F. W. Woolworth Co.Download PDFNational Labor Relations Board - Board DecisionsNov 26, 1969179 N.L.R.B. 748 (N.L.R.B. 1969) Copy Citation 748 DECISIONS OF NATIONAL LABOR RELATIONS BOARD F. W. Woolworth Company and Retail Clerks Union Local 870, Retail Clerks International Association, AFL-CIO' F. W. Woolworth Company and Culinary Workers and Bartenders Union Local 823, Hotel and Restaurant Employees and Bartenders International Union, AFL-CIO, and Joint Executive Board of the Hotel and Restaurant Employees and Bartenders International Union of Alameda County, AFL -CIO.' Cases 20-CA-4911 and 20-CA-5088 November 26, 1969 DECISION AND ORDER BY MEMBERS FANNING, JENKINS, AND ZAGORIA On June 10, 1969, Trial Examiner Lloyd Buchanan issued his Decision in the above-entitled proceeding finding that the Respondent had engaged in and was engaging in certain unfair labor practices and recommending that it cease and desist therefrom and take certain affirmative action, as set forth in the attached Trial Examiner's Decision. Thereafter, the Respondent filed exceptions to the Trial Examiner's Decision and a supporting brief. The General Counsel filed a brief in support of the Trial Examiner's Decision and the Charging Unions filed a brief in reply to Respondent's brief. Pursuant to the provisions of Section 3(b) of the National Labor Relations Act, as amended, the National Labor Relations Board has delegated its powers in connection with this case to a three-member panel. The Board has reviewed the rulings of the Trial Examiner made at the hearing and finds that no prejudicial error was committed. The rulings are hereby affirmed. The Board has considered the Trial Examiner's Decision, the exceptions and briefs, and the entire record in these cases, and hereby adopts the findings, conclusions, and recommendations of the Trial Examiner, with the additions set forth below. The Trial Examiner found, and we agree, that the Respondent violated Section 8(a)(5) and (1) of the Act by consistently refusing to meet with either the Retail Clerks or the Joint Union unless representatives of both were present. The Charging Unions were certified individually on December 1, 1967. The Retail Clerks was certified as the exclusive collective-bargaining representative of Respondent's selling and nonselling employees employed at its Store No. 2405 and the Joint Union was similarly certified for Respondent's culinary department employees at Store No. 2405. Following the certifications, the Retail Clerks and the Joint Union separately sought, by letter, to ' Herein the Retail Clerks. 'Herein the Joint Union. begin negotiations with the Respondent. Subsequent exchanges of correspondence indicated that the Respondent desired that both the Retail Clerks and the Joint Union be present at any negotiating meetings to be held. The Charging Unions each expressed their opposition to such a format. Nevertheless, early in February 1968, a meeting was held at which representatives of the Respondent, the Retail Clerks, and the Joint Union were all present. At this meeting the Retail Clerks made it clear that it was attending solely as a matter of courtesy and that it was opposed to simultaneous negotiations which would include the Joint Union. The Respondent presented its position regarding simultaneous bargaining, and, after inviting the Respondent to meet at its offices on a future date, the Retail Clerks representatives left the meeting. Discussions continued with the Joint Union and it requested that the Respondent furnish it with a list of job classifications. After the meeting, correspondence between the Retail Clerks and the Respondent completely crystallized the positions of the parties. The Respondent adamantly insisted upon meeting with the Retail Clerks and the Joint Union simultaneously whereas the Retail Clerks clearly communicated its desire to meet separately. Thereafter, on March 20, the Retail Clerks filed the allegations involved in Case 20-CA-4911. Subsequently, it appears that the Respondent sent the Joint Union the list of job classifications it had requested and, on April 19, 1968, the Joint Union and the Respondent met for the second time. An exchange of correspondence followed. The Joint Union requested another meeting for the stated purpose of presenting a proposed collective-bargaining agreement to the Respondent. Ultimately, the Respondent firmly reiterated its position that it desired to meet jointly with the Retail Clerks and the Joint Union. Thereupon, on July 8, 1968, the Joint Union filed the 8(a)(5) allegation in Case 20-CA-5088. Correspondence between the Respondent and the Joint Union continued after the filing of the above allegation. Although the Respondent had indicated its position throughout the course of its communications with the Unions involved, the following language, contained in a letter it sent to the Joint Union on October 4, 1968, appears to state its position clearly. I (Respondent's store manager) will be most happy to meet with representatives of the [Joint Union] on October 22, 1968, or at some later mutually convenient time provided that representatives of Retail Clerks Union Local 876 are also present. [Emphasis supplied.] As the record of the representation hearing involving this store indicates, there is constant interchange of employees between the salesfloor and the luncheonette. This obviously raises problems of job classifications, the rates of pay that will apply, 179 NLRB No. 129 F. W. WOOLWORTH COMPANY 749 the manager's right to interchange employees, and, if union security is agreed to, to what union or unions the affected employees are to belong.... In the representation hearing referred to above, the Respondent unsuccessfully sought a single storewide unit including its selling and nonselling employees and the culinary department employees. One of the reasons why the Respondent sought a single storewide unit was the alleged interchange of employees and, in fact, it sought to introduce evidence at the hearing in this case relating to an asserted increase in the frequency of employee interchange in the units involved. The above-quoted language provides explicit proof of Respondent's refusal to meet separately with the representatives of each of the certified units. Furthermore it suggests that the reason for Respondent's refusal is its continuing dissatisfaction with the Board's unit determinations. The issue of employee interchange was considered in the related representation proceeding, and it is well established that, in the absence of newly discovered or previously unavailable evidence, a Respondent is not entitled to relitigate in an 8(a)(5) proceeding issues which were or could have been raised in a related representation proceeding.3 Accordingly, to the extent that the Respondent's refusal to bargain is based upon a challenge of the prior representation proceeding it is in violation of Section 8(a)(5) of the Act.4 In further attempting to justify its conduct herein, the Respondent advances the following argument. It appears to contend that it is not actually refusing to bargain but, on the contrary, it is quite willing to meet with the unions involved provided joint meetings are agreed to. Furthermore, it contends that, in seeking joint negotiating sessions it asks no more than was required of the employer in the Board's General Electric decision.' As we have observed, the Respondent's reasons for seeking joint negotiating sessions are basically the same arguments it advanced in connection with the unit determinations made in the prior related representation proceedings. In our opinion, the Respondent's adamant insistence upon joint meetings constituted an attempt to do indirectly that which it is precluded from doing directly; i.e., relitigating the issues raised in the related representation proceeding in an 8(a)(5) proceeding. To permit the Respondent to pursue such a course of conduct with impunity would do violence to the well-established relitigation doctrine noted above. We find no merit in the Respondent's contention that it is merely seeking for itself what the Board required of the employer in General Electric, supra. 'Pittsburgh Plate Glass Company v N.L R B 313 U.S 416 'Although the Respondent did not seek review of the Regional Director's Decision overruling its objections to the elections involved, it now claims that these objections have not been waived Because of the attempts to meet in joint session , Respondent , rather than denying the validity of the certifications, has in fact acknowledged the representative status of the Charging Unions. '173 NLRB No. 146 That decision noted, inter alia, that subject to certain limitations employees have --a basic right under Section 7 of the Act to select their own bargaining representatives and the actual members of their own bargaining teams.6 This right of selection belongs to the employees, and it is only the employees or their duly designated bargaining representatives which may seek to exercise that right. The Respondent has indicated its willingness to sign separate agreements with each of the certified union involved (providing that representatives of both the Joint Board and the Retail Clerks appear simultaneously at the bargaining sessions). While Respondent contends that, because of its willingness to sign separate agreements it is not actually attempting to alter its employees choice of bargaining agents, or change the scope of the certified units, we are of the opinion that there is no substantive distinction. Under the most generous interpretation of its conduct herein, Respondent is insisting upon the presence of both bargaining representatives before it is willing to discuss the, terms and conditions of employment for either unit. In so doing the Respondent is infringing upon a basic employee right guaranteed by Section 7 of the Act. The Respondent may certainly propose that both the Joint Union and the Retail Clerks meet simultaneously with it. However, in essence, the Respondent has conditioned its willingness to bargain upon the joint presence of the Unions involved. As this position does not directly involve terms and conditions of employment, it is clearly not a mandatory subject of collective bargaining which the Respondent might, under certain circumstances, negotiate for to the point of impasse.' Accordingly, for the reasons stated above, we shall adopt the Trial Examiner's findings that the Respondent is unlawfully refusing to bargain with each of the Charging Unions in violation of Section 8(a)(5) of the Act. ORDER Pursuant to Section 10(c) of the National Labor Relations Act, as amended, the National Labor Relations Board adopts as its Order the Recommended Order of the Trial Examiner and hereby orders that the Respondent, F. W. Woolworth Company, San Leandro, California, its officers, agents, successors, and assigns, shall take the action set forth in the Trial Examiner's Recommended Order, as modified below: Delete paragraph 2(a) of the Recommended Order and substitute the following paragraphs 2(a) and (b) and reletter the subsequent paragraphs: '173 NLRB No 46 'Cf Fibreboard Paper Products Corp v N L R B, 378 U S 203, and Wooster Division of Borg-Warner Corporation , 356 U S 342 750 DECISIONS OF NATIONAL LABOR RELATIONS BOARD "Upon request and without requiring the presence of other persons, bargain with Retail Clerks Union Local 870, Retail Clerks International Association, AFL-CIO, as the exclusive representative of all employees in the bargaining unit described herein with respect to rates of pay, hours of employment, or other conditions of employment, and embody in a signed agreement any understanding reached. The bargaining unit is: All full-time and regular part-time selling and nonselling employees employed by F. W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all Department 340 employees, seasonal and on-call employees, professional employees, confidential office employees, guards, manager, assistant manager , management trainee , personnel supervisor, the day and night sales floor supervisor, the ready-to-wear supervisor, the office supervisor, and all other supervisors as defined in the Act. "Upon request and without requiring the presence of other persons, bargain with Culinary Workers and Bartenders Union Local 823, Hotel and Restaurant Employees and Bartenders International Union, AFL-CIO, and Joint Executive Board of the Hotel and Restaurant Employees and Bartenders International Union of Alameda County, AFL-CIO, as the exclusive representative of all employees in the bargaining unit described herein with respect to rates of pay, hours of employment, or other conditions of employment, and embody in a signed agreement any understanding reached. The bargaining unit is: All full-time and regular part-time Department 340 employees employed by F. W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all other employees, office clerical employees, professional employees, seasonal and on-call employees, guards, the day and night fountain operators, the assistant fountain operator, and all other supervisors as defined in the Act." MEMBER JENKINS , concurring: For the reasons set forth by the Trial Examiner, I would affirm his decision. TRIAL EXAMINER'S DECISION BUCHANAN, Trial Examiner: The complaints herein (issued June I I and September 30, 1968, and consolidated on the latter date; charges filed March 20, and July 8 and September 13, 1968) respectively allege that the Company has violated Section 8(a)(5) and (I) of the National Labor Relations Act, as amended, 73 Stat 519, by refusal to bargain with the Unions named in the separate complaints as collective-bargaining representatives of the employees in the appropriate units according to Board certifications. The answers, as amended, deny the allegations of requests and refusals to bargain, and challenge the validity of the certifications. The Board on February 4, 1969, denied the General Counsel's motion for summary judgment and remanded the case for trial on the limited issue "whether or not Respondent has, in fact, refused to bargain with" the Charging Unions; we are not here relitigating the unit determinations or the overruled objections in the RC proceedings. The case was tried before me at San Francisco, California, on April 3, 1969 Pursuant to permission granted to all parties, briefs have been filed by the General Counsel, the Unions, and the Company, the time to do so having been extended. The briefs are succinct and generally to the point, adequately presenting the conflicting positions.' While counsel argue for diametrically opposite conclusions, the facts before us are not in dispute. Counsel cooperated by entering into various stipulations and agreements . This commendable cooperation with respect to certain facts did not dispose of questions raised as the Company sought to offer proof which I rejected; and it left for decision the question whether the Company had violated the Act as alleged. No witnesses were called except with respect to proof offered and rejected. Upon the entire record in the case, I make the following: Findings of Fact (With Reasons Therefor) and Conclusions of Law 1. THE COMPANY S BUSINESS AND THE LABOR ORGANIZATIONS INVOLVED The facts concerning the Company 's status as a New York corporation , the nature and extent of its business, and its engagement in commerce within the meaning of the Act are admitted ; I find and conclude accordingly. I also find and conclude that , as admitted , each of the Unions is a labor organization within the meaning of the Act. II. THE ALLEGED VIOLATION OF SECTION 8(A)(5) AND 1) On December 1, 1967, the Regional Director for Region 20 certified the Retail Clerks as the exclusive representative of all the employees in the following unit, which he had previously found to be an appropriate unit within the meaning of Section 9(b) of the Act: All full-time and regular part-time selling and non-selling employees employed by F. W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all Department 340 employees, seasonal and on-call employees, professional employees, confidential office employees, guards , manager , assistant manager , management trainee, personnel supervisor, the day and night sales floor supervisors, the ready-to-wear supervisor, the office supervisor, and all other supervisors as defined in the Act. The Regional Director at the same time certified Local 823 and the Joint Executive Board, hereinafter referred to as the Joint Union, as the exclusive representative of all employees in the following unit, which he had previously found to be an appropriate unit within the meaning of ' I reject as improper and hardly worthy of counsel the statemept in the Company's brief that it is "[plerhaps today ... not quite true " that the General Counsel has the burden of proof. F. W. WOOLWORTH COMPANY 751 Section 9(b) of the Act: All full-time and regular part-time Department 340 employees employed by F W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all other employees, office clerical employees, professional employees, seasonal and on-call employees, guards, the day and night fountain operators, the assistant fountain operator, and all other supervisors as defined in the Act. The Company's contentions with respect to the Regional Director's procedures and decisions in the representation proceedings were there rejected by the Board in its denial of review in May 1967. At the instant trial no relevant matters were offered for consideration which were not or could not have been presented in the representation proceedings. It is neither my function nor my right to review the Board's determinations.' Beyond this, the remand by the Board expressly excluded matters covered in the representation proceedings. I find and conclude that each of the units as described above is an appropriate unit within the meaning of Section 9(a) of the Act, and that the respective unions were on December I, 1967, and have been at all times since the respective exclusive bargaining representatives, within the meaning of Section 9(a) of the Act, of all employees in the aforesaid units for the purposes of collective bargaining. On February 19, 1968, the Retail Clerks by letter requested that the Company meet and bargain with it The Company replied on February 26, declaring its willingness to meet "providing" that Culinary Workers representatives would be on hand to meet. Mirroring this and quite consistently when the Joint Union on September 9 demanded a bargaining meeting, the Company by letter dated October 3 declared its willingness to meet "provided that representatives of Retail Clerks Union, Local 870, are also present." On the basis of the Regional Director's finding that separate units are appropriate, the General Counsel maintains that the Company has been obliged to meet as requested and separately with the respective labor organizations. The Company on the other hand maintains that it may lawfully insist 3 (as I find that it insisted although it denies that it did) that all three unions be present at negotiations. If the Board in its denial of the motion for summary judgment relied on the references, in the Company's opposition to the motion, to correspondence and meetings between the parties, nothing has now been indicated in either the correspondence or the meetings contrary to the respective positions noted above. The Board did not have before it the details of the correspondence. Where the general statements submitted on the motion suggested a triable issue, we have now determined the facts. Indeed such determination has proved to be no complicated task. The proof with respect to items not previously established was received in the form of exhibits and stipulations. The communications cited collectively and consistently manifested the respective positions early established and declared. Nor is the contrary indicated in an affidavit received at the trial. As for negotiation meetings on February I and April 19, 1968, mentioned to the Board, no evidence beyond correspondence which referred to them was offered at the trial. One need not guess concerning such meetings. conceivably and as suggested in the briefs, they may themselves have included a dispute concerning joint negotiations or some other item which might not at all indicate a willingness to bargain as required. Whatever impression was conveyed to the Board, we have no evidence that the Company indicated at meetings a readiness to meet its statutory obligation The express provisos in the Company's letters of February 26 and October 3 were unlawful conditions declared to be precedent to performance of the Company's duty pursuant to the certifications. These provisos, demanding joint negotiations or the presence of representatives other than those designated by the certified bargaining agent, defied the rule against insistence on nonmandatory provisions or on bargaining with respect to nonmandatory provisions ° What was early declared as an assumption by the Company that the bargaining would be joint was continued by it for many months as a condition to bargaining with any of the certified unions, it was indeed insistence in the face of the Unions' objections and refusals. Aside from the specific limitations in the Board's remand order, joint bargaining between other locals of these International Unions and other stores of this Company, of which proof was offered but rejected, might reflect no more than willingness or desire by those other locals and those stores to bargain jointly -- an element which the Unions here rejected. In any event, the issue remains of lawfulness in the instant situations: if the Company's attitude and actions were in derogation of the rights of the charging unions, actions elsewhere by other locals would not here exculpate the Company I find and conclude that since February 26, 1968,5 the Company has refused to bargain collectively with the Retail Clerks as the exclusive representative of the employees in the appropriate unit described above; and that since October 3, 1968, it has refused to bargain collectively with the Joint Unions as the exclusive representative of the employees in the other appropriate unit described above. RECOMMENDED ORDER Upon the basis of the foregoing findings of fact and conclusions of law, and upon the entire record in the case, I recommend that the Company, F. W. Woolworth Company, at Bayfair Shopping Center, San Leandro, 'Clearfield Cheese Company, Inc., 139 NLRB I, enfd 322 F 2d 89 (C A 3) 'The Company agreed to meet with the union or unions which represented the employees in the respective units "provided that" their counterpart , i e., the other unions or union, be present To maintain such a position is to insist unlawfully , as we shall further see, on conditions outside the scope of required bargaining What the circumstances were at another store , where there was such joint bargaining , we do not know (Wooster Division of Borg- Warner Corporation . 113 NLRB 1288, 1324 Nor do we know whether the unions there agreed , as they may, to joint bargaining To ask for and obtain agreement is one thing , to condition bargaining on it is another 'Wooster Division of Borg-Warner Corporation , 113 NLRB 1288, 1325 ( 1 2 1 NLRB 1492), 236 F 2d 898 (CA 6), 356 U S 342 We need not indulge in what has become a common redundancy with the phrase "resist to an impasse " After agreement or concession , there is no longer any insistence , where there is no agreement, impasse, by definition, follows insistence The significance and effect are the same whether the terms used "be provided that, " ` on condition ," "pressing a demand, " or "insistence " 'The respective dates of refusal are those featured by the General Counsel and relied on at the trial The correspondence received may support earlier dates, but none of the parties will be prejudiced , nor the remedy affected , by reliance on the sufficient letters and dates specifically cited 752 DECISIONS OF NATIONAL LABOR RELATIONS BOARD California, its officers, agents, successors , and assigns, shall 1. Cease and desist from. (a) Refusing to bargain collectively with Retail Clerks Union Local 870, Retail Clerks International Association, AFL-CIO, as the exclusive representative of all its employees in the appropriate unit , as certified, with respect to rates of pay, wages, hours of employment, or other conditions of employment (b) Refusing to bargain collectively with Culinary Workers and Bartenders Union Local 823, Hotel and Restaurant Employees and Bartenders International Union, AFL-CIO, and Joint Executive Board of the Hotel and Restaurant Employees and Bartenders International Union of Alameda County, AFL-CIO, as the exclusive representative of all its employees in the appropriate unit (Department 340 employees), as certified , with respect to rates of pay , wages, hours of employment, or other conditions of employment. (c) In any like or related manner interfering with, restraining , or coercing its employees in the exercise of the rights guaranteed in Section 7 of the Act. 2. Take the following affirmative action which is necessary to effectuate the policies of the Act: (a) Upon request, bargain collectively with each of the representative unions, as certified, as the exclusive representative of the employees in the respective appropriate units, and embody in signed agreements any understanding reached. (b) Post at its place of business at Bayfair Shopping Center, San Leandro, California, copies of the attached notice marked "Appendix."6 Copies of said notice, on forms provided by the Regional Director for Region 20, shall be posted by the Company, after being duly signed by its representative, immediately upon receipt thereof, and be maintained by it for 60 consecutive days thereafter, in conspicuous places, including all places where notices to its employees are customarily posted. Reasonable steps shall be taken by the Company to insure that said notices are not altered, defaced, or covered by any other material. (c) Notify the Regional Director for Region 20, in writing, within 20 days from the receipt of this Decision, what steps have been taken to comply herewith.' 'In the event that this Recommended Order is adopted by the Board, the words "a Decision and Order" shall be substituted for the words "the Recommended Order of a Trial Examiner" in the notice In the further event that the Board ' s Order is enforced by a decree of a United States Court of Appeals , the words "a Decree of the United States Court of Appeals Enforcing an Order" shall be substituted for the words "a Decision and Order " 'In the event that this Recommended Order is adopted by the Board, this provision shall be modified to read : "Notify the Regional Director for Region 20. in writing , within 10 days from the date of this Order, what steps Respondent has taken to comply herewith " APPENDIX NOTICE TO ALL EMPLOYEES Pursuant to the Recommended Order of a Trial Examiner of the National Labor Relations Board and in order to effectuate the policies of the National Labor Relations Act, as amended, we hereby notify our employees that: WE WILL, without requiring the presence of other persons, bargain, upon request, with Retail Clerks Union Local 870, Retail Clerks International Association, AFL-CIO, as the exclusive representative of all employees in the bargaining unit described herein with respect to rates of pay, hours of employment, or other conditions of employment, and embody in a signed agreement any understanding reached. The bargaining unit is. All full-time and regular part-time selling and non-selling employees employed by F W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all Department 340 employees, seasonal and on-call employees, professional employees, confidential office employees, guards, manager, assistant manager, management trainee , personnel supervisor, the day and night sales floor supervisor, the ready-to-wear supervisor, the office supervisor, and all other supervisors as defined in the Act. WE WILL, without requiring the presence of other persons, bargain, upon request, with Culinary Workers and Bartenders Union Local 823, Hotel and Restaurant Employees and Bartenders International Union, AFL-CIO, and Joint Executive Board of the Hotel and Restaurant Employees and Bartenders International Union of Alameda County, AFL-CIO, as the exclusive representative of all employees in the bargaining unit described herein with respect to rates of pay, hours of employment, or other conditions of employment, and embody in a signed agreement any understanding reached. The bargaining unit is: All full-time and regular part-time Department 340 employees employed by F. W. Woolworth Company at 110 Mall Level, Bayfair Shopping Center, San Leandro, California, but excluding all other employees, office clerical employees, professional employees, seasonal and on-call employees, guards, the day and night fountain operators, the assistant fountain operator, and all other supervisors as defined in the Act F. W. WOOLWORTH COMPANY (Employer) Dated By (Representative) (Title) This notice must remain posted for 60 consecutive days from the date of posting and must not be altered, defaced, or covered by any other material if employees have any question concerning this notice or compliance with its provisions, they may communicate directly with the Board's Regional Office, 13050 Federal Building, 450 Golden Gate Avenue, Box 36047, San Francisco, California 94102, Telephone 415-556-3197. Copy with citationCopy as parenthetical citation