Legal Document

419 U.S. 428 95 Supreme Court Reporter 600. 42 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 558 INTERNATIONAL TELEPHONE AND TELEGRAPH CORPORATION, COMMUNICATIONS EQUIPMENT SYSTEMS DIVISION, Petitioner,v.LOCAL 134, BROTHERHOOD OF ELECTRICAL WORKERS, AFL-CIO, et al. Number 73—1313. Argued Nov. 19, 1974. Decided Jan. 14, 1975. Syllabus Petitioner employer filed an unfair labor practice charge against respondent union under § 8(b)(4)(D) of the National Labor Relations Act (NLRA), which makes it for a organization to induce employees strike force assign particular work in organization. Section 10(k) NLRA provides that whenever is filed, Board shall hear and determine dispute out such arose, unless within 10 days after notice has been parties submit evidence they have adjusted dispute, case or upon compliance with Board's decision, be dismissed. Pursuant hearing was held before officer, subsequently rendered decision adverse respondent, then indicated would not comply therewith. The General Counsel thereafter issued complaint on charge, at trial examiner's hearing, represented by same attorney who had officer proceeding, examiner concluded violated 8(b)(4)(D), cease-and-desist order. Appeals, respondent's petition set aside order, agreed but refused enforce ground because participated both proceedings, complied 5 Code KF62 554(a), Administrative Procedure (APA), prohibits commingling prosecutorial adjudicatory functions agency generally applies 'every adjudication required statute determined record opportunity hearing,' 551(7) defining 'adjudication' as 'agency process formulation order,' 551(6) 'order' 'the whole part final disposition . matter other than rule making.' Held: APA, 554, does govern proceedings conducted NLRA. Pp. 441—448. (a) determination itself 'final disposition' meaning APA. When Congress defined terms disposition,' some determinate consequences party here order anybody do anything conclusion proceeding. 441—444. (b) Nor order' 551(7). Although important practical proceeding result from alone make related manner former process' latter. unlike typical administrative law judge subject consideration agency. issues are similar identical focus standard proof different, inquiry whether engaged forbidden conduct objective. separate, each them. 444—448. 486 Federal Reporter, 2nd 863, reversed remanded. Matthew E. Murray, Chicago, Ill., petitioner. Norton Judge Come, Washington, D.C., NLRB support Robert Fitzgerald, Jr., Local IBEW. Mr. Justice REHNQUIST delivered opinion Court. 1 In 1947 responded unrest caused jurisdictional disputes adding Act, made any hopes forcing organization.1 belief resolution more industrial peace imposition sanctions, versus Radio & Television Broadcast Engineers Union, 1212, 364 573, 576—577, 81 330, 332—333, 302 (1961) (hereinafter CBS), time enacted 10(k), 29 160(k),2 unions settle their differences without awaiting enforcement orders courts appeals. 2 One year earlier many expressed concerns fairness regularity summarized Wong Yang Sung McGrath, 339 33, 36—41, 70 445, 447—450, 94 L.Ed. 616 (1950), enacting (Act).3 now establishes requirements governing certain come Act's definition 'adjudication.' We granted certiorari Appeals Seventh Circuit this case, 416 981 (1974), review its 554 applied Board, 863 (1973). Another decided short Bricklayers, Masons Plasterers International Union America NLRB, 155 U.S.App.D.C. 47, 475 1316 3 us arose between 134 Brotherhood Electrical Workers (IBEW) (hereafter respondent) Communications (CWA) over whose members perform telephone installation Cook County, Ill. Internicians, were nationwide collective-bargaining agreement CWA, established communications equipment systems division sell install private systems.4 1970 petitioner entered into contract village Elk Grove, sale switching system circuitry work. Since Illinois Bell Telephone Co., already run trunklines local operating Office village, petitioner's covered only remaining two stages necessary complete system. First cable routed room basement instruments rooms offices known 'pulling cable'; subcontracted C. Atlantic Riley Electric Construction respondent. Second, 'terminating cable,' connected instruments. planned own technational Telegraph Corp., 4 hoped terminating inquired supervisor possible. informed plan work, told representatives better meet business agent On occasions met agent, them installed all County CWA no County. second occasion quite explicit: 'We'd get there will trouble.'5 appeared jobsite December 3, 1970, begin portion left jobs.6 That afternoon representative Grove regional sales manager, pull off job temporarily. Representatives informed, returned work.7 6 alleging 158(b) (4)(D). Regional Director found reasonable cause believe merit proceeded accordance language 10(k): 7 'Whenever charged person paragraph (4)(D) section title, empowered directed arisen, unless, ten satisfactory adjusted, methods voluntary adjustment of, dispute. Upon dismissed.' 160(k). 8 Respondent notified officer8 alleged March 12, 15, 17, 1971, Stephen S. Schulson, office, presiding. All given full heard, examine cross-examine witnesses, adduce bearing issues. regulations, transmitted recommendation officer.9 received briefs petitioner, entitled 191 N.L.R.B. 828 (1971). August 30, determination. Director, behalf Counsel, 8(b) abeyance pending attempt resolve pursuant At examiner, presided compilation testimony he recommended ordered cease unlawful conduct; exceptions Board10 overruled ordering desist conduct. 197 879 (1972). 9 Circuit, cross-application order.11 very activity intended prohibit,' F.2d, 866, 554.12 court impression 'admitted hearings,' 867, regarded participation Schulson violation s 554(d), functions. See n. supra. Even though argued 'was binding effect anyone' so 'it improper prosecute based adduced relied Court's Plasterers' 79, 404 116, 92 360, 30 312 (1971), officer's rulings largely what consider Unfair Practice Hearing ..' 866—867. With perspective, attorney's 'plainly inconsistent spirit letter Act.' Id., 868. * To governs necessitates understanding statutory provisions which, noted above, other. aptly described Sung, supra, 'a new, basic comprehensive regulation procedures agencies,' U.S., 36, S.Ct., 448. further observed 'contains compromises generalities and, doubt, ambiguities.' 40—41, 450. Because designed regulate throughout wide spectrum activities, necessarily abstract places. we may know about sought applied, able apply it. 11 events leading up enactment §§ recounted CBS, need reviewed detail. judgment 'that settled permanently sanctions strikes imposed unions.' 577, 333. Voluntary therefore prompt encouraged 10-day grace period following filing dismissal if complies board's Regulations 101.36. 12 effectuate congressional objective disputes, almost date different those 8(b)(4)(D). regulations: 13 'If adjustment, usually open public, officer. nonadversary character, primary interest insure contains statement pertinent facts Board. afforded present respective positions produce contentions. permitted argue orally close decision. prepares analysis evidence, recommendations regard dispute.' 101.34. 14 Streamlined justified preliminary purpose attempting section; litigated subsequent Trial Examiner event remains unresolved.' Marine Cooks Stewards (Irwin-Lyons Lumber Co.), 83 341 (1949).13 15 nature adjudications applicable. While agency's interpretation applicable, substantive mandate, see Florida East Coast R. 410 224, 236 6, 93 810, 816, 35 223 (1973), characterization weight, turn relevance determining applicability Act. II 16 question must decide governed 554. did detail since conceded general hearings. 867. contend mistaken respect concession, state principal petitions rehearing acknowledges concession made,14 address issue merits. 17 If one start proposition action falls categories, rulemaking adjudication, certainly closer latter former. But light intention when indicate sound starting point. Knowledgeable authorities field shortly passage 'certain types neither making nor adjudication.' Ginnane, 'Rule Making,' 'Adjudication' Exemptions Under U.Pa.L.Rev. 621, 633 (1947); Netterville. Act: A Study Interpretation, 20 Geo.Wash.L.Rev. 1, 33 (1951); cf. Attorney General's Manual 40 (1947). 18 Secion 'in every hearing,'15 551(7), defines order'; including licensing,' 551(6). might intermediate 'part' think sounder used phrase 'whole part' refers components Intermediate however, virtue fact rather product disposition. Thus formulation' resulting 19 tautological sense, course, As (1947) observed: '(I)nvestigatory how formal, lead issuance containing element definition, constitute This 126, 367, standing alone, binds one.' conclude, 551(6), (7). Respondent's argument affirmance rests contention although 'order,' ultimate issue. 21 There undoubtedly These 126—127, 367: 22 '(T)he impact felt purposes award determines prevail picketing persists despite it, likely guilty desist. hand, wins comply, employer's evaporates charges Neither whom assigned legally bound observe lose protection may, here, shut down job. intense pressure, practically, conform design Act; provided way implement decision.' (Footnote omitted.) 23 prototype findings conclusions law, initially decides 'becomes appeal to, motion agency.' 557(b). instance, agree (now judge) order.' 24 relationship distinct his life taken until proposed reaches attention ascertaining substantial show Those inquiries proceeding.16 Indeed, advisory opinion, well end there. 102.91. accedes, dismissed complaint. Ibid. Only indicates necessitated, 8(b)(4) (D), 10(k). 122 10, 365: 25 'The even striking union. continues picket prove can res judicata later Typographical 125 759, 761 (1959). Both put new stage, often, cases, stipulate basis practice. Finally, exercise powers find (D) occurred, while preponderance (1959).' 26 itself, relevant, admitted one, 102.92, ruling merits common nonetheless separate; tribunal finally 27 Were adopt position merely significant sweep term numerous ancillary effect, appear reach. decline position. accordingly conclude definitional section. Proceedings 28 'free accord litigants appearing procedural rights requires,' 817.17 are, constrained Due Process Clause Fifth Amendment, raised Schulson's approached constitutional violation.18 remanded consistent opinion. It ordered. 31 Judgment Management 1947, 61 Statutes-at-Large 141, amended Labor-Management Reporting Disclosure 1959, 73 542, 158(b)(4)(D), presently provides: '(b) agents— '(4) (i) engage in, encourage individual employed commerce industry affecting refusal course employment use, manufacture, process, transport, otherwise, handle goods, articles, materials, commodities services; (ii) threaten, coerce, restrain commerce, where either object thereof is— '(D) requiring trade, craft, class another class, failing certification bargaining performing work.' Title 160(k) 60 237, codified act enact 5, Code, 80 378. Slight modifications sections codification, changes intended. H.R.Rep. 901, 89th Cong., 1st Sess., (1965); S.Rep. 1380, (1966). organized take advantage Commission could interconnected company Use Carterfone Device Message Toll Service, F.C.C.2d 420 (1968). 879, 881 previous evening 3. reported members, packed tools members. steward demanded employees' cards. membership cards, announced, 'I can't here' 'we here.' After comment, four five Johnson also drifted away. coffee break few moments later, assembled going home want 'nonunion' men. time, none worked rest day. Petitioner's remained 21, performed project Riley, Bell, completed confrontation occurred. regulations 'hearing officer' conducting act.' 102.6 'normally attached office qualified official.' 101.20(c). distinguished 'trial examiner,' presides proceedings. 102.6. current except examiner' changed 'administrative judge,' 102.6(1974). 37 Fed.Reg. 16787 101.34, require transmit provide 'no Exception brought failure presented objection, we. 160(e)—(f). '(a) applies, according thereof, extent involved— '(1) de novo court; '(2) selection tenure employee, appointed 3105 title; '(3) decisions solely inspections, tests, election; military foreign affairs functions; '(5) cases acting '(6) worker representatives. Persons timely of— place, hearings; legal authority jurisdiction held; matters asserted. 'When persons moving parties, give controverted law; instances agencies responsive pleading. fixing place hearings, due convenience necessity '(c) interested for— submission facts, arguments, offers settlement, proposals public permit; unable controversy consent, 556 557 title. '(d) employee reception title initial becomes unavailable Except ex parte authorized not— consult issue, participate; responsible supervision direction performance investigative prosecuting 'An not, factually participate advise witness counsel subsection apply— '(A) applications licenses; '(B) involving validity application rates, facilities, practices utilities carriers; '(C) member body comprising '(e) agency, like orders, discretion, declaratory terminate remove uncertainty.' adhered consistently See, e.g., Longshoremen's Warehousemen's (General Ore, Inc.), 124 626, 628—629 (1959): 'It 101.30 Statements 102.80 Rules Regulations, 7, character procedure adopted therefor, representation unresolved. adversary leads determination, applies. function delegation previously Agency Longshoremen instant prejudiced assignment. allege denied contentions, officer.' (Footnotes presided. Tr. Oral Arg. 20. join seeking nevertheless Rule 21(4), urges directing 'to dispute' sufficient bring operates 'required hearing.' our unnecessary contention. power depend violated. compiled requisite existed. suggested testimonial incredible, 'In context, finding occur, violation. testimony, credibility satisfied occurred.' N.L.R.B., 830 (footnotes omitted). By contrast, committing evidence. 160(c). '(i)t use hears investigate case.' Memorandum 4. suggestion should enforced 'incompatible accepted norms proper administration justice.' Cf. (1950). prosecuted assumed judicial nature, hard sequence danger saw. confused officers' examiners' judges') ordinarily decisions, 557(b), 3105. 867

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