Document: 473 U.S. 61 105 S.Ct. 3045 87 L.Ed.2d 47 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.INTERNATIONAL LONGSHOREMEN'S ASSOCIATION, AFL-CIO, et al. No. 84-861. Argued April 23, 1985. Decided June 27, Syllabus The Rules on Containers (Rules) require that some cargo containers owned or leased by marine shipping companies otherwise would be loaded unloaded within the local port area (defined as anywhere a 50-mile radius of port) instead must longshoremen at pier. These were collectively bargained for respondent union after advent "containerization" had drastically reduced amount longshoremen's on-pier work involved in handling. In this case, National Labor Relations Board (Board) held constituted unlawful secondary activity under §§ 8(b)(4)(B) and 8(e) Act when applied to destined "shortstopping" truckers (truckers who stop vicinity pier load unload reasons related trucking requirements) "traditional" warehousers (warehousers perform loading unloading warehouse unrelated transportation). reasoned because Rules, so applied, sought preserve been "eliminated" containerization, "an illegal acquisition objective." Court Appeals refused enforce Board's decision, holding failed make any factual finding actually operated deprive work, that, matter law, an agreement preserves duplicative technologically does not constitute "work acquisition." Held: partial invalidation contexts question is inconsistent with Woodwork Manufacturers Assn. v. NLRB, 386 612, 1250, 18 357, NLRB Longshoremen, 447 490, 100 2305, 65 289 (ILA I ). Pp. 73-84. (a) Woodwork, supra, concluded intended Congress "reach only pressures," agreements negotiated objective preserving face threat members' jobs are lawful primary activity. conclusions reaffirmed Pipefitters, 429 507, 97 891, 51 1, ILA I, supra. 74-78. (b) By focusing effect might have warehousers, contravened Court's direction n. 22, S.Ct., 2315, such extra-unit effects, "no how severe," "irrelevant" analysis. Given Rules' jobs, effects preservation alone provide insufficient basis concluding has objective. 78-79. (c) misconstrued cases suggesting "eliminated work" can never object agreement. "Elimination" sense it made unnecessary innovation itself reason condemn 8(e); contrary, elimination provides very premise agreements. relevant inquiry whether union's secondary, no talismanic tests may substitute When its enforcement clearly one here, lawfulness secure, absent other evidence purpose. 80-82. agreement, nothing record case suggests conclusion their rather than primary, P. 84. 734 F.2d 966 (CA4 1984), affirmed. Norton Jay Come, Washington, D.C., petitioner. James Alan Lips, Cincinnati, Ohio, respondents, American Trucking Associations, al., support Donato Caruso, New York City, Shipping Ass'n, Ernest L. Mathews, Jr., Intern. Longshoremen's Justice BRENNAN delivered opinion Court. 1 bargained-for guidelines requiring allow large they own lease (1980) ), we reviewed Act, amended, 29 U.S.C. 158(b)(4)(B) 158(e). Respondent union, International Association (ILA), defended preservation" doctrine 357 (1967). We ruled, however, preliminary definition dispute legally erroneous, focused off-pier nonlongshoremen preserved. U.S., 507-508, 2315-2316. therefore affirmed Appeals' remand Board, directing "focus bargaining unit employees, employees doing same similar work." Id., 2315. then sustained but against unlawful. 266 N.L.R.B. 230 (1983). now presented these two consistent I. 2 * At issue response unionized dockworkers technological known "containerization." Traditionally, employed steamship stevedoring into out oceangoing vessels Cargo arriving truck was "transferred piece from truck's tailgate ship longshoremen. . checked cargo, sorted it, placed pallets moved forklift side ship, lifted means sling hook ship's hold. process reversed taken off incoming ships." 495, 2309. As explained detail containerization 25 years ago profoundly transformed traditional pattern, reducing cost ocean transport "largely eliminat[ing] need handling intermediate stages." 509, 2316.1 3 It thus unsurprising "the reduced" since inception "hotly disputed topic collective bargaining" between companies. 495-496, evolutionary product ILA's efforts began introduction first container Port 1957.2 4 do all Instead, apply area, defined convenience port. Rule 1(a).3 directly coming going points beyond affected Rules. 2. Even go owner "bona fide" warehouses exempted 1(a)(2) (3), 2(B)(4).4 To ensure compliance, fine $1,000 levied company each allows handled violation 7(c). noted I: "The practical 80% pass over piers intact. remaining 20% [loaded unloaded] longshoremen, regardless duplicates done non-ILA off-pier." 499, 2311. 5 Although accepted various compromises represent, three groups employers unhappy Freight consolidators, truckers, also containers. consolidators business arranging small loads facilities, where consolidator combine parties pack full containers, which Consolidators receive packed several parties' disperse respective owners. 6 Unlike many whose businesses founded always performed work. For example, prior interstate pick up pier, drive short distance central facility, reload meet weight, safety, delivery requirements. Such reloading near still sometimes occurs, even if picked practice stopping requirements "shortstopping." Similarly, stored transportation; necessary though shipped containers.5 7 All facts before did find them required found erred law defining "work" controversy, remanded further proceedings. 512-513, 2317-2318. Nine involving charges unfair labor practices filed consolidated sent Administrative Law Judge (ALJ) factfinding disposition.6 charging claimed generally § 8(e),7 resulted dealing certain employers, constitutes boycotting 8(b)(4)(B).8 8 detailed opinion, ALJ valid He "historic jurisdiction" "includes connection ships, including steps receipt, storage, sorting, checking, palletizing, repair, carpentry, maintenance delivery." N.L.R.B., 247. rejected argument changed character transportation industry simply disappeared.9 Noting "narrowly tailored" "[n]o sought," id., 251, merely restore traditionally ILA." 252. With regard alleged nature clear work-preserving motivation shown: "On record, there little represented accommodate inroads caused fails disclose significant interest relations [off-pier] boycotted Rules." 248-249.10 9 end his there, however. despite invalid reserving nonlongshore "created" containerization. "to extent seek compensate losses expense inland derive proscribed 'work acquisition' attach." Ibid. although "skills utilized indistinct those deep sea longshoremen," shortstoppers "assumed different purpose" longshore "preexisted" 256. declared took impermissible contexts, cases.11 10 adopted ALJ's findings conclusions, stating overall negotiating Rules," functionally longshoremen." 236, 237. general matter. agreed "as applied," modifying views respects. 11 First, provided dispute," explicitly. 236. Second, "findings revealed analysis "appear[ed] conflict" focus laborers. 236-237. 12 "By economic warehousing historically [ALJ's] give undue emphasis fact created containerization." 13 Nevertheless, 'shortstopping' 'traditional' practices." unnecessarily duplicate warehousers. Because terminals without necessity removed, while facilities. Thus, concluded, longer exists step process" "essentially eliminated" contexts. objective" applied. 14 Fourth Circuit validation crucial dual findings—that "right control" bona fide objective—were supported substantial evidence. Assns., Inc. 966, 977-978 (1984). reasons, decision 15 acquisition," operate 979. approved collective-bargaining "protection members diminution flowing changes technology." 648, 1270 (Harlan, J., concurring). both purpose underlies Containers. "in way prevent identical work," economically inefficient, "it our function court review weigh F.2d, entirety enforced." 980. 16 number Circuit's granted petition certiorari, 469 1188, 955, 83 962 (1985), thereby limiting unlawfulness II A. 17 labored past determine Congress' will expressed 8(e)—this requires new development. light findings, believe violate provisions flows course I.12 reviewing legislative judicial history, "Congress meant reach pressures." 638, 1265; accord, Houston Contractors 664, 668, 1278, 1281, 389 (1967).13 regard, prohibitory scope broader 8(b)(4)(B). 635, 1263, 1265. close "loophole" laws allowed unions employ "hot cargo" pressure neutral handle non-union goods. 634-637, 1262-1264; see Carpenters 93, 78 1011, 1186 (1958) (Sand Door However, enacting thought prohibiting directed preservation." 640, 1266.14 "are used sword" achieve objectives, "a shield carried solely jobs." 630, 1260-1261. prohibit activity, stated evaluating claims 19 "whether, surrounding circumstances, Union's [the employer's] boycott tactically calculated satisfy objectives elsewhere. touchstone addressed contracting employer vis employees." 644-645, 1268-1269. 20 expressly engaged monopolize acquire job tasks threatened. ." 630-631, 1260-1261 (emphasis added).15 21 tests": goal, test (1977), satisfied. 504, 2313.16 initial dispute" "off-pier" unloading. 506, 2314. significantly change industry, address "typically come being employees' displaced." 505, Consequently, place often lies heart seldom itself. See 506-507, 2314-2315.17 erroneous ignored tailored essence patterns," 510, 24, 2316, "foreclosed—by definition—any possibility could negotiate permit continue play part containerized cargo." 508, 22 designed "accommodate change" type nevertheless agreements; block progress refusing use technology order avoid prohibitions 8(e). satisfaction goals elsewhere," analytical "on employment opportunities severe, irrelevant long forbidden purpose." 22.18 23 proceeded premise, remanded. examine "how possible, of" evaluate relationship attempt assign members." 2316. If, remand, effort " 'tactically elsewhere,' valid. 511, 2317, quoting 644, 1268. "[T]he represent most rational efficient innovation, permissible 2317. B 24 accept evidence, Universal Camera Corp. 340 474, 71 456, 95 L.Ed. 456 (1951), mindful rule construction due deference. See, e.g., Beth Israel Hospital 437 483, 500-501, 98 2463, 2473-2474, 57 370 (1978); Erie Resistor Corp., 373 221, 1139, 1149, 308 (1963). basic statutory conclusions: protected goals. Now fully developed regarding whether, consistently cases. view, committed fundamental errors. 22. "So disrupt employer, ibid., "incidental activity." 526, 902. Here ALJ, motivated entirely understandable desire steadily dwindling volume" 978. Absent additional showing jobs," 1261, is, proof "not preserve, aggrandize," 528-530, 16, 902-904, lawful.19 26 Technological design eliminate aspect industry's strove carpentry hand jobsite, off-site machining techniques eliminated much Yet carpenters less threatened, nor contractor decided subcontract cutting fitting doors nonunion workers. Cf. Fibreboard 379 203, 209, 85 398, 402, 233 (1964). participants industry—longshoremen, alike.20 27 forgotten secondary—that affecting wages, hours, working conditions control, or, instead, "tactically calculated" outside employer-employee relationship. 1268-1269; 528-529, 902-903, 16. linguistic formulae evidentiary mechanisms describe primary/secondary distinction Railroad Trainmen Jacksonville Terminal Co., 394 369, 386-390, 89 1109, 1119-1122, 344 (1969). inferential fact-based one, times drawing lines "more nice obvious." Electrical Workers 366 667, 674, 81 1285, 1290, 592 (1961); 531, 905 ("commonsense inference"). sole "any class 249. Furthermore, noted, avowed "seeks claim employees" inferred. 980.21 preservation, secure 28 sum, correctly identified unit, fell trap. power control assignment 2313. facts, precedents concededly difficult area. C argued "utterly useless" "nothing invidious form 'featherbedding' implementation modern progress." 526-527, 2324-2325 (BURGER, C.J., dissenting). Similar arguments repeated today, post, 89-90, well. Our ago: "Those wrong branch government." Ibid.22 Harlan wrote separately underscore reasoning point: meant, kind labor-management arrangement forestall possible adverse upon workers arising changing technology. 30 31 "[B]oth sides today's division agree especially careful eschew resolution according ideas what done. 32 33 "In view commitment matters vital importance management through process, recognition legitimate weapon unfortunate attribute Congress, opaque outlaw conduct Especially time continuing explore methods meeting problems increasingly age scientific advances, should take until unmistakably wishes wholly exclude avenue approach solutions elusive economy." 648-650, 1270-1271. 34 altered decided, offered original intent. meantime, alike relied guide bargaining. circumstances follow normal presumption stare decisis interpretation. Illinois Brick Co. Illinois, 431 720, 736-737, 2061, 2069-2070, 52 707 (1977); Edelman Jordan, 415 651, 671, 94 1347, 1359, 39 662 (1974). III 35 Under Containers, given "container revolution" secured position industry. "collective discussions backed weapons result decisions better society whole." First Maintenance 452 666, 678, 101 2573, 2580, 69 318 (1981). compromise volatile problem bearing well-being national economy. concur Nothing supports judgment below 36 Affirmed. 37 REHNQUIST, whom THE CHIEF JUSTICE O'CONNOR join, dissenting. 38 surprising neither body contains text called consider. Nor set opinions. help conclude sections. stringing together series highly questionable propositions arrived contrary result. my intend activities sanctioned Act. entered shipowners begin proclaiming intent "preserve jurisdiction crafts. They move define classes "shall discharged waterfront facility deepsea labor." Among described 1(a)(3)—"[c]ontainers designated single consignee (deconsolidated) employees," takes 50 miles warehoused more days. If labor. 40 sets forth sanctions imposed entity violating Each passes pays "liquidated damages"; addition, 7(d) states cease "[a]ny Container 41 well illustrated application "shortstopping"—one respect acquisitive. Prior breakbulk trucks transport. Despite already stopped nearby terminals, again carefully reloaded gross weight distribution carrying. This "shortstopping," quite needs trucking, shipping, business. 42 After hold chassis. "shortstopped" before. What Rules—in 1(a)(3)—do completely unnecessary. subsequently shortstopped, once twice. principal advantage containerization—that pier—is lost. And shortstop ILA, subject sanctions, refusal shippers supply 43 Section 8(b) provides, pertinent part: 44 "It shall organization agents— 45 46 "(4)(ii) threaten, coerce, restrain person commerce either thereof is— 48 "(B) forcing using, selling, handling, transporting, products producer, processor, manufacturer, Provided, [t]hat contained clause (B) construed unlawful, strike picketing. 49 similarly states: enter contract express implied, whereby ceases refrains agrees refrain transporting person, heretofore hereafter containing unenforceable void. evident plain language "agreement" "whereby [the] person. That import 7(d). doubted here transgressed seeking coercing providing entities language, think actions exception "primary strikes picketing." Finally, fairly obvious why unions. restrictions free exercise considerable power, concerted action, manipulate allocation resources economy—even point name literally halt advance. One ask, then, preclude here. simple process. Beginning (1967), understanding picketing" indicated "secondary activity" section. Then, relying ambiguous history 8(e), section "secondary" Admittedly, least statute, usefulness recognizes, ante, 81, perhaps gauziest legal concepts. But assuming extend kinds "primary," concession "primary" statutes prohibit. 53 reached preservation/work reaches today. refined Court, appears particular "threatened," considered subjective conducts "control" jobs; 78, applying test, told look 'all circumstances,' 75 (quoting others. almost breath, error "focusing warehousers," "extra-unit effects" 'irrelevant' analysis." Ante, 79 54 directives appear contradictory, seem indeed acquisitive" focusing, degree, acquired. today ultimately resolves establishing subjectively done, cannot accurately separates resulting comports 55 intent, note forthrightly admits change. previously, "preserving" duplication, pay use. Indeed, upholding indication "acquired" shortstopped event terminal. 979 dissent upshot allowing render difficult, artificially raising costs system, stifle hard enacted statute terms prohibited sanction make-work. 56 answer objections care raised issue. true established tool resolving disputes. private ordering sufficient alleviate laws. comprehensive legislation "establishment industrial peace flow commerce." 2578, Obviously, underlying resolved sections targeted restraints trade antitrust laws, means. 656-657, 1274-1275 (Stewart, A decent battle joined me dubious correctness indicates expand try covered Woodwork. read slavish literalism, "agreements" entail employer's proscribe. concede NLRA. faced loss cut members. difference third party retain jobs. Through influence issues conditions, "neutral" participate markets. context change, put ever begins. concerned. 58 not, course, capable precise application. classic exerts A, really present case. direct contact shipowners. influencing employers. Moreover, formulation 59 There occurred regularly ships trucks. awaiting ultimate distribution. discussed entire truckloads twice once. labor; insight recognize, therefore, natural tendency bring greatest once, trucker compete exempt along customers. 60 scenario convinces usual warehousemen; refusals deal, fines concerning employee take. 'unoffending employers' mulcted 'not own.' 626-627, 1258-1259 Denver Bldg. Trades Council, 341 675, 692, 943, 953, 1284 (1951) pressures protect against. standpoint acquisitive; however pure motives likely receives warehousemen lose it. secondary—and acquisitive—in us structured warehousing. purposes suggestion introduced them. follow, entitled unload. 1(a)(3) right port, indicate applies shortstopping short-term warehousemen, "consolidators." Of these, task secondary. Failing, whatever reason, altogether, recognizing portion apparently looked around enough own. warehousemen. 1(a)(3), specifically intentionally 62 avoids pretending "findings" 81-82. deference cites. "ILA 230, 236 (1983), rationales articulated differently, bodies expressing sentiments above—both obtain engages shell game—it hides forces attention limited employer. broadly larger scene, manages turn shells representing preservation. latest refinement moves reverse Circuit. metal boxes fit adjustment holds special onto chassis railroad cars. "Because repacked dock, vessel, vessel dock rail destination, greatly reduced. Expenses separate export packaging, pilferage breakage, insurance processing documents decreased. Perhaps significantly, fraction conventional ship. result, unprofitable in-port reduced, smaller needed carry volume 494-495, 2308-2309, (1980). characterized "one resistence [sic]" outset. 244 1959 Association, multiemployer group York, reserved discharging Port." Discontent continued, increasing 1969, lengthiest substantially current negotiated. recognized compromise, about total York. next five marked slowdowns stoppages amended increase enforceability. substantively printed Appendix 513-522, 2318-2322. Council North Atlantic encompassing major ports Gulf coasts. Longshoremen west coast Warehousemen's Union. controversial well, Ross, Waterfront Lab. Response Change: Tale Two Unions, L.J. 397 (1970), description "50 Columbus Circle" resolve early container-related grievances 245, 24. port." 235. deemed remain storage days more. 2(B)(4). 30-day rule, like represents patterns; distinguishes traditional, precontainerization functions "warehouses 'drop points' [container unloading] immediately trucks." 257. found, terminal warehouses, "diverted" warehouses. distinguish long-term public warehouse." mail, household relocating residence, container, personal military personnel." 2(A)(4) (B)(4). with, ongoing manufacturer's goods notice customers based future orders company's purchased inventory foreign facilities demand required." vacated (Dolphin Forwarding), 525 (1978) (consolidators), (Associated Transport), 231 351 (1977) (truckers), enf. denied, 613 890 (CADC 1979), remanded, 727, 728 Three Courts (Consolidated Express), 221 956 (1975) enf'd, 537 706 (CA2 1976), cert. 1041, 740, 753, 602 494 (CA3 448 902, 3040, 1131 (1980), 641 90 1981); (Beck Arabia), 245 1325 (1979) (remanded CA4) (warehousers); (Puerto Rico Marine Management), 1320 CA5) (consolidators). reconsider (Terminal Corp.), 250 (warehousers), add pending complaints, (Hill Creek Farms), Nos. 4-CC-1133 4-CE-55 (Custom Brokers), 12-CE-30 ninth added General Counsel issued complaint. (American Trucking), 22-CC-806, 807, 808, 809, 810 22-CE-44, 45, 46, 47, (truckers). 975, 1984); 232. unenforcible [sic] "(4) (ii) Provided: 158(b)(4)(B). Some cessations fined "shortstoppers" 500-502, 2311-2312. Others taking ports. 267-268. Thus somewhat attenuated themselves. silent "lost" compliance "containerization worked formerly motor carriers eliminated." 510-511, 2316-2317. commenting merits appropriate consideration courts." On someone "[t]here inseparable integration 251 original). (1) "abandoned" 260; (2) themselves, 261; (3) companies' ruling Federal Maritime Commission (which District Columbia Circuit, Assns. FMC, 223 U.S.App.D.C. 323, 690 1060 (1982)). 266-267. Associated Transport ("shortstopping"); (warehousing); Beck Arabia (warehousing). 268, 269-270. Unfair Custom Brokers organize 270-271. challenged appeal, 976, 7, violations us. freight "pursuant reallocation off[-pier] virtually development 254. consequently consolidators. consolidators' dismissed, warehouser, Hill Farms, 268-269. assessment precedents, criticisms largely 88-90. rationale precedent implicated Pipefitters "does union." 894-895. unanimously companies, virtue ownership leasing 978; 234, 260-267. satisfied extended back Clayton 1914, Stat. 738, Duplex Printing Press Deering, 254 443, 172, 349 (1921), Bedford Cut Stone Cutters, 274 37, 522, 916 (1927), immunized "directed 621, 1256. determined Taft-Hartley 1947, 136, Landrum-Griffin Amendments 1959, 73 519, respectively, maintain 620-638, 1255-1265. Today's cites contrary. 88; 90-91 (§ literally, "because 'agreements' effects"). Specifically carpenters' prefabricated doors. installed blank will-not-handle machine eight minutes finish door on-site installation few minutes, carpenter jobsite hour Brief Petitioners O.T. 1966, 110, p. 5, 4. suppliers doors, unlawfully cancel suppliers. upheld enforcement, 645-646, (the absence jobs) distinguished boycotts Allen Bradley Workers, 325 797, 1533, 1939 (1945), congressional sponsors Bradley, City electrical contractors equipment manufactured city, benefits" manufacturers. 628-629, 1259-1260; 799-800, 1535-1536. "was pursuance relating pressuring conditions; involved. 629, 1260 sense, purely acquisitive, indicating 902-903 (condemning attempts aggrandize" position); Lesnick, Job Security Secondary Boycotts: Reach NLRA 8(b)(4) 113 U.Pa.L.Rev. 1000, 1017-1018 (1965). premises noting satisfied, normally engage one's "for comply another employer." 894. 12, steamfitters install factory-installed piping specified contractor, unit's subcontractor job, equipment. specifications 511-513, 528-531, 894-895, 902-905. containers." Rules—"the having ILA," 236—the complex describes controversy opposed Retail Store Employees, 607, 614, 2372, 2377, 377 ("As picketing discourages consumption struck product, incidental injury consequence effective boycott"); Operating Engineers, 400 297, 303-304, 91 406-407, 398 (1971) ("primary seriously affect parties" "[s]ome disruption relationships purest activity"). Amicus AFL-CIO acquisition" distorts "virtually defies principled situation advances performed." Federation Industrial Organizations Curiae 2-3. acknowledge dichotomy susceptible wooden application, prepared abandon "acquisition" concept originated [union members'] threatened." added); 15, An genuine threat, "acquisitive" displacing elsewhere all. 894, demonstrate, reserves preservation/acquisition dichotomy, firmly mind, serve useful aiding "jobs 255 ("With [truck] drivers helpers lost themselves truckloading operations pierside. stations carriers, FSL road consignees, interlining ."). disagreement among factfinders "functional equivalent" Northeast Caputo, 432 249, 270, 2348, 2360, 320 237, separable aspects 234. "antifeatherbedding" provision. 8(b)(6) makes cause money services 158(b)(6). provision "narrow prohibition," Scofield 423, 434, 1154, 1160, 385 (1969), payment offered, viewed inefficient. Gamble Enterprises, Inc., 345 117, 123-124, 560, 563, 864 (1953); Newspaper Publishers 100, 104-106, 552, 554-555, 852 93 Cong.Rec. 6441 (1947) (remarks Sen. Taft) board say men right, too many"). actual "featherbedding" seen "If wants let bargain. presently drawn it." Scofield, 1160.

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