Document: 434 U.S. 335 98 S.Ct. 651 54 L.Ed.2d 586 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.LOCAL UNION NO. 103, INTERNATIONAL ASSOCIATION OF BRIDGE, STRUCTURAL AND ORNAMENTAL IRON WORKERS, AFL-CIO et al. No. 76-719. Argued Oct. 31, 1977. Decided Jan. 17, 1978. Syllabus by the Court. An employer in construction business made an agreement with respondent union under § 8(f) of National Labor Relations Act, which provides that it shall not be unfair labor practice for unions and employers industry to enter into "prehire" agreements before majority status has been established. The contract contained no security clause requiring employees become members within a specified period time. After later undertook projects nonunion picketed those (one more than 30 days) signs stating was violating union, though did represent at jobsites had petitioned representation election. then filed charge Board alleging 8(b)(7)(C) makes uncertified picket purpose forcing recognize as bargaining representative his employees, days, unless petition election period. NLRB issued cease-and-desist order favor employer, concluding object picketing force bargain currently certified working employer. Court Appeals, denying enforcement NLRB's order, held validity prehire conferred right enforce well right, upon breach, file prevail on against failure bargain. Held : Respondent's recognitional purposes constituted 8(b)(7)(C). like respondent, does may provision engage effort Pp. 341-352. (a) Section 8(f), contains proviso bar 9(c), intended relieve party from obligation achieve support can require honor such means 8(a)(5), or accord would exempt prohibition 8(b)(7). therefore correctly when its could 8(b)(7) charge, because lacked credentials projects. Picketing tantamount infringed failed request days. 342-346. (b) Because adopted ensure voluntary, uncoerced selection representative, err holding applies minority union's contract. Nor position, is entitled considerable deference, render meaningless, since but neither execute without committing voluntary observance otherwise valid left unchallenged. Retail Clerks v. Lion Dry Goods, Inc., 369 82 541, 7 503; Building & Construction Trades Council Santa Barbara County (Sullivan Electric Co.), 146 N.L.R.B. 1086, distinguished. 346-352. 175 U.S.App.D.C. 259, 535 F.2d 87, reversed. Norton J. Come, Washington, D. C., petitioner. Sydney L. Berger, Evansville, Ind., respondents. Mr. Justice WHITE delivered opinion 1 Sections were added Act 1959.1 permitting socalled industry, attained prior execution agreement. Under 8(b)(7)(C), relevant unit commits if pickets "an object" "forcing organization employees" days 9(c). (Board) meaning representing extended employer.2 issue here whether this misapplication section, Appeals case.3 2 * Higdon Co. Local 103 International Association Bridge, Structural Ornamental Iron Workers, (hereinafter 103), history collective dating back 1968. A reached July 1973, obliging abide terms multiemployer understanding between Tri-State Workers Employers Association, Inc. No 103-Higdon At about same time, Contracting formed express pur ose carrying work labor. two subsequently undertaken Co., Kentucky Indiana, read: "Higdon Company violation Number 103." one jobsite persisted March 1974. never represented either site and, although free do so, determine wishes location. 3 On 6, 1974, Regional Director Board, Act. Administrative Law Judge found legally indistinct proceedings. In August 23, he concluded 103's constitute practice. entered lawful promised standard. obtaining compliance existing contract, rather obtain recognition initial matter. Only latter forbidden 4 agree Judge. Relying R. Smith decision,4 emphasized fact achieved status, thus binding For reason, simply even accepted finding only single involved. Board's view law evidence, Company, [Local 103], being Inc.'s 9(c) reasonable time . ." 5 sought review United States District Columbia Circuit. That court set aside three years previously.5 ruled carried picketing, well, breach occurs, This elevation nonmajority rights acceptable, court's view, second denies usual protection permits instance any during life 6 subsequent writ certiorari granted.6 We reverse. II It undisputed Higdon's onset picketing. asserting union. entitle treated represe tative until attains unit. Until voidable have stature collective-bargaining actually recognized Accordingly, holds, here, refuses honor, effectively attaining among consequently violative differ principally legal questions how construed what consequences other sections primarily §§ 8(a)(5) perhaps tenable one, acceptable reading statutory language implementation sections.7 8 Although face, apply where object, section literally applied. holds employer's refusal executed having 8(a)(5).8 Extended attempting seeks bargaining, 1086 (1964); Bay Counties Carpenters (Disney Roofing Material 154 1598, 1605 (1965). "to organization" should read encompassing separate unrelated terms, "intended proscribe target acceptance employees." Sullivan Electric, supra, 1087. 9 As present case demonstrates, however, rule protect pursuant chosen Neither will employee refusing complaining demonstrate 191 693 (1971). 10 position rooted generally prevailing policy purport act agent all such, voice 61 Stat. 140, 29 U.S.C. 157, guarantees collectively representatives their own choosing. 9(a), 159(a), appropriate must "designated selected 11 8(a)(1) (2) 8(b)(1)(A) interfere with, restrain, coerce exercise select representative. both commit practices they sign recognizing exclusive authorized i terest. "There clearer abridgment assuring 'to through choosing' refrain from' activity" grant "exclusive agency thereby impressing nonconsenting majority." Garment NLRB, 366 731, 737, 81 1603, 1607, 762 (1961). true believe good faith, mistakenly, obtained support. "To countenance excuse place permissibly careless hands power completely frustrate realization premise Act—that prohibitions go far assure freedom choice representatives." Id., 738-739, S.Ct., 1608. 12 exception rule. normally legitimated industry. nevertheless limited scope, protecting inquiry agreements. declares invalid absent "shall 9(e)." employees—and itself matter call 13 exposing standing elections led decision fails establish proceeding ever viewed "prehire merely preliminary step contemplates further action development full relationship." Ruttmann 701, 702 duty contingent various sites. InN.L.R.B. Irvin, 475 1265 (CA3 1973), example, deemed secured respect yet begun terminated 14 Applying context, agreement, challenge filing prevail, admittedly Absent these qualifications, relationship entitlement matured. equivalent agent, 15 Nothing forecloses application statute. making industries. But authorize expand uni n win covered 16 8(b)(7), which, along 1959, major implement Act's principal goals—to make agent. we Connell Plumbers Steamfitters Union 100, 421 616, 95 1830, 44 418 (1975), "[o]ne aims 1959 limit 'top down' organizing campaigns, used economic weapons regardless 632, 1840, references cited therein. use particular concern method coercion specific contexts: already another recently voted given chance vote question representation. circumstances thought impermissibly employees' choice.9 17 Congressional coerced designations agents evaporate focus turned industry.10 was, course, motivated awareness unique situation asserted jurisdiction over 1947, House Committee Report observed concepts evoked "developed reference industry." H.R. Rep. 741, 86th Cong., 1st Sess., 19 (1959), Leg.Hist. 777; U.S.Code Cong. Admin.News pp. 2424, 2442. There aspects peculiar building trades Congress apparently justified pre-hire employees: 18 "One reason necessary know costs estimate bid based. able available supply skilled craftsmen ready quick referral." Ibid. Senate also noted "[r]epresentation large segment are feasible due short periods actual employment employers." S.Rep. 187, 55 541-542; History 341-342, 2318, 2373. Privileging observe accommodate special greatly convenienced employers, sense portrayed expression organizational wishes. Hence demanded despite By token, cannot fault not, respondents claim, meaningless.11 Except nor practices. challenged contracts, normal course events. successfully support, 20 resolution conflicting claims represents defensible statute deference. Courts prefer different sections, "[t]he function striking balance effectuate national often difficult delicate responsibility, committed subject judicial review." Truck Drivers, 353 96, 77 643, 648, 676 (1957); Insurance Agents, 361 477, 499, 80 419, 432, 454 (1960). Of "recognition sphere administrative obviously exclude actions." say "[moved] new area regulation [has] it." American Ship 380 300, 318, 85 955, 967, 855 (1965), "unable find fair provisions relied [T]he role assumed [was] fundamentally inconsistent structure upon." explained, here. 21 suggests deserves little deference context (1971), decision, Oilfield Maintenance 142 1384 (1963). clear case, involved there status. received passing attention time; distinguished N.L.R.B., 701 n.5, decided day Smith, "primarily concerned" "the successor-employer disavow contracts predecessor five substitute union." event, executing proceedings, plainly adhered approach. Its contrary expressed occasion.12 disqualified changing mind; does, courts still sit approach de novo regard statutes. 22 argues repudiate renders practical unenforceable, assertedly Court's Assn. 503 (1962). There, 301 Management confers federal enterta suits majority-designated agents. category. speaking jurisdiction. consider suit suggest enforceable. Goods hold litigation just proceeding, showing majority's instrument, unenforceable. 23 said, (1964). Here, majority, privileges conclusion violated factually acceptable. 24 judgment 25 So ordered. 26 STEWART, whom BLACKMUN STEVENS join, dissenting. 27 employees.1 See Philamon Laboratories, 298 176, 179 (CA2). unlike whose established risking liability interfering union.2 Cf. Ladies 762. When choose nothing policies allows dismiss nullity. Yet precisely that. 28 Whether "same contract" ante, 341, orde , 693, enf. denied sub nom. Engineers 150 156 294, 480 1186, embodying correlative obligations parties. concedes lawfully adhere Thus immune pressure aimed encouraging so. Peaceful primary pursuit objectives, falls prohibition. Teamsters 639, 362 274, 282, 706, 710. believes applicable prohibits most picketing.3 contention compel supported interpretations it. "requiring employees.' " 1087 (quoting statute, emphasis opinion). interpreted prohibit "picketing (Emphasis supplied.) 31 However signed. strained interpretation said gaining "initial acceptance" recognition.4 And tortured patently 163, "is command resolve doubts ambiguities safeguards strike understood passage Taft-Hartley Act." 711. 32 Since I think rendered illegal peaceful protesting unilateral total affirm Appeals. 73 544, 158(b)(7), provides: "It cause picketed, threaten thereof accept rep esentative "(A) accordance concerning appropriately raised "(B) preceding twelve months conducted, "(C) conducted title exceed thirty commencement picketing: Provided, forthwith, 9(c)(1) absence substantial interest part organization, direct finds certify results thereof: Provided further, subparagraph (C) publicity truthfully advising public (including consumers) employ of, effect induce individual employed person employment, pick up, deliver transport goods perform services. "Nothing paragraph (7) permit 8(b)." 545, 158(f), subsections engaged covering (or who, engaged) (not established, maintained, assisted defined 8(a) practice) (1) agreements, requires condition membership after seventh following beginning effective date whichever later, (3) notify opportunities gives opportunity refer qualified applicants (4) specifies minimum training experience qualifications priority based length service geographical area: subsection final (a)(3) Act: invalid, subsection, (Higdon 216 45 (1975). 87 (1976). 1186 (1973). supra. 429 1089, 97 1097, 51 534 (1977). appear, flows representa- tive attempt treat Determining objects, recurring Board. mixed factual survives review. type activity frequently violate ostensibly incorporated employers. Even cases expressly disavows intent, uniform proposed "net effect" establishing "as negotiator wage rates benefits." Centralia 124 212, 214, 363 699, (1966). "The informing indicates similarly implies bargaining." 906, 204 138, 139 Hence, standards, assured notice "while expect you wages, hours, benefits forth documents, seek your firm," Hotel Restaurant Employees (Holiday Inns America, Inc.), 169 683, 684 (1968). upheld inferences. "Though legend ['Non-Union Conditions'] protest restaurant's conditions, conclude message least desire alter non-union recognition. countervailing recognitional." San Francisco Joint 163 234, 239, 501 794, 799 (1974). 745, 450 1255 (CA9 1971), Local's contacted Contracting's general manager, asking "if 'we' going people job." manager answered negative; replied, "I'll get it," materialized. announced 103. inference certainly sustainable wished terms. correct interaction settled precedent required law, Hyde, 339 568, 571-573 1965). carries presumption obtains. Dayton Motels, 192 674, 678 remanded, 474 328 (CA6 enf'd, 525 476 1976). proposals administration bill regulate so continuous line." 105 Cong.Rec. 1731 (1959) (remarks Sen. Dirksen), Legislative Labor-Management Reporting Disclosure p. 994 (hereinafter, Leg.Hist.). Department Labor's explanatory statement grouped together ways exerted, practice, mandatory injunction, .." 1281 977. President's transmittal letter stated: "I recommend legislation [t]o designate last months, demonstrated sufficient continued desires determined election; provide speedy measures." S.Doc. 10, 2-3 81-82 (emphasis added). careful intention arrived voluntarily, element admitted narrow p inciple. Representative Barden, important Floor leader conferee, introduced legislative intent Senator Kennedy's explanation year nature provision: "Mr. Kennedy: answer Florida follows—and my intention, answering, question: committee 604(a) but, rather, them; strike, picket, agreements." 18128 1715. Conference stressed "[n]othing force, coercion, strikes, H.R.Rep. 1147, 42 946, 2514. comparable obtains hot-cargo clauses, permitted 8(e) 158(e), enforced Before enactment proviso, secondary boycott 8(b)(4)(A), 136, work. 357 93, 78 1011, (1958). adoption 8(e), remained exempted ban conduct 8(b)(4). Northeastern Indiana Council, 148 854 (1964), remanded grounds, 122 220, 352 696 f. Enterprise Pipefitters, 507, 891, (1977) (valid preservation privilege picketing). implication rebuttable fact, existed. One-time coupled enforced, rise view. 695. 158(a)(5), refuse 159(a) title." pertinent "[r]epresentatives designated purposes, part: 159 159(c) rely employers" Ante, 342 n. 7. See, e. g., 138; Inc.) 683. none pre-existing

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