Legal Document

454 U.S. 170 102 Supreme Court Reporter 216 70 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 323 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.HENDRICKS COUNTY RURAL ELECTRIC MEMBERSHIP CORPORATION. HENDRICKS CORPORATION, Petitioner, versus BOARD. Nos. 80-885, 80-1103. Argued Oct. 5, 1981. Decided Dec. 2, Syllabus Held : There is a reasonable basis in law for the practice of National Labor Relations Board (NLRB) excluding from collective-bargaining units only those confidential employees with "labor nexus," while rejecting any claim that all access to information are beyond reach definition "employee" § 2(3) Act (NLRA). Pp. 177-192. (a) nothing Taft-Hartley Act's legislative history support inference, let alone conclusion, Congress intended alter, or disapproved, NLRB's determination prior 1947 passage nexus" should be excluded bargaining units. Rather, contrary appears. Indeed, express inclusion "professional employees" under coverage negates reading as generally 2(3)'s "employee." 177-185. (b) The dictum NLRB Bell Aerospace Co., 416 267, 284, n. 12, 94 1757, 1766 40 134, "clearly thought [NLRA] did not cover 'confidential employees,' even broad term," cannot squared congressional intent. Nor there merit argument has applied labor-nexus test inconsistently. A review decisions indicates it never followed depriving who have business full panoply rights afforded by NLRA. over years, NLRB, declining create implied exclusion employees, identifying because information. This consistent, longstanding interpretation NLRA ignored. 186-190. 627 Federal Reporter, 2nd 766 and 631 734, reversed remanded. Lawrence G. Wallace, Washington, D. C., N. L. R. baron Warren Krebs, Lebanon, Ind., Hendricks County REMC. Russ Mueller, Milwaukee, Wis., Malleable Iron Range company Justice BRENNAN delivered opinion Court. 1 question presented whether an employee who, course his employment, may considered employer impliedly denied protections Act.1 2 * We before us two cases same docket number. shall first state separately factual procedural background each. case 3 Mary Weatherman was personal secretary general manager chief executive officer respondent Rural Electric Membership Corporation (Hendricks), rural electric membership cooperative. She had been employed cooperative nine years. In May 1977 she signed petition seeking reinstatement close friend fellow employee, lost arm employment Hendricks, dismissed. Several days later discharged. 4 filed unfair labor charge (NLRB Board), alleging discharge violated 8(a)(1) (NLRA Act), 29 Code KF62 158(a)(1). Hendricks' defense, inter alia, protection "confidential" 2(3). Administrative Law Judge (ALJ) rejected this argument. He noted Board's "confidential . [']who assist act capacity persons formulate, determine, effectuate management policies field relations.' " 236 N.L.R.B. 1616, 1619 (1978), quoting KF105 F3 Goodrich 115 722, 724 (1956). Applying test, ALJ found event such employee."2 also determined discharged activity—signing petition—protected 7 Act, 157.3 thus sustained Weatherman's charge. affirmed "the rulings, findings, conclusions Judge," ordered reinstated backpay. N.L.R.B., at 1616. 5 sought Appeals Seventh Circuit cross-petitioned enforcement. divided panel court remanded further proceedings. 603 25 (1979). Although majority agreed finding "assist respect relations policies," id., 28, majority, relying on language footnote Aero space 1766, 134 (1974), held "all secretaries working capacity, without regard relations, [must] Act." F.2d, 30.4 therefore came within substantially broader secretary. 6 On remand, privy confidences her concluded fall directed apply. 247 498 (1980).5 again petitioned Appeals, panel, (1980). "actually reapplie[d] old standard incorporating evidence record failed come court's Id., 770.6 grew out efforts Office Professional Employees International Union (Union) represent, agent, various (Malleable). December 1978 certification representative unit office clerical, technical, professional personnel respondent's facility Beaver Dam, Wis. At subsequent representation hearing, challenged 18 ground they Regional Director Malleable's objection, concluding none test. App. Pet. Certiorari 76a-94a. prevailed election, accordingly certified agent unit. nevertheless refused bargain Union. Seeking relief, charges NLRB. refusal §§ 8(a)(5) (1) 158(a)(5) (1), issued order. 244 485 8 order unreported opinion, 56a-60a. Order denying enforcement, 734 Director, determining individuals which earlier involving Hendricks. reconsideration consistent "with case." 56a, 59a. 9 granted certiorari both resolve conflict among Courts respecting propriety "employee."7 450 964, 101 1479, 67 612 (1981). hold use reverse judgments directions enforce order,8 proceedings opinion. II 10 Section provides "term 'employee' include ." (emphasis added), certain stated exceptions "agricultural laborers," "supervisors" defined 2(11), "independent contractors."9 Under literal phrase "any employee," then, workers "employees." But excludes satisfying Respondents (hereafter respondents) argue practice, 11 assessing respondents' argument, we must mindful canon construction statute charged its execution unless compelling indications wrong, especially where alter administrative construction." Red Lion Broadcasting FCC, 395 367, 381, 89 1794, 1801, 23 371 (1969) (footnote omitted); see Co, U.S., 274-275, S.Ct., 1761-1762; Zemel Rusk, 381 1, 11-12, 85 1271, 1278-1279, 14 179 (1965). proceed determinations 1940 1946 were "employees" (Wagner then determine Congress, when enacting Management (Taft-Hartley practice. 12 1935 Wagner became law. 49 Statutes-at-Large 449. objectives "encourag[e] procedure collective protec[t] exercise freedom association, self-organization, designation representatives their own choosing, purpose negotiating terms conditions other mutual aid protection." 449-450. covered 2(3): "The term but individual agricultural laborer, domestic service family person home, parent spouse." exclusions embrace soon faced employers excluded, policy matter, exclusion, "no warrant Bull Dog Products 22 1043, 1046 (1940). See Creamery Package Manufacturing 34 108, 111 (1941). fulfilling statutory obligation appropriate 159, discretion vested Board, Packard Motor Car 330 485, 491-492, 789, 793, 91 L.Ed. 1040 (1947); Pittsburgh Plate Glass 313 146, 61 908, 1251 (1941), adopted special treatment narrow group confidential, labor-relations employer. these composed rank-and-file workers.10 See, e. g., Brooklyn Daily Eagle, 13 974, 986 (1939); supra, 110. rationale "management required handle matters through represented union [c]ompany deal normal performance duties obtain advance [c]ompany's position contract negotiations, disposition grievances, matters." Hoover 55 1321, 1323 (1944). Following formulation, 1946, routinely numerous identify information.11 And least one instance occasion application upheld. Poultrymen's Service Corp., 138 204, 210-211 (CA3 1943). Armour & 154 570, 573-574 (CA10 1945); Polish Alliance 136 175, 180 (CA7 1943), aff'd, 322 643, 64 1196, 88 1509 Ford 66 1317, 1322, refined slightly view "definition [was] too inclusive needlessly preclude[d] many collectively together having common interests." Henceforth, announced, "to limit 'confidential' so 'managerial' functions relations."12 amended enactment Act. 136. B 15 text makes no explicit reference addressed scope NLRA's coverage, status discussed. discussion supports pre-1947 16 part response Court's decision (1947), upheld plant foremen. 279, 1764. House Senate initially passed differing bills, Houses explicitly H.R. 3020, 80th Cong., 1st Sess., S. 1126, (1947). defining "supervisor," however, bills differed substantially. bill "supervisor" broadly "who nature given nature, available public, competitors, generally, interest employer."13 Senate, hand, "supervisor."14 17 submitted Conference Committee. Committee, prevailed. As described statement Managers, appended Report: conference agreement, 'supervisor,' limits treated supervisors amendment. departments, necessary make specific provision, done bill, since treated, presumably will continue treat, outside act. prevailing people well, intention conferees respect." H.R.Conf.Rep. Number 510, 35 U.S.Code Cong.Serv.1947, Pages 1135, 1141.15 19 With understanding, Report, 93 Cong.Rec. 6393 (1947) (House); 6536 (Senate). President Truman vetoed 7485-7488 (veto message), successfully overrode veto, 7489 7538 20 interpreted Congress' warranting That rejected. It flatly belied Committee's rejection proposal employees—for obviously conceded issue Senate.16 21 coverage17 "such legal, engineering, scientific medical junior assistants." 36 Page 1141.18 surely almost would likely bill. extraordinary read into swallow up displace entirety professional-employee inclusion. Plainly, too, disapproved applying whom To contrary, Managers' accompanying Committee Report leave historic undisturbed.19 III respondents here, rely suggest believed freeze is: 24 "In narrowed employees' exercised ' "managerial" Reports, unmistakably refers limited just 'labor Thus, although misconstrued recent clearly term." 12. Obviously unnecessary managerial decided Aerospace. event, error. error clear light our analysis above pertinent question. Moreover, erroneously implies 1317 (1946), marked major departure introduced slight refinement 1941 1946. 11, supra. Certainly approving "prevailing practice," aware line decisions.20 Cf. Cannon Uni vesity Chicago, 441 677, 696-699, 99 1956-1958, 60 560 Thus plausible that, describing benefits referred involved functions, persons. For essence, stood. follows Aerospace, Appeals' reliance upon it, intent, "recede[d] from" now "squarely presented." Boeing 412 67, 72, 1952, 1955, 752 (1973). 26 find earlier, 178-181, units, six years preceding Taft-Hartley. following continued apply criterion employees. 722 (1956), reaffirmed previous ruling underscored "in future relations." omitted) deleted).21 succeeding continuing deviated respect: also, occasion, underlying 179, designated assisting exercising area, "regularly concerning anticipated changes result negotiations." Pullman Standard Division Pullman, Inc., 214 762, 762-763 (1974); Triangle Publications, 118 595, 596, nn. 3-4 (1957). 27 sum, information.22 ignore Board. 275, 1762; 1801. IV 28 ultimate task here is, course, limitation class 2(3), "a law." 488, 497, 1842, 1849, 420 (1979); Chemical Workers 404 157, 166, 92 383, 390, 30 341 (1971); Hearst 111, 131, 851, 860, 1170 Clearly rooted firmly understanding process, acceptance fairly demonstrate does indeed return finally us. secretary, Weatherman, "did 'in capacity' matters. 1619. While finding, enforcement additional non-labor-related irrelevant employee. formulated rather concedes 'with policies.' Brief Respondent 43. Because dispute respect, suggestion regarding nexus supported substantial evidence, conclude erred holding nexus.23 judgment insofar denied, remand enter enforcing Malleable, satisfy argues, held, possession Having relies, judgment. yet contentions some reasons entirely unrelated employees,24 31 ordered. 32 POWELL, THE CHIEF JUSTICE, REHNQUIST, O'CONNOR join, concurring dissenting part. 33 N Immigration Nationality Decisions concur proprietary nonpublic reason By providing itself intend sweeping exclusion. majority's "tends obliterate between labor,"1 insisted observed dissent conclusion litigation2 regardless nexus." reversing basic establish sharp labor. When breached deeming responded passing supervisory departed recognition "[i]t intent exclude allied management,"3 requiring adhere dividing labor—a fundamental industrial philosophy laws country.4 assure included ranks originally developed "supervisory," "managerial," recognized duties, knowledge, sympathy aligned members adversary system envision, neither nor forced accept potential fifth column ranks. after rank file, like "expediters" "closely related management," Friez Sons, 47 43, (1943), assistant buyers "interests more closely identified management." Denver Dry Goods 74 1167, 1175 employer's AFL-CIO, 120 969, 973 (1958), familial relation "are intimate relationship officers company." Burke Brewery, 54 1061, 1062, employee" insists viewed larger effort keep distinct. knowledge sensitive relations,"5 side useful management, means end. rigid insistence secretaries, Court, sight theory laws. little sense "expediters," "assistant buyers," "employment interviewers" file most details decisionmaking, work managers daily basis, occupy trust incompatible labor-management strife. disservice alike.6 37 framework laws, conflicts expressions subject. forbore including provision belief treating, management. discussing proposed stated: 38 "Most qualify executives event. 39 itself, normally clerks these." H.R.Rep.No.245, added). indicated similar belief: 41 H.R.Conf.Rep.No.510, 42 statements felt confident 'Congress could supposed secretaries" organized, bosses be.' 475 491-492 (CA2 1973). 43 argues foregoing ignored omitted Conference. italicized omission prompted consistently secretaries."7 Members believe argued seriously officials "individuals Swift 752, 754 increasingly accepted antithetical common-sense role secretaries. 44 Just reject adherence so, whole bargaining. urges if litigation indeed, nexus, still dismissed incurring liability 45 wisely declines invitation. ante, 186, 19. Such might do anything furtherance allegiance except join union, powerless protect itself. Confidential picket lines, sign petitions advocating cause labor, speak against meetings, engage manner concerted activity. Even midst strife, top company, company's positions, convey positions well take place lines. unable dismiss them demote them, risk being filed. union." Neither expose flank overtly committed actual membership. 46 contains whatever position. repeatedly addition "[i]n act." 1141 context 283, said: strongly suggests much higher structure, likewise regarded exclusionary necessary" indicates, exemptions akin supervisors, 289, 1769, 'managerial accepts holding. 187. Yet principled why differently. 48 seeming "half-a-loaf" approach exclusion.8 Craven explained Fourth Circuit: "It strikes nonsense [a secretary] extend activity enjoyed member. If extent joins strike refusing cross line, seem matter technically plights troth differs form, substance, holds card. Since formally unit, incongruous 'plight troth' seems say concert participating informal accurately, Wheeling 444 783, 788 (1971). 50 Accord, Peerless America, Incorporated 484 1108, 1112 Southern Greyhound Lines, 426 1299 (CA5 1970) (assuming entirety). 51 After today's decision, properly affairs information, essential management's operation subjected loyalty essence requires undivided loyalty. expressed joint desire counsel result. 137, set forth 152(3), provides: particular employer, subchapter states otherwise, whose ceased consequence of, connection with, current obtained regular equivalent spouse, independent contractor, supervisor, subject Railway time time, herein defined." Therefore, excludable barred discharging engaging protected circulation behalf 7. Youngstown Osteopathic Hospital Assn., 224 574 (1976). Bonsal, sitting designation, dissented, established part: "Although typed [general manager] Dillon's letters, correspondence apparently relate than occasional letters referring dates meetings union. concerned description. telephone calls, appointments. share partitioned Dillon, records type kept there, testimony he papers negotiations behind desk. attend Respondent's board directors meetings. However, minutes agenda occasionally matters, indication issues discussed during confidential. internal memoranda Finally, significantly, Dillon hearing maintain secret classified documents." 498-499 (footnotes omitted). Cudahy dissented. suggested, "is abundant secretary." 771. Oil California, 607 852, 853-854 (CA9 1979); Allied 548 644, 648 (CA6 1977); Westinghouse 398 669, 670 1968); Quaker City Life insurance 319 690, 694 (CA4 1963); cross-petition 612, functional department well. briefing persuaded grant improvident. such, primarily fact, review. writ improvidently granted. Rudolph States, 370 269, 82 1277, (1962) (per curiam); Power North Carolina Public 263 508, 164, 68 413 (1924). definition, early preclude certifying solely possibility foreclosed 1322-1323 (1944), Boat 57 1348, 1349 thereby Warner Brothers Pictures, 739, 744 (1941); Chrysler 161-162 Western Telegraph 1066, 1069 General Motors 441, 446-447 Montgomery Ward 297, 300 (1942); Detroit 313, 321 Cincinnati Times-Star 39, 444, 448 (1942), enf'd, 204 1943); Alliance, 1375, 1381-1382 enf'd modified, 175 (1944); Bendix Division, 912, 915-916 Paramount 116, 122-123 Murray 854, 856-857 Puget Sound Bridge Dredging 1071, 1074 (1943); Bohn Aluminum Brass 1229, 1231 688, 690 Firestone Tire Rubber 679, 682 Boston Edison 118, 123 Republic Steel 1228, 1230 St. Johns River Shipbuilding 52 649, 653-655 Babcock Wilcox 900, 903 U. Smelting, Refining Mining 53 84, 86 New York Telephone 307, 310 Potash Coolerator 461, 462-464 Colonial Broach 846, 848 1096, 1100 Consolidated Vultee Aircraft 103, 112-114 1005, 1013 570 1462, 1465 Cable 1143, 1145-1146 West Penn 1356, 1358 Spicer 1491, 1503 56 1359 1547, 1549-1550 Utah Copper 308, 315-318 58 239, 243-246 American Wire 253, 255 Automatic 662, 664 South Bend Lathe Works, 59 562, 564 Houdaille-Hershey 1292, 1295 388, 391 (1945); 525, 527 Continental 97, 99-102 Smelting 506, 508-509 Pacific Gas 564, 568 Magnolia Pipe Line 723, 726-728 Bethlehem 63 1230, 1234-1236 (1945). three Louis Independent Packing 543, 547; Tennessee Transmission 1379; Brown Sharpe 487, 489. 2(12) entirety: 'supervisor' individual— "(A) authority, employer— "(i) hire, transfer, suspend, lay off, recall, promote, demote, discharge, assign, reward, discipline adjust effectively recommend action; "(ii) effective recommendations to, amount wages earned apply, factors determined, authority merely routine clerical judgment; "(B) personnel, police, time-study claims employers, respects dealing secure furnish used foregoing; "(C) employer." 2(11) terms: action judgment." reported expansive definition. ---, (Act amending NLRA; Comm. Print, Mar. 19, 1947); 21, 1947). Senator Taft similarly written summary inserted Congressional Record: "Supervisors: Both amendment deemed purposes divergence occupational groups fell amendment, ultimately adopted, bona fide supervisors. classes. (A) fix inspectors, checkers, weighmasters, (B) (C) confined supervisor foremen rank." 6442 concession comments made Representative Hartley, sponsor explaining results House-Senate Conference: "Entirely emphasis placed so-called concessions conference. very frank reluctantly. seen enacted law, want can Congress. "I perfectly assurance provide votes another body legislation 6383-6384. 9(b) NLRA, 159(b) (providing approve "if includes vote unit"); 2(12), 152(12) (defining employee"). define employees," give craft, department, plant, trade, calling, profession distinguishable unit" opportunity 9(f)(2) allowed themselves 9(b)(1), employee." version incorporated Senate's permitted nonprofessional included. 17, true stating "outside of" discern affording 1232, Colorado 699, 710 (1939), 539 1940). Whether misperceived several instances, imprecise shorthand description 1098; 690; 1465. dissent, conferees' of," criticizes allowing decide aspect presents it. free depart statement. indicating embraced to" previously discussed, declaration Managers alter" respect" alternatively suggesting area expertise "presumably" classes deferential reading. affords comfort respondents, need proper. brought attention annual reports. Ann.Rep. 34, (1946). Significantly, report January 3, 1947, five months issued, Motor. 32, 18-21 Citing decisions, E. KF135 P2 Dutton 761; 69, POWELL finds "support law" assertion nexus. Post, 196, significance unwarranted. rested seminal 974 767-768, 8. relied turn Dutton. 73, 6, citing 1941, awareness plainly erroneous; ignores countless fact occasions returned designating mere Bond Stores, 1029, 1031, (1952); Minneapolis-Honeywell Regulator 107 1191, 1192 (1954). formulation minor refinements sort expected—if required—in process case-by-case adjudication agency. corporations ordinarily constitute unusual case, inasmuch tasks "deliberately restricted gaining relations. (1978). imposed constraints distrust caution, unlikely mirrored general. seeks "supervisors." Opposition 1. 494, 794, (Douglas, J., dissenting). worked four manager, company. opened mail, answered phone, directors. shared single 6-foot partition desks. overhear conversations raised voice. handled materials. 753-754 (1956) Douglas Packard, supra: present [by Court] tends lends sanctions federal unionization levels hierarchy. emphasize opposing forces industry operating hand stockholder bondholder other. [I]f mind change philosophy, left unmistakable trace purpose. none." 494-495, 794-795. opposes creation midst, wish represent 73 example, store Stroock Lavan, 253 447, (1980) ("the Employer firm's committee [union] counters ."); 761, (1941) ("Among Guild Company"). mention took notice '[t]he secretary's material pertaining passes hands. [M]anagement dealing.' 766-767, 8, (1939) "private [the union] existing private Company's possible division loyalties agent." supra (secretaries nexus). Of power Talladega Cotton Factory 213 209 1954).

Classification Label: 6