike, can sustained such Act. To sure, 13 require action spelled out so many words. Rather, contend embodies declares rule construction cautions expansive section adversely affect congressional purpose give persuasively appears structure history statute. command courts resolve doubts ambiguities interpretation safeguards passage 9 asserts very general standard vests sit judgment upon, condemn, union's resort specific weapon, 8(b), defines practices, hardly supports claims. Earlier Term pointed 'Congress rather come outlaw particular part unions.' Insurance Agents' International 361 477, 498, 419, 432. 8(b)(4) illustrative practice.10 context striking promote enlarged explicitly secondary boycott, employers self-employed persons unions, and, pertinent here, where certified. Plainly sustained, largely overlaps least last-mentioned prohibition, namely 8(b)(4)(C), extent making almost redundant.11 But rejected provision repetition prohibitions Brotherhood Electrical Workers, 501, A.F. 341 694, 71 954, 95 1299, Court, proscribed 8(b)(4)(A) 'induce encourage' contrasted language subsections labeled words 'restricted phrase' equated 'threat reprisal promise benefit.' Id., pages 701—703, 958—959. 10 sensitive area dealt isolated evils experience established flow clearest indication legislative supporting section, cannot sustain here. now turn examination history. 11 comprehensive leading up enactment practices subjected intensive inquiry both House Senate Committees. bill, brought floor Committee regulated organizational situations. Proposed 8(b)(4)(3), 8(b)(4)(C) law, primary 'another organization representative' his 8(b)(4)(2), 8(b)(4)(B), attempts through pressure. 12 five members Committee, including Senators Taft Ball, believed bill go far enough regulation purposes. introduced proposed amendment bill. originally phrased counterpart 8(a)(1) applicable employers; interfere with' well coerce 'interfere dropped debate, change, became report supplemental views announced Senators' intention propose identifies abuses reach. That states: 'The committee heard instances coercion threats families course organizing campaigns; direct interference mass violence. Some acts illegal State see reason why they constitute investigated violators protection furnished Act.' 50. Similar expressions pervaded debates amendment. note repeatedly sounded necessity protecting individual workers tactics tinged violence, duress reprisal. Senator Ball cited numerous examples drives characterized unorganized reprisals repressive assertions double initiation fees charged those delayed 93 Cong.Rec. 4016—4017. When Ives objected too broad, insisted application reach 'reprehensible' methods persuasion. He continued: 14 'Why able employee threaten violence he union? Why say employee, 'If you will work plant'? know things actually occurred. men threatened. There cases threatened wives. telephone sign cards. them, 'Sooner later going plant closed shop, out.' 4021. 15 true record references suggest broader 4023—4024.12 appear asides central theme curtailment peacefully 8(b)(4), elimination use bordering involving particularized plainest negating restrict persuasion, seen comments near close debate. said: 16 'It seems me clear long union-organizing drive propaganda, every legitimate purpose, way it. *' 4434. 17 effect pending call exactly employer, say, 'Here rules game. You must cease desist coercing restraining earning money entitled earn.' say. 'You them; put signs; form cannot, reprisal, exercising work.' As I it, amendment.' 4436. 18 says slow drives. accompanied coercion. 19 'Mr. President, nothing measure suggested Oregon, some strikes. anybody wanted strike. using way, conducting employing All restraint people wished Ibid. 20 approach sharp contrast view, strictly circumscribed. passed imposing drastic picket. 12(a)(1) specifically force, especially §§ 12(a)(2) 12(a)(3)(C) went beyond this. former outlawed 'an employer's premises believe dispute involved employer.' And latter banned (was) (i) collective (iii) violate law H.R. 3020, 47—49. Local' instant become law. conferees abandoned conference accepted proposal. H.R.Conf.Rep. 510 42.13 joined Conference Report 'the (without certification) prohibited.' 43. 22 what 1976, Carpenters Joiners America, A.F.L. 357 93, 99—100, 78 1011, 1016, 1186: relevant recall was, marked degree, result conflict compromise strong contending forces deeply role organized free life appropriate struck uncontrolled management respective interests. counsels wariness finding broad policy when, itself, interested just condemnation unable secure embodiment law.' Certainly due admonition apart caveat requires caution nonspecific, vague, words, intended sweep contends. 23 conclude finds support neither structured nor Rather clear, hold, regulate accomplish objectives (4); grant intimidation, thereof—conduct pressures implicit 24 own nearly decade gave application. See, e.g., Maritime 971, enforcement Cir., 175 686; 74, (Watson's Specialty Store), 533, 181 126, affirmed 707, 966, 1309; Perry Norvell 225; Miami Copper 92 322; Medford Building Construction Council (Kogap Lumber Industries), 96 165; 50, Mine (Tungsten Mining Corp.), 106 903. Norvell, supra, 239, declared: 25 'By sought fix game, insure peaceably persuasion physical Section, aiming means, ends.' 26 dismisses 'dubious precedent.' N.L.R.B., 246. think sounder present case. 27 confirmed our view passing 1959. goes legislate code governing draws distinction While proscribing situations, establishes activity. 8(b)(7)(C).14 Were contended disregard safeguards. establish meant 1947. major step evolving pattern conduct, consideration. Courts properly take into account asked extend earlier Act's vague limits read literally, permit. avoid incongruous interwoven sections complex mindful manifest fashion coherent national policy. Affirmed. Memorandum STEWART, whom FRANKRURTER WHITTAKER join. 30 At time writ certiorari clearly appeared 'important federal been, be, settled court.' Rule 19, Revised Rules Supreme States, Subsequently, 704(c) provision, 8(b)(7), bans purposes where: (A) recognizing concerning representation appropriately raised 9; (B) within preceding months valid election conducted; (C) unreasonable petition having filed. 277, 708, 5. 31 statutory squarely cover type remand reconsideration legislation, Solicitor General.1 7, provides: 'Employees self-organization, join, bargain collectively representatives choosing, requiring membership condition employment 8(a)(3).' 452, 61 140, U.S.C. 157, 157. provides part: agents— '(1) 141, 158(b)(1)(A), 158(b)(1)(A). permitted vote election. Cf. 9(c)(3), 702 73 542, 159(c)(3), permits certain circumstances. Accord: Teamsters, Chauffeurs, Warehousemen Helpers, 182, 272 85. Contra: Rubber, Cork, Linoleum Plastic 269 cert. reversed, 329, 759. New '(7) cause picketed, thereof forcing accept select representative, currently employees: '(A) accordance 9(c) '(B) twelve conducted, '(C) being filed reasonable exceed thirty days commencement picketing: Provided, forthwith, provisions 9(c)(1) absence showing substantial interest organization, certify results thereof: Provided further, subparagraph construed prohibit publicity truthfully advising public (including consumers) employ of, with, person employment, pick up, deliver transport goods perform services. 'Nothing paragraph (7) permit otherwise 8(b).' 544. General memorandum 21, case—Rubber 759—with reference several raising 'so-called issue,' injected 'additional considerations (which) may, Court's warrant of' serve purpose. suggestion 17, considered four sitting, examined position scope three decided this, stating '(C)ontrary dissenting colleague, and/or amplify proscriptions. 208, (Sierra Furniture Co.), 125 159, 162, n. 6. rely, fact picketed like held. agree 8(b)(1) confers limit reject representative. always even, carried brief 'merely demanding future acquired.' that, 'organizational,' different presented 8(b)(1)(A)—that function competing invoked, privileged 'a (§ 7) recognizes,' organizations. empowers circumstances, validity coverage challenged. Cox, Current Problems Law: An Appraisal, 35 L.R.R.M. 48, 53 57; Bornstein, Organizational Picketing Law, 46 Ky.L.J. 25; Isaacson, Picketing: What Law? Ought Law Changed? Buffalo L.R. 345. make distinction. herein, impede diminish right.' 151, 163, 163. Rice Milling 665, 961, 1277. 807 (Schultz Refrigerated Service, Inc.), 87 502. '(4) in, encourage refusal use, manufacture, process, transport, handle goods, articles, materials, commodities services, is: using, selling, handling, transporting, dealing products producer, processor, manufacturer, business person; (D) assign trade, craft, class class, failing conform certification determining performing work: contained subsection (b) enter (other employer), ratified approved required If whenever occurs, independent face Although situation, decide, placed primarily solicitude whose formally unrevoked 22; 44, U.S.Code Cong.Service p. 1135, 3838. inference. early debate Pepper urged need leaders controlled elections. denied represented seeking unwilling 'coerced them' 'close down' worked thereby depriving jobs. dockmen benefit themselves, leave members, union—clearly improper action, matter restrained Board.' 4023. Again, replying Pepper, months. observed, oercion members; employees.' 4024. states version covers 'all paragraphs 12(a).' 5, supra. single sentence footnote opinion, 279, 709, reflects kind mind, certainly stand thorough reexamination Board.CS SUP CT 80-57

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