Legal Document

484 U.S. 112 108 S.Ct. 413 98 L.Ed.2d 429 NATIONAL LABOR RELATIONS BOARD and Rosemary M. Collyer, General Counsel, National Labor Relations Board, Petitionersv.UNITED FOOD AND COMMERCIAL WORKERS UNION, LOCAL 23, AFL-CIO. No. 86-594. Argued Oct. 5, 1987. Decided Dec. 14, Syllabus Board regulations implementing the unfair labor practice provisions of Act (NLRA or Act) provide that, after one Board's regional directors has filed a complaint but before hearing is held thereon, director may enter into either formal an informal settlement. The allow nonconsenting party to appeal settlement Counsel then itself, order subject review in federal courts appeals under § 10(f) as "a final Board." However, if such nature, permit not Board. Respondent union charges alleging that employer another had committed practice. After Regional Director complaints, scheduled hearing, entered agreement which respondent refused join. Pursuant regulations, challenged Director's action who sustained sought Court Appeals, rejected contention petition for should be dismissed lack jurisdiction did result was without hearings. Held: 1. A postcomplaint, prehearing decision by judicial NLRA. Pp. 123-130. (a) regulations' failure judicially reviewable on Counsel's consistent with NLRA entitled deference. language, structure, history NLRA, amended, clearly reveal Congress intended differentiate between "prosecutorial" determinations, are made solely independent "adjudicatory" decisions, review. It reasonable construction find determinations prosecutorial since, until held, taken no therefore adjudication. Moreover, unreviewable discretion file withdraw complaints supports reading he she also authority dismiss favor begins. legislative indicates congressional intent give handle all aspects prosecutions, merely filing complaints. history's silence regarding settlements does indicate intention deny usual flexibility accorded agency interpreting its authorizing statute developing new meet changing needs, since aware importance administrative relations process. 123-128. (b) Respondent's because acts "on behalf Board" 3(d) his her orders "of Board," refuted Act's plain history. Clearly, act of" same itself. Further, provisions, particularly §§ 3 10, evidence distinguish from NLRA's confirms this distinction, demonstrating language added make it clear within agency, imply considered concedes 10(f), there merit argument decisions reviewable. 128-130. 2. reviewed Administrative Procedure (APA) actions "for other adequate remedy court," APA unavailable where "statutes preclude review." Although contain expressly precluding review, structure establish requisite do so. comprehensive exhaustively sets out stages through must pass provides only orders. would run directly counter scheme, extremely illogical, district courts, involve lengthy proceedings area felt speed resolution necessary, charged incentive fulfill obligations were completed. Since represent substantial portion charge dispositions, could have potentially serious consequences entail. inevitably require initial examination merits rather than intended. 130-133. 788 F.2d 178 (CA3 1986), reversed remanded. BRENNAN, J., delivered opinion unanimous Court. SCALIA, concurring opinion, REHNQUIST, C.J., WHITE O'CONNOR, JJ., joined, post, p. 133. Norton J. Come, Washington, D.C., petitioners. Laurence Gold, respondent. Justice BRENNAN 1 question decided case whether court dismissing pursuant charging We hold dismissal amended Act. 2 * In August 1984, respondent, United Food Workers, Pittsburgh office (Board). alleged Charley Brothers, Inc., owner several grocery stores, Steelworkers Union (Steelworkers) bargaining executing collective-bargaining Brothers store uncoerced majority employees. duly investigated charges, negotiations Steelworkers. No reached, substantially incorporating respondent's charges. On September 24, Vic's Market's, Inc. (Vic's), bought relevant store, second reflected fact. December 4, 1984. shortly begin, Vic's, Steelworkers, came tentative agreement. called parties take certain remedial return complaint, they required admit any practice.1 invited join agreement, refused, citing number purported deficiencies.2 4 Eventually, except who, permitted Counsel. determined need evidentiary States Appeals Third Circuit. 5 argued ground lacked hearings began. Alternatively, sustained. considering itself bound own precedent,3 concluded been hearing. (1986). granted writ certiorari resolve conflict among Courts Appeals.4 479 1029, 107 871, 93 826 (1987). now reverse. II 6 Petitioners argue (NLRA) commencement complaint. asserts two grounds jurisdiction. first occurring approved Because 49 Stat. 455, 29 U.S.C. 160(f), maintains settlements. argues Neither submissions persuades us. A. 7 originally enacted, plenary over disputes: controlled their prosecution Management Act, 1947 (LMRA), 61 136, altered structure. 8 One major goals LMRA divide old adjudicatory functions entities.5 House passed bill created separate known "office Administrator Act," prosecute complaints.6 Under bill, retained adjudicate disputes. Conference Committee go so far create agency. did, though, determine supervision To end, appointed President, advice consent Senate, "final authority, respect investigation issuance . Board."7 153(d). 9 methods procedures set statutes promulgated authority. 156. union, employer, employee bring office. Until brought, enforcement action. NLRB v. Sears, Roebuck & Co., 421 132, 156, 95 1504, 1519, 44 (1975). Once brought investigated, may, discretion, it. Should occur, CFR 101.6 (1987).8 "informal settlement" party. Such will refrain taking action, agrees If refuses again, provision 101.7.9 10 concludes merit, issue issues, disposed withdrawal settlement, 11 authorized motion at time appealed available.10 12 settled disposition forms. "Formal requires approval accompanied party's usually entry appeals. 101.9(b)(1).11 "Informal similar precomplaint already discussed. difference refraining dismisses prejudice reinstatement part 101.9(b)(2).12 13 settlements, executed. applicable opportunity 101.9(c)(1) (2).13 Ultimately, available. 160(f). informal, nonjoining party, 101.9(c)(3) (1987).14 14 begins, even "informal." Rather, challenge law judge, available judge's determination Board.15 Judicial decision. 15 Finally, provided statute. right answer finds, based preponderance testimony, engaged practice, empowered cease-and-desist appropriate relief. Conversely, finds occurred.16 Any including party,17 aggrieved granting denying whole relief obtain 160(f).18 16 dispute us narrow one. agree See U.S., 148, S.Ct., 1515; Vaca Sipes, 386 171, 182, 87 903, 912, 17 842 (1967). ultimately results commenced. sole B address just described, validity postcomplaint inconsistent Essentially, 160(f).19 18 standards prescribed INS Cardoza-Fonseca, 480 421, 1207, 94 434 pure statutory construction, our job try intent, using "traditional tools construction." we can so, interpretation given effect, fully Id., 446-448, 1221-1222. Chevron U.S.A. Natural Resources Defense Council, 467 837, 842-843, n. 9, 104 2778, 2781-2782, 81 694 (1984). "the silent ambiguous specific issue, agency's permissible statute." 843, 2782. principle, traditionally deference regard long rational See, e.g., Fall River Dyeing Finishing Corp. NLRB, 482 27, 42, 2225, 2235, 96 22 (1987); Ford Motor Co. 441 488, 495, 497, 99 1842, 1848, 1849, 60 420 (1979); Beth Israel Hospital 437 483, 501, 2463, 2473, 57 370 (1978).20 19 words, amendments authority" along versus line. Section filing, investigation, "prosecution" when discussed (with complaints), context adjudication Specifically, refers follow decide cases. 20 reflects dichotomy. Report states: "The conference exercise investigating prosecuting act, shall [who] name of, independently direction, control, by, practices, H.R.Conf.Rep. 510, 80th Cong., 1st Sess., 37 (1947), U.S.Code Cong.Serv.1947, 1135 (emphasis added). Similarly, summary submitted Senate detailing compromise reads: "Further [the LMRA] recognizes principle separating going extent establishing completely accomplishes separation framework existing office, is, general counsel ." Cong.Rec. 6442 (1947) debates further support division. id., 3423-3424 (remarks Rep. Hartley); 6383 Owens). contemporaneous emphasized prosecutorial/adjudicatory Fed.Reg. 654 (1948). 21 light foregoing, framework, dividing line, easy discern. Some said certainty fall side For example, discussed, prosecutorial. contrast, contested cases adjudicatory. But these extremes might fairly Our task, Cardoza-Fonseca Chevron, categorize each determination, regulatory placement permissible. dispositions deemed true necessary step trigger action; yet place. prosecutorial.21 23 fail see why concededly discloses too weak prosecute. International Assn. Machinists Aerospace Workers Lubbers, 681 598, 604 (CA9 1982), cert. denied, 459 1201, 103 1185, 75 432 (1983); George Banta 626 354, 356-357 (CA4 1980), 449 1080, 101 862, 66 803 (1981); Local 282, Brotherhood Teamsters, Chauffeurs, Warehousemen, Helpers America 339 795, 799 (CA2 1964); cf. Cuyahoga Valley R. Transportation Union, 474 3, 106 286, 88 (1985) (the Secretary Labor's Occupational Safety Health Review Commission). turn, logically least 24 contends LMRA's makes Congress' understanding dismissals once filed. argument. Indeed, petitioners' position. 25 passed, 1947, delegate "anonymous committee" filed, approval. conclusion draw replace prior survived carried forward NLRA.22 26 This inference strained withstand scrutiny. course place equally scope broader suggests. concerning well, function performed 1947. repeat officer 27 suggest carrying constitute "lifeblood" process, especially relations.23 Given importance, cannot attribute needs.24 28 short, C argument, too, unpersuasive. 30 cited " 153(d).25 Clearly 160(f).26 31 supporting leads inescapably distinguished describing organization appears, differentiates branches. 153. (29 160) emphasizes distinction. specifies procedure adjudicating Subsection reviewable, and, entire section, authorize adjudications, prosecutions. Fairly read, encompass resolving order, decree, plainly read function. 32 distinction styled "Administrator headed acted Board.27 33 perceive logic be. 34 Again, As "prosecutorial," III 35 court." 704. "final" court. specified 701(a), (1) review"; (2) "agency law." applies case. 36 preclusion demonstrated convincingly. Southern Seaboard Allied Milling Corp., 442 444, 462, 2388, 2398, 1017 Dunlop Bachowski, 560, 567, 1851, 1857, 377 absence here examine bar established. leaves doubt meant be, particular, pass, determined, supra, ----, purposely excluded proceed demonstrate illogical extreme APA.28 38 directed nevertheless urges suit, court, adjudications. precisely convinced most necessary. good illustration what avoid. Charges By January 1985 reached exhausted. took almost months.29 39 sort delay, unavoidable setting, untenable context, ruled know valid. future cases, carry bargain while pending fear invalidated. Obviously, willingness quickly expeditiously way severely constrained allowed. 40 resulting serious. 1983 one-third (excluding those terminated voluntary outright charges) began.30 hazard functioning process certainly intention. 41 instance, unequivocal desire absent direction contrary, examinations all. At statute, left express 42 nature absurd allowing conclude exception defined 701(a)(1) bars here.31 IV 43 entertain APA. Consequently, ordered. reverse judgment remand instructions cause want subject-matter 45 whom THE CHIEF JUSTICE, WHITE, O'CONNOR join, concurring. 46 I Court's write separately note demonstrates continuing unchanged vitality test forth mistakenly otherwise, basis dicta 1221-1222, Concerned Scientists NRC, 266 U.S.App.D.C. 381, 386, 824 108, 113 Automobile, Agricultural Implement Brock, 259 457, 460-461, 816 761, 764-765 Adams Care Heckler, 817 587, 593-594 1987). opposed expressed adherence applied here, surely thus qualifies 160(f) construction" application "standar[d] particular facts," agency," 446, 448, 1221. Were dicta, therefore, deciding conclusively authoritatively, "decid[ing] permissible," ante, 125. true, moreover, many alluded "we NLRA," 123. Those this, correctly ambiguous" administration charge—which Chevron. assist Steelworkers' organizing efforts interrogate employees sympathies: recognize effect unless became certified representative; (3) restrain coerce employees; (4) reimburse dues paid stated accept assistance Brothers; way; mail notice agreed posted days outlining admission actually occurred, nor decree. comply First, reach amicable adjustment. Second, contended 60-day posting period short undo damage done improper representation; words maintained fair election brief period. Third, requested special access premises enable compete allegedly store. Fourth, objected occurred. ambiguous. concerns, otherwise alter terms proposed Leeds Northrup 357 527 1966). Compare 1986) (case below) (finding appeals), Ladies' Garment 163 263, 501 823 (1974) (same), Jackman 784 759 (CA6 jurisdiction); Warehousemen 795 1964) (no Counsel). Cong. Rec. Owens powers agency); 6859 (analysis Sen. Taft). H.R. 3020, amending sent Senate. LMRA, 139, 101, amendment subsection (d), providing pertinent part: "There term four years. section duties prescribe Title (1987) "If complainant recommended, charge. thereupon informs [sic., probably 'action'], together simple statement therefor, complainant's days. 101.7 provides: "Before issued taken, affords submission consideration facts, offers proposals adjustment, time, proceeding, public interest permit. These agreements, Director, described 101.6, adjustment Director. 102.18 "Any withdrawn motion." An 102.19. 101.9 concerns (b)(1), "After Agency favors D.C. waive requiring Ordinarily contains circuit enforcing order." 101.9(b)(2) "In some however, 102.18) [sic ], type appropriate. order. complaint." Sections read: "(1) opening tentatively upon whose required, serves copy written reasons proposing "(2) one, [is] [it is] decides approve informed accompanying documents contingent. 101.9(d) occurs [a proposal if] parties, judge state record writing opposing reject ruling ask leave 102.26." (Section 102.26 interlocutory discretionary. suggested accepting always review.) 10(c) 160(c), reads testimony person named engaging findings fact cease desist affirmative effectuate policies [Act]. Automobile Scofield, 382 205, 86 373, 272 (1965). wherein resides transacts business, District Columbia. 18, supra. consider consistency applied, enactment being construed. 30, 1221, Electric Gilbert, 125, 142-143, 97 401, 411, 50 343 (1976); Bell 416 267, 275, 1757, 1762, 134 (1974). 1948 involving 101.9(b) (1949) ("All stipulations Washington"); 4871 motion. (1949); 5667 (1947). 1967, present form. 9547 Both attempt analogize role setting contexts, specifically criminal class analogies little aid. previously noted comparison prosecutor "far perfect." 22, observation actions. division must, case, analyzed terms. theory, points Senator Taft: "Presumably, routed assumption presently reviews appeals, utterly erroneous. According chairman anonymous committee subordinate What simply transfer 'vast power' group responsible President Congress." notes entering Attorney General's Procedure, Government Agencies, Final Report, S.Doc. 8, 77th (1941). precise form prevalent passage approval, contained stipulation decree enforcement, "or compelling appear[ed] so." Agencies: pt. pp. 7-8 7, Reps. Owens, Hartley, MacKinnon) added): "Mr. OWENS. believe important portions powers; functions, prosecution, end. gentleman mentioned absolutely independent. bill] constantly "It my saying different sections, mention mean power complete attorneys prosecuting; control him way. Is correct? HARTLEY. gentleman's correct. reference because, man use 'Board.' Otherwise up He MacKINNON. insofar concerned, Board? Yes; bolstered nowhere availability adverted to, despite contexts. opponents creating best 6455 Morse); 7487 (President Truman's veto message); Taft rebutting attacks). longer happen 48 Ann.Rep. 183 (Table 7) (1983). manner 3,803. precluded alternative 701(a)(2) (acts discretion)

Classification Label: 8