Legal Document

485 U.S. 568 108 S.Ct. 1392 99 L.Ed.2d 645 EDWARD J. DeBARTOLO CORP., Petitionerv.FLORIDA GULF COAST BUILDING AND CONSTRUCTION TRADES COUNCIL and National Labor Relations Board. No. 86-1461. Argued Jan. 20, 1988. Decided April Syllabus Because a construction company building department store for tenant at petitioner's shopping mall allegedly paid substandard wages fringe benefits, respondent union peacefully distributed handbills the mall's entrances (but did not picket or otherwise patrol), urging customers to shop any of stores until petitioner promised that all would be done by contractors paying fair wages. A complaint based on charge had committed an unfair labor practice under § 8(b)(4) Act (NLRA) was dismissed Board (Board), which concluded handbilling protected 8(b)(4)'s proviso exempting nonpicketing publicity intended inform distributor goods were produced employer involved in dispute. The Court Appeals Fourth Circuit affirmed. But this reversed ground apply since other tenants distribute company's products, remanded determination whether been violated, and, if so, First Amendment. Edward DeBartolo Corp. v. NLRB, 463 147, 103 2926, 77 535. On remand, held violated 8(b)(4)(ii)(B)—which forbids "threaten, coerce, restrain" person cease doing business with another but declined consider Amendment questions. it serious doubts about constitutionality Board's interpretation, below applied NLRB Catholic Bishop Chicago, 440 490, 1313, 59 533, ruled neither statute's language nor its legislative history revealed clear congressional intent proscribe such handbilling. Consequently, construing section as prohibiting consumer publicity, court denied enforcement order. Held: err reaching respondent's That makes unnecessary pass upon questions raised interpretation. Pp. 574-588. (a) Although NLRA interpretations are normally entitled deference, where, here, acceptable raise constitutional problems, requires courts construe statute avoid problems unless is plainly contrary Congress' intent. 574-578. (b) Section does contain expression Contrary need "coerce" secondary employers within meaning 8(b)(4)(ii)(B), there no violence, picketing, patrolling, intimidating conduct, only attempt persuade mall. Cf. Fruit Packers, 377 58, 84 1063, 12 129. Retail Store Employees, 447 607, 100 2372, 65 377, distinguished. Moreover, fact appeals involving outside proviso's protection require conclusion must considered coercive 8(b)(4)(ii). It very issue earlier case. treated establishing exception otherwise-all-encompassing prohibition may more reasonably read providing type communication might coercive, even though forms so considered. Nor indication Congress 8(b)(4)(ii) peaceful handbilling, unaccompanied boycott neutral employer. 578-588. 796 F.2d 1328 (CA 11 1986), WHITE, J., delivered opinion Court, REHNQUIST, C.J., BRENNAN, MARSHALL, BLACKMUN, STEVENS, JJ., joined. O'CONNOR SCALIA, concurred judgment. KENNEDY, took part consideration decision Lawrence M. Cohen, petitioner. Louis R. Washington, D.C., respondent, N.L.R.B., support special leave Court. Laurence Gold, Florida Gulf Coast Bldg. Const. Trades Council. Justice WHITE 1 This case centers around union's businesses operating Tampa, Florida, owned petitioner, Corporation (DeBartolo). primary dispute H.J. High Construction Company (High) over alleged benefits. retained Wilson (Wilson) construct mall, 85 contractual right influence selection contractors. 2 union, however, sought obtain their distributing asking "until Mall's owner publicly promises Mall will using who pay employees benefits."1 handbills' message "[t]he payment diminishes working person's ability purchase earned, rather than borrowed, dollars, also undercuts wage standard entire community." made seeking against tenants, strike employees. At four three weeks December 1979, without accompanying picketing patrolling. 3 After failed convince alter state involve lessees limit distribution immediate vicinity Wilson's site, filed charging engaging practices (NLRA), 61 Stat. 141, amended, 29 U.S.C. 158(b)(4).2 General Counsel issued complaint, eventually it, concluding 8(b)(4). & Constr. Coun- cil, 252 N.L.R.B. 702 (1980). affirmed Board, 662 264 (1981), 535 (1983). There, we fall limited scope "publicity public employer's product 'distributed by' employer" because opposed Wilson, products High. Id., 155-157, S.Ct., 2932-2933. Since fell 8(b)(4), Amendment, 4 proscribed 8(b)(4)(ii)(B). 273 1431 (1985). stated prior cases "handbilling activity constituted coercion." 1432. reasoned "[a]ppealing patronize inflict economic harm causing them lose business," "such constitute 'economic retaliation' therefore form 1432, n. 6. viewed object attempting "to force order and/or do High." observed inquire "the literal applicable law require[d]" finding violation. Ibid. Finally, reiterated longstanding position "as congressionally created administrative agency, presume administer." 5 Eleventh Council 1328, 1346 (1986). could constitutionally ban nonspeech elements, our 533 (1979), determine section, held, intent, indicated Congress, phrase restrain," concerned strikes consumers picketing. F.2d, 1336-1340. manifest speech coming terms "drafted interpretive, explanatory section" all-encompassing 1344. went publicity; petitioned certiorari. presents important federal law, granted petition, 482 913, 107 3182, 96 671 (1987), now affirm. 6 agency entrusted authority administer NLRA, has "special function applying general provisions complexities industrial life." Erie Resistor Corp., 373 221, 236, 83 1139, 1150, 10 308 (1963); see Pattern Makers 473 95, 114, 105 3064, 3075, 87 68 (1985); Steelworkers, 357 357, 362-363, 78 1268, 1271-1272, 1383 (1958). Here, construed cover entrance potential trade retailers exert pressure proprietor particular nonunion contractor. statutory interpretation deference clearly Congress. Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 842-843, 9, 104 2778, 2781-2782, 81 694 (1984). 7 Another rule construction, pertinent here: where Bishop, supra, U.S., 499-501, 504, 1318-1319, 1320-1321. cardinal principle roots Chief Marshall's Murray Charming Betsy, Cranch 64, 118, L.Ed. 208 (1804), long beyond debate. E.g., 500-501, 1318-1319; Machinists Street, 367 740, 749-750, 1784, 1790, 1141 (1961); Crowell Benson, 285 22, 62, 52 285, 296-297, 76 598 (1932); Lucas Alexander, 279 573, 577, 49 426, 428, 73 851 (1929); Panama Co. Johnson, 375, 390, 44 391, 395, 748 (1924); United States ex rel. Attorney Delaware Hudson Co., 213 366, 407-408, 527, 535-536, 53 836 (1909); Parsons Bedford, Pet. 433, 448-449, 732 (1830) (Story, J.). As Hooper California, 155 648, 657, 15 207, 211, 39 297 (1895), elementary every reasonable resorted to, save from unconstitutionality." approach reflects prudential concern issues needlessly confronted, recognizes like bound swears oath uphold Constitution. lightly assume infringe liberties usurp power forbidden it. See Grenada County Supervisors Brogden, 112 261, 269, 125, 129, 28 704 (1884). 8 We agree respondents calls invocation rule, statute, case, poses validity here truthfully existence urged follow wholly legal course action, namely, peaceful. No patrolling involved. face, expressive arguing should abstaining paid. Had simply leafletting generally, including those entering town, pursuant annual educational effort pay, little doubt proscription leaflets pose substantial same well true although called attention specific situation unacceptably low 9 leafletter foreclose analysis. suggest communications unions never commercial variety thereby lesser degree protection. appear typical advertising price merits, they pressed benefits unionism community dangers inadequate economy living populace. Of course, itself Virginia Pharmacy Bd. Citizens Consumer 425 748, 762, 1817, 1826, 48 346 (1976), however these classified, correct holding deciding issues. Consolidated Edison Public Service Comm'n N.Y., 530, 534-535, 537, 2326, 2331-2332, 2333, 319 (1980); Smith Daily Mail Publishing 443 97, 102-103, 2667, 2670-2671, 399 (1979); Organization Better Austin Keefe, 402 415, 419-420, 91 1575, 1578, (1971). light asserted considerations, thought constrained own Courts Appeals, express Act, hold forbid here. Even permissible one, quite sure traditional followed independently raising concerns, fairly ascribed several cases. In Drivers, 362 274, 284, 80 706, 712, 710 (1960), example, rejected "restrain coerce" include recognitional stated: "In sensitive area dealt explicitly isolated evils experience established flow Therefore, clearest 8(b)(1)(A) supporting claim cannot sustain turn examination history." 13 yield requisite "clearest indication." Similarly, 63, 1066, 129 (1964) (Tree Fruits ), disagreed 8(b)(4)(ii)(B) prohibited establishment, matter consequences led us "conclude reflect clarity plan sites, particularly, when limited, persuading" establishment. once looked "isolated evils" focused "[b]oth policy adherence broad collide guarantees Amendment." 62-63, 1066; id., 67, 71, 1068-1069, 1070-1071. required history," activities. Again, determined jurisdiction extended parochial schools face challenge, previously challenge presumably interpreted cognizable limits. 497-499, 1317-1318. 14 conclude, open obviates facts violate turns restrain person" another, note first "induc[ing] encourag[ing]" 8(b)(4)(i). mere persuasion necessary prove violation 8(b)(4)(ii)(B): showing threats, coercion, restraints. Those words, have said, "nonspecific, indeed vague," "caution" given "broad sweep," 290, 715; reach Neither necessity There suggestion effect 16 nevertheless found "coerced" explained footnote business. clear, 6.3 Our Tree Fruits, untenable notion kind "coercion" some impact neutral. picketed employer, retailer, buy coercion though, appeal succeeded, retailer revenue.4 17 (1980) (Safeco turn, aimed him sever relations real antagonist Safeco rules "picketing qualitatively 'different modes communication,' " Babbitt Farm Workers, 442 289, 311, 17, 2301, 2315, 60 895 (1979) (quoting Hughes Superior 339 460, 465, 70 718, 721, 94 985 (1950)), noted actually threatened ruin loss. STEVENS pointed out his concurrence Safeco, 619, 2379, "a mixture conduct communication" element "often provides most persuasive deterrent third persons enter establishment." Handbills containing message, he observed, "much less effective picketing" "depend entirely idea." 721: 18 "Publication newspaper, circulars, convey information make line. purpose line influences, produces consequences, different communication." 19 discern "requisite clarity" sites. reason find standing alone, "coerces" employers. loss handbill business, intimidated picketers, result persuasion, reacts what honestly want do. 20 argues goes far dispose said "exempted employer." 155, 2932. proviso, requirement practical effect. 157, 2933. obviously conclude indicate covered issue. 157-158, 2933.5 21 argued second amended 1959, reads follows: 22 "Provided further, purposes paragraph (4) only, nothing contained shall prohibit advising public, members organization, whom organization inducing individual employed employment refuse pick up, deliver, transport goods, perform services, establishment engaged distribution." 23 By terms, protects directed argument goes, Otherwise, meaningless, whatsoever proviso. 24 treats excepted. ring states "shall construed" certain described publicity. exception. be. thus covering store, complete handles shops.6 25 reading specifically deals with.7 radio, television prohibited; meetings urge contractor, safely ask store's selling mattresses carrying label. difficult, say least, fathom why deserving 26 relevant one amendments enacted 1959 closing loopholes protections entitled. recounted Servette, 46, 1098, 121 (1964), carefully reexamined "no affirmative intention expressed publicity." 1346. For following reasons, conclusion. 27 First, among concerns proponents provision barring restraints boycotts carried time merely proposals aimed. wanted bar appeals, through newspapers, television, handbills, otherwise, debates discussions surely reflected intention. Instead, asked, Congressman Griffin, cosponsor bill passed House, neutrals interfere free speech. Cong.Rec. 15673, Leg.Hist. 1615. Second, suggestions coercing means came opponents close perceived Among arguments both House Senate dealing disputes, then legal, proposal became prohibition, "reaches leaflets, radio broadcasts, newspaper advertisements, interfering freedom speech." 15540, 1576.8 views respect meaning, persuasive: "[W]e often cautioned danger, interpreting reliance opponents. zeal defeat bill, understandably tend overstate reach. 'The fears opposition authoritative guide legislation. sponsors look words doubt.' 66, 1068 Schwegmann Bros. Calvert Distillers 341 384, 394-395, 71 745, 750-751, 95 1035 (1951)). 30 Without more, put amendment hardly settles matter. 31 Third, agreed House-Senate Conference House's Landrum-Griffin Senate's Kennedy-Ervin bill. An analysis presented Representative Griffin Senator Goldwater. With consumers, summary adopted "with clarification prohibited." 18706, 1454 (Sen. Goldwater); 18022, 1712 (Rep. Griffin).9 referred 581—582. confined latter dispute, understanding view. 32 addition Goldwater Kennedy, Chairman Committee, presenting Report floor, 17898-17899, 1431-1432, reported "union can hand shop, place advertisements announcements carry short having ambulatory front site." And assured buy-American campaigns—that is, requesting foreign-made ongoing actual producer—would section. 33 Kennedy included statement, following: 34 "Under Bill impossible racket conditions sweatshop conditions, plant progress. able conferees permit informational picketing." 35 relies Senator's exposition except saved deal practices. remarks echoed views, others, opposing defeating attempts give boycotts, means. 8, text. added conference clarification, follow, "conduct handbill, advertise site. permissible, terms. Kennedy-Goldwater colloquy falls revealing exchange together bits relied rise level. 36 view, foreclosed either history. passing statute. Accordingly, judgment 37 Affirmed. 38 SCALIA concur KENNEDY Handbill read: "PLEASE DON'T SHOP AT EAST LAKE SQUARE MALL PLEASE "The FLA. COUNCIL, AFL-CIO, you East Lake Square ownership's contribution Department premises being built past, owner, Corporation, supported local insuring Now, apparent reason, owners taken giant step backwards permitting standards torn down. community. inflation decreased purchasing power, intend compensate workers encouraging cut prices lower profits? "CUT-RATE WAGES ARE NOT FAIR UNLESS MERCHANDISE PRICES ALSO CUT-RATE. "We your protest Please "IF YOU MUST ENTER THE TO DO BUSINESS, please managers efforts. appealing public—the consumer. induce work deliveries." part: "§ 158. Unfair * "(b) "It agents— "(4)(i) engage in, encourage commerce industry affecting refusal use, manufacture, process, transport, handle articles, materials, commodities services; (ii) threaten, commerce, thereof is— "(B) forcing requiring using, selling, handling, transporting, producer, processor, manufacturer, person, recognize bargain representative certified 159 title: Provided, clause (B) unlawful, picketing; ". . Provided cited two decisions enforced Honolulu Typographical Union 131 U.S.App.D.C. 1, 6, 401 952, 957 (1968), enf'g 167 1030 (1967), upheld parcel campaign edge picketers absence present distinguishes Typographical. Great Western Broadcasting 356 434, 436 (CA9), 150 cert. denied, 384 1002, 86 1924, 1015 (1966), dictum activity. provided brief sentence unpersuasive. points indicates customer 72, 1071. talking pre-1959 8(b)(1)—and similar wording 8(a)(1)—to misplaced. calling 715, used 8(b)(1)(A), reached violent 577. Furthermore, Ninth circulation Do Not Patronize" lists coercive. International Assn. Machinists, 263 (1959), 940, 803, 769 (1960). suggests Rubber, Cork, Linoleum Plastic 269 694, 701 (CA4 1959), rev'd 329, 759, 768 contrary, combined later floor reference appeals. infra. blacklisting §§ 8(a)(1) particularly helpful They illustrate sections blacklisting, threatens employees' livelihood imposed retaliation exercise rights. urges discriminate prospective basis membership, unlawful Act. 158(a)(3). See, e.g., Pacific American Shipowners Assn., 98 582, 586, 639-640 (1952). text, post-1959 independent inquiry into struck manufacturer's paradigm debates. 17904 Legislative History Labor-Management Reporting Disclosure p. 1437 (1959) (hereinafter Leg.Hist.) Goldwater, discussing agreement); 15672-15673, 1615 Griffin); 16591, 1708 (analysis prepared Rep. Thompson Sen. Kennedy). oral cause, counsel admitted Tr. Oral Arg. 8-9, 37-38, 40 (counsel DeBartolo); 17-19 Board). statement Representatives Udall, Shortly thereafter agreement almost verbatim report 1708. Other claims, notably Humphrey, fight amending proposed overturn settled businesses. He Circuit, discussed 5, supra. 6232, 1037. describes limits falling categories: "1. Closes loophole permitted directly (instead employees). "2. individually (rather concert). "3. railroads, municipalities, governmental agencies 'employees' definition act. "4. Prohibits retail happens sell manufacturer dispute." fourth category, notes "[a]dopts site boycott." 1454, 1712.

Classification Label: 6