Document: 366 U.S. 667 81 S.Ct. 1285 6 L.Ed.2d 592 LOCAL 761, INTERNATIONAL UNION OF ELECTRICAL, RADIO AND MACHINE WORKERS, AFL-CIO, Petitioner,v.NATIONAL LABOR RELATIONS BOARD et al. No. 321. Argued April 17, 18, 1961. Decided May 29, Mr. Benjamin C. Sigal, Washington, D.C., for petitioner. Norton J. Come, respondent, National Labor Relations Board. Gerard D. Reilly, General Electric Co. Justice FRANKFURTER delivered the opinion of Court. 1 Local 761 International Union Electrical, Radio and Machine Workers, was charged with a violation § 8(b)(4)(A) Act, as amended by Taft-Hartley 61 Stat. 136, 141, 29 U.S.C.A. 158(b)(4)(A), upon following facts. 2 Corporation operates plant outside Louisville, Kentucky, where it manufactures washers, dryers, other electrical household appliances. The square-shaped, thousand-acre, unfenced is known Appliance Park. A large drainage ditch makes ingress egress impossible except over five roadways across culverts, designated gates. 3 Since 1954, sought to confine employees independent contractors, described hereafter, who work on premises Park, use Gate 3—A its them. undisputed reason doing so insulate from frequent labor disputes in which contractors were involved. 550 feet away nearest entrance available employees, suppliers, deliverymen. Although anyone can pass gate without challenge,1 roadway leads guardhouse identification must be presented. Vehicle stickers various shapes colors enable guard check sight whether vehicle authorized 3—A. January 1958, prominent sign has been posted at states: 'Gate For Employees Of Contractors Only G.E. Use Other Gates.' On rare occasions, appears, employee allowed guardhouse, but such occurrence company instructions. There no proof any unauthorized attempts during strike question. 4 are utilized great variety tasks Park premises. Some do construction new buildings; some install repair ventilating heating equipment; engage retooling rearranging operations necessary manufacture models; others 'general maintenance work.' These services contracted employers either because company's lack skill or manpower, done more economically contractors. latter determined contracting Central Maintenance department bid competitively While these had occasion previously performed Maintenance, findings not disclose number performing routine services, compared those specialized capital-improvemet nature. 5 Union, petitioner here, certified bargaining representative production workers constitute approximately 7,600 10, 500 July 27, called 24 unsettled grievances company. Picketing occurred all gates, including 3—A, continued until August 9 when an injunction issued Federal District signs carried pickets gates read: 'Local Strike Unfair.' Because picketing, almost refused enter Neither legality picketing nor peaceful nature dispute. sole claim that before exclusively used conduct proscribed 8(b)(4)(A). 7 Trial Examiner recommended Board dismiss complaint. He concluded limitations prescribed so-called 'common situs' cases applicable situation him, represented traditional primary action necessarily secondary effect inconveniencing did business struck employer. reasoned if employer could limit area around his own constructing separate device also isolate suppliers customers, relevantly distinguished oral appeals made cross picket line only single existed. 8 rejected Examiner's conclusion, 123 N.L.R.B. 1547. It held that, since Union's object there 'to enmesh neutral dispute Company,' thereby constituting encouraged concerted refusal 'with forcing cease Company.'2 Court Appeals Columbia granted enforcement Board's order, 107 U.S.App.D.C. 402, 278 F.2d 282. noting fine being drawn, correct finding objective encourage independent-contractor perform their order bring pressure Electric. incidence problem involved this case extensive treatment received calls clarification, we brought 364 869, 114, 92. I. 10 Section Act provides shall unfair practice organization 11 '* * in, induce course employment use, manufacture, process, transport, otherwise handle goods, articles, materials, commodities thereof is: (A) requiring . person anyo ther *.' 12 This provision literally construed; would han most strikes historically considered lawful, activity. 'While s 8(b)(4) does expressly mention 'primary' 'secondary' disputes, boycotts, section often referred Act's legislative history one 'secondary boycott sections." v. Denver Building & Const. Trades Council, 341 675, 686, 71 943, 950, 95 L.Ed. 1284. 'Congress seek 8(b)(4), interfere ordinary Rice Milling Co., 665, 672, 961, 965, 1277. impact directed toward what whose 'sanctions bear, alone party dispute, third concern it.' Brotherhood Electrical 501 Board, Cir., 181 34, 37. Thus 'left striking free persuasion, numerous others. Among customers persons dealing them even long 'induce engage, employment' 294, Teamsters, 284 887, 889. 13 But boycotts outlawed 'The speak generally boycotts. describes condemns specific union idrected objectives. induced; they induced refusal; force require another person. Thus, much might argumentatively found fall within broad somewhat vague concept terms prohibited.' 1976, United Carpenters Joiners America, A.F.L. 357 93, 98, 78 1011, 1015, 1186. See (Wadsworth Co.), 802, 805. 14 Important distinction between legitimate 'primary activity' banned activity,' present glaringly bright line. objectives include desire influence withholding trade. Sailors' Pacific (Moore Dry Dock), 92 547. '(I)ntended not, aimed take sympathetic strikers put employers.' Seafarers etc. 105 211, 265 585, 590. 'It clear whom hopes, intend, will honor hope encompasses may (deliverymen like) have premises.' Id., page 591. 'Almost situs surely secondary, hopes achieve forbidden objective, whatever motives however small chances success.' supra, 890. induces respect equivalent inducing against him refuse deal supra. 15 However difficult drawing lines nice than obvious, statute compels task. Accordingly, courts attempted devise reasonable criteria heavily means resorts promoting cause. '(n)o rigid rule make (a) few factors conclusive contained deducible statute,' Sales Drivers, 97 173, 229 514, 517,3 '(I)n absence admissions illegal intent, acts shows intent.' etc., 16 problem, revealed unfolding variant situations, inevitably involves evolutionary process rational response, quick, definitive formula comprehensive answer. And so, surprising less felt way fourteen years apply 8(b)(4)(A), modified reformed standards basis accumulating experience. 'One purposes lead creation boards decisions based evidential facts under particular experienced officials adequate appreciation complexities subject entrusted administration.' Republic Aviation Corp. 324 793, 800, 65 982, 986, 89 1372. II. 17 early amendments activity took place employer's example, Wadsworth set up builder purchase prefabricated houses Printing Specialties (Sealbright Pacific), 82 271. In contrast, employer, regarded valid Oil Workers (Pure 84 315, Pure Standard's dock loading oil onto ships. companies Standard, oil. Standard picketed dock, activity, although union's products dock. fact confined vicinity influenced find effect. 18 'A strike, very nature, inconveniences customarily Moreover, accompanying designed follow, however, therefore Act.' N.L.R.B., 318. 19 Newspaper Mail Deliverers' (Interborough News 90 2135; Teamsters (Di Giorgio Wine 87 720; (Rice 360. 20 (Ryan Construction Corp.), 85 417, Ryan building adjacent Bucyrus inside fence. u t through fence Ryan's ever used. union—on Bucyrus—could gate, though enlist aid Congress intend outlaw picketing. 21 'When wholly engaged cannot though, virtually always case, dissuade entering reasons. difference 100 wish follows premises, support Bucyrus, lose character become regularly gate.' 418. (Crump, Inc.), 112 311. 22 eliminated employer—regardless special circumstances involved—from invalid 23 However, situations conscious complexity proten forms appeared. became cases—situations two common Moore Dock laid out area. There, ship, owned trained outfitted. constituted place; furthermore, employer—the owner—than cases. concluded, 'ambulatory' balance right interest four presumptive activity: (1) limited times located (2) normal situs, (3) reasonably close (4) clearly tests widely accepted reviewing federal courts. See, e.g., Service Trade Chauffeurs, 191 65; Piezonki 219 879; 212 216; 55, 218 226. As too law or, least, adjudications, soon mechanically applied taken failure designate violative Superior Derrick 273 891; Truck Drivers Helpers 728, 101 420, 249 512; 228 791.4 55 (PBM), 108 363, first time test, insurance tract land developing, served general contractor. subcontractor site. union, company, entire characterizing job unfair, walked off. Tenth Circuit enforced ground measure standard only. 25 application explicit Retail Fruit Vegetable Clerks (Crystal Palace Market), 116 856. owner market operated shops within, leased sellers. given permission owner's individual stands, chose market. attempt minimize required common-situs utilizing 'We believe foregoing principles should where, employer.' 859. overruled extent implied contrary. Ninth Circuit, enforcing specifically approved disavowance ownership test. decision affect effects parties dealt occupied solely him. 'In cases, adhere established latitude part (or entirely) 860, n. 10. 26 rejecting test site, naturally guided Court's Milling, indicated location 'not conclusive' legality. U.S., 671, 964, Where unrelated perceive how merely takes property carries 'dual congressional preserving organizations bear offending shielding unoffending pressures controversies own.' 692, 953, III. 27 From survey our precise issue us emerges. With due regard relation function h e scope judicial review rulings, question unlawful holding bar removing publicizing cause, see 618, Automotive, Petroleum, 332. remotely effect, tendency future. 28 claims ruling upheld, erect deliveries, replacement immunized fear baseless. key type gate. significant rationale, stated unconnected usually buildings.5 competing interests enforce. hand, devised regular barring invasion appealing everyday operations. 1959 Amendments removed word 'concerted' provisions, included proviso 'nothing clause (B) construed unlawful, picketing.' U.S.C. (Supp. I, 1959) 158(b)(4) (B), 158(b)(4)(B). removal interpreted 'the factory violates truck drivers employed trucker usual compel trucking firm manufacturer strike.' Analysis bill prepared Senator Kennedy Representative Thompson, Cong.Rec. 16589. similar now us, Second sustained separategate situation. 'There marked apart gates; men kind operations, necessitate curtailing operations.' Steelworkers AFL-CIO 289 591, 595. seem controlling considerations. IV. 30 reasoning judgment below sustaining affirmed consideration, consideration turn result. legal path reached into account conventional Electric, mingled short, mixed portion rights employees. record sheds light extent. well instances insubstantial treated de minimis. We here guess quantitative aspect problem. determination. determination questions thus raised, remanded 31 Reversed. 32 THE CHIEF JUSTICE BLACK concur 33 DOUGLAS. 34 I vote grant certiorari seemed me presented keeping Courts meaning Universal Camera 340 474, 490, 456, 456. followed guidelines (see 282, 286), leave it. say egregious error, decided differently sat Appeals. During stationed Member Fanning concurred 547, requirement violated Warehousemen Helpers, 968, 225 205. perhaps widest industry. unions truckers staged demonstrations places pickup delv ery. Compare (Schultz Refrigerated Service, 502, (Sterling Beverages, 401. (Phelps Dodge Refining 126 1367; Chemical (Virginia-Carolina 905; Trabajadores (Gonzales Industries, 128 116.

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