Legal Document

356 U.S. 342 78 Supreme Court Reporter 718 2 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 823 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.WOOSTER DIVISION OF BORG-WARNER CORPORATION. WOOSTER CORPORATION, Cross-Petitioner, versus BOARD. Nos. 53, 78. Argued Nov. 20, 21, 1957. Decided May 5, 1958. [Syllabus from pages 342-343 intentionally omitted] Mr. Dominick L. Manoli, Washington, D.C., for National Labor Relations board. James C. Davis, Wooster Division of Borg-Warner Corporation Justice BURTON delivered the opinion Court. 1 In these cases an employer insisted that its collective-bargaining contract with certain employees include: (1) a 'ballot' clause calling prestrike secret vote those (union and nonunion) as to employer's last offer, (2) 'recognition' which excluded, party contract, International Union had been certified by Board employees' exclusive bargaining agent, substituted it agent's uncertified local affiliate. The held insistence upon either such clauses amounted refusal bargain, in violation § 8(a)(5) Act, amended.1 issue turns on whether comes within scope mandatory collective defined 8(d) Act.2 For reasons hereafter stated, we agree neither definition. Therefore, sustain Board's order directing cease insisting condition precedent accepting any contract. Late 1952, Union, Automobile, Aircraft Agricultural Implement Workers America, CIO (here called International) was (Ohio) company) elected representative appropriate unit company's employees. Shortly thereafter, chartered Local Number 1239, UAW—CIO Local). Together unions presented company comprehensive agreement. clause, described themselves both 'International America U.A.W.—C.I.O. * *.' 3 submitted counterproposal recognized sole 'Local affiliated (UAW—CIO).' unions' negotiators objected because disregarded certification representative. declared would accept no agreement excluded party. 4 also contained quoted full margin.3 summary, this provided that, all nonarbitrable issues (which eventually included modification, amendment or termination contract), there be 30-day negotiation period after which, before union could strike, have ballot taken among offer. event majority rejected opportunity, 72 hours, making new proposal having prior strike. announced they not 'under conditions.' 5 From time first proposed clauses, representatives thus made clear each wholly unacceptable. equally entered into unless clauses. view impasse, little further discussion although parties continued bargain other matters. 'package' covering economic but offer contingent satisfactory settlement 'all controversial On March 15, 1953, membership voted strike 20 were reached then. None struck. Negotiations, nevertheless, continued. April asked latter withdraw demand if accepted pending requirements company. declined again acceptance 'package,' including Finally, Local, recommendation International, gave containing 6 meantime, filed charges claiming company, above conduct, guilty unfair labor practice meaning Act. trial examiner found bad faith side. However, he include reason, recommended per se 8(a)(5). He reasoned outside them, against permissible opposition unions, subjects bargaining. Board, two members dissenting, adopted recommendations examiner. 113 N.L.R.B. 1288, 1298. response petition enforce order, Appeals set aside portion relating upheld cluase. 236 Federal Reporter, 2nd 898. 7 Because importance alleged conflicts Courts Appeals,4 granted certiorari cross-petition 78, clause. 353 907, 77 661, 662. 8 We turn relevant provisions statute. Section makes 'to refuse collectively his *.'5 defines follows: 9 '(d) purposes section, is performance mutual obligation meet at reasonable times confer good respect wages, terms conditions employment, agreement, question arising thereunder, execution written incorporating requested party, does compel require concession 61 Statutes-at-Large 142, 29 Code KF62 158(d), Annotated KF65 U5 158(d). 10 Read together, establish 'wages, employment duty limited subjects, area legally obligated yield. American Insurance Co., 343 395, 824, 96 L.Ed. 1027. As matters, however, free agree. 11 has met statute But license enter agreements ground do some subject conduct is, substance, about are This mean confined statutory subjects. Each lawful itself.6 enforceable agreed unions. follow may can lawfully insist them 12 Since matters unlawful without, here 'valid' phrase employment' It relates only procedure followed their call final settles term employment—it merely calls advisory partial 'no-strike' A prohibits striking during life regulates relations between See supra, page 408, n. 22, 831, hand, deals substantially modifies system weakening independence 'representative' chosen enables employer, effect, deal rather than Cf. Medo Photo 321 678, 64 830, 88 1007. 13 likewise come definition requires evasion agent Act prohibit voluntary addition authorize exclude 14 Accordingly, judgment 53 reversed cause remanded disposition consistent opinion. affirmed. 15 53—Reversed remanded. 16 78—Affirmed. 17 FRANKFURTER joins insofar holds conflict requiring employees, constituted practice. agrees views HARLAN regarding matter so clearly range industrial faith, prohibited simply deemed vague obligatory 8(d). 18 HARLAN, whom CLARK WHITTAKER join, concurring part dissenting part. 19 & N Dec. Immigration Nationality Decisions practice, reach conclusion different route light finding below bargained 'good faith,' dissent support charge Over twenty years ago said decision under Wagner Act: 'The theory act opportunity accredited likely promote peace bring adjustments itself attempt compel.' Jones Laughlin Steel Corp., 301 1, 45, 57 615, 628, 81 893. (Italics added.) Today's proceeds assumptions deem incompatible basic philosophy original retained vitality amendments effected Taft-Hartley 401—404, 828—829, fear open door intrusion substantive aspects process goes beyond anything contemplated suggested Court's decisions it. 21 considers connection §§ 8(b)(3) imposes '* 'propose' 'bargain' over 'insist' inclusion price tantamount 'mandatory' At same accepts Trial Examiner's unchallenged reference unions.' 22 Preliminarily, must state am unable grasp concept 'bargaining' one particular point, right becomes illusory press point insistence. Surely adoption inherently fluid standard apt inhibit entire party's strenuous argument might shade forbidden thereby produce watered-down notion imports appears foreign field commercial world. To me adds up saying limits effective three fields referred 8(d), employment,' even though expressly disclaims holding. 23 shall discuss my difficulties considerations. I. 24 start, 'other provision accorded courts expansive grudging interpretation. Many thought concern management now dealt compulsory topics. E.g. Judge Haw. Hawai‘i KFH45 A2 Allison Cir., 165 766, Law Reports, 990 (merit increases). And since something concededly insistence, see Shell Oil 1306, find difficult understand analysis problem why should considered affects employer-employee relationship much way, determine timing strikes will occur ascertain sentiment union's decision. 25 Nonetheless holding accordingly obliged it, words, think permissible, obligatory, 26 legislative history behind Acts persuasively indicates never intended power prevent violative policies Acts. leading proponent explained: 27 'When organization, when selected representatives, bill proposes escort say, 'Here are, legal your employees.' What happens doors inquired into, seek inquire it.' 79 Cong.Rec. 7660. 28 did contain faith' qualification lack remedied early judicial interpretation implied former 8(5), 49 453, requirement faith. E.g., Griswold Mfg. 106 713. apart essential check process, possessed authority regulate demands concerned. Nevertheless, engaged occasionally determining urged imposing employers affirmative unilateral determination, e.g., Singer 444, conversely prohibiting them. Jasper Blackburn Products 1240. These intrusions became Congress, 1947 Congress took steps curtail writing required. originally passed House Representatives 'collective bargaining' restricted specified discharge seniority provisions, safety conditions, vacations. 2(11), H.R. 3020, 80th Cong., 1st Sess. Report bill, sponsor, noted topics limit interest individual man work.' H.R.Rep. 245, 7. explaining need specifying mandatory, establishing 'objective standards' follow, continues: 30 (T)he present gone very far, guise setting judge what concessions make proposals counterproposals *. (Discussion cases.) 31 'These show writes law guides carry still control more agreements.' Id., 19—20. 32 Senate recast read form That elaboration topics, used general phrase: employment.' commenting changes, managers Conference appended statement observed: 33 amendment, while prescribe purely objective test bargaining, substantial extent effect regard, rejected, factor prevented merits positions parties.' H.R.Conf.Rep. 510, 34. 34 foregoing evinces congressional purpose assure greatest degree freedom negotiations, remain aloof possible regulation aspects. 35 1952 fully accord background lacked view, entirely showing There negotiations 'management functions' vest exclusively select, hire, maintain discipline, work schedules. arguments advanced case committed through strikingly similar us here. 'in derogation of' rights given covered 36 Court, reversing emphasized flexibility characteristic disputed allocated decided jointly determination across table, Board.' 409, 832, true related 'terms broad rationale undercuts distinguish ground. 'Congress pass desirability agreements. enforced application standards facts 408—409, 831—832, 37 therefore cannot escape today's deeply inconsistent intention precedents. sought specifically empowered enforce, warrant inferring carried substance equivalent how unequivocal fact 38 forgotten concession.' Here refused until provision. union, adamant traceable circumstances situation affect our construction If thing clear, viewed agency exercise powers aid economically disadvantageous position. 39 most cursory board circuit reveals unsettled evolving character Provisions decades today commonplace agreements.1 left fluid, intervention premature crystallization pattern adapted changing needs society concepts responsibilities management. impede evolutionary process. Under case, precluded attempting likelihood token seem 40 unqualifiedly stated 727, 8. nonstatutory depend evaluation total surrounding situation. deny instances where unyielding item consideration over-all picture context industry extreme constitute evidence unwillingness bargain. instance 'No-strike' analogous limiting hardly novel agreements.2 uncontested Examiner forecloses 41 Of course illegal Act's Maritime 175 686, contravene specific Supply recognizes, must, Act,3 violated subject. distinguishes involved without sanction contemplating action, negotiated directly wages. observing being *, exacts 'the negative treat other." U.S., 683—684, 833, Bargaining subversive mode ordained 684, 833. important purport define secures status controlling distinction anyone else negotiated. II. 42 excluding signatory 1239 contracting side, presents problem. action regard contravened 43 'with Such who unit, 9(a). 9(c) authorized direct representation election certify results. includes *' representatives. debatable language requested, sign required By conditioning change representative, duty. 44 affirm modify desist allow 'Sec. (a) employer— '(5) section 9(a).' 9. designated purposes, rates pay, hours 140, 141, 143, 158(a)(5), 159(a), 159(a). forth text opinion, 348, 722. '5. Responsibilities Company '5.4 intent provide peaceful means disputes arise assist out dispute, permit settlement: issues, officially known unit; defined, (3) vote, secret, impartially supervised, ballot, reject Company's subsequent offers made. '5.5 mutually 5.4 counter-proposals party; least days, taking place period; supervised Mediation Conciliation Serv- ice, Union. premises, convenient times, proper safeguards, observed NLRB elections, insure choice fair election. '5.6 results known, another following hours. '5.7 Agreement terminated ballot. '5.8 engage lockout, take sit-down, stay-in, slow-down, curtailment restriction production interference production, stoppage kind, picket plant, arbitration, matter, outlined Agreement, (including Grievance Procedure, applicable, Article), completely fulfilled.' 1310—1311. Darlington Veneer 85; Corsicana Cotton Mills, 178 344. Allis-Chalmers 213 374. note supra. 201(c) 203(c) 152, 154, 171(c) 173(c), 171(c), 173(c). variety Inland 170 247 (pension retirement plans); 76 322 (bonuses). stipulated hearings practices several companies incorporated requiring, another, ballots able varied defining working represented varying employee vote. binding union. merit position undermine argument, incorporates sections pre-strike earlier drafts strikes. Hartley House, informed dispute Only states irresponsible greatly reduced votes side urge fairness striking.' 22. later discarded, enacted Title II Director Service situations induce voluntarily change, stated: 'While expected extensively preventing many otherwise place.' 63. inescapable instead leave arrived normal II, 171(c). 209(b) 156, 179(b), imperil national health safety.

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