Legal Document

345 U.S. 100 73 Supreme Court Reporter 552 97 L.Ed. 852 AMERICAN NEWSPAPER PUBLISHERS ASS'Nv.NATIONAL LABOR RELATIONS BOARD. Number 53. Argued Nov. 19, 1952. Decided March 9, 1953. Mr. Elisha Hanson, Washington, D.C., for petitioner. Bernard Dunau, respondent. Justice BURTON delivered the opinion of Court. 1 The question here is whether a labor organization engages in an unfair practice, within meaning § 8(b)(6) National Labor Relations Act, as amended by Management 1947,1 when it insists that newspaper publishers pay printers reproducing advertising matter which ordinarily have no use. For reasons hereafter stated, we hold does not. 2 Petitioner, American Newspaper Publishers Association, New York corporation membership includes more than 800 publishers. They represent over 90% circulation daily and Sunday newspapers United States carry published such papers. 3 In November, 1947, petitioner filed with Board charges International Typographical Union, called ITU, its officers were engaging practices 8(b) (1), (2) (6) Taft-Hartley Act.2 Regional Director issued complaint, including charge practice defined 8(b)(6), popularly known 'anti-featherbedding' section Act. It not questioned acts complained affected interstate commerce. 4 trial examiner recommended ITU be ordered to cease desist from several activities but 'featherbedding' under dismissed. 86 N.L.R.B. 951, 964, 1024—1033. dismissed those charges. N.L.R.B., at pages 963. Petitioner then instant proceeding Appeals Seventh Circuit seeking review modification Board's orders. That court upheld dismissal all 8(b)(6). 193 Federal Reporter, 2nd Series 782, 796, 802. See also, 7 Cir., 190 45. A comparable view was expressed Rabouin versus Board, 195 906, 912—913, contrary taken Gamble Enterprises 6 196 61. Because this claimed conflict upon important issue first impression, granted certiorari case, 344 812, 10,3 Enterprises, 814, 43, Id., 872, 165. Our decision case (National Inc.) follows this, 117, 560.4 5 Printers composing rooms long sought retain opportunity set up type much possible whatever printed their respective 1872, paid on piecework basis, each diversion composition once reflected loss income. Accordingly, had been formed 1852 local typographical societies, began battle typesetting work possible. With introduction linotype machine 1890, problem took new aspect. When advertisement type, impressed cardboard matrix, or 'mat.' These mats used makers also reproduced distributed, little cost, other who them molds metal castings print same advertisement. This procedure by-passed compositors except made original form. Facing work, secured agreement permit compositors, convenient times, duplicate forms advertisements precisely manner though mat used. reproduction received regular pay. doing 'made work' came trade 'setting bogus.' wasteful procedure. Nevertheless, has become recognized idiosyncrasy customary feature wage structure schedule printers. By fitting 'bogus' into slack periods, interferes 'live' work. compositions find advantageous because burdens competitors costs making own. Approximate time limits setting usually fixed four days three weeks. On rare occasions are rerun, but, ordinarily, they promptly consigned 'hell box' melted down. Live priority latter takes 5% printers' time.5 detailed regulations included 'General Laws' ITU. thus became standard part employment contracts signed unions. locals allowed negotiate foreign language publications, exemptions commercial national advertisements. 8 Before enactment legality enforceability payment 'bogus,' agreed publisher recognized. Even now before us what policy should adopted Nation toward continuance featherbedding. solely one statutory interpretation: Has Congress practice? 9 While both sides clear, yet between views Sixth Circuits amply justifies our examination legislative history section. reads: 10 'Sec. 8. * 11 '(b) shall agents— 12 '(6) cause attempt employer deliver agree any money thing value, nature exaction, services performed performed. *' 61 Statutes-at-Large 140 142, 29 Code KF62 (Supp. V) 158(b)(6), Annotated KF65 U5 158(b)(6). 13 From above history, below concluded insistence securing wages practice. found only actually done employees course distinguished 'for performed.' Setting held service remained parties determine worth employer. contends agents 'in exaction' did 'cause employer' anything exaction'. Agreement position makes unnecessary consider additional contentions Board. 14 However desirable elimination industrial featherbedding may appeared Congress, 141 et seq., demonstrates legislation put final form decided limit law. 15 restraining influence throughout congressional consideration fact constitutionality Lea Act penalizing broadcasting industry litigation. Petrillo April 16, 1946, amendment Communications 1934, 47 151 seq. Its material provisions stated margin.6 December 2, District Northern Illinois violated First, Fifth Thirteenth Amendments Constitution States. 68 F.Supp. 845. pending appeal debate bill. Not until June 23, day passage bill President's veto, upheld. Petrillo, 332 1, 67 1538, 91 1877.7 16 purpose sponsors avoid controversial features clear written statement Senator Taft, cosponsor Chairman Senate Committee Public Welfare, caused incorporated proceedings Senate, 5, 1947. Referring substitution place House said: 17 'The awaiting determination Court, partly arising term excess number reasonably required.' Therefore, conferees general subject warranted least joint study committee proposed could give full matter.' 93 Cong.Rec. 6443.8 18 amplified Senator's oral floor Senate: 19 'There further provision possibly interest, rather elaborate prohibiting so-called feather-bedding unlawful practices. conferees, while approving feather-bidding practices, felt impracticable board power say so many men right, too many. would require practical application law courts hundreds different industries, facts seemed me almost impossible. So declined adopt After all, statute applies industry. Those Their questioned. We thought probably better wait see happened, event, even favor However, accept unlawful-labor union people do fairly easy determine, accepted unions, bill.' 6441. his supplementary analysis inserted Record 12, 6859. 20 As indicated above, bill, H.R.3020, passed House, 17, contained §§ 2(17) 12(a)(3)(B) explicit condemnation featherbidding. definition based example, condemned required employ 'persons perform actual services,' well performed.'9 present compels conclusion means said means. instances where exact return Thus, employee, employer's consent, organization's demand employee compensated spent disputed transaction simply fall kind statute. absence proof contrary, employee's compensation reflects entire relationship 21 situation mentioned Taft illustration he colloquy reference 8(b)(6): 22 '(I)t seems perfectly intended. intended make man say, 'You must musicians, if you insist there room 6, anyway.' exaction want, need, willing accept.' 6446. 23 exacted anyone.10 last sentence quotation read context. There six musicians suggestion excluded Section leaves collective bargaining what, any, bona fide work,' compensable rate it. 24 judgment sustaining insofar affirmed. 25 Affirmed. 26 DOUGLAS, dissenting. 27 & N Dec. Immigration Nationality Decisions fail how never indeed thrown away newspaper. bogus' old deeply engrained But types 'feather-bedding.' sure, outlaw 'feather-bedding' unaffected two employed man's my view, presented Inc., 560. 28 Jackson labels tendered 'useless unwanted work.' Certainly 'unwanted' employer—as putting basis saying 'useless.' theatres, providing music audiences. forced hire theatrical program offered public. Perhaps entertainment without them. conclude rush want tread. reported Conference many.' quite different. Here typesetters, contribution whatsoever enterprise. 'work' unwanted, wholly useless. add directly indirectly publication nor contents. page paragraph. sense can conceive 'service' To compulsion. draw distinction tenders. No time-honored struck down 30 outlawry might disruptive established against public interest. obtain relief oppression here. 31 CLARK, whom CHIEF JUSTICE joins, 32 Today's twists tail. If staying home, conserving energies publisher's material, concedes, must, squarely apply. Yet Court's these peculiar 'services' snatch reach 'services,' less, consist proofread reset corrections, immediately discarded Instead, waste feeds 'melting pot'; that, turn, oozes fresh lead molded 'pigs' retravel Sisyphean journey. holds designed hit sanctions futile use labor, lead, machines, proofreading, 'hell-boxing,' etc. Anomalously, less effectual is. 33 declares 'to performed.'1 cause' refer equally ordinary give-and-take process unleashing ultimate weapons union's armory. Likewise, imply demands tantamount extortion bring play; hand, phrase merely describe payments Again, designate employees' conduct ranging shadow boxing off plant productive effort deemed beneficial alone. 34 solves complex interpretive problems scrapping broadside finding 'work,' criteria superfluous, automatically out And undone passes 'work.' An imaginative need strain far invent lethal stifle last. 35 Concededly, ban every make-work device ingenuity spawn. prime exponent ultimately enacted, advised abeyance Petrillo.2 Meanwhile, however, aimed catch unions 'accept work.'3 He considered 'perfectly clear' violation (employees), anyway."4 surely cannot pack overflow 'the 4' stay home quaint notion befogs draftsmen's intent strike (the employer) accept.'5 36 statute's test hollow phrase. Recognizing administrative difficulties deciding particular job, perhaps spared that.6 certainly efficiency engineers indulge frivolous exercise. interpretation exclude contrived patently useless job operations benefit effectuate purpose. Cf. Tennessee Coal, Iron R. company Muscoda Local, 1944, 321 590, 598—599, 64 698, 703, 88 949; Jewell Ridge Coal Corporation Local 6167, 1945, 325 161, 165—166, 65 1063, 1065—1066, 89 1534; Anderson Mt. Clemens Pottery Co., 328 680, 691 693, 66 1187, 1194—1195, 90 1515. modestly disclaim oft-recognized expertise assures qualifications administering task. 37 reflect labor's fears unstable sensitivity displacement technological change. full-employment economy security unjustifiable drain manpower pool. legislature. Under system separation powers ought blithely mangle effort. 140—142, 49 State. 449, amended, 158(b)(1), (6), 158(b) (1, 6). grant was— 'limited petition writ, i.e.: "Whether Union incident essential production handling 'bogused' material." discussion cases, Cox, Some Aspects Harv.L.Rev. 274, 288—290; Featherbedding Taft-Hartley, 52 Col.L.Rev. 1020—1033. metropolitan areas, 'ad said' room, contrasted 'news side,' take full-time basis. Such overtime rates accumulation it, permitted reduce force decline suitable extra applying employment. examiner, Rochester Democrat Chronical cost $5,000 year, Chicago Herald-American, about $50,000, Times, $150,000. '§ 506. (a) unlawful, express implied threat force, violence, intimidation, duress, means, coerce, compel constrain compel, licensee— '(1) employ, connection business licensee, person persons needed licensee services; '(2) value lieu giving, account failure give, persons, '(3) licensee; '(4) services, performed; *. '(c) subsection (b) enforcement attempted enforcement, lawfully employed, contract right heretofore existing legal obligation incurred assumed. '(d) Whoever willfully violates shall, conviction thereof, punished imprisonment year fine $1,000, both. 60 89, 90, 506(a, c, d), d). report subsequent acquittal merits, 75 176. 31, 1948, Joint Labor-Management Relations, 401 later reviewed litigation examiner's 'a continuing cases provision, since sufficient experience base intelligent amendments time.' S.Rep.No.986, Pt. 3, 82th Cong., 2d Sess. 61, Pages 58—61. Hartley, Policy (1948), Page xiii (Taft), 174, 182—183 (Hartley). H.R. 3020 provided that: 2. Act— '(17) 'featherbedding practice' effect requiring employer— '(A) '(B) employing, employer, '(C) '(D) business, '(E) tax privilege of, producing, preparing, manufacturing, selling, buying, renting, operating, using, maintaining article, machine, equipment, materials; accede impose restriction production, preparation, manufacture, sale, purchase, rental, operation, use, maintenance same, preventing limiting materials. 12. following activities, affecting commerce, concerted activities: Calling, authorizing, in, assisting— interference operations, object practices; *.' Legislative History 160, 170—171, 204, 205. relate requests for, upon, during lunch, rest, waiting vacation periods; squads; reporting duty done. incidental given fixing exactions something (Emphasis added.) 1877. 6441, 6443. upheld, claims unconstitutional vagueness, 506, banned various plaguing broadcast licensees. Ibid.

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