Clarkwood Corp.Download PDFNational Labor Relations Board - Board DecisionsDec 13, 1977233 N.L.R.B. 1172 (N.L.R.B. 1977) Copy Citation DECISIONS OF NATIONAL LABOR RELATIONS BOARD Clarkwood Corporation and Local 25B and Local 43B, Graphic Arts International Union. Case 22-CA- 7189 December 13, 1977 DECISION AND ORDER BY CHAIRMAN FANNING AND MEMBERS JENKINS AND MURPHY On July 8, 1977, Administrative Law Judge Lowell Goerlich issued the attached Decision in this pro- ceeding. Thereafter, Respondent filed exceptions and a supporting brief, and the General Counsel filed a brief in support of the Administrative Law Judge's Decision. Pursuant to the provisions of Section 3(b) of the National Labor Relations Act, as amended, the National Labor Relations Board has delegated its authority in this proceeding to a three-member panel. The Board has considered the record and the attached Decision in light of the exceptions and briefs and has decided to affirm the rulings, find- ings,' and conclusions of the Administrative Law Judge, to modify his remedy so that interest is to be computed in the manner prescribed in Florida Steel Corporation, 231 NLRB 651 (1977),2 and to adopt his recommended Order, as modified herein. We agree with the Administrative Law Judge, for the reasons stated in his Decision, that Respondent, by failing and refusing to sign the agreement reached with the Charging Party on May 25, 1976, violated Section 8(a)(1) and (5) of the Act. However, we disagree with his finding that Respondent also acted unlawfully by unilaterally removing two pay tele- phones and depriving employees of some restroom and locker facilities. The telephones had been used by the employees without restriction since 1968. On July 9, 1976, Respondent posted a notice on the bulletin board to all employees that the telephone company would shortly be removing all pay telephones on the premises, except those pay telephones in the building lobby. On August 9, Respondent also posted a notice on a door to a room in the bindery department which had lockers, cabinets, and restroom facilities, re- questing female employees to move their personal belongings to the main ladies room and noting that the room would not be available for their use after August 14, 1976. The telephones were removed and I Respondent has excepted to certain credibility findings made by the Administrative Law Judge. It is the Board's established policy not to overrule an Administrative Law Judge's resolutions with respect to credibility unless the clear preponderance of all of the relevant evidence convinces us that the resolutions are incorrect. Standard Dry Wall Products, Inc., 91 NLRB 544 (1950), enfd. 188 F.2d 362 (C.A. 3, 1951). We have carefully examined the record and find no basis for reversing his findings. 233 NLRB No. 167 the restroom was closed about the middle of August. Shortly after these notices were posted, employees notified the Union's officials who, in turn, contacted Respondent and protested its contemplated actions. However, at no time did employee representatives request Respondent to bargain about removing the phones or closing the restroom. The Administrative Law Judge concluded that Respondent was not disposed to bargain about removing the phones or closing the restroom; that the notices were tantamount to a fait accompli; and that, under the circumstances, it could not be concluded that the Union had waived its right to bargain about Respondent's decision to institute these changes. Accordingly, he found that Respon- dent violated Section 8(a)(5) of the Act by unilateral- ly undertaking these changes. We disagree. In Medicenter, Mid-South Hospital,3 the Adminis- trative Law Judge, whose decision was affirmed by the Board, noted that, "[w]hen an employer notifies a union of proposed changes in terms and conditions of employment, it is incumbent upon the union to act with due diligence in requesting bargaining." In the present proceeding, the Union, as noted supra, upon receiving notice of the contemplated changes, con- tacted Respondent and objected to the changes, but the record shows that the Union never did request Respondent to negotiate about its decision to make the changes, though they had not yet been imple- mented. In American Buslines, Inc.,4 the Board held that a union which receives timely notice of a change in conditions of employment must take advantage of that notice if it is to preserve its bargaining rights and not be content in merely protesting an employer's contemplated action. Such lack of diligence by a union amounts to a waiver of its right to bargain and that is precisely what occurred here with respect to both the pay phone and restroom changes. Accord- ingly, in view of the above, we shall order that the complaint, insofar as it alleges that Respondent acted unlawfully when it removed some telephones and closed a restroom, be, and it hereby is, dismissed. ORDER Pursuant to Section 10(c) of the National Labor Relations Act, as amended, the National Labor Relations Board adopts as its Order the recommend- ed Order of the Administrative Law Judge as modified below and hereby orders that the Respon- The Administrative Law Judge indicated that the final negotiating session was held on May 25, 1977. The record shows that the date was May 25, 1976. 2 See, generally, Isis Plumbing & Heating Co., 138 NLRB 716 (1962). 3 221 NLRB 670,678-679 (1976), and cases cited therein. 4 164 NLRB 1055, 1056(1967). 1172 CLARKWOOD CORPORATION dent, Clarkwood Corporation, Totowa, New Jersey, its officers, agents, successors, and assigns, shall take the action set forth in the said recommended Order, as so modified. 1. Delete paragraphs l(b) and 2(c) from the Administrative Law Judge's recommended Order. 2. Substitute the attached notice for that of the Administrative Law Judge. APPENDIX NOTICE To EMPLOYEES POSTED BY ORDER OF THE NATIONAL LABOR RELATIONS BOARD An Agency of the United States Government WE WILL, upon request, forthwith sign a written contract with Local 25B and Local 43B, Graphic Arts International Union, effective May 25, 1976, incorporating therein the following clause: "Su- pervision will not do any more work than before the strike." A copy of the contract is posted with this notice. WE WILL give retroactive effect to the terms and conditions of the contract and WE WILL make whole our employees for any losses they may have suffered by reason of our failure to sign the contract. WE WILL NOT in any like or related manner interfere with, restrain, or coerce our employees in the exercise of the rights guaranteed them by Section 7 of the Act. CLARKWOOD CORPORATION DECISION STATEMENT OF THE CASE LOWELL GOERLICH, Administrative Law Judge: The charge filed by Local 25B, Graphic Arts International Union and Local 43B, Graphic Arts International Union, referred to herein as Local 25B, Local 43B, or, collectively, the Union, on September 16, 1976, was served by registered mail on Clarkwood Corporation, Respondent herein, on the same date. The first amended charge filed on November 8, 1976, was served by registered mail on Respondent on the same date. A complaint and notice of hearing was issued on November 16, 1976. The complaint charged that Respondent, since May 28, 1976, has refused and continues to refuse to sign a written agreement embodying rates of pay, wages, hours of employment, and other terms and conditions of employment agreed upon I The facts found herein are based on the record as a whole and the observation of the witnesses. The credibility resolutions herein have been derived from a review of the entire testimonial record and exhibits, with due regard for the logic of probability, the demeanor of the witnesses, and the teachings of N. L. R. B. v. Walton Manufacturing Company & Loganville Pants Co., 369 U.S. 404, 408 (1962). As to those witnesses testifying in between Respondent and the above-named Unions in violation of Section 8(aXl) and (5) of the National Labor Relations Act, as amended, herein referred to as the Act. It is further alleged that Respondent, in July and August 1976, unilaterally changed the terms and conditions of employment of its employees' by restricting their access to telephone and toilet facilities in violation of Section 8(aX1) and (5) of the Act. Respondent filed a timely answer denying that it had engaged in any of the unfair labor practices alleged. The case came on for hearing at Newark, New Jersey, on April 27 and 29, 1977. Each party was afforded a full opportunity to be heard, to call, examine, and cross- examine witnesses, to argue orally on the record, to submit proposed findings of fact and conclusions, and to file briefs. FINDINGS OF FACT, 1 CONCLUSIONS, AND REASONS THEREFOR I. THE BUSINESS OF RESPONDENT Respondent is, and has been at all times material herein, a corporation duly organized under, and existing by virtue of, the laws of the State of New Jersey. At all times material herein Respondent has maintained its principal office at 690 Union Boulevard, Totowa, New Jersey, herein called the Totowa plant, and is now, and at all times material herein has been continuously, engaged at said plant in the business of providing and performing printing services and related services. Respondent's Totowa plant is its only facility involved in this proceeding. In the course and conduct of Respondent's business operations during the calendar year 1975, said operations being representative of its operations at all times material herein, Respondent provided and performed printing services and related services at said Totowa plant valued in excess of $50,000, of which printed materials valued in excess of $50,000 were shipped from said Totowa plant in interstate commerce directly to States of the United States other than the State of New Jersey. Respondent is, and has been at all times material herein, an employer engaged in commerce within the meaning of Section 2(6) and (7) of the Act. II1. THE LABOR ORGANIZATIONS INVOLVED Locals 25B and 43B, Graphic Arts International Union, are, and have been at all times material herein, labor organizations within the meaning of Section 2(5) of the Act. contradiction to the findings herein, their testimony has been discredited, either as having been in conflict with the testimony of credible witnesses or because it was in and of itself incredible and unworthy of belief. All testimony has been reviewed and weighed in the light of the entire record. No testimony has been pretermitted. 1173 DECISIONS OF NATIONAL LABOR RELATIONS BOARD II. THE UNFAIR LABOR PRACTICES A. The Supervision Clause The Unions had negotiated jointly with Respondent "from at least 1958." The last executed contract expired March 28, 1976. Thereafter, Respondent's employees engaged in a strike on or about May 7, 1976. Approximate- ly six to eight members of each Local continued to work during the strike. On May 25, 1976, the union negotiators met with Richard Lyons, Respondent's lawyer and personnel rela- tions director, and Alfred J. Rieker, president of Respon- dent, in Union Attorney Caesar Guazzo's office. Mack Miller, a mediator, was present. The parties, shaking hands all around, concluded the bargaining session around midnight with the understanding that a settlement had been reached. Walter Diersing, president of Local 25B, Mary Gehebe, president of Local 43B, and Jacob Newmeyer, union business representative, committed their understanding of the settlement agreement to writing and submitted it to the union members for ratification on May 27, 1976. This presentation was ratified by the Union and the strike was terminated. The presentation contained the clause, herein referred to as the supervision clause, "Supervision will not do any more work than before the strike." 2 This ratified settlement agreement was then delivered to Lyons by the union committee on May 27, 1976. At the same time Lyons was advised that the "people were ready to go back to work." It was then decided "how many were coming in. .... Mr. Lyons seemed to be in a hurry. He had to leave for the temple. That is what he said. He didn't have much time." 3 In any event, Lyons did not, at the time, fully review the ratified settlement agreement presented to him by the Union nor did he sign it on behalf of Respondent. Nevertheless, the employees returned to work. Sometime later, Lyons informed the Union that he would not sign a contract which contained the above-quoted clause in reference to supervision. The parties stipulated that a document marked "G.C. Exhibit 2," dated May 28, 1976, entitled "Memorandum of Agreement Between Negotiating Committees of Graphic Arts International Union Local #25-B, Local #45-B and Clarkwood Corporation, for the Renewal of a Contract Between Them Dated March 29, 1974," constitutes the contract between the parties (herein referred to as the stipulated contract), except that a dispute exists as to whether the contract should have included this clause which appears in the settlement agreement ratified by the Unions: "Supervision will not do any more work than before the strike." The General Counsel and the Unions claim that, as to this clause, there was a meeting of the minds and that Respondent should be ordered to incorpo- rate the clause in a signed written agreement. Respondent 2 This clause had been of special concern to the Unions because of reports that during the strike the working foremen who violated the picket lines were performing more unit work than they did before the strike. If this condition continued the Unions feared all the strikers would not be recalled. 3 Sally Guertin's credited testimony. 4 The Respondent had filed a charge alleging that the Unions had engaged in a strike without having served the appropriate wntten notices required by Sec. 8(d) of the Act. vigorously opposes this contention. The parties stipulated that resolution of this dispute was the "only issue" before me. From the credible record it is clear, as noted supra, that the Unions were concerned lest those persons who violated their picket line would, after the strike, perform more work than they did as working foremen or supervisors before the strike. On the other hand, Respondent was concerned lest the Union discipline those employees who violated the picket line. As to the latter concern, the "stipulated contract" contains this language: "The company agrees to drop all charges presently before the National Labor Relations Board 4 for amnesty for Bindery Personnel crossing the picket line." This clause also appears in the settlement agreement ratified by the Union (herein called the amnesty clause). Both the amnesty clause and the supervision clause were subjects of discussion at the final negotiation session on May 25, 1977. Diersing, Gehebe, Bargaining Committee Member Sally Guertin, Chairlady Mary Navitski, and Union's attorney, Caesar Guazzo, witnesses called by the General Counsel, testified that Respondent acknowledged acceptance of the supervision clause at the May 25 session. Shop Steward George L. Roman, called by Respondent, testified as follows: Mr. Newmeyer stated that we will give them amnesty with two conditions. The first condition was that all charges will be dropped and the second condition was that all working foremen and assistants would not go back to work working like they were before the strike, which was agreed upon by Mr. Lyons and Mr. Reiker. Diersing's notes, copied immediately after the meeting from notes taken at the May 25 meeting, reveal these words, "Foreman and Foreladies no more work than before strike same duties." Guazzo's notes which were prepared immediately after the meeting together with Diersing5 contained this language: "Union will grant amnesty for picket line crossing of working supers [supervisors] and Co. will withdraw ULP charge. U. un. & supers [supervisors] will do no more b.u. [bargaining unit] work than before strike." While Lyons' notes, which purport to be Miller's reading of the settlement, reveal the words "Amnesty" and "Drop NLRB charges," 6 they do not refer to the supervision clause at all. Lyons agrees that the supervisory question was raised but after the agreement had been reached. He quoted Guertin as saying, "[W]e are not going back to work so long as those supervisors work," and that Gehebe, addressing Reiker, said, "[W]hat are you going to do about those supervisors[?]" Lyons told Reiker not to make a statement, that he would respond. According to Lyons he said, ". . . we have concluded a contract and an agree- 5 Guazzo instructed Diersing to deliver the notes to Newmeyer for drafting. 6 It is significant to note in evaluating Lyons' credibility that Lyons testified that the question of amnesty and the withdrawal of the Respon- dent's unfair labor practice charges "never came up for discussion on the 25th with the union representatives," although these matters appear in his notes which purport to be Miller's recap of what occurred. 1174 CLARKWOOD CORPORATION ment, and I do not intend to enter into any discussions with respect to any restrictions on our foremen. Our foremen are going to do exactly what they did before, nothing less and nothing more,7 and they will not be restricted in any way." (Emphasis supplied.) I have concluded from the credible record that Respon- dent and the Unions did reach a meeting of the minds in regard to the supervision clause. In this regard I have noted the testimony of Roman, in whom it would appear that Respondent harbored some belief as to his credibility by calling him as its witness, and I have noted the absence of any questions put to Reiker (although called as a Respondent witness) on the subject of the supervision clause. I have weighed the appropriate adverse inference arising from the failure of the General Counsel to call Newmeyer. I am convinced of the reliability of Guazzo's notes on the subject of the supervision clause. Accordingly, I find that the Respondent, by failing and refusing to embody in a written signed agreement the aforesaid supervision clause, violated Sections 8(a)(1) and (5) and 8(d)8 of the Act. B. Removal of the Pay Telephone Shortly after the strike ended, at Lyons' direction the Respondent removed two pay telephones in the vicinity of the bindery department at the shipping and receiving platform. The bindery employees had been using these telephones on a daily basis since 1968. While there had been a rule on the subject of telephone use published some time in 1970,9 the use of the pay telephones had never been restricted; nor had any employee ever been disciplined for using the telephone. According to Lyons, a notice was posted on July 9, 1976, as follows: TO ALL EMPLOYEES Shortly New Jersey Bell Telephone will be removing all of the pay telephones located on our premises with the exception of the pay telephones located in the building. In the event that you find it necessary to make an emergency telephone call during working hours, you may do so by utilizing the lobby pay telephone after receiving permission of your foreman to leave your department. You are reminded that company telephones to be used only for company business and no other purpose. The management Thereafter, according to Lyons, the telephones were removed in the second week of August. Lyons said that he I This admitted commitment by Lyons varies little from the gist of the supervision clause. In Sec. 8(d) of the Act it is stated: For the purposes of this section, to bargain collectively is . . . the execution of a written contract incorporating any agreement reached if requested by either party ... See also H. J. Heinz Company, 311 U.S. 514(1941). 9 The rule was as follows: "No employee will be allowed visitors or ordered the removal of the phones because "from the period commencing in '73 and for all time thereafter to the present, [he] would observe people on the telephones during working hours and people waiting by the telephones during working hours." When the phones were removed Chairlady Navitski contacted her foreman and Lyons and was told "some people were abusing the use of it." Diersing also contacted Lyons who informed him that "people were abusing the privilege of utilizing the telephones and they were leaving their work stations and using the telephones during the normal working hours, and the company decided they were taking the phones out of the bindery proper." Diersing responded that he could not agree. Lyons said that employees could use the telephone in the main hall in the lobby, if permission was granted by their supervisor.'o Gehebe also protested the removal of the telephones in a telephone call to Lyons. The phones were not replaced, nor did Respondent negotiate about the removal of the phones before or after the removal. Indeed, the credible evidence does not reflect that at any time Respondent was of the disposition to bargain about the removal of the pay phones. In its response to the Unions it treated its notice as tantamount to afait accompli. Under these circumstances it may not be concluded that the Unions waived their right to bargain about the matter. The use of the two pay telephones by the employees was a condition of employment which had existed since 1968. Respondent's unilateral change in this condition of employment was a violation of Section 8(aX5) of the Act. N.L.R.B. v. Benne Katz, etc., d/bla Williamsburg Steel Products Co., 369 U.S. 736 (1962); Bralco Metals, Inc., 214 NLRB 143, 147, 155 (1974). C. Deprivation of Certain Toilet and Locker Facilities Sometime in August 1976, a notice appeared on a ladies restroom door as follows: All persons using this room are requested to move their personal belongings to the main ladies room before Saturday, August 17, 1976. As of Saturday, August 14th, this room will no longer be available for your use. The management The restroom" or toilet had been used by about eight female employees in the bindery department for around 8 years. Chairlady Natviski was told by her foreman and Lyons that part of the area was needed for storage. Lyons told her the female employees could use the toilets "out personal telephone calls during working hours. When necessary, messages will be taken by the office and delivered to employees" (Resp. Exh. 4). '0 The credible record does not establish that the lobby telephone was an adequate substitute for the deprivation of the two pay phones in the vicinity of the bindery department. " This restroom was divided into a room containing lockers, cartons. and cabinets, another room containing a cot, and a third room containing two toilets and sinks. The door through which the bindery employees entered and where the notice was posted opened into the room containing the lockers, cartons, and cabinets. 1175 DECISIONS OF NATIONAL LABOR RELATIONS BOARD front." Gehebe also contacted Lyons and was told that the space was needed for storage. Originally a "Factory Toilet, Women" was built for the exclusive use of the female employees of the bindery department. It was used by all female employees except those mentioned above. The toilet area in dispute was originally built to accommodate an executive office area which was anticipated. Knockout panels were built in it for this purpose. In 1974 the executive offices were constructed and the knockout panels were removed to accommodate the executive offices with toilet facilities. After the above notice was posted, all female bindery employees utilized the toilet facilities which were designat- ed for them in the original plans. As in the case of the removal of the pay telephones, the credible evidence does not reflect that at any time Respondent was of a disposition to bargain about the deprivation of the toilet and locker facilities. In its response to the Unions it treated its notice as tantamount to afait accompli. As in the case of the pay phone removal, under these circumstances it may not be concluded that the Unions waived their right to bargain about the matter. Obviously, the long use of the toilets since 1968 had ripened into a condition of employment which could not be tampered with by Respondent without negotiating in respect thereto with the employees' lawful representative. Hence, Respondent's unilateral change in this condition of employment was a violation of Section 8(a)(5) of the Act. Pennco, Inc., 212 NLRB 677 (1974). CONCLUSIONS OF LAW I. Respondent is engaged in commerce within the meaning of Section 2(6) and (7) of the Act, and it will effectuate the purposes of the Act for jurisdiction to be exercised herein. 2. The Unions are labor organizations within the meaning of Section 2(5) of the Act. 3. The following unit constitutes an appropriate unit for the purposes of collective bargaining within the meaning of Section 9(b) of the Act: All skilled bindery workers No. 1, skilled bindery workers No. 2, apprentice bindery workers No. 1, general production workers No. 1, general production workers No. 2, bindery helpers No. I and bindery helpers No. 2 employees employed at Respondent's Totowa plant but excluding all office clerical employ- ees, professional employees, guards, all supervisors as defined in the Act and all other employees.12 4. The Unions have been at all times material herein the exclusive representative of the employees in the aforesaid appropriate unit for the purposes of collective bargaining within the meaning of Section 9(a) of the Act. I1 The appropriate unit and the unit described in the contract are the same. 13 This relief is particularly directed toward losses which may have occurred by reason of any employee having been denied wages or other benefits by reason of supervision performing more work than it did before the strike. 5. By unlawfully failing and refusing to sign a written contract embodying the terms and conditions of the oral agreement reached with the Union, in toto, on March 25, 1967, Respondent engaged in unfair labor practices in violation of Section 8(aX5) and (1) of the Act. 6. By unilaterally removing two pay telephones used by the bindery employees and depriving bindery female employees of certain toilet and locker facilities, Respon- dent violated Section 8(aXl) and (5) of the Act. 7. The aforesaid unfair labor practices affect commerce within the meaning of the Act. THE REMEDY It is recommended that Respondent cease and desist from its unfair labor practices and take certain affirmative action necessary to effectuate the purposes of the Act. It is further recommended that the Respondent sign the stipulated contract, including the supervision clause, retroactive as of May 25, 1976, and that it make whole its employees for any loss of wages or other employment benefits 13 they may have suffered as the result of Respondent's failure to sign the contract. The loss of earnings under the recommended Order shall be computed in the manner set forth in F. W. Woolworth Company, 90 NLRB 289 (1950), and Isis Plumbing & Heating Co., 138 NLRB 716 (1962). Since the credible evidence does not establish that the present telephone facilities for the bindery department employees provide comparable service to that which existed before the two pay telephones were removed, it is recommended that the status quo ante be restored and that two pay telephones be installed with the same employee privileges abiding as existed prior to their removal. In respect to the toilet facilities, since adequate compara- ble facilities have been afforded, it is not recommended that the status quo ante be restored. Upon the basis of the foregoing findings of fact, conclusions of law, and the entire record in this proceed- ing, and pursuant to Section 10(c) of the Act, I hereby issue the following recommended: ORDER 14 Respondent, Clarkwood Corporation, Totowa, New Jersey, its officers, agents, successors, and assigns, shall: 1. Cease and desist from: (a) Failing and refusing to sign the agreement reached with the Unions on May 25, 1976 (the stipulated contract), with the incorporation therein of the clause: "Supervision will not do any more work than before the strike." (b) Unilaterally changing working conditions of its employees in violation of Section 8(a)(5) of the Act. (c) In any like or related manner interfering with, restraining, or coercing employees in the exercise of the rights guaranteed them in Section 7 of the Act. 14 In the event no exceptions are filed as provided by Sec. 102.46 of the Rules and Regulations of the National Labor Relations Board, the findings, conclusions, and recommended Order herein shall, as provided in Sec. 102.48 of the Rules and Regulations, be adopted by the Board and become its findings, conclusions, and Order, and all objections thereto shall be deemed waived for all purposes. 1176 CLARKWOOD CORPORATION 2. Take the following affirmative action which will effectuate the policies of the Act: (a) Forthwith, sign the agreement reached with the Union on May 25, 1976 (the stipulated contract), with the incorporation therein of the clause: "Supervision will not do any more work than before the strike." (b) Upon execution of the aforesaid agreement, give retroactive effect to the provisions thereof and make whole its employees for any losses they may have suffered by reason of the Respondent's failure to sign the agreement in the manner set forth in the section herein entitled "The Remedy." (c) Install or have installed two pay telephones at the shipping and receiving platform for the use of bindery department employees with the same employee privileges abiding as existed prior to their removal. 15 In the event that this Order is enforced by a Judgment of a United States Court of Appeals, the words in the notice reading "Posted by Order of the National Labor Relations Board" shall read "Posted Pursuant to a (d) Post at its Totowa, New Jersey, establishment copies of the attached notice marked "Appendix." 5 Copies of said notice, on forms provided by the Regional Director for Region 22, after being duly signed by Respondent's representative, shall be posted by it immediately upon receipt thereof, and be maintained by it for 60 consecutive days thereafter, in conspicuous places, including all places where notices to employees are customarily posted. Reasonable steps shall be taken by Respondent to insure that said notices are not altered, defaced, or covered by any other material. (e) Notify the Regional Director for Region 22, in writing, within 20 days from the date of this Order, what steps the Respondent has taken to comply herewith. Judgment of the United States Court of Appeals Enforcing an Order of the National Labor Relations Board." 1177 Copy with citationCopy as parenthetical citation