Legal Document

437 U.S. 483 98 Supreme Court Reporter 2463 57 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 370 BETH ISRAEL HOSPITAL, Petitioner,v.NATIONAL LABOR RELATIONS BOARD. Number 77-152. Argued April 24, 1978. Decided June 22, Syllabus Petitioner nonprofit hospital had a written rule that prohibited employees from soliciting and distributing literature except in certain employee locker rooms adjacent restrooms. The cafeteria was the common gathering place of been used by petitioner or with its approval for solicitation distribution to various nonunion purposes. After an made general other union newsletter warned she violated hospital's would be dismissed if did so again, National Labor Relations Board (NLRB), following charge union, issued unfair labor practice complaint against petitioner. NLRB applied it adopted St. John's Hospital & School Nursing, Inc., 222 N.L.R.B. 1150, since "the primary function is patient care," "a tranquil atmosphere essential th carrying out function," may warranted imposing more stringent restrictions on immediate patient-care areas than are generally permitted employers, but balance should struck such as lounges cafeterias, absent showing disruption patients. held petitioner's ban § 8(a)(1) Act (Act), which amendments 1974 applicable health-care institutions, disciplining not observing prohibition 8(a)(3). ordered cease desist interfering "concerted activities" employees' 7 rights, rescind rule. Appeals accepted settled law during nonworking hours presumptively invalid special circumstances here satisfied burden justifying protected activities eating areas. While narrowing scope remedies NLRB, court upheld NLRB's action rescinding part those Held: err enforcing order facilities. Pp. 491-508. (a) Freedom effectively communicate one another regarding self-organization jobsite their right self-organize bargain collectively established Act, Republic Aviation Corporation versus 324 793, 65 982, 89 L.Ed. 1372, light experience free adopt that, circumstances, employer's restriction time unreasonable interference rights constituting under 8(a)(1), without necessity proving underlying generic facts persuaded reach conclusion. 491-493. (b) Nothing legislative history shows congressional policy inconsistent approach enforcement organizational context. 496-500. (c) responsible administering federal national relations industry. Though no expert industry enterprises within jurisdiction, strike all jurisdiction between conflicting legitimate interests effectuate policy. Hence argument lacks expertise make judgments involving hospitals principle limited judicial review apply area, merit. 500-501. (d) conclusion possibility any care resulting remote" rational fully supported record, indicated much cogent evidence, including only 1.56% cafeteria's patrons patients itself cafeteria. Moreover, introduced evidence untoward effects period when rules 501-505. (e) Contrary argument, irrational uphold, has, dining area public restaurant, where tends upset patrons, while prohibiting activity like petitioner's, 77% whose employees, nonemployee upset. That fails consider position appropriate employer particular each applied. 505-507. 554 Federal Reporter, 2nd 477, affirmed. Robert Chandler, Boston, Mass., Norton Judge Come, Washington, D. C., respondent. Laurence Gold, intervenor Union. Mr. Justice BRENNAN delivered opinion Court. 1 49 Statutes-at-Large 449, amended, 61 136, 29 Code KF62 §§ 151 168, further amended extend coverage protection institutions.1 July 26, 1974, Public Law 93-360, 88 395. Boston covered Act. This case presents question whether First Circuit erred ordering based Board's finding petitioner, violation (3), 158(a)(1) interfered guaranteed 157, issuing prohibits support coffeeshop primarily also visitors. 2 In 1970, prior advent at hospital, announced barring visitors have access. these App. 59. however, result proceeding instituted before Massachusetts Commission, permitting one-to-one basis maintaining total distribution. Id., 67. On March 6, 1975, shortly after acquired reinstated previous limiting 70.2 provides: 3 "There (patients, visitors) property. Soliciting baron I. done neither individual his her working time, employee-only areas—employee rest rooms. Elsewhere work areas, open lobbies, coffee shop, corridors, elevators, gift etc., there nor literature. 4 "Solicitation property non-employees expressly times. 5 "Consistent our long-standing practices, annual appeal campaigns Fund Combined Jewish Philanthropies voluntary charitable gifts will continue carried Hospital." 70-71. 6 Upon filed union,3 matter tried Administrative Judge. affirmed rulings, findings conclusions issuance maintenance infraction them 223 1193 (1976). found were few places could exercised, offered convincing necessary prevent disruptions care, balance, unjustified infringement rights. See N.L.R.B., 1198. order, paragraph broadly required "exercise [employees'] Section Act," 2(b) "[r]escind cafeteriaand coffeeshop." 1199, modified, id., 1193. restricting absence justify them, 480 (1977), "[i]n this case, application no-solicitation, no-distribution shop banned concerted non-working . [t]he burden, therefore, show justified curtailment two places." Ibid. related shop." 481. refused enforce ground proclivity violate shown broad cease-and-desist order. It enforced adding clarifying words "that of" [of coffeeshop]," 482 (emphasis original), clear validity outside remained open. has sought Appeals' rulings respects.4 narrow decision, requiring Because suggested conflict among Courts upon patient-access coffeeshop, we granted certiorari.5 434 1033, 764, 54 780 (1978). We affirm. 8 * Although employs approximately 2,200 regular employees,6 fraction access many permitted. Solicitation Rather, number six separate scattered containing 613 lockers accessible purposes.7 most divided restricted sex, event even messages employees. cafeteria,8 hand, room A 3-day survey conducted revealed 9% equipped vending machines snacks coffeebreaks time. 9 recognized natural use purposes activity. For example, maintains official bulletin board communicating occasion set up tables near entrance aid contributions Way charities, Organization Drive, Israel Emergency Fund, recruit members credit union. When embarked intensive cost-reduction program, styled "Save Buck Day" "BAD," post banners distribute informational touting program and, significantly, restrooms purpose. addition uses, unofficial use, rack small table display commercial literature, travel brochures, information interest carpool openings. 10 "[T]here relatively can congregate meet grounds nearby vicinity purpose discussing nonwork matters cafeteria; secondly, neighborhood congested rovides ready employees"; 1198 (opinion Judge). Petitioner, moreover, refusing available unions names addresses unless do Board. 33. antiunion statements distributed paychecks stations. 11 October 25, Ann Schunior, medical technician Department Medicine, As circulating table. She approached persons thought sure status, inquired they were, explaining Petitioner's director witnessed activity, advised Schunior violating rule, demanded warning notice same day advising flagrant violations dismissal. 1195-1196. publication objectionable because issues said contain remarks disparaged ability provide adequate understaffing. 1196. II Atlantic 12 long view NLRA, necessarily encompasses jobsite.9 1372 (1945), articulated legal must govern myriad factual situations exercised: 13 "[The adjust] undisputed assured Wagner equally employers maintain discipline establishments. Like others, unlimited sense exercised regard duty existence others employee." 797-798, S.Ct., 985. 14 developed Babcock Wilcox Co., 351 105, 76 679, 100 975 (1956), stated: 15 "Accommodation [employee-organization employer-property rights] obtained little destruction consistent other." 112, 684. 16 Based applying accommodation. effect lawful unlawful subject introduction sufficient overcome presumption. Thus, violative justifies circum stances product discipline.10 retail marketing establishments, restaurants, selling floor times.11 17 Corp., supra, sustained adjudication charges. There adopt, experience, "[l]ike statutory presumption regulation, perhaps varying degree, depends rationality what proved inferred." Aviation, U.S., 804-805, 988 (footnote omitted). relied on, challenges, fashioning similar hospitals. B 18 Although, amendments, considered no-solicitation context proprietary hospitals, emerged decisions. Summit Nursing Convalescent Home, 196 769 (1972), enf. denied, 472 1380 (CA6 1973), panel, reversing Judge, "at [nursing] home, nurses' stations." Another Guyan Valley Hospital, 198 107 affirming Trial Examiner, "soliciting hours." Examiner noted interfere "solicitation waiting room, parking lot." 111. apparently fact distinguish supra. n. 2. Finally, Bellaire General 203 1105 (1973), panel split unanimously "by off 1108. 19 series somewhat inconclusive decisions background which, full development establishing permissible institutions. unanimous o inion, 1150 (1976), concluded characteristics different applies employers. aided briefs amici curiae American Association District 1199 Union Health Care Employees, found: 20 function. atmosphere, prohibitions strictly patients' rooms, operating receive treatment, x-ray therapy might unsettling patients—particularly who seriously ill thus need quiet peace mind." added). 21 striking determined, cafeterias concluded, record devoid contradicted assessment, deemed remote. III 22 challenges qualified extension several grounds: First, argues decision conflicts evinced "self-organizational health allowed 'disrupt continuity care.' " Brief 10. Second, agency action, inapposite acting expertise. Third, unsupported irrational. nonemployee-access involved public-access restaurants bans. 23 assertion, nothing indicates self-organizational reason believe, asserts, Congress intended either prohibit entirely limit extent enacted. extending enacted provisions mediation, solely industry, avoid caused strikes.12 significant although, indicated, 494, enacted, spoken clarity voice issue, enact provision through strikes. infer, rely exercise responsibility erests patients, 24 supports elimination nonprofit-hospital exemption reflected Congress' judgment improved employees.13 wages low conditions poor result, morale employment turnover high.14 deter mined collective-bargaining ameliorate elevate standard care.15 resulted numerous instances recognition strikes picketing. Coverage completely eliminate procedures resolve disputes." S.Rep.No. 93-766, Page (1974), U.S.Code Cong. Admin.News Pages 3946, 3948. 25 true, argues, felt needs institutions consideration ," ibid., witnesses Committee Welfare, "[t]here concern wherever possible." 3951. But contention establishes very justifies, more, restrictive proves disrupted. To begin with, quoted, placed context, offer argument.16 addressed unique problems presented disputes specific strike-notice mediation designed avert interruption delivery critical services; none expresses favor curtailing rights.17 Indeed, although cause complete forestall sufficiently important fulfillment goals permit despite result. If willing countenance total, albeit temporary, achieve harmonious employer-employee long-term cannot say regarded appropriately regulated undesirable substantial threat harm express improvements organize, unionism retarding quality therefore policy—which requires likely disrupted—is impermissible construction Act's policies amendments. Even arguably pointed toward contrary view, statute's entitled considerable deference. Iron Workers, 335, 350, 651, 660, 586 (1978); Weingarten, 420 251, 266-267, 95 959, 968, 43 171 (1975). 26 applicability authority fashion generalized particular, Arguing likelihood produce essentially expertise, contends it, Board, ensure well-being aside specifically disproving disrupt care. 18. think fundamentally misconceives institutional role 27 conferred develop fundamental entrusted task "applying prohibitory language infinite combinations events charged terms," 798, 985, body, accomplish formulate fill interstices provisions. true services, pharmacology, chemical manufacturing, lumbering, shipping, host varied specialized business over confers jurisdiction. policy, vested developing surprising unnatural assessment overcompensate goals, give too weight interests. Here, contexts "[t]he ultimate problem balancing often difficult delicate responsibility, committed review." Truck Drivers, 353 87, 96, 77 643, 648, 676 (1957). narrow: adopts judicially reviewable consistency rationality, satisfies criteria, whole, enforced.18 Erie Resistor 373 221, 235-236, 83 1139, 1149, 308 (1963); Phelps Dodge 313 177, 194, 845, 852, 85 1271 (1941). Contract 28 Notwithstanding challenge, possi ility remote," 1151, cafeteria, record. meals provided visit doctor certifies he well enough so. cateteria, voluntary, random, infrequent. significance Patients frequent expect attention unusually sensitive seeing overhearing discussions about unionism, readily Especially telling compulsion period, effects, logically best point, unable introduce harmful.19 least some undermine providing appears result.20 types solicitation, fund drives, equated terms potential generating controversy, commodious admit disruption.21 contexts, behavior agree, cafeteria,22 foreclosed less means regulating nearly directed avoided.23 30 was, course, draw inference "depends inferred."24 805, 989 fairly drawn 31 Similarly, whom falls first instance determine relative strength weight. Hudgens 424 507, 522, 96 1029, 1038, 47 locus [the] accommodation [between both] fall differing points along spectrum depending nature respective private asserted given context." strongest, unlike 113, 684, "[the] already rightfully property." Hudgens, 521-522, 10, 1037. "[T]he management rather [are] involved. difference 'one substance.' (citations 32 facilities, importance protecting disturbance gainsaid. availability alternative communication not, respect inquiry, see 112-113, demands finely calibrated scale. facility factor evaluating permissibility facility. here, conducive exercise. "natural are[a]" F.2d, 481, risk compared locations competing interests, failed taken into account. Cf. Wilcox, Defendant 33 hold, restaurant tendency patrons,25 upset, other, superficial appeal. wholly applicable. industries, operation serve customers, store restaurant. Employee disruptive, directly substantially business. unusual stockrooms, kitchens, nonpublic outweigh floor. 34 situation quite different. main functions largely performed lounges. does forbidding employee-service area. renders analogy stockrooms operations complete, remoteness considered, restaurants. explanation results challenged. 1150-1151, 3. IV 35 summary, reject merit enacting principles functions. theref re hold facilities environment Insofar challenge substantiality supporting conclusions, Court's is, limited. "Whether whole keeping Appeals. intervene ought rare misapprehended grossly misapplied." Universal Camera 340 474, 491, 71 456, 466, 456 (1951). "misapprehended" "grossly misapplied" standard. note, guidelines still flux far self-defining, concluding, agree: 36 [bears] heavy continuing concerning parts Hospitals carry utmost seriousness importance. They rise considerations industrial settings familiar. stand revise future demonstrates jeopardized." 37 modify cumulative clear. 351, 660; 265-267, 967-968. 38 Affirmed. 39 BLACKMUN, THE CHIEF JUSTICE REHNQUIST join, concurring judgment. 40 N Dec. Immigration Nationality Decisions concur reaches I, too, agree POWELL says opinion. 41 irony grants Burger Chef Hot Shoppe denies mere stake. concerned families treated impersonal categories classes. individuals aggravation. Nevertheless, reveals, utilized, questionably my modified setting. 42 tenor concerns me. coffeeshops patient-relative oriented, presence Beth operation, seems akin manufacturing plant's fear example eating-facility cases, courts now go down open-solicitation road done, usual come here. Hospitals, all, factories mines assembly plants. human ailments treated, relatives alike emotional strain worry, pleasing comforting principal facets day's family—irrespective family oriented—need restful, uncluttered, relaxing, helpful remindful tensions marketplace sick bed. entertain distinct doubts preoccupation labor-management problems, properly sensed appreciated institution's needs. earnestly share caveat pronounced Appeals, reproduced next-to-the-last opinion, ante, 2477, sincerely hope bears mind considers cases decision. 44 POWELL, 45 approved reasoning Peyton Packing 828 (1943), enf'd, 142 1009 (CA5), cert. 323 730, 66, 585 (1944), adjusting endorsed formulation: work, 'must presumed valid discriminatory purpose' "; employee's own though company property, impediment production discipline.' 803-804, (quoting 843-844). 46 inapplicable instant arises setting formulated. Court, assistance plants, third parties unconnected setting, simple divide spheres defined Packing. During valid, "[w]orking work"; invalid. latter presumptions reflects reasonable inference, actual life, ordinarily reasons restrict sustaining presumption, recounted said: 48 "We perceive error adoption previously establishments definitive form Company gave appraisal normal validity, d pends (footnotes omitted; emphasis supplied). exist transferred automatically workplaces, sever connection proof. explicitly "normal establishments."1 Conditions plants differ sales service mingle. 50 confronted retail-establishment distribution, wisely refrained mechanically justification absent. establishment, customers present.2 retail-store weighed public's premises, relationship business, consisting direct reached premises on-duty off-duty "in close contact other" theory "as apt [employer's] portion present." Goldblatt Bros., 1262, 1264 (1948). McDonald's 205 404, 408 (1973).3 51 removes framework est blished just cases. serving families, establishment's customers. profit motive establishment diminish professional welfare friends visit. 52 store, 512, notwithstanding take there. stores places—including convenience patrons. addition, extends to, pervades, access; narrowly technical treatment.4 Part "total served climate strife controversy." Baptist 576 107, 110 1978). respect, greater account impact geared declined stores, simply relevance 53 effected proper denied part, 557 1368 (CA10 1977), basic "sufficient justification" hospital.5 Acknowledging "primary "hospitals permitted." Accordingly, "strictly areas," "patients' treatment"; 1150-1151. "accommodation" hospital. amounts present potentially affected characterized care" believe Tenth correct accord kind deference accorded inquiry case. 55 Once deprived invalidity establish burden. 56 "with (1956); Eastex, Incorporated 556, 2505, 428 521-523, (1976); Central Hardware 407 539, 542-545, 92 2238, 122 (1972). "The accommodation, [the employer's] 1038. visitors, particularly weighty "management" interest. accommodating recognize hospital.6 Yet stipulated undisputed, met evidence. (77%), negligible (1.56%) (under 10%). predominantly facility, hardly gather restrooms, employees.7 58 unavailability convenient communication, cf. both variety noncommercial notices solicitations. And disruptive conversations progress implemented precatory outright 502-503 20. 59 harmful consequences arguments general. No testimony seek early rehabilitation encouraging leave earliest compatible condition, move weakness practices cafeteria.8 Putting differently, portrays being operated place, almost unrelated 60 sum, barren type produced behalf problem. See, e. g., My concurrence facts, disagree—for above stated—with rationale reliance inappropriate unrealistic distinction cafeterias. note emphasizes "critical fact] patients." Ante, 502.9 achieved deleting definition "employer" 2(2) 152(2), shall include "any corporation association net earnings inures benefit shareholder .." 23, 1947, ch. 120, 136. filed. Prior hearing encompass charges leading Workers' Union, Local 880, Service Employees International AFL-CIO. devoted litigated 228 1495, Reference Manual (BNA) KF3315 L38 1087 (1977). Seventh Circuit, Lutheran Hosp. 564 208 pending 435 941, 1519, 537, orders distr bution coffeeshops. extended beyond "immediate areas." together Columbia Sixth Circuits, Baylor Univ. Medical Center 188 U.S.App.D.C. 109, 578 76-1675, exclusive house staff, attending physicians, students, Harvard University 28. four first, lockers, engage second, 470 security reasons, assigned comprise remainder limits located 1193, 1197 127-134. pendency litigation, dismantled, space added recently reiterated (1972): "[Section 7] organization viable vacuum; effectiveness measure learn advantages disadvantages others. Early administration freedom rights." 542-543, 2241 (citation 828, 843 (1943). LeTourneau Ga., 1253 organizers lot, discussion. Stoddard Quirk Mfg. 138 615 (1962), signature cards 620 6. Marriott (Children's Inn), 978 Bankers Club, 218 (1975); 404 (1973); Marshall Field (1952), 200 375 (CA7 1953); 1262 (1948); May Dept. Stores 976 enf'd 154 533 (CA8 1946). 1(b) 395, NLRA "health institution" 1(d), 396, 8(d) requiring, 90-day termination expiration contract, 60-day Mediation Conciliation (FMCS) contract expiration, 30-day FMCS initial negotiation arising recognition, institution participate direction FMCS. 1(e), new 8(g) organizations 10-day engaging picketing, strikes, refusals work. 213 Management 183 (1970 ed., Supp. V), authorizes constitution Special Inquiry investigate report dispute. detailed provisions, Vernon, Amendments 70 Nw.U.L.Rev. 202 203-204. Senator Cranston, manager bill: "During last 21/2 years, wage increases lagged behind received workers industries. "Today, notoriously underpaid. worked monetary reward constant consequent emphasized again witnesses. Turnover rates studied reported high 1,200 1,500 [percent] year. "Mr. President, lower unionization before. [T]he percent year dropped unionization. Indeed convincingly argued unionized better job stability possible collective bargaining arrangements. mean provided. urge want increased bill." 120 Cong.Rec. 12936-12938 (1974). ibid.; 16899-16900 (remarks Rep. Thompson). follows: "In Committee's deliberations measure, picketing allow arrangements continuance stoppage." "PRIORITY CASE HANDLING "Many Committee, witnesses, stressed uniqueness possible. "It sensitivity led requirements trikes "Because expects priority employer, [existing priorities]." 6-7, 12, 10(e), 160(e); Procedure 706(2)(E) (1976 ed.); Harvester Ruckelshaus, 155 411, 439, 478 615, 643 (1973). Evidence disquieting great restriction. staff complaints voiced overheard clinical named line. "effect patients] devastating "[p]atients [have been] horrified overhear—in lines .—what engrossed clinician innocuous discussion." 138. discussion, talk conditions, rather, merely "restrict voicing your audience." Compare (1948), uphold department noted: "[I]n consists counter, duty, organizers, other. Under Respondent's 1263-1264. Judge) ("Some pleasant informative chat lead bitter exchange insults worse ."). nonemployees upsetting read fact, 486-487, anyone else actually nonemployees. wear name tags—and do—and guards monitor Secondly, face-to-face leaving desire having requirement "does evidential compel flow facts. An administrative power hearings adversary proceedings commands occurred infer proven reasonably proven. One creation boards statute experienced officials appreciation complexities administration." 800, 986. (Citations omitted.) cited 11, formulation "special circumstances" stated plant, speaking making 'necessary 988. (CA8), 329 725, 67 72, 91 627 (1946). interpreted rebutted proof circumstances." created "presence customers] exposed activities." 27. formulation—that takes place—that test all. shown, then distinguished nonselling 92-93, line easily nonpatient-care observed denying attempt inferences [is] perceptions modern physical, mental, patients—areas acknowledged field labor/management relations." 1368, 1373 Both started premise appl ed. disagreed, "immediate" This, concern, "for S.Rep.No.93-766, urban location widely dispersed residences difficult. list addresses. uniquely dissemination views representative options employees," Magnavox 415 U S. 322, 325, 94 1099, 1102, 358 (1974); 574, 2517, (1978), rested allegedly inflammatory employee, introducing fallen hands Furthermore, probability relevant until initiation proceedings; yet "unable injury patients" permissive effect. "strictly" "immediately"

Classification Label: 6