Legal Document

377 U.S. 58 84 Supreme Court Reporter 1063 12 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 129 NATIONAL LABOR RELATIONS BOARD, Petitioner,v.FRUIT AND VEGETABLE PACKERS WAREHOUSEMEN, LOCAL 760, et al. Number 88. Argued Feb. 18 and 19, 1964. Decided April 20, Archibald Cox, Sol. Gen., for petitioner. David Previant, Milwaukee, Wis., respondents. Mr. Justice BRENNAN delivered the opinion of Court. 1 Under § 8(b)(4)(ii)(B) National Labor Relations Act, as amended,1 it is an unfair labor practice a union 'to threaten, coerce, or restrain any person,' with object 'forcing requiring person to cease using, selling, handling, transporting, otherwise dealing in products other producer * doing business *.' A proviso excepts, however, 'publicity, than picketing, purpose truthfully advising public that product are produced by employer whom organization has primary dispute distributed another employer, long such publicity does not have effect inducing individual employed course his employment refuse pick up, deliver, transpor goods, perform services, at establishment engaged distribution.' (Italics supplied.) The question this case whether respondent unions violated section when they limited their secondary picketing retail stores appeal customers buy certain firms against which one respondents was on strike. 2 Respondent Local 760 called strike fruit packers warehousemen Yakima, Washington.2 struck sold Washington State apples Safeway chain about Seattle, Washington. aided Joint Council, instituted consumer boycott support They placed pickets who walked back forth before customers' entrances 46 Seattle. two each 45 three 46th store—wore placards handbills appealed customers, generally, refrain from buying apples, were only numerous food stores.3 Before appeared store, letter store manager informing him being expressly instructed patrol peacefully front stay away delivery interfere work your employees, deliveries pickups store.' copy written instructions pickets—which included explicit statement 'you also forbidden request patronize store'—was enclosed letter.4 Since desired assure employees work, avoid interference deliveries, after opened departed closed. At all times during continued no obstructed. handled normal both employers involved. Ingress egress others interfered wit manner. 3 complaint issued charges conduct 8(b)(4) amended.5 submitted directly Board stipulation facts waiver hearing proceedings Trial Examiner. held, following its construction statute Upholsterers Frame & Bedding Workers Twin City 61, 132 N.L.R.B. 40, 'by literal wording (to Section 8(b)(4)) well through interpretive gloss thereon drafters, prohibited.' 1172, 1177.6 Upon respondents' petition review Board's cross-petition enforcement, Appeals District Columbia Circuit set aside order remanded. court rejected held statutory requirement showing would 'threaten, restrain' could be satisfied affirmative proof substantial economic impact had occurred, likely occur result conduct. remand left 'free reopen record receive evidence upon issue fact threatened, coerced, restrained.' 113 U.S.App.D.C. 356, 363, 308 Federal Reporter, 2nd 311, 318. We granted certiorari, 374 804, 83 1693, 10 1030. 4 reading statute—that legislative history phrase 'other picketing' reveal congressional outlaw directed site—necessarily rested finding Congress determined always threatens, coerces restrains employer. therefore special responsibility examine confirmation made determination. Throughout federal regulation relations, consistently refused prohibit peaceful except where used means achieve specific ends experience shown undesirable. 'In sensitive area dealt explicitly isolated evils established flow picketing.' versus Drivers etc. Union, 362 274, 284, 80 706, 712, 710. recognized ascribed unless 'there clearest indication history,' ibid., intended do so regards particular under review. Both policy our adherence principle interpretation reflect concern broad ban might collide guarantees First Amendment. 5 examined amendments 8(b)(4), conclude requisite clarity plan proscribe sites, and, particularly, limited, here, persuading traded stores. All shows way 'isolated evil' believed require proscription sites use persuade trading force with, put pressure upon, This narrow focus reflects difference between site product. In latter case, union's confined since asked withhold patronage but employer's goods. On hand, trade goes beyond goods seeks public's assistance forcing cooperate dispute.7 say distinction alluded debates. It say, carried attended abuses directed. 6 story 1959 amendments, we detailed greater length filed today Servette, Inc., 46, 1098, begins original Act. Its prohibition, pertinent part, encouraging 'the engage in, concerted refusal handle *' proved inept language. Three major loopholes revealed. inducement 'employees' proscribed, direct supervisor threats trouble prohibited. 'strike refusal' prohibited, single employee forbidden. Finally, railroads, airlines municipalities 'employers' Act encouragement unlawful. 7 When relations legislation considered 1958 closing these important House some members Senate. But prevailing Senate sentiment favored new primarily concerned redress abuses, neither Kennedy-Ives bill, failed passage Eighty-fifth Congress, nor Kennedy-Ervin adopted Eighty-sixth revision 8(b)(4). Proposed offered several Senators fill rejected. Administration introduced supported Dirksen Goldwater.8 Senator Goldwater, insistent proponent stiff curbs, proposed own amendments.9 think especially significant Senator, Secretary testifying Administration's referred making necessary.10 McClellan, bill curb boycotts, mentioned 'pressure form dissuading employers.'11 (Emphasis opponents who, expressing fear sweep, suggested picketing. Humphrey first sounded warning early April.12 Many months later, Conference Senate, Morse, conferee, express ground prohibited picketing.13 often cautioned danger, interpreting statute, reliance views opponents. zeal defeat understandably tend overstate reach. 'The fears doubts opposition authoritative guide legislation. sponsors look meaning words doubt.' Schwegmann Bors. Calvert Distillers Corp., 341 384, 394—395, 71 745, 750, 95 L.Ed. 1035; see Mastro Plastics Corporation Board, 350 270, 288, 76 349, 360, 100 309; Calamaro, 354 351, n. 9, 358, 77 1138, 1143, 1394. silence pregnant significance must been aware outside reach 8(b)(4).14 faithful respecting legislating clearly identified specified kind here involved abuse, indicated intention banning 8 similarly beclouded, what appears confirms conclusion. From outset provisions concerning boycotts. Landrum-Griffin bill,15 ultimately passed House, embodied Eisenhower proposals initial Congressman Griffin introducing bears name, contains reference list he thought required amendments.16 Later debates did discuss context abuse shutting off 9 stated applied customer selling manufactured strike, if designed 'coerce (the) second establishment, get manufacturer *,' further that, 'of course, constitutional right free speech. If coerce retailer manufacturer'—then stopped.17 relevant changes former substituted 'any person' Taft-Hartley wording, employer,' deleted 'concerted' refusal, thereof end e.g., handling of, There thus nothing prior convening Committee cut stop meant bar per se, clear; example, 8(b)(7) makes practice, picket cause picketed contrast, prohibition keyed coercive nature conduct, otherwise. 11 Kennedy presided over Congerence Committee. He Thompson prepared joint analysis bills. pointed up Amendment implications language revisions stating, (of bill) reaches ut leaflets, radio broadcasts newspaper advertisements, thereby interfering freedom 13 '* apparent purposes amendment prevent appealing general consumers dispute. basic infringement expression.18 14 step development proviso, alters conclusion amended should Because sweeping speech, conferees accede proposal without safeguards public, even 'coercive.' addition proviso. follow protected exception indicates coercive. 15 No Report compromise benefit Kennedy's said preserved methods asking them nonunion sells able permit shop, agree shall informational activity short words, can hand out shop carry having ambulatory *.'19 explanation compel Agreement contemplated prohibiting urges 'refrain goods.' To read into Agreement, basis statement, depart evils' spelled itself. 16 Peaceful shut aids poles apart persuades more conferees' led authorize him, cutting work. barred. 17 sum, site, necessarily coerced restrained Rather, usual evils.' opposed 'unrealistic' because, urged, automatically provokes establishment. will, said, signs handbills, note injunction ' market.' Be may, holding simply takes never condemnation urged us petitioners, revealed 'clearest require. Drivers, supra. 19 come then falls within indicate *s 8(b)(4)(ii). hold fall area, Safeway. While diminution Safeway's purchases due drop demand causes literally 'it familiar rule thing may yet because spirit makers.' Holy Trinity Church States, 143 457, 459, 511, 512, 36 226. See American Trucking Ass'ns, 310 534, 543—544, 60 1059, 1063—1064, 1345. product, closely expanded include premises succeeds, decreased diminished stops falling demand, response inflict injury generally. merely product; creates separate employer.20 20 disagree test suffered suffer loss. violation established, effective reduce sales lead item poor seller. 21 judgment vacated remanded direction enter setting order. ordered. 22 Judgment directions. APPENDIX TO OPINION OF THE COURT. 23 DOUGLAS took part consideration decision case. 24 'Notice Storage (sic) Manager Store Employees. 25 'We advised you presently Apples. 26 1960 crop Apples packed non-union firms, including Yakima Valley. Prior year, Valley parties collective bargaining contract Teamsters Union Washington, negotiated, position many contract, seniority, overtime, protection unjust discharge, grievance procedure security, weakened eliminated entirely. These extreme demands plus bargain good faith possible efforts agencies assisting negotiations. Even Governor Honorable Albert D. Rosellini, intervened committee arbitration. agreed declined. 27 caused Seattle office prepare employers, charging practices law. 28 still continuing win ask consuming purchase 29 'Therefore, going place trying store. furnished attached herewith. 30 intend advise intentions respect, perhaps posting notice bulletin board. 31 'If program, difficulties far concerned, observe disobeying given, please notify undersigned representative once will take steps situation promptly corrected. 32 'As noted above, information If, correct exclusively state, transferred actually sold. 33 'Thank cooperation.' 34 follows: 'Instructions Pickets. 35 'Dear Picket: 'You help publicize nationwide aimed make program success cooperation essential. Please carefully. 37 '1. You altercation, argument, misconduct kind. 38 '2. walk sidewalk grocery located toward rear parking lot, permission apron immediately store; denies permission, lot. As large shipping centers given instruction locations. 39 '3. entrance apparently men. limit 40 '4. w th stores, shopping 41 '5. Similarly, about, tell advertising keep working. Likewise truck drivers (i.e. go through). 42 '6. distribute, distribute courteous manner throw ground, picked kept clean. 43 '7. intoxicating beverages while duty person. 44 '8. state official private party complain complaints registered representative. '9. answer most questions program. However, additional problems arise instructions, call undersigned.' BLACK, concurring. 47 opinions my Brother HARLAN, N Dec. Immigration Nationality Decisions feel impelled passing forbid striking neutral supplied Construed way, HARLAN be, believe, contrary view, abridges speech press 48 'Picketing,' common parlance 8(b)(4)(ii)(B), includes least concepts: (1) patrolling, is, standing marching round street, sidewalks, property, elsewhere, generally adjacent someone else's premises; (2) arguments, usually placard, people picketers' side controversy. concurring Bakery Pastry Wohl, 315 769, 775, 62 816, 819, 86 1178. Hughes Superior Court, 339 460, 464—465, 70 718, 720—721, 94 985, 469, 723. dissemination regarded discussion guaranteed Constitution,' Thornhill Alabama, 88, 102, 736, 744, 1093, patrolling cases followed lend 'support contention control.' Giboney Empire Ice Co., 336 490, 499—500, 69 684, 690, 689, 93 834. Cf. Schneider State, 147, 160—161, 146, 150, 155.1 constitutionally protected, like intertwined, press, non-protected same time encroach press. courts, upholding regulations weigh circumstances appraise substantiality reasons advanced enjoyment rights' U.S., supra, 161, 150. also, N.A.A.C.P. Alabama ex rel. Patterson, 357 449, 460—462, 78 1163, 1170—1171, 1488; Button, 371 415, 438—439, 328, 340 341, 405. 49 assuming Government power regulate persons local streets Washington,2 difficult intends anything dispute—a different (again power) barred regulated every around interstate businesses open movement property. 150; promote safety, peace, comfort, convenience, Cantwell Connecticut, 296, 304, 900, 903, 1213; protect violence breaches peace those 105, 745. Here reasons. manifests government interest such, unlawful consumers, picketers are, wholly patrol. Thus outlawing cannot sustained permissible patrolling. Carlson California, 106, 112, 746, 748. 50 Nor forbids criminal undertaking. Compare For itself says construed publicity, (the have) Thus, clear something recognizes perfectly lawful. Yet, reasons, wish inform picketing—solely lawful want impart customers. 51 short, banned order, banned. Instead, lawful, views. abridgment controversy, subject 52 accept HARLAN'S view violate communication open. reason strikes me par governmental suppression city there continue television stations. freedoms validly taken degrees fell swoop. 53 concur vacating remanding directions 54 STEWART joins, dissenting. 55 lawfully dissuade purchasing Such activity, law, known 'secondary employer' 'primary employer.' 56 controlled 8(b) Act1 57 '(4) (ii) commerce (B) producer, processor, manufacturer, 59 'nothing contained above provisions) union) transport distribution .' added.) found Union's though peaceful, se appropriate reversed, absence 'threatened, restrained' (113 360—363, Pages 315—318), proceedings. noe rejects (correctly, believe) Appeals' holding, nevertheless refuses enforce hol although not, clarity' (ante, Page 63), evinced related 61 Being unable discern Court's subtle narrowing provisions, respectfully dissent. I. activities plainly subdivision (4)(ii)(B) 8(b), indeed virtually concedes much 71-72). Certainly 'person' defined subdivisions; indubitably 'an object' requiring' Safeway, in' of' 'producer'; excluded ameliorative 80-81. 63 Nothing lends fine draws enactment speaks pervasively threatening, coercing, restraining person; differentiates modes expression, types me, argument very unconvicing. 64 points lowering degree ceasing products, surely too refined reality. hardly supposed all, most, instances type numbers either social conviction prefer need brave line. Moreover, expected know ascertain precise scope operation. this, decrease And effect, rather reducing deem expedient turn whose approved union. 65 drawn majority becomes tenuous depends largely entirely independent gas station owner gasoline purchased company, suppose less 'Do X gasoline' station.' sure multiple article seller, gainsaid laid down unworkable applicability turned calculation relation total income 66 informs 'Peaceful product,' ante, 70. was, stated, 'well 1940,' 64, 7, present enactment. light assertions, remarkable substantially acknowledges 71—72)2 cites report legislator, commentators casting doubt here. II. 67 fares better examined. sheds matter, excuses blinding background materials show. Fairly assessed they, opinion, belie Congress' thesis rests. find comfort generalization "In picketing" 62-63); enacting addressing facet boycotting legislation, namely, now illuminate mind. 68 connection forefront amending Labor-Management Reporting Disclosure 1959. See, remarks 105 Cong.Rec. 3951, II Leg.Hist. 1007; Lafore, 3928, 1471; Griffin, infra, 4. During debate criticized Goldwater s reflected incorporated substance House. said: 'To leaflets appeal. entrances, placard bought, form. target 'coerce, restrain.' existing foreclosure so-called effectively sealed consumers.' 6232, 1037. reached bills, Kennedy, chaired Committee, stated: '(T)he carrying dissemina e material sites. plant. conference, (ultimately resulting 8(b)(4)(ii)(B)) site. What permitted giving radio, forth.' 17720, 1389. 72 day explained quite objection portion reported member: 73 'This illegalizing hot cargo agreement. illegal prohibits picketing? shoe department higher wages. sign saying, shoes.' manufacturer.' 17882, 1426.3 74 day, spoke particularized rights conferees: 75 '(c) 'Under impossible racket conditions sweatshop conditions, plant progress. advertisements newspapers, announcements site.' 17898—17899, 1432. consider compelled fair comments, leave seriously precisely done; added emphasis word 'and' 70) submit, grasping straws, relied equally disjunctive reading. DeSylva Ballentine, 351 570, 573, 974, 976, 1415. complicated role assigns 70-71) understandable failure accord proper due. according interpretation, unnecessary regard comes play complete sought. Had ingenious intended, pains emphasize unions, refute criticisms Morse shortly before? Further, favor contrast opposed, '(t)he closed loophole law line 17904, 1437. 79 (Ante, 70.) am loss understand how premise (particularly supplemented comments (Morse) final harsh (Goldwater) weak) mean vote kinds Representatives leads similar regarding intent body. criticism Madden 'It labor, pays substandard wages, operates 15515, 1552. theory redundant situations sweep Madden's comment odds 8(b)(4)(ii)(B). 81 Indicative contemporaneous understanding Congressmen Udall inserted Congressional Record, hypothetical point example suggested: 82 'Suppose Coors Brewery wages company attempted run brewery strikebreakers. bars restaurants beer broadcast advertisements. Landrum elementary winning standards.' 15540, 1576. 67-68) relies bill's co-sponsor. seems nowhere suggests intimate problem follows product.4 85 After presented differences bills himself. described boycotts: boycotts brings (called 'primary' employer) 'secondary' strike—or patronize—until Or induce goods—or buy—coming putting him.' 16589, 1706. 87 discusses 16591, 1708. describe outlawed uses 'Coors beer' earlier employed. peradventure believe squarely adverts 69), genesis fails acknowledge difficulty squaring great supposition lines products. 88 18022, 1712, preliminary summary states 'Prohibits happens sell dispute.' agreement, acc rding summary, 'Adopts provision clarification forms prohibited; boycott.' 89 reiterated modification, 18133, 1720, 1721. Specifically 'All appeals bill.' 90 foregoing, escape houses possibility sort considered, assumed bill. Admittedly, discussed bill; inferences supporters. Either sufficient comment, proponents encompassed both. supposition, untenable. III. 91 reached. it, content believing prohibitions afoul limitations. 'inseparably (than) different' simple communication. 464, 721, 985; see, Building Service Employees Gazzam, 532, 537, 784, 787, 1045; 776, 1178 (concurring DOUGLAS, J.). careful labor-management attempts accommodation desirability limiting effects message communicated, entitled deference. disputes inconsistent protections Amendment, particularly when, open.5 92 Contrary acted discriminating eye renders invulnerable attack. That 'communicative' aspect 'prevent dispute' 78). highly dubious assumption 'non-speech' whatever context, consequences 'non-communicative' certainly desirable undesirable eed (Landrum-Griffin Act) 704(a), Statutes-at-Large 542—543, Code KF62 (Supp. IV, 1963) 158(b)(4). number, Tree Fruits acts members' agent represent members. terms renewal worn Consumer: Non-Union apples. Thank you. Washington.' typical handbill read: 'DON'T BUY WASHINGTON STATE APPLES CROP IS BEING PACKED BY NON-UNION FIRMS Included operation twenty-six charged UNFAIR union, replaced strikebreaking workers wage scales working conditions. justice attempting living standards good-faith bargaining, DON'T TEAMSTERS UNION YAKIMA, market. (P.S.—PACIFIC FRUIT PRODUCE CO. firm packing contract.)' Copies printed Appendix. violations subsections (i) 'that Respondents' only, 'induce encourage' suppliers action, Respondents 8(b)(4)(i)(B) Act.' N.L.R.B., 1177. 1098. Accord: Burr Perfection Mattress 321 612 (C.A.5th Cir.). 'follow goods,' generalized patronage, 1940. sometimes justified presumed competitive nonunion, hence lower, scales, 'unity interest' Goldfinger Feintuch, 276 N.Y. 281, 286, North Eastern 910, 913, 116 Law 477; Newark Ladder Bracket Sales Furniture 66, 125 N.J.Eq. 99, Atlantic 49; Johnson Milk Dairy 854, 195 Southern KF135 S69 791 (Ct.App.La.), restricted 'a merchandise.' Chiate Cannery Agricultural Packing Allied America, Commerce Clearing Lab.Cas. 125, 126 (Cal.Super.Ct.). Teller, Disputes Collective Bargaining 123 (1940). S. 748, 1259—1293, Legislative History 1959, 975, 987. 6190, 1034. 1283, 6428, 979, 1079 (Senator Goldwater); 1729—1730, 993—994 (remarks Labor, Dirksen). true His full reads line, President gave TV August this: furniture manufacturer) joining Instead itself, unscrupulous organizing officials *. How anyone justify dispute? action bring 19954, 1842. Goldwater's definition scope: 'A consumer, customer, involves services pubiness 17674, 1386. 6667, 1194. 17882—7883, 1426. Wholesale Warehouse Employees, 261, 108 282 824; International Workers, etc., 272 817, 819 (C.A.10th Cir.); Business Machine Office Appliance Mechanics 228 553, 559—561 (C.A.2d Cir.), cert. denied, 962, 1025, 1483. H.R. 8400, floor Education 8342; respect compared 1912. 15531—15532, 1568. 15673, 1615. coercion Eisenhower's accompanying S.Doc. 10, 86th Cong., 1st Sess., 81—82. minority S.Rep. 187, 474—475. example: results decline 25% corresponding reduction inability more. broadened response, faces decision: discontinue entirely, 75% level, 1420, came day. Neither immune proscription. broad, inexact, imprecise enforceable, 749, inexact ordinance disclose threat inherent existence.' uniformly followed. Edwards South Carolina, 372 229, 680, 697; Henry Rock Hill, 376 1042. 'Municipal authorities, trustees communities' available dedicated.' 160, Allen-Bradley 1111 Wisconsin Employment 740, 820, 825, 1154. mention 8(b)(7). Ante, 68. twofold: First, regulates (in organizational recognitional disputes), covers wide range activities, one. Second, substance, aid resolution accomplish admits, 71—72, suggest follows, analysis, breadth provides render quoting 477, legitimacy recognizing based, reflecting anomaly prohibits. colloquy Brown excerpt taken, plain picketing; caveat acknowledgment limitations: 'Mr. BROWN Ohio. 'My concerns Would gentleman's bill? GRIFFIN. Let talked recent address. few newspapers act. recalled furniture. considering manufacturing exists. BROWN. right. looking Then, talking enjoined. 'However, happened entrance, technical interpretations, covered. cover now? interpreted. Griffin-Landrum would? Our would; manufacturer—then stopped. apply instance, plumbing shops, concerns, stations program? Of plumbing— Advertising. Advertising, else, covered now.' 15672 constitutionality publicizes

Classification Label: 6