Legal Document

347 U.S. 17 74 Supreme Court Reporter 323 98 L.Ed. 455 RADIO OFFICERS' UNION OF COMMERCIAL TELEGRAPHERS UNION, A.F.L.v.NATIONAL LABOR RELATIONS BOARD. NATIONAL BOARD versus INTERNATIONAL BROTHERHOOD TEAMSTERS, CHAUFFEURS, WAREHOUSEMEN & HELPERS AMERICA et al. GAYNOR NEWS CO., Incorporated Nos. 5, 6, 7. Reargued Nov. 9, 10, 1953. Decided Feb. 1, 1954. [Syllabus from pages 17-20 intentionally omitted] Number 5: Mr. Emanuel Butter, New York City, for petitioner. Bernard Dunau, Washington, D.C., respondent. 6: John Judge Manning, Boston, Mass., respondents. 7: Julius Kass, Justice REED delivered the opinion of 1 The necessity resolution conflicting interpretations by Courts Appeals § 8(a)(3) National Labor Relations Act, as amended, 61 Statutes-at-Large 136, 65 601, 29 United States Code KF62 (Supp. V) 158(a)(3), Annotated KF65 U5 impelled us to grant certiorari in these three cases. That section provides that 'it shall be an unfair labor practice employer * discrimination regard hire or tenure employment any term condition encourage discourage membership organization: *.'1 Eighth Circuit 6 (hereinafter referred Teamsters),2 following a decision Third Circuit,3 held express proof had effect encouraging discouraging employees their attitute toward union is essential element establish violation this section. holding conflicts with holdings Second 5 Radio Officers)4 and 7 Gaynor)5 which decisions First6 Ninth Circuits7 accord, such employee encouragement discouragement may inferred nature discrimination. (See Part III, 340, infra.) In reaching its Gaynor, also rejected contention, contention supported many Appeals,8 there can no unless it shown specific evidence intended his discriminatory action membership. determined natural result action. II, 337, Moreover, Officers Teamsters present views scope phrase 'membership organization' 8(a)(3). restricts 'adhesion membership,' i.e., joining remaining on union's roster; Circuit, other hand, interprets include obligations membership, being good member.9 I, 335, raises subsidiary questions regarding interrelationship 8(b) (2) Act makes organization agents 'to cause attempt discriminate against subsection (8)(a)(3) *.'10 IV, 342, These cases were argued last term, and, upon our order,11 reargued term. They reached manner.12 2 Teamsters. Upon basis charge filed Frank truck driver employed Byers Transportation Company member Local Union 41, International Brotherhood Teamsters, A.F.L., General Counsel Board issued complaint alleging §§ 8(b)(1)(A)13 8(b)(2) causing company Boston reducing seniority standing because Boston's delinquency paying dues. A hearing was before trial examiner, whose intermediate report largely adopted Board14 one dissenting. 3 found union, exclusive bargaining representative teamsters company's employ, 1949 negotiated collective-bargaining agreement governed working conditions all over-the-road operations company.15 This established system under furnish periodically list provided 'any controversy over settlement.' security provisions not effective due lack authorization then required Act.16 therefore included both members nonmembers. Each new company, after thirty-day period, placed at bottom list, would gradually advance position senior either removed reduced it. Position order truck-driving assignments, quality layoff. 4 bylaws 41 member, contract, month arrears dues forfeit rights. *'17 member's payable first day each month, he deemed 'in arrears' month's second month. did pay June 1950, until July 1950. When transmitted 15, who previously been eighteenth fifty-fourth, list. As reduction denied driving assignments otherwise have obtained received compensation. facts majority violated 8(b)(1)(A) Act. former, restrained coerced him exercise right refrain assisting guaranteed 7.18 that, 'absent valid contractual provision, absolute protected determine how handle affairs without risking impairment rights time whether make status degree conditional payment *' latter, concluded caused Trial Examiner's finding 'the normal nonmembers join Union, well retain potent assistance sought opposition avoided. employer's conduct tended Union.19 Its further enforcing rules prescribed thereby strengthening control dealings employers thus calculated through fear consequences losing privileges hope advantages staying in. entered requiring cease desist practices related conduct; notify withdraws request requests offer restore former status; whole losses resulting discrimination; post appropriate notices compliance. Board's petition enforce order.20 court here abundantly supports respondent attempted 'tenure employment", but 'discrimination alone sufficient' 'we find substantial support conclusion organization'. testimony shows clearly act neither encouraged nor discouraged adhesion union'21 because, assuming relevant, so discouraged. We granted certiorari.22 8 Officers. William Christian Fowler, Officers' Commercial Telegraphers Atlantic Haw. Hawai‘i Reports KFH45 A2 Bull Steamship discriminatorily refuse two occasions employ Fowler. No Fowler Following usual proceedings findings, conclusions, recommendations certain additions Board.23 9 transactions giving rise case occurred contract number steamship concerns including covering radio officers ships contracting companies. Pertinent are: 10 'Section 1. agrees when vacancies occur necessitating Officers, select are standing, available, vessels covered Agreement, qualified fill vacancies. 11 6. free selection transferred, promoted, hired take measures assure necessary 'clearance' Officer has assigned. If will writing.' 12 hiring hall complete given Examiner Board. Such legalized actions case.24 But concluded, primarily sentence 'was clear face provide arrangement' improper exclude general, although universal, assigned union. 13 that: On February 24, 1948, telegraphed job officer ship S. Frances often company; notified accept job; informed Kozel, previous voyage ship, replaced 'a man service company'; reported seeking clearance Kozel union; secretary wired suspended 'bumping' another taking authority suspension, suspension void times material case;25 subsequently refused, stating never again cleared jobs employers; unable obtain gave supplied returned home Florida; April 22, advised available work reporting told made stiff' adhered Evelyn dispatched 14 8(b)(2). defense provision preferential immunized notwithstanding secretary, conformity hiring-hall procedures contract. Thus refusing April, statutory observance rules, denying employment. only obedience Respondent might prescribe, fellow members. It strengthened mutual advantage, representative. non-members strong favor help alone, must regarded Respondent. Finally, demonstration Respondent's strength, dropping out advantage in.' 15 objection officer; discrimination, 16 affirmed findings conclusions enforcement order.26 agreed 'plainly give desires hire, require if wants standing', 'such procedure 'hiring hall' arrangement',27 refusal clearance. merely statement concerning breach within protection 8(c).28 agree viewing record evidence. Electrical Workers Board, 341 694, 71 954, 95 1299; Universal Camera Corporation 340 474, 456, 456. 8(a)(3), 'refusal hire. Without could employee. threats promises necessary. Whether motive was, argues, discharging satisfactory immaterial *. displayed power measure prepared protect violation', proper enter back-pay ordering reinstatement employer. certiorari.29 Gaynor. charges Sheldon Loner, nonunion Gaynor News Company, inter alia 8(a)(1), (3)30 granting retroactive wage increase vacation payments Newspaper Mail Deliverers' Vicinity benefits they additions.31 18 1946 engaged wholesale distribution delivery newspapers periodicals, into respecting department specified wages paid vacations, closed shop, restricting agreement, however, permitted pending supply employees. closed, ordinarily admitting first-born legitimate sons pertinent department. original extended 1948 supplementary executed parties 1947 providing event rates set therein months. October invalid union-security clause32 increased benefits. expressly recognized agent compliance November lump sum differential between old months' period. Further compensate differences contracts even though reference refused similar grounds contractually bound do so,33 business judgment, choose so. 19 since nothing prohibited equal non-union employees, affords allegation disparate treatment *,'34 alleged. arguments barren employes them union' purpose, policy rejected. obvious respect probable membership.' assume concedes acted self-interest unionism. An Loner similarly situated loss suffered reason them; 20 petition, parts here.35 issue legality distinguished Reliable Delivery, Cir., 187 Federal Reporter, 2nd Series 547, involving closely paralleling dealing same stating, 'there resulted what considered entirely legal minority asking special only. pretense representing plant. reasoned Court, quite able elect own ask Not here. represented Accordingly, betray trust members, only, leaving means equalizing situation.' continued, answer 'had purpose 8(a)(3)': 'discriminatory conduct, practiced here, inherently conducive respect, little doubt 'encourages' increasing workers like and/or quantum desire. reasons own, does want violations reject applicants. fact remains applicants been, continue be, 'encouraged,' benefits, desire backlog well, 'seek break down barriers steps, ranging bribery action.' intenal politics static; changes entrance come time. let down, among now successful almost surely large groups 'encouraged' illegal believe union-encouraging felt immediately, allowed escape altogether. reasonable likelihood effects years later, interpretation demands violator.' certiorari.36 I. Meaning 'Membership.' 21 language Congress enacting heart identical predecessor Wagner 8(3): 'By *.' reach application problem employers. aspects sections aimed membership.37 principles invoked those are, course, equally applicable most issues construction raised Court. 22 past we called clarify terms 'discrimination' Discrimination contested cases: involuntary seniority, job, discriminatory. Subject limitations,38 participation activities membership.39 23 Similar govern where insulate employees' organizational rights.40 designed allow freely unions, good, bad, indifferent abstain imperiling livelihood. limitation chosen impose proviso authorizes contracts, prohibits discharge generally members' terminated than failure tender periodic initiation fees uniformly acquiring retaining membership'.41 Lengthy legislative debate preceded amendment limited permissible discrimination.42 history indicates prevent utilization agreements compel fees. validity unions' concern about 'free riders,' receive representation unwilling contribute share financial unions meet while withholding reason.43 nonmembership requirements met. join, stay condoned.44 24 From foregoing too restrictively interpreted 'membership' discriminated delinquent obligation. entitled tardy applying rule apparently prompt sanctioned event, terminate delinquency. requesting submitting request, deprived affecting job. fortiori correctly remain proscribed. coerce desired right. 25 II. A.—Necessity Proving Employer's Motive. 26 ambiguous. outlaw organizations; accomplished prohibited. Nor such; encourages discourages 27 relevance motivation consistently predecessor. v.Jones Laughlin Steel Corp., 301 57 615, 628, 81 893, upheld constitutionality 8(3), said limitations employers' (employer's) true subject investigation full opportunity show facts.' 'real motive' decisive stated permits activity agitation collective employees.'45 applied criteria,46 writers field law emphasize importance section.47 annual reports regularly reiterates requirement discussion For example, recent states 'upon scrutiny particular case, motivated statute.'48 28 discriminating controlling clear. Senate Report said: 'Of course bill prevents incompetence; advancing aptitude; demoting perform.'49 Senator spoke 8(3) 'those enough impress aid law.'50 With consistent it, Congress, noted above, chose amendments. suggestion hearings amendments narrowly construed, House Conference 'prohibits organization, except extent obligates himself shop maintenance contract.'51 B.—Proof 30 intent indispensable 'agreements more favorable impossible. *'52 Both courts types satisfies requirement.53 recognition unnecessary common intend foreseeable conduct. Cramer States, 325 31, 918, 933, 89 1441; Nash 229 373, 376, 33 780, 781, 1232; Patten, 226 525, 539, 141, 143, 333; Agnew 165 36, 50, 235, 240, 624. protestation unavailing consequence discouragement. Concluding result, presumed consequence. circumstances sufficiently established. Our Republic Aviation 324 793, 982, 984, 1372, relied motives irrelevant principle. dealt infer proven purposes 8(3). discharges suspensions 'no solicitation' soliciting disclosed, 'motivated deduce, unionism' bias rule.' involved solicitation interfered organize. Since solely ground activity, matter result. 31 properly based 'inherently thereof, experience—that unionize directly proportional thought striking example foreseeably response obviate need apparent different doing emphasized impossible 32 conceded sole criterion extra admittedly gratuitous. payments, below contended behalf However, challenged holding, asserting liability obviously gratuitous payment. According reasoning betrays obtains interests. Thus, reasoned, bargains give, aggrieved bargain themselves. 34 us. hold nonmember not, violating prescribing Statements throughout powerless minority.'54 See Steele louisville Nashville R. Co., 192, 226, 173; Wallace 248, 238, 216; J.I. Case 321 332, 64 576, 88 762; Order Railroad Railway Express Agency, 582, 788. Cf. Ford Motor Huffman, 345 330, 73 681, 97 1048. III. Power Draw Inferences. 35 Petitioners contend orders should enforced records 'independent actually occurred.' subscribed view independent proceeding encouragement. argues actual proved tendency sufficient, existence reasonably character discrimination.' 36 case. To 'that situation company' replied plan adversary 'does go beyond production evidential facts, results flow facts. administrative agency commands limits inquiry proven. One lead creation boards statute experienced officials adequate appreciation complexities entrusted administration. Nevada Consolidated Copper 316 105, 62 960, 86 1305; Link-belt 311 584, 358, 85 368. restated familiar followed factfinding tribunals—that draw experience factual inquiries. 37 argued, ceased Taft-Hartley version amendments, discussing 'shocking injustices' review rulings, 'requiring rest rulings interferences (sic), conjectures, background, imponderables, expertness correct abuses act.'55 read statements Report, petitioners rely inferences standard 'abdicated' instances deference part specialized knowledge supposed inhere agencies led acquiesce concerned mixed (citing cases), rested turn, case).'56 10(e), 'supported whole,' 'will preclude in' 38 465, carefully dissatisfaction restricted 'substantial evidence' test noted, sufficiency 'intended negative function presumably equipped deal knowledge, carry possess respect.' There itself suggests denial inferences. inconceivable authors body some decide reject. conclude insofar concerned, alter prior law. 39 relies heavily outlawed 'which tends 'encourage organization"57 mean subjective contemplated drafters, accord 40 Encouragement 'subtle things' high introspective perception.' Donnelly Garment 330 219, 231, 67 756, 763, 91 854. But, lowered attained againt ones change 'quantum desire' immediate manifestations. Obviously, gross inconsistency inherent membership; unreasonable inference complains disproved prove rebutted inference: failed disprove nonmembers, Loner. rejecting argument admission policies necessarily static change. accurate prophecy 1952 altered 'all steady holders,' eligible. 42 nearly identical. instigation perform sanction method coercing practices. actions. follows eminently erred proved. 43 IV. Sanction Against Under 44 Section added 1947. "it (a)(3) whom membership'. Petitioner contends fatal error proceed employer, absent back 45 contained brought attempts literal reading requires showing engage which, committed, violate 8(a)(3).58 'final authority, issuance complaints',59 complaint.60 Even factors influence discretion relative prosecution Abuse shown, prosecuted, empowered 10(a) person engaging It, therefore, 46 absence joinder entry backpay cites 10(c)61 empowers affirmative pay, effectuate Act: Provided, directs employee, responsible him: Phelps Dodge 313 177, 189, 845, 850, 1271, 'reinstatement pay' limit, illustrate general award relief. reinstatement. 10(c) limit remedy comparable possessed employers.62 'effectuate Act' reimburse burden, but, contrary, frustrate Act's purposes. agree. follow form granted. petitioner committed against. exercised 47 Officer's affirmed. 48 reversed. 49 50 Affirmed. 51 Reversed. 52 53 FRANKFURTER, concurring. 54 construing ambiguous regulatory seldom avoid less charged administering statute. guidance litigants, becomes Court's opinion, doubly define ruling explicitly possible. 55 lower phrase, 'by organization', settle conflict avoidable controversies. 56 relevant setting susceptible alternative constructions decisively scope: (a) supplemented acted, open establishing 58 (b) sufficient warrant forth (a), aim 59 N Dec. Immigration Nationality Decisions think interpretation. acts likely hurt compelling separate characterizing state mind fictive formality. fairly judged drawn them. 60 Of serve rebut alleged alone. concededly raise prima facie suspect; introducing patently referable considerations, unrelated allowable freedom action, sum, just more, violation. obscure bolstered adduced, consideration. task weigh everything experience, believes drawn. process, anticipated involves pre-eminently judgment matters peculiarly competence, room left judicial review. 488, 464, 63 What written disagreement. concur judgment. BURTON MINTON, having joined opinion. BLACK, DOUGLAS joins, 66 7—The Case.—Eighteen ago became known today, gives dissent. Unquestionably used forbid 'discrimination.' 'unfair.' plain long accepted meaning forbids discourage' Waterman S.S. 309 206, 493, 500, 84 704. Recently, outlaws 'tendency effect' accepts interpretation, Indeed, concession fully yielded wanted compelled imputes guilt wish outlaw. Behind hostility affection weak ones. wages, hours liked disliked. enable reprisal, passed prohibiting aside powers, invade fix according best judgment.1 aptly phrased accomplish 68 careful 8(a) (3) favoritism membership.2 69 examiners purpose.3 evidence.4 late date penalize using fixing discriminates strengthen weaken advantage. reason, sustain 70 6—The Cases.—In 'unfair practice' violation' 'caused' treat differently way treated is, discriminate' my fall short 'violation 8(a)(3).' reverse affirm 'Sec. 8. employer— '(3) making (not established, maintained, assisted defined practice) thirtieth beginning whichever (i) 9(a), unit (; (ii) if, election 9(e) certified least eligible vote voted authorize agreement:) preceding twelve months notice 9(f), (g), (h) year rescind agreement: Provided further, justify (A) believing (B) enacted 1947, amended 1951, 601. Provisions 1951 italics; eliminated brackets. derived 1935 452, 158(3), amended. note 42, infra. 196 344 853, 95, 663. Del E. Webb Construction 702. Inc., 547. Western Cartridge 139 855. A.F.L. granted, 852, 91, 662. 197 719, 902, 640, 1339. cf. Air Associates, 121 586. Whitin Machine Works, 204 883. Walt Disney Productions, 146 44. See, e.g., 547; Wells, 162 457; Reynold's Pen 680; Draper 145 199; Starch Refining 186 1008; Colonie Fibre 163 65; 44; Sperry Gyroscope 129 922; Firestone Tire Rubber 93 N.L.R.B. 981. 158(b)(2), 158(b)(2): '(b) agents— '(2) 962, 947, 1382. Requisite engagement commerce admitted 158(b)(1)(A), 158(b)(1)(A). restrain 157 title'. provides: 'Employees self-organization, form, assist organizations, collectively representatives choosing, concerted protection, affected authorized 158(a)(3).' 94 1494. 'Central Area Over-the-Road Agreement,' 300 locals states. bracketed supra 45. Any '(a) Clarification above paragraph: dues.' 13, supra. (Trial Footnote.) If, appears suggest, rid slowpaying recalcitrant 3. connection, pointed retained thereafter, testified 1523. 449, 158 (3), 158(3). signed January 11, period August 16, 102 152, note, performed act. secretary's 'hasty suspend' disregard Fowler's constitution Howe's exceed chairman, advise offense afford conform suspending him. opportunity; purported ineffectual. 963. Clark dissented 8(c) 'The expressing views, argument, dissemination written, printed, graphic, visual constitute subchapter, expression contains threat reprisal force promise benefit.' 158(c), 158(c). 8(a)(1) interfere with, restrain, title' 8(a)(2) dominate formation administration 3, 1949, 1948. allege (1) executing clause. allegations inclusion file six-month 10(b) Examiner, relates timely prejudiced amendment. Kobritz, 193 8, 14; Bradley Washfountain 192 144, 149; Kingston Cake 191 563, 567; Edison 305 197, 225, 215, 220, 83 126. 299. clause become thirty days 'for thereof hereafter employer.' president believed see supra, legally discharged during life wages. found, 'evidence contracted regardless payment, voluntary. 722. modified illegality Chase modification. brief seeks question presented Talking Pictures Elec. 304 175, 849, 82 1273. Gullett Gin 361, 337; 456; 1271; 7, 77, 6; Sands Mfg. 306 508, 682; Fansteel Metallurgical 490, 627; Mackay Telegraph 333, 904, 1381; Jones 893. supra; Southern 886, 1246. 1229, 346 172. Associated Press 103, 650, 953. Kennametal, 182 817, American Law Reports, 562; Peter Cailler Kohler Swiss Chocolate 130 503. 157, text proscribe excepted H.Conf.Rep.No.510, 80th Cong., 1st Sess. 44, contract.' read: 'Provided, 151—166 title therein, 159(a) title, made'. Colgate-Palmolive-Peet 338 355, 166, 161. Taft 'It obliged trying prevent. why Cong.Rec. 4191. H.R.Rep.No.245, Sess., Page 33, commonly compulsory unionism hires him.' 4135, 4193, 4272, 4275, 4432; S.Rep.No.105, seq.; H.R. 3020, 27—28; 41. Eclipse Lumber 199 684; 1008, 629. 655, cited, E.g., Manoff, Law, 82; CCH, Guidebook 142; Wollett, 62; Millis Brown, Taft-Hartley, 428; Cox, Some Aspects Management Harv.L.Rev. 20; Ward, 'Discrimination' Yale L.J. 1152, 1158. N.L.R.B., 10th Annual 162. S.Rep.No. 573, 74th 11. Hearings 195, 38. H.Conf.Rep.No. 510, H.R.Rep.No.1147, 21; 47, 1166. Industrial Cotton Mills, 208 87; Cusano 190 898; Allis-Chalmers 48, enforced, 435; Gluek Brewing 144 847. S.Rep.No.573, 13. During stated: 'Under proposed legislation, consummated elected entitled, organization. way. cannot law.' 79 7673. 52, H.R.Rep.No.510, 55. op cit. 46, seq. 21. 654. Katz 411. 153(d), 153(d). Id., 160(b). Indiana Michigan Electric 318 17, 394, 399, 87 579. 160(c), 160(c). 198 919, 924; H.N. Newman, 725, 488; 1014. 1937, 45—46, 893; 1941, 182—183, 846, 847, 1271. Fruehauf Trailer 68, 74—77 (1935), sustained, 49, 55—57, 642, 643, 644, 918; Pacific Stages, 471, 486 (1936), modified, 1938, 99 153, 168, 176 177; Kansas City Light 1414, 1436—1453 (1939), 1940, 111 349—351; Martel Mills Corporation, 712, 721, 724, 733 (1940), denied, 114 624, 630—633; 356 586, 591—592; Stonewall 240 (1941), 1942, 629, 632—633; 434 (1943), 1943, 855, 858—860; Robbins Rubber, 440, 441, (1946), 161 798, 801; 545, 546 547 457, 459 460; Victor Gasket 234, 235 (1948), 174 867, 868; B Z Hosiery Products 633 (1949), Bochner 180 1021. Motors 1143, 1145 (1944), cir., 1945, 150 201; 348, 349—350 Enforced, 659, 669—670 (1950), made, latter substantially Marathon 106 (September 29, 1953), examiner numerous 'discriminated UE. sustaining overruling others as: deter joining, future to; UE organization'; recall (certain employees) connection UE'; recalling cancellation Mexico 107 (November 1953); Terri Lee, 141 (December 28, 1953). cited 2, 218, 220—226, 501, 503, 704, reviewed 'because of' sustained indicated repudiate Hudson Car 128 528, 532—533, 815, 826—827 (1941); 1944, modifying 1079, 1095 (1943); 1953, 87, 1265 (1953). none point purpose.

Classification Label: 6