National Labor Relations Board v. District 50, United Mine Workers of America

• Decision Date: 03 February 1958
• Docket Number: No. 64,64
• Citation: 2 L.Ed.2d 401,78 S.Ct. 386,355 U.S. 453
• Parties: NATIONAL LABOR RELATIONS BOARD, Petitioner, v. DISTRICT 50, UNITED MINE WORKERS OF AMERICA, and Bowman Transportation, Inc
• Court: U.S. Supreme Court

355 U.S. 453

78 S.Ct. 386

2 L.Ed.2d 401

NATIONAL LABOR RELATIONS BOARD, Petitioner,

v DISTRICT 50, UNITED MINE WORKERS OF AMERICA, and Bowman Transportation, Inc.

No. 64.

Argued Jan. 6, 1958.

Decided Feb. 3, 1958.

[Syllabus from pages 453-454 intentionally omitted] Mr. Dominick L. Manoli, Washington, D.C., for petitioner.

Mr. Crampton Harris, Birmingham, Ala., for respondent.

Mr. Justice BRENNAN delivered the opinion of the Court.

The National Labor Relations Board found that Bowman Transportation, Inc., committed unfair labor practices by assisting District 50, United Mine Workers, as a means of defeating the efforts of a Teamsters Local to organize its workers.¹ The cease-and-desist order which issued was in the standard form directing the company to withdraw and withhold recognition from District 50 unless and until it received the Board's certification as the exclusive representative of the employees. 112 N.L.R.B. 387.² But the United Mine Workers is not in compliance with § 9(f), (g), and (h), added by the Taft-Hartley amendments to the National Labor Relations Act, 61 Stat. 143, 29 U.S.C. § 159(f), (g), (h), 29 U.S.C.A. § 159(f—h).³ It is therefore not eligible for a Board certification and in consequence the Bowman employees may never have an opportunity to select District 50 as their representative. The Board denied the United Mine Workers' application to delete the requirement for a Board certification. 113 N.L.R.B. 786. The question arises whether the requirement for a Board certification in these circumstances excees the Board's discretionary power under § 10(c), 29 U.S.C. § 160(c), 29 U.S.C.A. § 160(c), to fashion remedies to dissipate the effects of an employer's unfair labor practices in assisting a union.

The union petitioned the Court of Appeals for the District of Columbia under § 10(f), 29 U.S.C. § 160(f), 29 U.S.C.A. § 160(f), which authorizes a Court of Appeals to 'enter a decree enforcing, modifying, and enforcing as so modified or setting aside in whole or in part the order of the Board * * *.' The Court of Appeals, 99 U.S.App.D.C. 104, 237 F.2d 585, did not delete the provisions for Board certification but modified the order so that the company would be free to recognize District 50 not only when certified by the Board but, alternatively, when District 50 'shall have been freely chosen as such (representative) by a majority of the employees after all effects of unfair labor practices have been eliminated.' 99 U.S.App.D.C. at page 107, 237 F.2d at page 588.

The Board's order also required the company to post for at least 60 days a notice prepared by the Board. In the notice the company would state to its employees that it would not discourage membership in, or interrogate the employees concerning their activities on behalf of, '* * * Teamsters * * * Local No. 612, or any other labor organization * * *,' and, further, that the company would '* * * withhold all recognition from District 50 * * * unless and until said organization shall have been certified as such representative by the * * * Board.' 112 N.L.R.B. 387, 391. The parties raised no objection to the notice either before the Board or by the parties in the Court of Appeals. However, the Court of Appeals on its own motion struck from the notice the references to the Teamsters Local, stating its view that 'references to that union in the Board's form of notice are susceptible of being construed as' indicating that the Board 'prefers Teamsters.' 99 U.S.App.D.C. at page 108, 237 F.2d at page 589. The court also added, to the paragraph in the notice stating that the company would withhold recognition from District 50 until the union received a Board certification, the alternative 'or (until District 50) shall have been selected as such (representative) by a majority of our employees at a time at least 60 days later than the date of this notice.' 99 U.S.App.D.C. at page 109, 237 F.2d at page 590.

Because important questions of the administration of the Act were raised, we granted certiorari on the Board's petition. 352 U.S. 999, 77 S.Ct. 561, 1 L.Ed.2d 544.

The Board's order was fashioned under § 10(c), 29 U.S.C. § 160(c), 29 U.S.C.A. § 160(c), which vests remedial power in the Board to redress unfair labor practices by 'an order requiring such person (committing the unfair labor practice) to cease and desist from such unfair labor practice, and to take such affirmative action * * * as will effectuate the policies of this Act * * *.' The Board's discretionary authority to fashion remedies to purge unfair labor practices necessarily has a broad reach. National Labor Relations Board v. Link-Belt Co., 311 U.S. 584, 600, 61 S.Ct. 358, 366, 85 L.Ed. 368. But the power is not limitless; it is contained by the requirement that the remedy shall be 'appropriate,' National Labor Relations Board v. Bradford Dyeing Ass'n, 310 U.S. 318, 60 S.Ct. 918, 84 L.Ed. 1226, and shall 'be adapted to the situation which calls for redress,' National Labor Relations Board v. Mackay Radio & Telegraph Co., 304 U.S. 333, 348, 58 S.Ct. 904, 912, 82 L.Ed. 1381. The Board may not apply 'a remedy it has worked out on the basis of its experience, without regard to circumstances which may make its application to a particular situation oppressive and therefore not calculated to effectuate a policy of the Act.' National Labor Relations Board v. Seven-Up Bottling Co., 344 U.S. 344, 349, 73 S.Ct. 287, 290, 97 L.Ed. 377. The Board's provision for a Board certification must therefore be examined in the light of its appropriateness in the circumstances of this case.

In formulating remedies for unfair labor practices involving interference by employers with their employees' freedom of choice of a representative, the Board has always distinguished the remedy appropriate in the case of a union dominated by an employer from the remedy appropriate in the case of a union assisted but undominated by an employer. In the case of a dominated union the Board usually orders the complete disestablishment of the union so that it can never be certified by the Board: This Court has sustained such orders. National Labor Relations Board v Pennsylvania Greyhound Lines, Inc., 303 U.S. 261, 58 S.Ct. 571, 82 L.Ed. 831; National Labor Relations Board v. Newport News Shipbuilding & Dry Dock Co., 308 U.S. 241, 60 S.Ct. 203, 84 L.Ed. 219. On the other hand, in the case of the assisted but undominated union, the Board has consistently directed the employer to withhold recognition from the assisted union until the union receives a Board certification. The basis for the distinction is that, in the Board's judgment, the free choice by employees of an agent capable of acting as their true representative, in the case of a dominated union, is improbable under any circumstances, while the free choice of an assisted but undominated union, capable of acting as their true representative, is a reasonable possibility after the effects of the employer's unfair labor practices have been dissipated. See National Labor Relations Board v. Wemyss, 9 Cir., 212 F.2d 465, 471, 472.

The reason for the Board's certification requirement is to invoke the normal electoral processes by which a free choice of representatives is assured. The Board's opinion in this case states that

'* * * the Board has, since its earliest days, recognized that the policies of the Act could best be effectuated in cases involving violations of Section 8(a) (2) by directing the offending employers to withhold the preferred treatment afforded to the labor organizations involved until the effect of the unfair labor practices had been dissipated and the majority status of such unions had been established in an atmosphere free of restraint and coercion.' 113 N.L.R.B. 786, 787.

Again,

'* * * in the case of an assisted but undominated labor organization, the Board has required the offending employer to withdraw and withhold recognition from the assisted union until it was certified, thus enabling the Board to assure the affected employees that their statutory right to freely choose a bargaining representative shall be preserved by conducting an election under conditions which will render such a choice possible.' 113 N.L.R.B. 786, 788.

It is thus clear that the most significant element of the remedy is not the formality of certification but an election, after a lapse of time and under proper safeguards, by which employees in 'the privacy and independence of the voting booth,' Brooks v. National Labor Relations Board, 348 U.S. 96, 99—100, 75 S.Ct. 176, 179, 99 L.Ed. 125, may freely register their choice whether or not they desire to be represented by the assisted union.

In this case of a noncomplying union, however, requiring the formality of Board certification in addition to an election has the same effect as disestablishment. This is because District 50 can never be certified by the Board so long as the United Mine Workers remain out of compliance with § 9(f), (g), and (h). But disestablishment has been applied by the Board and upheld by the courts only in the case of a dominated union, where a free choice of a truly representative union is improbable under any circumstances, and therefore where an abridgment of the statutory right of employees does not result. District 50 was found by the Board to be an assisted but not a dominated union, so that a free choice of District 50 by Bowman's employees is a reasonable possibility. Therefore the certification requirement here misapplies the Board's own policy by actually defeating the statutory rights of Bowman's employees.

The Board reasoned that since this Court has sustained its power under § 10(c) 'to dissipate the effect of an unfair labor practice by completely removing a dominated union * * *, the Board manifestly has the statutory power to impose the lesser sanction of certification in the case of an assisted union * * *.' 113 N.L.R.B. 786, 788. Even if we grant the premise that...