*2
MILLER,
Before WILBUR K.
Senior
Judge,
Circuit
McGOWAN Mac-
Judges.
KINNON, Circuit
Judge:
MacKINNON, Circuit
The National Labor Relations Board
(Labor Board)
petitioned
has
this court
remedial order en-
enforcement of a
against
Ship Shape
tered
Mainte-
Company (hereinafter
nance
the “Com-
pany”),
from the Labor
which resulted
finding
Board’s
had
practice
labor
violated certain unfair
provisions
Labor Rela-
National
Act,
(N.L.R.A.).1 The
as amended
tions
challenged
the suffi-
has
both
ciency
supporting of the evidence
Labor
de-
Board’s unfair
propriety
por-
terminations and
Ship
22,879
Co., Inc.,
Shape
¶
NLRB
No.
Maintenance
NLRB
1971 CCH
demanding
order. For
remedial
grant
recognition.
re
did not
below,
en-
we
discussed
the reasons
spond
request.
order,
Simultane
as
to the Union’s
Labor Board’s
forcement of the
Company,
rejection
ous
of its
letter
modified
our
petition
Union filed
Regional
with the
Office
represen
Board, requesting
I
*3
among
Company em
the
tation election
Maryland corpora-
Company
ais
The
building.
ployees
The Re
the
at
500-550
janitorial
provides
services
tion which
gional
the
mailed notification
Office
buildings
approximately
office
Company
petition
on Oc
Union’s
1969,
Washington,
OnC.
October
D.
tober 27.
to
contract
Company
obtained
November,
during
Sometime
Street,
building
12th
at 500-550
clean the
Company
Netterstrom
President
James
(hereinafter
build-
the “500-550
S.W.
building
utilize
decided to
the 500-550
ing”),
at
this
it commenced work
and
training
employ-
facility
a
for new
as
evening
20.
of October
location on the
ees,
transferring
them to other
before
business
The nature
Company performs
locations where the
high
generally
rate
has a
such that
it
janitorial
at no time
services.
employs ap-
employee
It
turnover.
Company’s at-
did Netterstrom or the
persons
lo-
proximately
at all
torneys
to
or to
reveal
the Labor Board
During
employed
cations.
it
about
Company
considered
Union
only
individuals,
different
training
building
site
the 500-550
to be
relatively
permanent
whom
em-
employees
that,
would
consequently,
ployees,
positions.
fill
Be-
to
these 600
only
prior
temporarily
be-
there
to
work
July
January 1, 1970,
tween
ing reassigned
Company
to
loca-
employed
persons
it
149 different
at the
Company
Nor did
dis-
ever
tions.
average
building,
500-550
work
manage-
realty
close
decision
to
complement of 35-40.
had
ment firm with
contracted
Company
Before
obtained
500-
building,
to
or to the
clean the 500-550
building
Employ-
contract,
Service
working
Company employees
there.
Union,
ees International
Local
AFL-
(hereinafter
“Union”)
CIO
had been
Company
On
and the
December
engaged
organize
campaign
in a
to
stipulation
Union
for certi-
executed
employees
predecessor supplier
agreement,
fication
consent
election
janitorial
services there. When the Com-
approved
Re-
Board’s
was
pany
cleaning duties,
assumed its
gional
covering
Director on December
organizing
campaign
Union altered its
building employees
500-550
per-
Company
on the new
concentrate
Company.
stipulation
This
limited vot-
days,
sonnel.
several
Within
ing eligibility
employees
work-
those
ostensibly
obtained authorization
cards
ing
during
unit4
signed by
Company employees.
excluding
ending
week
November
“any employees
quit or
have since
who
On October
Union wrote
discharged
claiming
Company,
represent
been
elec-
for cause.” The
ma
evening of
jority
“employees”
statutory
scheduled for
was
the 28
employed
employees
2(3)
N.L.R.A.,
Em-
All
S.W.,
Street,
statutory
152(3)
ployer at its 500-550 12th
for the
U.S.C.
working
“employee.”
Washington,
as
D.C.
location
definition
the term
charwomen,
porters,
janitors,
maids,
excluding
but
office
Some of these other
locations
waxers
buffers
super-
guards
employees,
already
organized,
have
been
while others
clerical
in the Act.
have not.
visors as defined
this unit
conceded
bargaining,
4. The
defined to in-
for collective
unit was
agreed.
:
the Labor Board
clude
January
report
in the basement store-
these
did not
for work
building.
ordered,
as
room of the 500-550
never worked for
again.
Eight reported
5, 1969, Netterstrom
On December
assignments
January 5,
their new
Regional
Office
list of
mailed
working
and were
at their new locations
employees required under
January
on the date of the
9 election.
list,
This
“Excelsior” doctrine.5
eight quit
Subsequently, one of these
at
names, purported to
which contained 32
January, 1970,
the end of
and another
Company’s employees
cover
at the
During
quit March,
the week
building
as of November
January 5, 1970,
Company per-
formed its chores
By January
week before
one
complement
approximate-
with a full
election,
the scheduled
ly
employees,
all of whom had been
persons
on the Excelsior
named
rep-
hired after the November
Company’s employ
list had
left the
eligibility
resentation election
date.
*4
reasons not at
On the eve-
issue here.
January 9, 1970,
On
the Labor Board’s
ning
January
persons
of
of the 16
agent
election
endeavored to conduct the
on the Excelsior
still in the
list who were
representation election, despite
scheduled
company’s employ
final
worked their
Company’s
notification from the
attor-
building.
shift at
Three
the 500-550
ney that
it considered none of the em-
persons
day,
quit
these
on that
ployees
eligible
on the Excelsior list
to
two
were
more
terminated
reasons
vote, due to the
fact that all
the named
remaining
not relevant
The
here.
longer employed
individuals
no
were
persons on
in-
the Excelsior list were
building. Only
person
one
January
they
formed on
ing
2 that
were be-
eligibility
ap-
on
named
the Excelsior
list
Company
transferred
other
loca-
to
peared,
only permitted
and she was
to
.
employee
who had been
tions. One
challenged
per-
cast a
ballot.7 No other
building
hired into the 500-550
unit after
voted in
sons
the election.
November
and who was there-
eligible
fore not on the Excelsior list or
Shortly
election,
after the
the Union
representation election,
to vote in the
timely objections
filed
to conduct which
was also included in the transfer order.
allegedly affected the
results
the elec-
supervisor,6
All
January
but one
tion. On
the Union
Monday
report
charge
were
practice
ordered to
on
eve-
filed an unfair
labor
ning, January 5,
alleging
Board,
to one or another of with the Labor
viola-
buildings
(5)
Company
(3),
the other
8(a)(1),
where
tions
performed cleaning
N.L.R.A.,8
complaint
services. Two of
is-
was
7. Two or
6. This
infra.
immaterial
This
ployees
January
prior
but
to
reported
the names and
Court
practice
Company appeared
In Excelsior
report
quit
policy
supervisor
to Board
in N.L.R.B. v.
to candidate labor
about a week later
for work at another
three other
requiring employers
was
to this case.
instead of
Underwear,
approved
addresses
new location as
was
Board
at the
Wyman-Gordon Co.,
told
employees
January
announced a new
Inc.,
by
polls,
on
See note
organizations
eligible
for reasons
150 NLRB
January
to
but
elections.
Supreme
5. She
ordered,
provide
after
em-
on
vote.
formed them that
after
date,
ascertaining
29 U.S.C. §
title;
term or condition of
hire or
erce
rights guaranteed in any
section
courage
tice for an
(a)
(1)
(3) by
labor
the November
employees in
to interfere
It shall be an unfair
Labor Board election
tenure
or
organization:
#
discrimination
employer—
158(a)
discourage membership
they
;};
with, restrain,
employment
the exercise of the
(1970) provides:
had
employment
were
.
all been
in
ineligible
.
labor
regard
eligibility
agent
.
or
of this
or co-
to en-
prac-
hired
[*]
any
in-
in
to
charge.
one
short of the
elec-
the Union to fall
vote
pursuant
The
sued
statutory
requisite majority
objections
with the
consolidated
“employees”
complaint
found to have
“for
who were
ruling
employed
unit
hearing,
been
purpose
and decision
rejected
on
demand for rec-
the date the
by a Trial Examiner.”
ognition
made
the Union.
had been
hearing
July,
held be-
In
completely
The
affirmed
Benjamin
Labor Board
Black-
fore Trial Examiner
de-
the Trial
burn,
Examiner’s
fac-
above-described
wherein the
concerning
termination,
presented. Com-
tual circumstances were
discriminatory
transfer
of all
pany
admitted
Netterstrom
President
January
it re-
during
testimony
he,
voters
not
but
his
8(a)(5)
versed
general manager, op-
section
Examiner’s
Melvin Shumaker,
finding.
The
all
Board validated
manager,
vice
erations
proffered
the Union’s
authorization
president, made the actual decision
cards,
concluded that
question.
transfer
refusing
violated
only
Shu-
Netterstrom indicated
recog-
knowledge
accede
to the Union’s demand
personal
really
maker
had
October,
nition in
underlying
particular
indi-
reasons
However, de-
vidual
transfer
selections.
adopted
Labor Board
the Trial
spite
Counsel
the General
Examiner’s
remedial
subpoenaed
Shumak-
cease and
which ordered the
response
er,
appear
he did
violating
desist
the N.L.R.A. and
*5
subpoena;
as a
neither was he called
wit-
affirmatively
which
ordered the Com-
by
Company.
ness
the
pany (1)
employees
to offer those
who
discriminatorily
in vio-
transferred
The
determined that
Trial Examiner
in
lation of the
and who were still
8(a)(1)
Act
the
violated sections
Company’s employ,
the
immediate trans-
(3)
N.L.R.A., by transfer-
and
positions
fer
ring
back to their former
at the
employees
January 2,
10
building, discharging,
if
500-550
neces-
the
in
to re-
from
500-550
sary,
(2)
presently employed persons;
remaining
eligible
move all
voters10
eight discriminatorily
to make
pre-
whole all
unit and thus
the
employees
transferred
who
in
represen-
remained
clude the
of the Board
following
employ
January 9,
tation election on
1970. The
transfer,
may
any
Examiner, however,
their
losses
Trial
dismissed
8(a)(5)
part
complaint,
have sustained as a direct
result
section
of
bargain,
Company’s illegal
(3)
only
action;
since
he
of
concluded that
14
concerning
by
proffered
upon request,
17
cards
with the Union
authorization
valid,11
causing
working
hours,
wages,
were in fact
thus
conditions
1965).
(5)
bargain collectively
(2d
350
Cir.
to refuse to
E.2d 170
This is
objections
wit]»
representatives
of
em-
filed
his
the reason the Union
January 9,
subject
provisions
seeking
repre-
ployees,
of
to hnve
3970
section
this title.
sentation election set aside.
of
pertinent
part
§
of
The
357
U.S.C.
“super-
10. The
transferee was
eleventh
(1970)
in
set
note
is
out
infra.
meaning
visor” within
section
2(11)
N.L.R.A.,
§
U.S.C.
Irving
Air
Under
Labor Board's
(11)
ineligible
(1970), who was therefore
rule,
held an
Chute
where the Board has
“employee” representation
in
to vote
election which the union has failed to
win, pre-election
Act,
2(3)
election.
Section
of sections
violations
(1970)
152(3)
“em-
U.S.C.
defines
§
8(a)(1)
(5)
not
Act will
be
or
expressly
“any
ployee”
as
exclude
so
by
order,
which
remedied
supervisor.”
employed as a
individual
requested in the instant
the Union
Irving
1
that 3
1. The
Examiner
concluded
is
Trial
unless the election
set aside.
proffered
Co.,
Division,
Inc.,
cards were
authorization
Air
Marathon
Chute
adequately
(1964), enfd.,
authenticated.
149 NLRB
Union,
employees
also
in the
bar-
See
International
Agri
gaining
building;12
Aerospace
Automobile,
United
unit at the 500-550
Implement
(4)
post appropriate
R.
cultural
L.
notices.
Workers
N.
B.,
The
enforcement action was
immediate
Company’s
refusal
necessitated
comply
Board’s remedial
with the Labor
unusual case
It would indeed
be
II
in
the link between the [dis-
[pro-
criminatory
and the
action]
Company has
there
asserted
The
activity
supplied ex-
could be
tected]
in the record
is insufficient
evidence
clusively by
Intent
direct evidence.
support
unfair la-
the Labor Board’s
subjective
many
the dis-
cases
findings.
con-
bor
we
proven only
crimination can be
adequate
clude
there is
factual basis
Fur-
of circumstantial evidence.
use
8(a)(1)
for the
determination
evidence,
thermore,
analyzing
supports
Board,
adequately
direct,
circumstantial or
the Board
remedial order which we are
modified
any
infer-
to draw
reasonable
free
enforcing.13
ences.
no direct evi
there is
Processing Co.,
N.
R. B. Melrose
L.
illegal
discrimi
dence of the
(8th
1965).14
natory
pre
respect
intent with
its
of all.
election transfer
aware of the Un-
concerning
majority
voters
then remained
500-
who
ion’s claimed
status
building unit,
building employees by
is substantial
there
part
as a
evidence in
record considered
October,
latter
1969. Sometime
support
1969, Company
whole to
November
President
10(e)
determination.
Netterstrom decided to utilize this build-
(1970);
160(e)
ing
training
N.L.R.A.,
facility,
29 U.S.C.
which would
as
B.,
Corp.
regular
N.
Universal Camera
L. R.
necessitate the
transfer of
working
441 appropriate would be in certain evi- situa- therefore find that substantial remedy 8(a)(5) a whole tions viola- dence on record considered as accompanied by supports tions which were Board’s the Labor concerning determination, independent practices. the Com- unfair labor See 610-615, pany’s 395 at 89 23 unlawful effort to frustrate U.S. S.Ct. election L.Ed.2d 547.20 the Court ex- pressly bargaining requested. noted which the-Union had orders
would not be
in all such
carefully
cases,
it
delineated the fac-
Ill
tors which the Labor Board
con-
must
the Labor
we have affirmed
determining
bargain-
sider in
ing
whether a
regarding
finding
Board’s
particular
order should issue in a
enforcing
are therefore
case.
per-
portions
remedial order
the
taining
of its
properly
Board can
take into
[T]he
practice vio-
unfair labor
consideration the extensiveness of an
grant
lation,18
enforce-
we are unable
employer’s
practices in
terms
bargaining
ment to
Board’s
past
of their
on election condi-
effect
tions and
likelihood
their recur-
controlling principles
applied
to be
rence in the
finds
If the Board
future.
bargaining
concerning
propriety
erasing
possibility
that the
ef-
type, were enun-
orders in
of this
eases
past practices
ensuring
fects of
* * *
by
Supreme
Court N.L.R.B.
ciated
by
a
use
election
fair
Packing
89
Co.,
395 U.S.
Gissel
though
remedies,
present,
traditional
(1969). Al-
443 practice viola remedy of the unfair labor sion therefore, type of the considered.28 tion must be at automatically enforcement entitled to un of the occurrence any after the time Amer practice.” remedy N.L.R.B. purpose aof must be “[T]he fair labor great F.2d Systems, Inc., 427 quo the Cable restoration of status to ican denied, U.S. Cir.), 400 (5th practicable; cert. the basic est however 448 957, extent (1970). restoring 266 purpose quo L.Ed.2d 27 is to S.Ct. 91 of status N.L.R.B., Corp. v. injury employees.” Gamble done Clark’s redress denied, Cir.), (6th cert. 845, 847 F.2d Local International 422 Ladies Garment L.Ed.2d U.S.App. 27 N.L.R.B., 91 S.Ct. U.S. Workers 126 400 Union employee normal D.C. denied, F.2d cert. 108 374 bargaining unit proposed in a 18
turnover 87 S.Ct. ground sufficiently for generally cited 1328 see cases refusing otherwise valid an to enforce a remedial order has therein. Where order,26 rights primary negating bargaining we believe effect of indigen extraordinary employees turnover fur rate current rather than thering them, defeats, Company’s 500-550 eff rather than ous to the strengthens our greatly ectuates,29 policies operations27 of the N.L.R.A. effects In the that the adverse instant of the enforcement conclusion practice bargaining viola labor Company’s unfair impose concerning representation upon and would a cur tion reasonably adequately employees, majority rent unit of vast be should employed by new of a of whom dissipated, prior were neither to the through election, at the time of labor practice meaningfully remedies violation nor af traditional utilization thereby fected enforcing, its commission. ob enforce Such are we ignore ment would N.L. necessity to bar viating resort rights protects right Furthermore, expressly R.A of em gaining order. ployees organizational employees large hired number refrain from commis subsequent if activities so desire.30 rapid post-unfair practice employee Franks Brothers Co. 26. See labor 702, 703-705, 64 S.Ct. turnover. U.S. (1944) ; v. Brown N.L.R.B. L.Ed. 1020 (7th 10(c) N.L.R.A., Specialty Co., 29. Section Cir. U.S.C. 160(c) (1970), only 1971). La- § authorizes require prac- bor Board to unfair labor July January 27. Between tice ac- violator “to take such affirmative * * * Company employed in- 149 different as will effectuate ”* * * building, policies dividuals at the 500-550 [the N.L.R.A.] being only average complement (emphasis supplied). Regarding work the reme- authority Board, 35-40. dial see cited eases 18, supra. in note cases, In some unfair labor employees Act, do not “[t]he interests of the 30. Section U.S.C. parallel and, necessarily (1970), provides, union’s there inter alia: fore, separately Employees right N. should be considered.” shall have to self- Drives, Inc., form, organization, join, L.R.B. v. 366- assist or (7th 1971), organizations, bargain collec- representatives tively through L.Ed.2d 185 their particularly apropos choosing, engage This admonition is in other own and to bar, purpose case since the never activities concerted represented majority substantial or mutual collective building unit, protection, have also aid shall or proffered any right if even all 17 of the or all authoriza refrain * * sup- accepted [emphasis tion cards were issue not suoh activities —an extremely plied] decided —and there has been . *10 bargain proposed believe remedial, ing but not be order would Matter of the Conviction In the Laughlin, Appellant. e., James J. only punitive it would rather —i. LAUGHLIN,Appellant, James J. punish for its merely v. “It has been practice indiscretion. of America. UNITED STATES however, purpose established, that the Nos. rectify 71-1142. the harm Board remedies injured provide workers, not to done the Appeals, United Court of States against em punitive errant District of Columbia Circuit. measures ployers. power af to command ‘[T]he Argued June puni remedial, not firmative action is Decided Dec. NLRB, Rehearing 1,1973. Corp. March Republic Denied tive.’ Steel * * (1940).” Local U.S. 11, 1973. June Denied Certiorari Workers Garment International Ladies 93 S.Ct. N.L.R.B., 18 L.Ed.2d S.Ct. Brother United See Local of Amer Carpenters
hood and Joiners
ica areWe L.Ed.2d 1 87, 6 grant enforcement
therefore unable proposed
the Labor Board’s Board the Labor order of
The remedial respect enforced, except hereby bargain- imposing portions a direct
those Company.31
ing obligation upon remanded
case is otherwise an to schedule for it
with instructions
appropriate representation election building unit on expeditious basis.
Judgment accordingly. MILLER, Circuit K. Senior
WILBUR
Judge: II of the ma-
I from Section dissent
jority III and concur Section opinion,
thereof. 58, 1971 Inc., NLRB CCH 1(b) 2(c) 189 NLBB No. the Labor Sections slip op. 22,879 at 7-10. ¶ therefore be order must Co., Shape Ship Maintenance deleted. See
