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GOVERNMENTAL MACHINERY FOR THE SETTLEMENT OE INDUSTRIAL DISPUTES I N DEMOCRACIES DURING WAR EMERGENCIES

A T h esis P r e s e n te d to t h e f a c u l t y o f t h e S c h o o l o f Governm ent U n iv e rs ity o f S outhern C a lif o r n ia

In P a r tia l F u lfillm en t o f th e R equirem ents f o r th e D egree M aster o f s c ie n c e in P u b lic A d m in is tra tio n

*>y H a ro ld I r v i n g R oth J u n e 1942

UMI Number: EP64455

All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion.

Dissertation Rubl shmg

UMI EP64455 Published by ProQuest LLC (2014). Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code

ProQuest* ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346

This thesisj wri tt en by ^O L D JR V IN G

/ 9 ^ 9 {f

ROTH

under the direction of h.»La F acu lt y C o m m i t t e e , a n d a p p r o v e d by a l l its m e m b e r s , has be en pr es e nt e d to an d a c ce pt e d by the Co un ci l on Gra du ate S t u d y an d Research in p a r tia l fulfill­ m e n t of th e r e q u i r e m e n t s f o r th e d e g r e e of

Ma s .t a r .._.oi*_._S c leiic.e_..i n .. P . u b l i c___A&ral n i t e a t i o n

Dean

Secretary Date.

F aculty

June. .1942

m m ittee

TABLE OF CONTENTS CHAPTER I.

PACE TOE PROBLEM AND DEFINITIONS OF TERMS USED T he p r o b l e m

.

.

1

. . . . . . . ............................................

1

S t a t e m e n t o f t h e p r o b l e m ..................................

1

D e f i n i t i o n o f t e r m s u s e d ......................................

5

A r b i t r a t i o n ..............................................................

5

C o m p u l s o r y i n v e s t i g a t i o n ...................... ........

6

C o n ciliatio n

6

.

.........................................................

M e d i a t i o n .............................. II.

COMPULSORY ARBITRATION

6

....................................................

8

G r e a t B r i t a i n ..............................

8

G r e a t B r i t a i n d u r i n g t h e f | r s t W o r l d W ar A u stra lia

. .

.

8

...................................................................

10

A u s t r a l i a n e x p e r ie n c e w ith com pulsory a r b i t r a t i o n ........................................................... R e c e n t amendments to t h e

10

A ct. . . . . . .

13

New Z e a l a n d ..................................................................... C om pulsory a r b i t r a t i o n

.

.

15

• •



18

w a r ............................................................................................

18

F r a n c e .............................................

in

NewZ e a l a n d

15

F ra n c e p re c e d in g and d u rin g t h e c u r r e n t

P ro c e d u re f o r i n d u s t r i e s h av in g g rie v a n c e m a c h i n e r y .....................................................................

19

iii CHAPTER

PAGE Procedure f o r in d u s tr ie s w ithout g riev an ce m achinery

. . . . . . .

.....................................

U nited S ta te s - proposed l e g i s l a t i o n

III.

. . . .

20 21

H o f f m a n B i l l ........................................................................

21

Ford B i l l

........................................................................

22

C o n clu sio n s

........................................................................

22

COMPULSORY I N V ES TIG A TIO N ....................................................

25

C a n a d a ............................................................................................

25

C anad ian e x p e rie n c e w ith com pulsory i n v e s t i g a t i o n .............................................................. ........................................

G reat B r ita in

25 30

C om pulsory i n v e s t i g a t i o n p ro p o s e d f o r G reat B r ita in

.

....................................................

U n i t e d S t a t e s ....................................................................... The R ailw ay L a b o r A ct

.........................................

The N a t io n a l M e d i a t io n B oard

. . . . . .

30 30 30 31

P r o p o s e d V in s o n C om pulsory I n v e s t i g a t i o n B ill

« ' . •«

P r o p o s e d B a l l B i l l ........................................................

35

P r o p o s e d S m i t h B i l l .....................* .........................

36

C o n c l u s i o n s ................................... IV .

24

VOLUNTARY A R B I T R A T I O N ........................................................... " V o lu n tary su b m issio n ”

...............................................

36 37 38

iv CHAPTER

PAGE M echanical a r b i t r a t i o n

.

.....................................

N atio n al la b o r r e l a t i o n s board

39

..........................

40

S m ith B i l l - p r o p o s e d amendment t o t h e N a tio n a l L abor R e la ti o n s Act C on clu sio n

.

43

.............................................................................

44

■V. CONCILIATION AND MEDIATION G reat B rita in

. .

.

.

................................................

46

..........................................................

46

G reat B r i ta i n p re c e d in g th e c u rr e n twar G reat B r ita in during th e U n ited S ta te s

.

46

c u r r e n t war . . .

48

........................................................................

51

U n ite d S t a t e s p o l i c y and p ro c e d u re d u rin g F i r s t W o r l d W a r ................................................

51

C o n c i l i a t i o n S e r v ic e o f th e D epartm ent o f L a b o r .............. ................................ ...................................

52

F i r s t W o r l d War N a t i o n a l W a r L a b o r B o a r d .

53

D u t i e s a n d p o w e r s o f t h e B o a r d ................. Me t h o d o f p r e s e n t i n g c o m p l a i n t s

54

.....................

56

P ro c e d u re f o r h e a r in g and a d ju s tin g d i s p u t e s ............................................................................ N a t i o n a l D e f e n s e M e d i a t i o n B o a r d ............ P r e s e n t N a t i o n a l War L a b o r B o a r d

61

.....................

V I . SUMMARY AND C O N C L U S I O N S ................................................ BIBLIOGRAPHY

56

..................................................................................................

63 67 75

CHAPTER I THE PROBLEM AND DEFINITIONS OF TERMS USED A m i l i t a r y n e c e s s i t y unique to th e t w e n tie th

century

d u r in g war em e rg en c ie s i s t h e u n p re c e d e n te d need f o r v o lu m in o u s and d i v e r s e arm am ent and m e c h a n i c a l im p le m e n ts o f w a r f a r e and t h e u n i n t e r r u p t e d p r o d u c t i o n t h e r e o f *

P rio r

t h e r e t o , when n a t i o n a l e c o n o m i e s w e r e e s s e n t i a l l y a g r a r i a n , m i l i t a r y manpower was p r i m a r y i n i m p o r t a n c e . th ere o f,

In pursuance

a l l g o v e r n m e n ta l l e g i s l a t i o n was fram e d and a c t i o n

ta k e n w ith t h a t o b j e c t i v e i n m ind.

A ll n e c e ssa ry war p ro ­

d u c tio n co u ld be and was r e a l i z e d w ith b u t r e l a t i v e l y a c c e le ra tio n of pro d u ction f a c i l i t i e s m ental in te r v e n t i o n to It

slig h t

and w i t h o u t g o v e r n ­

in s u r e th e c o n tin u e d flow o f s u p p lie s .

h a s b e e n s a i d t h a t d u r i n g t h e F i r s t W orld W ar, f i v e

men i n b e h i n d - t h e - l i n e s p r o d u c t i v e e f f o r t w e r e n e c e s s a r y t o supply a f r o n t l i n e arm ies,

so ld ier.

Today, w ith m e c h a n iz a tio n of

i t h a s b e e n e s t i m a t e d t h a t e i g h t e e n o r n i n e t e e n men

in b e h in d -th e -lin e s p ro d u ctiv e e f f o r t are n ecessary to supply a f r o n t l i n e

so ld ier. I.

THE PROBLEM

S ta tem en t o f th e problem .

C oncurrent w ith in c re a s e s

o f p r o d u c t i o n n e c e s s i t a t e d by w a r p a r t i c i p a t i o n ,

several

2 c o m p a r a t i v e l y r e c e n t f a c t o r s have a r i s e n i n m anagem entlab o r re la tio n s w it:

(1)

to

com plicate th e i n d u s t r i a l

p r o d u c t i o n and l a b o r p o l i c i e s

p u r s u e d by m anagem ent a c t i n g a more a r t i c u l a t e by l a b o r ,

situ atio n ,

en unciated

a lo n e and i n

to

and

a sso ciatio n ;

(2)

and m i l i t a n t p o s i t i o n advanced and p u rsu e d

o rg a n iz e d and u n o rg a n iz e d ;

g overnm ental l e g i s l a t i o n

and (3)

e x istin g

r e l a t i v e to th e r e s p e c t iv e r i g h t s

o f management a n d l a b o r * D iffere n ce s of o p in io n , o b je c tiv e s ,

and p o lic y p u rsu ed

i n m any i n s t a n c e s b r i n g t h e i s s u e s i n v o l v e d i n t o b o l d r e l i e f and p r e c i p i t a t e ,

in

several cases,

a s t r i k e o r lo ck o u t w ith

t h e r e s u l t a n t hue and c ry t h a t th e governm ent i n t e r v e n e and p ro ject i ts e l f

in to

t h e d i s p u t e to

e x p e d i t e im m ediate

s e t t l e m e n t o f t h e d i s p u t e i n q u e s t i o n and a l l

such s i m i l a r

d i s p u t e s f o r t h e d u r a t i o n o f t h e war em erg en cy .

These

dem ands a r e m ore l i k e l y t o b e h e e d e d a t s u c h t i m e s when m anagem ent-labor d is p u te s a re a p p a r e n tly r e s p o n s ib le f o r o r th rea te n to w hether t h i s

s l o w down a c o n c e r t e d w a r p r o d u c t i o n p r o g r a m , t h r e a t be r e a l o r im a g in ary .

D u rin g a w ar p r o d u c t io n program i t tru e

is unquestio n ab ly

t h a t la b o r stoppages a re a d e trim e n t to n a tio n a l p o lic y

and s e c u r i t y i n a d d i t i o n t o b e i n g an econom ic and s o c i a l lo ss.

L i k e w i s e , m any i m p r o v e m e n t s c a n b e a n d s h o u l d b e made

in th e

f i e l d o f m anagem ent-labor r e l a t i o n s .

In th is

resp ect,

3 d iffe re n c e s o f o p in io n are q u ite lik e ly

to a r i s e

as to

th e

e x t e n t t o w h ic h t h e g o v e rn m e n t s h o u ld i n t e r v e n e and p r o ­ c e d u re sh o u ld he fo llo w e d t o

in su re c o n tin u ity of p ro d u ctio n

f o r t h e w a r e f f o r t by t h e i n d u s t r i a l m a c h i n e . B efore a program , re a s o n a b ly a s s u re d of p r a c t i c a l a p p lic a b ility g rievances,

and s u c c e s s i n m a n a g e m e n t- la b o r a d j u s t m e n t o f

can be p ro m u lg a te d and e f f e c t u a t e d , t h r e e f a c ­

t o r s m ust b e c o n s id e r e d :

nam ely,

c h a ra c te r o f in d u s tia l discord ;

(1)

(2 )

t h e e x t e n t and

th e

experience of th e

U n i t e d S t a t e s and o t h e r c o u n t r i e s w ith v a r i o u s d e v i c e s and te c h n iq u e s f o r th e ad ju stm en t o f m anagem ent-labor d i s p u te s ; a n d (3 )

t h e n a t u r e and e f f e c t i v e n e s s o f p r e s e n t d e v i c e s

a n d t e c h n i q u e s o f s e t t l i n g m a n a g e m e n t - l a b o r c o n t r o v e r s i e s . - 1It

i s not p ro b a b le t h a t m anagem ent-labor s t r i f e w i l l

approxim ate o r s u r p a s s , tio n

by c o m p a r i s o n , t h e d e g r e e o f p r o d u c ­

s t o p p a g e s w h ich o c c u r r e d d u r i n g t h e F i r s t W orld W ar,

when s e t t l e m e n t o f i n d u s t r i a l d i s p u t e s r e s t e d a l m o s t s o l e l y in th e hands o f th e d is p u ta n ts .

N e v e rth e le s s , one sh o u ld

1 R o b e r t A . S p r e c h e r , " I n d u s t r i a l D i s p u t e s i n T im e o f War a n d P e a c e , " I l l i n o i s Law R e v i e w , 3 6 : 2 9 0 , N o v e m b e r , 1 9 4 1 . 2 T w e n tie th C en tu ry Fund, L ab o r and N a tio n a l D efense (New Y o r k : T w e n t i e t h C e n t u r y F u n d , 1 9 4 1 1 , p . 8 6 ; L u d w i g T e l l e r , L a b o r D i s p u t e s and C o l l e c t i v e B a r g a i n i n g , V o l. 1 ( New Y o r k : B a k e r , V o o r h i s a n d C om p an y , I n c . , 1 9 4 0 ) , p . 1 2 9 ; U n s i g n e d a r t i c l e , " A m e r i c a n L a b o r i n t h e W o r l d War P e r i o d 1914 t o A p r i l , 1 9 1 7 ," M onthly L a b o r R e v ie w , 4 9 :7 8 5 -9 5 , O c to b e r, 1939; U n sig n e d a r t i c l e , " S t r i k e s i n A m erican I n d u s ­ t r y i n W artim e," N a tio n a l i n d u s t r i a l C o n fe re n ce B p a rd , R e s e a rc h R e p o rt No. 3 , M arch, 1932. pp. 3-20; unsigned a r t i c l e s , " N o t S o Much L a b o r T r o u b l e , " New R e p u b l i c , 1 0 4 : 3 2 4 , M arch 1 0 , 1 9 4 1 .

4 n o t be p r e c l u d e d fro m s e e k i n g means and p r o c e d u r e s w h ereb y i n d u s t r i a l d i s p u t e s may b e r e d u c e d t o a m in im um a n d t h o s e d i s p u t e s s e t t l e d e x p e d i t i o u s l y and e q u i t a b l y t o

a ll p arties

c o n c e rn e d c o n s i s t e n t w i t h t h e n a t i o n a l w e l f a r e and p u b l i c p o licy . G o v e rn m e n ta l a c t i o n t o f o r e s t a l l o r end m anagem entlab o r d isp u tes i s to w it:

bounded by two p o s s i b l e r e m e d i a l e x tr e m e s ,

t h e g o v e r n m e n t may c r e a t e m a c h i n e r y w h e r e b y

d i f f e r e n c e s may b e r e c o n c i l e d b e t w e e n t h e p a r t i e s i n v o l v e d o r t h e g o v e r n m e n t may i m p o s e i t s p o l i c y a n d w i l l u p o n t h e p a rtie s d esp ite

t h e i r la c k o f concurrence th e r e in .

B etw een

t h e s e tw o e x t r e m e s e x i s t s e v e r a l d e g r e e s o f g o v e r n m e n t a l p o licy o r in te rv e n tio n .

F o r co n v en ien c e and d i s t i n c t i o n ,

th e s e g r a d a t io n s o f governm ental a c t i o n have been denom inated: in v estig atio n ;

(1 ) (3)

com pulsory a r b i t r a t i o n ; v o lu n tary a rb itr a tio n ;

(8)

com pulsory

and (4)

c o n cilia ­

tio n o r m ediation. I t m u st be p o i n t e d o u t t h a t 1w h e re a s s e v e r a l d e m o c r a t i c c o u n t r i e s have fram ed l e g i s l a t i o n c r e a t i n g m a c h in e ry f o r th e s e ttl e m e n t o f i n d u s t r i a l d i s p u t e s i n a n t i c i p a t i o n o f a war em ergency o r d u r in g t h e e x i s t e n c e o f

such em ergency,

several

o th e r s have adapted e x is ti n g p e ac e-tim e i n d u s t r i a l d is p u te m achinery to m eet th e changed c o n d itio n s . the re s p e c tiv e

I n t o w hich c a te g o ry

c o u n trie s f a l l w i l l be d iscu ssed in th e

a n a l y s i s o f t h e a d ju s tm e n t m achinery u t i l i z e d

by e a c h

5 p a r tic u la r co u n try ♦ II.

DEFINITION OF TERMS USED

A l t h o u g h t h e r e i s no u n a n i m i t y o f d e f i n i t i o n

from

country to

c o u n try , as a g e n e ra l r u le the term s a r b i t r a t i o n ,

m ed iatio n ,

and c o n c i l i a t i o n a r e

A rb itratio n . tiv e

sh arp ly d is tin g u is h e d .

By a r b i t r a t i o n i s m e a n t t h e a u t h o r i t a ­

s e t t l e m e n t o f d i s p u t e s i n a p r o c e d u r e whereby th e

and i s s u e s o f t h e

facts

c o n tro v e rsy a re p re s e n te d to a n e u tr a l

t h i r d p a r t y n o m in a te d and a p p o i n t e d by t h e d i s p u t a n t s and w hich v e s t s

i n h i m t h e p o w e r t o make a b i n d i n g d e c i s i o n

based th ereu p o n .

A rb itratio n ,

how ever,

fo rm s, v o l u n ta r y and co m p u lso ry . from t h e w i l l i n g n e s s

and f r e e

c o n s i s t s o f two

When a r b i t r a t i o n r e s u l t s

ch o ice o f b o th d is p u t a n t s to

subm it t h e i r d i f f e r e n c e s to a t h i r d p a r t y f o r s e t t l e m e n t , it

is

term ed v o lu n ta r y a r b i t r a t i o n .

a c c e p ta n c e o f th e award i s v o l u n t a r y when agreem ent to

W hether o r n o t t h e

o b lig ato ry ,

a rb itratio n is

en ter in to a r b itr a tio n

depends

e n t i r e l y upon th e ch o ic e o f both d i s p u ta n ts to f o llo w t h a t procedure.

A r b i t r a t i o n becom es c o m p u ls o ry when t h e l a w

com pels t h e d i s p u t a n t s t o su b m it t h e i r c o n t r o v e r s i e s to

the

judgm ent o f a governm ent b o a rd o r t r i b u n a l whose d e c i s i o n i s b in d in g and e n f o r c e a b l e .

6 C o m p u lso in v e stig a tio n *

C om pulsory i n v e s t i g a t i o n

r e q u i r e s t h a t t h e p a r t i e s t o a d i s p u t e p r o d u c e h o o k s and docum ents,

to

t e s t i f y under o ath ,

and t o

d isch arg e o th e r

o b l ig a t io n s n e c e ssa ry f o r a th o ro u g h -g o in g in v e s t i g a t i o n . The m o st s i g n i f i c a n t f e a t u r e o f c o m p u lso ry i n v e s t i g a t i o n i s t h a t w hich p r o h i b i t s

s t r i k e s and lo c k o u t s b e f o r e and d u rin g

th e proceedings of the in v e s tig a tin g board. r i g h t o f the

em ployees t o

strik e,

nor th e

N eith er th e

rig h t of th e

em p lo y ers to d i s c h a r g e o r e f f e c t a l o c k o u t i s f o r f e i t e d by law ,

but the

e x e rc is e o f th ese

s p e c i f i e d p e r i o d o f tim e*

rig h ts

compel a s e t t l e m e n t o f

t h e d i s p u t e by f o r c i n g t h e p a r t i e s t o

p u b lish th e facts

a b id e by t h e d e c i s i o n

com pulsory i n v e s t i g a t i o n aim s to

f a c t s c o n c e r n i n g a d i s p u t e and by means o f t h e s e

to g u id e p u b l i c o p in io n to b r in g p r e s s u r e t o b e a r on

t h e uncom prom ising p a r t y , C o n c iliatio n . the

suspended f o r a

U n lik e com pulsory a r b i t r a t i o n i n

w hich t h e p r o c e d u r e u n d e r ta k e s t o

o f a board o f t r i b u n a l ,

is

and t h u s f a c i l i t a t e

C o n ciliatio n ,

strictly

agreem ent. s p e a k i n g , means

a d j u s t m e n t o f d i f f e r e n c e s b e t w e e n two d i s p u t a n t s w i t h o u t

o u tsid e a ssista n c e . p art.

I n t h i s m e t h o d t h e g o v e r n m e n t p l a y s no

The t e r m s c o n c i l i a t i o n and m e d i a t i o n , h o w e v e r, a r e

o f te n used in te rc h a n g e a b ly . M ed iatio n .

M e d i a t i o n may c o n s i s t o f two f o r m s .

T e n t a t i v e m e d i a t i o n e x i s t s when a g o v e r n m e n t b e g i n s t o t a k e

7 s t e p s tow ard i n t e r v e n i n g i n l a b o r d i s p u t e s by i n q u i r i n g i n t o t h e i r c a u s e s and b r i n g i n g t h e d i s p u t a n t s to b u t e x e r c i s e s no a c t i v e sp ecial

in terferen ce,

agency f o r t h a t p u rp o se.

a settlem en t,

n o r s e t s up any

The m e d i a t o r u n d e r t h i s

p ro c e d u re m ere ly a c t s as a go-betw een,

seeking to d ete rm in e ,

i n c o n f i d e n c e , t h e m ost t h a t one d i s p u t a n t w i l l co n ce d e and th e l e a s t th e o th e r w i l l a cc e p t w ithout a s tr ik e o r lockout. b rin g in g o f the

e n te rin g on e it h e r

P o s i t i v e m e d i a t i o n a l s o means t h e

d isp u tan ts to g eth er fo r th e peaceful s e t t l e ­

ment o f a c o n tr o v e r s y .

The g o v e rn m e n t i n t h i s

c re a te s sp e c ia l boards o r trib u n a ls o f f i c i a l s o f th e boards o r t r ib u n a ls

c a s e , how ever,

fo r th e p u rp ose and th e are e n tr u s te d w ith

s p e c ia l d u tie s to m ediate in la b o r d is p u te s .

CHAPTER I I COMPULSORY ARBITRATION In o rd e r to achieve th e o b je c tiv e com pulsory a r b i t r a t i o n

leg islatio n ,

s o u g h t by

two f u n d a m e n t a l f a c t o r s

m u s t be p r o v i d e d i n t h e a c t and r e a l i z e d ,

nam ely:

managem ent and l a b o r m u st be c o m p e lle d t o

subm it t h e i r

d isp u te to a r b itr a tio n ; o f th e d is p u ta n ts to a rb itrato r.

a n d (2)

(1 )

t h e r e m ust be th e com pulsion

c o n fo rm t o t h e d e c i s i o n r e a c h e d by t h e

T h is assum es i n th e f i r s t

in stan ce th a t

d e t a i l e d m a c h in e r y and p r o c e d u r e h a s b e e n c r e a t e d t o h a n d l e th e griev an ce as p resen ted I .

GREAT BRITAIN

G r e a t B r i t a i n d u r i n g t h e f i r s t W orld W ar,

D uring th e

F i r s t W orld W ar, f o r t h e p u r p o s e o f e n d in g l a b o r d i s o r d e r s , a n a g r e e m e n t known a s t h e T r e a s u r y A g reem en t o f M arch 1 9 , 1 9 1 5 , w as r e a c h e d by and b e t w e e n t h e B r i t i s h g o v e rn m e n t and app ro x im ately t h i r t y o f th e la r g e tr a d e u n io n s.

U n d e r and

by v i r t u e o f t h e s a i d a g r e e m e n t , t h e u n i o n s a g r e e d to rec o m m e n d t o

t h e i r members t h a t s t o p p a g e s o f p r o d u c t i o n

s h o u l d n o t t a k e p l a c e d u r i n g t h e w a r and t h a t ,

in the

d ire c t n e g o tiatio n fa ile d to reco n cile d iffe re n c e s,

event

d isp u tes

1 J a m e s H. B r e w s t e r , " C o n c i l i a t i o n a n d A r b i t r a t i o n o f I n d u s t r i a l D i s p u t e s , ” M i c h i g a n Law R e v i e w , 1 3 : 1 9 5 , J a n u a r y , 1915.

9 sh o u ld be r e f e r r e d

to one o f t h r e e t r i b u n a l s :

C om m ittee o n P r o d u c t i o n ; upon by t h e d i s p u t a n t s ,

(2)

(1)

th e

a sin g le a r b i t r a t o r agreed

o r i n d e f a u l t o f agreem ent,

n o m in a t e d by t h e B o a rd o f T r a d e ; and (3)

a C ourt o f

A r b i t r a t i o n on w hich management and l a b o r s h o u ld b e r e p r e ­ s e n t e d , w i t h a c h a i r m a n a p p o i n t e d by t h e B o a r d o f T r a d e , i n t h e e v e n t t h e B oard o f T rade i t s e l f c o u ld no t s e t t l e t h e d is p u te w ith in tw e n ty -o n e days a f t e r su b m issio n o f t h e c o n tro v e rs y to t h a t b o dy.^ T h is agreem ent r e c e iv e d l e g i s l a t i v e P a r l i a m e n t and w i t h

s u b s e q u e n t a m e n d m e n t s , w a s k n ow n a s t h e

M u n i t i o n s o f War A c t , J u l y 1 5 , 1 9 1 5 . 3 stro k e,

san ctio n in

Thus, i n a s i n g l e

t h e v o l u n t a r y sy stem o f a r b i t r a t i o n w hich had p r e ­

v i o u s l y p r e v a i l e d was d i s p l a c e d by a c o m p u l s o r y s y s te m dom inated by a s i n g l e g o v ern m en tal ag en cy , t h e M i n i s t r y o f M u n itio n s h ead ed by W inston C h u r c h i l l .

Under th e p ro v is io n s

o f t h e M u n i t i o n s o f War A c t , J u l y 1 5 , 1 9 1 5 , l o c k o u t s w e r e m ad e i l l e g a l .

s t r i k e s and

V io la tio n o f the p ro v is io n s

o f t h e A c t w e re made p u n i s h a b l e by f i n e a n d / o r

2

C la y P a c k e r M a l ic k , L a b o r P o l i c y U ndeg. Democracy ( U n i v e r s i t y o f C o l o r a d o S t u d i e s , S e r i e s C. S t u d i e s i n t h e S o c i a l S c i e n c e s , V o l . 1 , No. 1 , B o u l d e r , C o l o r a d o , J u l y , 1939), pp. 17-18. 3 5 & 6 G e o r g e V. c . 5 4 ; a m e n d e d i n 5 & 6 G e o r g e V. C. 99 a n d 7 & 8 G o e r g e V. C. 4 5 .

10 im p riso n m en t.4 D u rin g t h e n e x t t h i r t y - t h r e e m onths fo lo w in g e n a c t ­ ment o f th e A c t, how ever,

in

e x c e s s o f one and o n e - h a l f

m illio n m u n itio n s w orkers in th e " c o n tr o lle d in d u s tr ie s " took p a r t i n u n law fu l

s t r i k e s a n d made t h e m s e l v e s l i a b l e

p o t e n t i a l f i n e s o f m ore t h a n $ £ 5 0 ,0 0 0 ,0 0 0 .

to

The g o v e rn m e n t

m o ved c a u t i o u s l y a n d o n l y o n e m a j o r s t r i k e i n t h e m u n i t i o n s i n d u s t r i e s was b ro k e n by t h e g o v e rn m e n t. fifth

O nly a b o u t o n e -

o f one p e r cent o f th e w orkers i n a l l

s t r i k e s w ere a c t u a l l y p r o s e c u t e d .

th e unlaw ful

I t became a p p a r e n t t o

th e

B r i t i s h governm ent soon a f t e r enactm ent o f th e Act t h a t i t w ould be i m p r a c t i c a b l e and i n a d v i s a b l e ment o f i t s

p ro v isio n s.

to attem p t e n fo rc e ­

I n 1917, th e W hitley i n v e s t i g a t i n g

com m ittee went on r e c o r d a s opposed to any k in d o f com pulsory a rb itra tio n .5 II.

AUSTRALIA

A u s t r a l i a n e x p e r ie n c e w ith oom pulsory a r b i t r a t i o n . T h e C o m m o n w e a lt h o f A u s t r a l i a h a s h a d a l e n g t h y a n d

4 J o h n R. Commons a n d J o h n B. A n d r e w s , P r i n c i p l e s o f L a b o r L e g i s l a t i o n (New Y o r k : H a r p e r a n d B r o t h e r s , 1 ^ 2 ^ ) , p p . 1 3 1 -3 6 ; M i l to n M oses, "C om pulsory A r b i t r a t i o n i n G r e a t B r i t i a n D u r in g W ar," J o u r n a l o f P o l i t i c a l Economy, £ 6 :8 8 £ 9 0 0 , November, 1 9 1 8 . 5 R o b e r t A. ^ p r e c h e r , o £ . c i t . , p . 2 9 £ ; T w e n t i e t h C e n t u r y F u n d , o p . c i t . , p . 1 0 T ; M i l t o n M o s e s , 0£ . c i t . , p . 8 9 0 ; L a r r y N i x o n , e d i t o r , W hat W i l l H a p p e n a n d W h at t o do When War Comes (New Y o r k : T h e G r e y s t o n e P r e s s , l 9 3 § ) , p . 1 0 6 .

11 n o tew o rth y e x p e r ie n c e w ith com pulsory a r b i t r a t i o n o f in d u s tria l d isp u tes yet is sta n tial peace. 1904,

success in

n o t a b le to p o i n t

to any sub­

e s ta b lis h in g o r m ain tain in g in d u s tr ia l

‘T h e C o m m o n w e a lth C o u r t o f A r b i t r a t i o n w a s c r e a t e d i n and s i n c e t h a t d a t e A u s t r a l i a h a s h ad m ore s t r i k e s

r e l a t i v e to h e r p o p u la tio n th a n e it h e r the U n ited S ta te s o r g O reat B r itia n . In A u stra lia ,

r e g i s t r a t i o n o f u n io n s w ith a d e sig n a te d

governm ental agency i s v o lu n ta r y ,

b u t no u n i o n m ay b e n e f i t

fro m an i n d u s t r i a l award u n l e s s i t h a s r e g i s t e r e d .

T h is

p r o v is io n i s n a t u r a l l y im p p rta n t i n in f lu e n c i n g u n io n s to reg iste r,

and i n e f f e c t m akes r e g i s t r a t i o n

com pulsory.

Under th e p ro v is io n s of th e o r ig in a l a c t ,

b ased upon

th e le g a l im p lica tio n s of a c o n s titu tio n a l fed e ral analogous to t h a t o f th e U n ite d S t a t e s , co n tro v ersy

i n one o f t h r e e ways:

it

an i n d u s t r i a l

a f f e c t e d w o r k e r s i n m ore t h a n o n e s t a t e , t h e

C o u rt o f C o n c i l i a t i o n and A r b i t r a t i o n

a c o llectiv e

if

sy stem

(1)

i f m anagem ent and l a b o r a d o p te d

agreem ent v o l u n t a r i l y ,

b in d in g upon them ;

(2)

C ourt fo r d e te rm in a tio n ,

c o u l d make an a w ard

if

th e

c o u rt co u ld d e c la re

a c a s e was p r e s e n t e d t o t h e

th e C o u rt could i n i t s

d isc retio n ,

6 T w e n t i e t h C e n t u r y F u n d , 0£ . c i t . , p . 1 0 1 ; 0 . d e C . F o e n a n d e r , T o w a r d I n d u s t r i a l P e a c e i n A u s t r a l i a (Hew Y o r k : O x f o r d U n i v e r s i t y P r e s s , 1 9 2 1 } ; W. R u p e r t M a c l a u r i n , " R e c e n t E x p e r i e n c e w i t h C om pulsory A r b i t r a t i o n i n A u s t r a l i a , " A m e ric a n Econom ic R e v ie w , 2 8 : 6 5 - 8 1 , M a rc h , 1 9 3 8 ; U n s ig n e d a r t i c l e , "W artim e L a b o r P o l i c i e s i n A u s t r a l i a , " M o n th ly L ab o r R ev iew , 5 4 :6 2 5 , M arch, 1942.

12 a p p o i n t a C o n c i l i a t i o n C om m ittee o f r e p r e s e n t a t i v e s fro m m anagem ent and l a b o r , made;

a n d (3 )

and e n d o rs e i t s

in th e event th e

d e t e r m i n a t i o n w h en

c a s e rem ained u n s e t t l e d

e i t h e r o f th e s e p ro ce d u res has been fo llo w ed , in stan ce,

after

o r was h e a r d

by t h e C o u rt i n th e

first

C o u r t was b i n d i n g .

B e f o r e t h e p r e s e n t w ar, th e H igh C o u rt

o f t h e C o m m o n w e a lth h e l d t h a t t h e

th e d e te rm in a tio n o f the

second p ro c e d u re p r e ­

s c r i b e d u n d e r t h e a c t was u n c o n s t i t u t i o n a l . A p r o v i s i o n o f t h e o r i g i n a l a c t u n a f f e c t e d by r e c e n t am endm ents,

to be d is c u s se d i n f r a , p ro v id e s t h a t i n c a s e s

w hich a r e p ro v e d to h a v e an i n t e r s t a t e may b e m a d e t o

the r e g u l a r c o u rts .

summon p a r t i e s t o in o rd e r to in itia te

ch aracter,

appeal

A l t h o u g h t h e c o u r t may

a d i s p u t e who a r e n o t

c o v e r e d by a n aw ard

c o n n ilia te t h e i r d iffe re n c e s in fo rm ally ,

a r b i t r a t i o n p ro ceed in g s only i f

by an o r g a n i z a t i o n ,

a R e g istra r,

a sta te

i t may

r e q u e s t e d so t o

do

in d u stria l

a u t h o r i t y , o r a j u d g e who h a s n e g o t i a t e d i n a n e f f o r t t o c o n cilia te

a case.

H ow ever, when c o n t r o v e r s i e s a r i s e i n "A i n d u s t r i e s w h ich a r e a l r e a d y w i t h i n an e x i s t i n g a w a rd , a n y p a rty to th e

a w a r d may r e q u e s t t h e

The C o u r t o f C o n c i l i a t i o n usual procedure tak e s

c o u r t t o m ak e a d e c i s i o n .

and A r b i t r a t i o n i n

an u n d u e a m o u n t o f t i m e t o

its

disp o se of

7 M a r g a r e t H. S e h o e n f e l d , " M a c h in e r y f o r s e t t l i n g L a b o r D i s p u t e s , " M o n th ly L a b o r R e v ie w , 4 9 :1 0 6 5 , November 1939. ‘

M

13 a case, is

som etim es a s l o n g a s a f u l l y e a r ,

T h is, in p a r t ,

th e re a so n f o r union w o rk ers’ r e s o r tin g

strik es

to u n la w fu l

a s a m ore sp e e d y means f o r e f f e c t i n g

sa tisfac tio n

o f t h e i r dem ands,® R e c e n t amendments t o t h e A c t , in to

S ince A u s tra lia n

th e p re s e n t w ar, u n d er th e N atio n al S e c u rity

Peace)

en try

(In d u strial

R e g u l a t i o n s , S t a t u t o r y R u l e s , 1 9 4 0 , No, 2 9 0 , t h e

A u s t r a l i a n s y s t e m o f a r b i t r a t i o n h a s b e e n c h a n g e d i n m any r e s p e c t s i n th e i n t e r e s t o f expediency:

(1 )

t h e C ourt o f

A r b i t r a t i o n h a s been g iv e n ex ten d ed pow ers i n i n d u s t r i a l c o n tr o v e r s ie s to f o r an e n t i r e

d eclare

in d u stry ,

a ” common r u l e ” o r ” i n d u s t r y a w a r d ” 6r a p o rtio n th ere o f,

o r ”aw ard” i s g e n e r a l l y a p p l i c a b l e to A r b i t r a t i o n now h a s as i n t e r s t a t e

a ll;

(2)

w hich " r u l e ” th e C ourt o f

ju risd ic tio n over in tra s ta te

cases and any case c e r t i f i e d

to i t

c a se s as w ell by t h e

M i n i s t e r f o r L a b o r and N a t i o n a l S e r v i c e , o r deemed by t h e C ourt to

in v o lv e th e i n t e r e s t o f i n d u s t r ia l peace p ro v id ed ,

how ever,

t h e r e i s no u n n e c e s s a r y i n t e r f e r e n c e w i t h s t a t e

i n d u s t r i a l la w s and a w a rd s ;

(4)

a d d i t i o n a l c o n c i l i a t i o n com­

m i s s i o n e r s m ay b e a p p o i n t e d a nd t h e i r p o w e r s a r e as to in c lu d e n o t o n ly

ex istin g d isp u tes,

d i s p u t e w hich i s l i k e l y t o l e a d to

e n l a r g e d so

b u t any p o t e n t i a l

some i n t e r r u p t i o n o f w o r k

8 T w en tieth C entury Fund, P a c k e r M a l i c k , 0£ . c i t . , p . 6 4 .

0£ .

c it.,

p . 101; C lay

14 o r in d u stria l u n rest;

and (5)

a Board o f R e f e r e n c e c o n s i s t i n g

o f o n e o r m o r e p e r s o n s may b e a p p o i n t e d b y t h e A r b i t r a t i o n C ourt to i n v e s t i g a t e th e

a c a s e , t h e i r d e te rm in a tio n bein g g iv en

sa me e f f e c t a s i f

i t w e re a n award o f t h e C o u r t .

agreem ent h as been re a c h e d ,

If

no

th e C ourt o f judge e i t h e r r e f e r s

t h e m a t t e r b a c k to . t h e

com m issioner f o r d e te r m i n a ti o n o r 9 r e f e r s th e d is p u te to th e C o u rt. A u s t r a l i a n , l a b o r i s w e l l u n i o n i z e d and t h e r i g h t to strik e,

w hile e x is te n t,

is

a v a ila b le o n ly to non-union

em ployees b e c a u s e o f t h e u n io n r e g i s t r a t i o n p r o v i s i o n . N e v e rth e le ss, unlaw ful s t r i k e s a re cip an ts th e re in are

f r e q u e n t and t h e p a r t i ­

seldom p r o s e c u t e d .

W hatever s u c c e s s th e

A u s t r a l i a n system h a s e n jo y e d to d a te i n p r e s e r v i n g m anage­ m e n t - l a b o r harm ony m u st be i n t e r p r e t e d i n l i g h t o f t h e f a c t th a t th e Labor P a rty in A u s tra lia I s th e p a r t y and can a f f o r d t o

dom inant p o l i t i c a l

experim ent i n i n d u s t r i a l g rie v a n c e

l e g i s l a t i o n w ith f u l l know ledge and a s s u r a n c e t h a t any such l e g i s l a t i o n w hich p r o v e s u n p o p u la r m ust soon be s t r i c k e n from t h e s t a t u t e b o o k s .

10

9 0 . d e C . F o e n a n d e r , o p . c i t . ; M a r g a r e t H. S c h o e n f e l d , o p . c i t . t p . 1060; U n sig n e d a r t i c l e , "W artim e L a b o r P o l i c i e s Tn A u s t r a l i a , " M onthly L ab o r R eview , 5 4 :6 2 5 , M arch, 1942; S . H onald W a lk e r , "W artim e L a b o r P r o b le m s i n A u s t r a l i a , " I n t e r n a t i o n a l L abo u r R eview . 4 4 :4 1 0 -1 1 , O c to b e r, 1941; U n s i g n e d a r t i c l e , “ New C o n c i l i a t i o n a n d A r b i t r a t i o n R e g u l a ­ t i o n s i n A u s t r a l i a , " I n t e r n a t i o n a l L abour R eview , 4 5 :3 2 7 -2 8 , M arch, 1941. 10 T w en tieth C en tu ry Fund, op. c i t . , pp. 100-101; R o b e r t A. S p r e c h e r , o £ . c i t . , p . 2 9 3 .

15 III.

NSW ZEALAND

C om pulsory a r b i t r a t i o n was t h e f i r s t latio n .

c o u n try to

enact

L ik e A u s tr a lia ,

i n New Z e a l a n d .

New Z e a l a n d

com pulsory a r b i t r a t i o n l e g i s ­

New Z e a l a n d u n d e r t h e I n d u s t r i a l

C o n c i l i a t i o n and A r b i t r a t i o n A ct o f 1894,

e n title d ,

"Ah A c t

t o E n c o u r a g e t h e F o r m a t i o n o f I n d u s t r i a l U n i o n s and A s s o c i a ­ t i o n s and t o F a c i l i t a t e

th e S e ttle m e n t o f I n d u s tr ia l D is­

p u t e s by C o n c i l i a t i o n and A r b i t r a t i o n , "

p ro v id es fo r th e

v o lu n ta ry r e g i s t r a t i o n of u n io n s w ith a d e s ig n a te d g o v ern ­ m e n ta l agency b u t i n a d d i t i o n t h e r e t o p r o v id e s t h a t manage­ m ent,

t o o , may v o l u n t a r i l y r e g i s t e r w i t h t h e

No u n i o n , h o w e v e r , may b e n e f i t u n less i t

has r e g is te r e d .

from a n i n d u s t r i a l award

T his p r o v is io n i s n a tu r a ll y

im p o rtan t in in flu e n c in g unions to r e g i s t e r , makes r e g i s t r a t i o n If

th is

same a g e n c y .

and i n e f f e c t

com pulsory.

c o n d i t i o n p r e c e d e n t h a s b e e n com plied w i t h ,

r e g i s t e r e d u n i o n s a n d e m p l o y e r s may d i s c u s s t h e i r ences in fo rm a lly b e fo re C o u n cils o f C o n c ilia tio n . i n a C ouncil

M em bership

c o n s i s t s o f a co m m issio n er and r e p r e s e n t a t i v e s

o f b o th managem ent and t h e u n io n . b rin g

d iffer­

I f th e C o u n cil f a i l s

to

a b o u t a n a g r e e m e n t b e t w e e n t h e d i s p u t a n t s i t may m a k e

a r e c o m m e n d a t i o n w h i c h may o r may n o t b e a c c e p t e d ~ b y e i t h e r p a rty o r both.

If

a settlem en t i s

rea ch e d by e i t h e r p r o ­

c e d u re t h e te r m s have t h e f o r c e o f an aw ard o f t h e C o u rt o f

A r b i t r a t i o n o n a p p r o v a l by t h a t b o d y . o f t h e c o n t r o v e r s y by t h e C o u n c i l ,

F a ilin g

settlem en t

some t e m p o r a r y a n d p r o ­

v i s i o n a l arrangem ent i n m anagem ent-labor r e l a t i o n s i s sought p ending su b m issio n o f th e

c o n tro v e rsy d i r e c t to th e

C o u r t , f r o m w h i c h no a p p e a l l i e s ,

e x c e p t on p o i n ts o f law .

W hile th e C o u rt h a s alw ays g iv e n a p a t i e n t h e a r i n g t o th e su b ject m atter of a d isp u te ,

i t h a s r e s e r v e d to

i t s e l f the

r i g h t to r e f r a i n fro m m aking an award o r f r o m - a l t e r i n g an e x istin g seem t o

a g reem en t o r award w here t h e ju stify

c i r c u m s t a n c e s do n o t

such a l t e r a t i o n o r f o r any re a s o n th e

C ourt c o n sid e rs i t

d e s ir a b le to

so d o . 11

The p e r s o n n e l o f t h e C o u r t o f A r b i t r a t i o n c o n s i s t s o f a judge,

actin g as

c h a irm a n , and a s s e s s o r s o r a d v i s o r s

r e p r e s e n t i n g t h e em ployers and em ployees.

A l l a w a r d s m ade

by t h e C o u r t b i n d b o t h d i s p u t a n t s and a p p l y n o t o n l y t o t h e em ployers s p e c i f i e d i n th e

award b u t a l s o t o a l l

em ployers

s u b s e q u e n t l y c o m m e n c i n g b u s i n e s s i n t h e d i s t r i c t . 12

11

U n s ig n e d a r t i c l e , " C o n c i l i a t i o n and A r b i t r a t i o n i n New Z e a l a n d , ” N a t i o n a l I n d u s t r i a l C o n f e r e n c e B o a r d , R e s e a r c h R e p o r t No. 2 3 , D e c e m b e r , 1 9 1 9 , p p . 1 - 4 6 .

12 C l a y P a c k e r M a l i e k , 0 £ . c i t . , p . 8 1 ; J a m e s H. B r e w s t e r , o p . c i t . , p p . 1 9 5 - 9 8 ; M a r g a r e t H. S c h o e n f e l d , o p . c i t . , p p . 1 0 6 5 - 6 6 ; J o h n R. Commons a n d J o h n B. A n d r e w s , o p . c i t . , p . 1 4 7 ; " C o n c i l i a t i o n a n d A r b i t r a t i o n i n New Z ealand," op. c i t . , p p . 1 - 4 6 .

17 P e r s o n s ■who do n o t b e l o n g t o

a r e g i s t e r e d u n i o n may

subm it t h e i r e a s e s to C o n c i l i a t i o n C o u n c ils f o r f r i e n d l y a d j u s t m e n t , b u t t h e r e i s no p e n a l t y i f

an agreem ent i s n o t

r e a c h e d . 3-3 U nder p e n a l t y o f f i n e up to $50, t h e r i g h t to s t r i k e i s p r o h i b it e d to p e rs o n s tria l

i n c l u d e d w i t h i n an e x i s t i n g i n d u s ­

aw ard , w hich f r e q u e n t l y b in d s n o t o n ly t h e p a r t i e s to

th e a r b i t r a t i o n but a l l branches o f in d u s try as w e ll. e m p lo y e r b o u nd by a n i n d u s t r i a l effects

An

a g r e e m e n t o r a w a r d who

a l o c k o u t i s p e n a l i z e d by a sum n o t e x c e e d i n g

$2 ,5 0 0 .

F urtherm ore,

A u stra lia ,

Few Z e a l a n d i s

and th e r i g h t to

a v a ila b le o n ly to i n d u s t r i a l aw ard.

as h ig h ly u n io n ized as

s t r i k e , w hile e x is te n t,

n o n -u n io n em ployees n o t s u b j e c t to U nlaw ful

strik es

is an

c a l l e d by u n i o n members

are fre q u e n t w ith in fre q u e n t p ro se c u tio n s o f p a r tic ip a tin g mem bers.

One m i g h t q u e s t i o n w h e t h e r a s y s t e m i n w h i c h i t

unlaw ful f o r

some u n i o h s t o

e v e r be s a t i s f a c t o r y .

strik e

is

and l e g a l f o r o t h e r s can

As a r e s u l t t h e r e o f ,

Hew Z e a l a n d h a s

n o t a c h i e v e d i n d u s t r i a l p e a c e . 14

13 C lay P a c k e r M a lic k , o p . c i t . , p .

81.

14 T w e n tie th C en tu ry Fund, op. c i t . , pp. 102-103; R o b e r t A. S p r e c h e r , ££.■ c i t . , p . 2 9 0 ; J o h n R. Commons a n d J o h n B. A n d r e w s , 0£ . c i t . , p . 1 4 8 ; " C o n c i l i a t i o n a n d A r b i t r a t i o n i n Hew Z e a l a n d , ” o j d . c i t . , p p . 1 2 - 1 3 .

18 IV,

TRANCE

T ra n c e p r e c e d in g and d u rin g th e c u r r e n t w ar.

On

M arch 4 , 1 9 5 8 , i n a n t i c i p a t i o n o f w a r and i n l i g h t o f c h a o t ic l a b o r c o n d i t i o n s w hich th e n p r e v a i l e d , T ra n c e e n a c te d an a r b i t r a t i o n la w to f a c i l i t a t e tio n of lab o r d isp u tes, to

th e speedy d e te rm in a ­

A ll i n d u s t r i a l d is p u te s w ere s u b je c t

an a r b i t r a l h i e r a r c h y p r o v i d i n g f o r i n i t i a l h e a r i n g s and

d e te rm in a tio n before

an a r b i t r a t i o n

an u m p i r e , and f i n a l l y

com m ission, a p p e a l t o

a p p e a l t o t h e H igh C o u r t o f A r b i t r a ­

tio n . The l a w w a s f r a m e d a n d p r o v i d e d p r o c e d u r e s f o r t h e se ttle m e n t of in d u s tr ia l d isp u te s w ith in th e in d u s tr ie s t h e m s e l v e s w h i c h h a d c r e a t e d t h e i r own m a c h i n e r y u n d e r co llectiv e failed

to

ag reem ents,

o r i n t h o s e i n d u s t r i e s w hich had

e s ta b lis h th e n ecessary b odies.

a r b i t r a t i o n was m a n d a to ry i n

C o n ciliatio n o r

every i n s t a n c e , b u t i n d u s t r i e s

w i t h t h e i r own m a c h i n e r y c o u l d s e t t l e

th eir

d isp u tes in

t h e f i r s t i n s t a n c e w i t h o u t s u b m i t t i n g t h e m to t h e g o v e r n ­ m ental agency. m onth,

Every d is p u te had to

be s e t t l e d w i t h i n o n e

a n d no o n e p h a s e o f t h e n e g o t i a t i o n s a n d p r o c e d u r e

c o u ld r e q u i r e more t h a n e i g h t d a y s .

T in a l d e c isio n s reached

w e re b i n d i n g and e n f o r c e d d u r i n g t h e p e n d a n c y o f a n a p p e a l t o t h e h i g h e r b o d y . 15

U n s i g n e d p a m p h l e t , "War C o n t r o l o f L a b o r , " A s s o c ia tio n o f M a n u fa c tu re rs» 1940.

N atio n al

19 When d e f i a n c e o f d e c i s i o n s a n d a w a r d s b e c a m e m a n i ­ fest,

a d e c r e e was p r o m u lg a te d on November 1 2 , 1 9 5 8 , w h e r e i n

and w hereby p e n a l t i e s w ere e s t a b l i s h e d f o r f a i l u r e t o

comply

w i t h t h e t e r m s o f a n a r b i t r a t i o n award* P ro ced u re f o r i n d u s t r i e s h av in g g rie v a n c e m ac h in e ry . In i n d u s t r i e s w hich o p e ra te d u n d e r c o l l e c t i v e

ag reem en ts,



c o n t r o v e r s i e s w ere s u b m itte d to t i o n com m issions, i f se ttle d in th e

s p e c ia lly organized c o n c ilia ­

th e sa id co n tro v e rsy had not been

by t h e d i s p u t a n t s t h e m s e l v e s a s o f t h e t i m e f i x e d ag reem en t.

P refect,

The c o m m i s s i o n , p r e s i d e d o v e r b y t h e

o r h i s r e p r e s e n t a t i v e , h e a rd th e c a se as su b m itted

to him by e i t h e r o r b o th o f t h e d i s p u t a n t s . no s e t t l e m e n t h a d b e e n r e a c h e d ,

In the event

t h e P r e f e c t tr a n s m itte d to

th e a r b i t r a t o r s a statem en t in th e n a tu re of a jo in d e r o f i s s u e s i n w h ic h was i n c l u d e d t h e

s u b j e c t o f t h e d i s p u t e and

th e sp e c ific

be d e c i d e d .

i s s u e s w hich had t o

a r b i t r a t i o n were p e i m i t t e d ; a rb itrato rs event

t h e c a s e w as h e a r d by two

c h o s e n by t h e r e s p e c t i v e d i s p u t a n t s .

a sa tisfac to ry

to an u m p ire .

In the

a d ju d ic a tio n had n o t b een r e a l i z e d

t h i s phase of th e p ro ceed in g s, th e

if

Two s t a g e s o f

c a s e was t h e n

at

tran sferred

The u m p ir e was c h o s e n by t h e d i s p u t a n t s o r ,

th ey co uld not ag ree as to

com petent m i n i s t e r .

selectio n ,

by th e P r e f e c t o r

F o r c a s e s a p p e a le d w i t h i n an e i g h t - d a y

l i m i t a t i o n p e r i o d on an aw ard c o n t r o v e r s y , t h e H igh C o u rt o f

A r b i t r a t i o n took j u r i s d i c t i o n

a n d made t h e f i n a l

d ecisio n .

P rocedure f o r i n d u s t r ie s w ith o u t g riev a n ce m ach in ery . E o r t h o s e i n d u s t r i e s w h i c h h a d no m a c h i n e r y f o r in d u stria l procedure.

c o n tr o v e r s ie s th e law p r e s c r ib e d B oth d e p a r tm e n t and n a t i o n a l

m a c h in e r y was e s t a b l i s h e d t o o r n a tio n al

a settlem en t in th e f i r s t co u ld th e n appeal to the

c o n cilia tio n

D epending upon th e eoope

i t was s u b j e c t t o

dep artm en tal o r th e n a tio n a l body. t h i s g rie v a n c e m achinery i f

a d ifferen t

d eterm in e d is p u te s o f a l o c a l

scope, r e s p e c t iv e ly .

and c h a r a c t e r o f a d i s p u t e ,

se ttlin g

r e v i e w by t h e

R e c o u rse was t a k e n to

th e d is p u t a n t s co u ld n o t re a c h

in stan ce.

E ith er d isp u tan t

th e P r e f e c t r e q u e s tin g t h a t he r e f e r

co n tro v ersy in q u e stio n to

c o n cilia tio n .

The P r e f e c t

was to d e t e r m i n e w h ic h was t h e p r o p e r and a p p r o p r i a t e c i l i a t i o n agency to h e a r th e d is p u te .

A departm ental

c o m m is s io n , p r e s i d e d o v e r by t h e P r e f e c t o r h i s tiv e ,

con­

rep resen ta­

h ad e q u a l r e p r e s e n t a t i o n fro m managem ent and l a b o r .

A D i v i s i o n a l I n s p e c t o r o f L a b o r was p r e s e n t a t t h e h e a r i n g s and a c te d i n a c o n s u l t a t i v e

c ap acity .

m i s s i o n was p r e s i d e d o v e r by t h e

Each n a t i o n a l

com­

com petent m i n i s t e r o r h i s

re p re se n ta tiv e

and h ad e q u a l r e p r e s e n t a t i o n fro m m anagem ent

and l a b o r .

a com m ission was s u c c e s s f u l

ag reem en t,

If

a signed

tran sm itte d to

and e f f e c t e d

an

s t a t e m e n t to t h a t e f f e c t was t h e r e w i t h

th e M in is te r o f L abor.

In th e

event th e

21 com m ission was u n s u c c e s s f u l i n

effectin g

a settlem en t,

a

r e p o r t o u t l i n i n g t h e d i f f e r e n c e s was t r a n s m i t t e d t o t h e M in is te r o f L abor,

T h ereafter,

each o f th e d i s p u t a n t s had

a tw o -d ay l i m i t a t i o n p e r i o d i n w hich to n om inate a s i n g l e a rb itrato r,

o r one f o r each d i s p u t a n t .

I f th e a r b itr a to r ,

o r a r b i t r a t o r s , co u ld n o t rea ch a s e ttle m e n t, had t o

th e d isp u tan ts

name a s i n g l e u m p i r e t o m ak e t h e f i n a l d e c i s i o n .

No

i n t e r r u p t i o n was p e r m i t t e d i n t h e s e d e l i b e r a t i o n s p e n d in g r e f e r e n c e o f t h e c o n t r o v e r s y t o t h e High C o u r t o f A r b i t r a t i o n to d eterm in e th e

com petency o f a com m ission.

W hether F re n c h I n d u s t r i a l r e l a t i o n s f a r e d w orse b e ­ cause of o r in

sp ite of th ese

en actm en ts and th e d o m estic

p o l i t i c a l p o l i c i e s p r e v i o u s l y p u r s u e d b y L e o n B lu m a n d E duard D a l a d i e r h a s no t y e t been a s c e r t a i n e d ,

but i t

is

a p p a re n t t h a t u n s a t i s f a c t o r y l a b o r c o n d itio n s c o n tr ib u te d to th e French c a ta s tro p h e . y.

UNITED STATES - PROPOSED LEGISLATION

Hoffm an B i l l .

I n th e 76th C ongress o f t h e U n ite d

S t a t e s , two b i l l s w e r e i n t r o d u c e d t o p r o h i b i t t h e r i g h t strik e

in c e r ta in defense in d u s tr ie s

em ergency.

The f i r s t b i l l ,

to

during th e war

H. R . 1 4 0 7 , w a s i n t r o d u c e d b y

16 M a r g a r e t H. S c h o e n f e l d , £ £ . c i t . , p p . 1 0 6 6 - 6 7 ; H. I . H e n e m a n , " T h e F r e n c h S u p e r i o r C o u r t o f A r b i t r a t i o n , ” B r o o k l y n Law R e v i e w , 9 : 3 3 , O c t o b e r , 1 9 3 9 .

22 R e p r e s e n t a t i v e Hoffman o f M ic h ig a n on J a n u a r y 6 , 1 9 4 1 . essence,

t h e b i l l p r o v i d e s t h a t a l l p e r s o n s em ployed on

d e f e n s e work a r e to

en ter in to

a c o n t r a c t o f employment

f i x i n g h o u rs o f w ork, wages to be r e c e i v e d , th e

em ploym ent.

bidden.

and d u r a t i o n o f

V io la tio n o f th e te rm s o f any such c o n tr a c t

o r a ttem p t to i n t e r f e r e w ith i t s

p e r f o r m a n c e would b e f o r ­

The b i l l , m o r e o v e r , w c u l d s p e c i f i c a l l y make i t

law fu l,

In

d u r in g t h e war em ergency, f o r

of persons " to , ad v o cate,

any p e r s o n o r g ro u p

d irec tly or in d ire ctly ,

in stig a te,

un­

by word o r a c t ,

prom ote, le n d encouragem ent to o r c a rry

on a s t r i k e ” i n any d e f e n s e p l a n t o r any d e f e n s e p r o j e c t . V i o l a t i o n o f any p r o v i s i o n o f th e a c t w ould be p u n i s h a b le by a f i n e up t o $1*000 a n d / o r i m p r is o n m e n t up t o case of a la b o r d isp u te in

an i n d u s t r y

s ix m onths.

In

covered by t h e b i l l ,

t h e a g g r i e v e d p e r s o n s w o u l d h a v e a r i g h t t o p r e s e n t a com­ p l a i n t t o t h e D ep artm en t o f L a b o r, w hich w ould th e n h o ld a h e a r i n g and recommend a rem edy f o r Ford B i l l .

On M a r c h 3 1 , 1 9 4 1 , R e p r e s e n t a t i v e F o r d o f

C a lifo rn ia in tro d u ced a b i l l , strik es

settlem en t o f th e d isp u te .

H . R . 4 2 2 3 , w h i c h w o u l d make

a g a in s t th e U n ited S t a te s an a c t o f tre a s o n . V I. It

ab stract

is

a rela tiv e ly

C0UCLUSI0HS s i m p l e m a t t e r t o make o u t a n

c a se f o r com pulsory a r b i t r a t i o n .

C areful a n a ly s is ,

23 how ever, o f e v e ry experim ent w ith p r o h i b i t i o n o f th e r i g h t to clu sio n :

com pulsory a r b i t r a t i o n o r

s t r i k e le a d s to

b u t one con­

in d em ocracies, d e p riv in g la b o r o f th e

s tr ik e does not reduce in d u s tr ia l

r i g h t to

c o n tro v e rsies.

T h is f a c t

m ust be r e c o g n i z e d a s s e p a r a t e and d i s t i n c t from any a t t e m p t t o p r o t e c t l a b o r ’ s ’’h a r d - w o n r i g h t s ” f r o m e n c r o a c h ­ m ent by t h o s e s e l f i s h l y m o t i v a t e d from a n econom ic b a s i s , o r those in th e th ro e s of m isd irected p a tr io tic

fervor.

When t h e c a u s e s o f s t r i k e s

are p erm itted to

s tr if e w ill r e s u lt d esp ite

s ta tu to ry p ro h ib itio n s to the

co n trary .

any w i d e s p r e a d

As a c o r o l l a r y ,

such a p r o h i b i t i o n w i l l r e s u l t i n

ex ist,

in d u stria l

enforcem ent o f

th e im p rison m ent a n d /o r

f in in g o f s u b s t a n t i a l p o r tio n s o f th e p o p u la tio n and a li e n a ­ t i o n o f t h e r e m a i n d e r . 17 Even a s s u m i n g s t r i k e s

cou ld b e s u c c e s s f u l l y p r o h i b i t e d ,

m any t i m e s a s l o w - d o w n i n i n d u s t r i a l p r o d u c t i o n b y t h e w o r k e r s , w h e th e r done c o n s c i o u s ly o r u n c o n s c i o u s ly , managem ent and s o c i e t y th a n a s t r i k e . tim es to r e s i s t leg islate

d iffic u lt

at

th at is ,

o u t o f e x i s t e n c e th o s e o c c u r r e n c e s w hich c a u se and s t r i k e l o s s e s

calcu lated .

I n d u s t r i a l harm ony, h o w e v er, i s claim ed .

is

t h e t e m p t a t i o n t o do t h e o b v i o u s ,

m e a s u r a b le s o c i a l a n d / o r econom ic l o s s , are e a sily

It

i s m ore c o s t l y to

1^ i s

a t t a i n e d and n o t p ro ­

a c o n d itio n r e s u l t i n g from th e harm onious

17 Ludwig T e l l e r ,

0£ .

c i t .,

p. 124.

24 adjustm ent o f th e

com plex f a c t o r s w h ich c o m p rise t h e

i n d u s t r i a l m achine.

U nder an a u t h o r i t a r i a n regim e d i s t u r ­

b a n c e s may b e m i n i m i z e d , by t h e

though n e v e r e n t i r e l y p r e v e n te d ,

c o n s t a n t t h r e a t o f im p riso nm en t o r d e a t h .

18 D o n a l d s o n B r o w n , MP a n e l D i s c u s s i o n : N atio n al D e f e n s e and t h e E conom ic O u t l o o k / 1 N a t i o n a l A s s o c i a t i o n o f M a n u f a c t u r e r s » December 1 1 , 1 9 4 0 , p . 1 6 .

CHAPTER I I I COMPULSORY INVESTIGATION L ik e com pulsory a r b i t r a t i o n ,

th e th e o r y and teo h n iq u e

o f c o m p u ls o r y i n v e s t i g a t i o n i s n o t new.

T here i s a l e s s e r

d e g re e , how ever, o f g o vernm ental i n t e r v e n t i o n in v o lv e d i f subm ission o f an i n d u s t r i a l

th e

d isp u te i s o b lig a to ry but not

th e a c c e p ta n c e o f t h e recom m endations o f t h e i n v e s t i g a t i n g agency to w hich t h e d i s p u t e i s I .

referred.

CANADA

C anadian e x p e rie n c e w ith

com pulsory i n v e s t i g a t i o n .

On M a r c h 2 2 , 1 9 0 7 , C a n a d a e n a c t e d t h e I n d u s t r i a l I n v e s t i g a t i o n A c t 1 :.w hich p r o v i d e s t h a t arise

i n m in in g and p u b l i c u t i l i t y

a ll

D isp u tes

d i s p u t e s w hich

i n d u s t r i e s have to be

s u b m i t t e d t o t h e B o a rd o f C o n c i l i a t i o n and I n v e s t i g a t i o n . T h is Board i s

t o b e composed o f r e p r e s e n t a t i v e s

m anagem ent, l a b o r ,

and a t h i r d

t i o n o f t h e two s o c h o s e n . th e Act i s d e ta ils

are

a p p o i n t e d by

a p p o i n t e d on t h e recom m enda­

The g e n e r a l a d m i n i s t r a t i o n o f

in th e hands o f th e M in is te r o f L abour, but the a ssig n e d to

an o f f i c i a l

c alle d the R e g istra r of

1 6 -7 Edward V I I . Ch. 2 0 ; amended i n 1910 by 9 -1 0 Edward V I I . C h . 2 9 ; 1 9 1 8 , 8 - 9 G e o r g e V. C h . 2 7 ; 1 9 2 0 , 1 0 11 G o e r g e V. C h . 2 9 ; 1 9 2 5 , 1 5 - 1 6 G e o r g e V. C h . 1 4 .

26

o f B o a r d s o f C o n c i l i a t i o n a n d I n v e s t i g a t i o n , who i s

also

D eputy M i n i s t e r o f L a b o r. As a c o n d i t i o n p r e c e d e n t t o d e c l a r i n g a s t r i k e lo ck o u t,

e i t h e r p r o s p e c t i v e d i s p u t a n t h a s to

day n o tic e o f in te n d e d

or

serve a t h i r t y -

c hang e o f employm ent r e l a t i o n s h i p

d u rin g w hich tim e t h e s p e c i a l b o a rd c a r r i e s o u t i t s

fu n ctio n

o f c o n d u c tin g an i n v e s t i g a t i o n and p r e p a r i n g a r e p o r t b a s e d thereon.

An a p p l i c a t i o n t o t h e M i n i s t e r o f L a b o u r f o r t h e

form ing o f an I n v e s t i g a t i o n B oard, u n d e r t h e p r o v i s i o n s of the p rin c ip a l a c t, re q u ire s c ertain fac ts

re la tiv e to

n a t u r e and c a u s e o f t h e

statem en ts s e ttin g

the d isp u te ,

disp u te;

(2)

to w it:

fo rth

(1)

th e

an approxim ate e s tim a te

o f t h e number o f p e r s o n s a f f e c t e d o r l i k e l y t o be a f f e c t e d by t h e d i s p u t e ; p a r tie s to

and (5)

effect

un law ful s t r i k e

w h a t e f f o r t s h a v e b e e n made b y t h e ,

a settlem en t.

For p a rtic ip a tin g in

an

d u rin g th e th ir ty - d a y in v e s tig a tio n p e rio d ,

t h e Act p r o v id e s f o r th e a sse ss m e n t o f a f i n e not e x ce ed in g $50 o n e a c h i n d i v i d u a l p a r t i c i p a n t .

L ik ew ise,

a lo ck o u t i s

u n la w fu l u n d e r s i m i l a r c o n d it i o n s and s u b j e c t s t h e i n d i v i d u a l o r i n d i v i d u a l s who c o n t r a v e n e in g $ 2 ,5 0 0 .

th e law to

A id in g and a b e t t i n g

lo ck o u t i s p en alized

a fin e not exceed­

an u n l a w f u l

strik e

or

e q u a l l y i n t h e c a s e o f em ployee o r

em p lo y er.2

2

op. c i t .,

" C o n c i l i a t i o n a n d A r b i t r a t i o n i n New Z e a l a n d , " pp. 26-27.

27 The f i n d i n g s o f t h e B o a r d , h o w e v e r, o n ce s u b m i tt e d to th e d i s p u t a n t s ,

a re n ot c o n c lu siv e and a s t r i k e o r lo c k ­

out th e re a fte r is la w fu l.3 F o r th e purpose o f o b ta in in g

a fu ll

in v estig atio n -

t h e Board o f C o n c i l i a t i o n and I n v e s t i g a t i o n i s g iv e n f u l l power and a u t h o r i t y to

summon w i t n e s s e s ,

compel a t t e n d a n c e ,

and a d m i n i s t e r o a t h s .

F u r t h e r m o r e , t h e B o a r d may r e q u i r e

t h e p r o d u c t i o n o f a l l bo o k s and p a p e r s t o b e exam ined by i t s m e m b e r s o r e x p e r t s whom i t

em ploys f o r t h a t p u r p o s e .

Docu­

m e n t s a r e n o t m ad e p u b l i c , b u t t h e B o a r d may o b t a i n i n f o r ­ m a t i o n f r o m s u c h d o c u m e n t s a n d f,i n e x p e d i e n t , " may &a k e t h i s

s t r i k e may b e c a l l e d a n d i t s a r e s o u g h t by t h e

d e em s

in fo rm atio n p u b lic .^

By p r o v i d i n g a n i n t e r l u d e

tiv e s

so f a r a s i t

betw een t h e n o t i c e t h a t a

a c tu a l o ccu rren ce, th re e o b jec­

s p o n s o rs o f th e law :

(1)

to

compel

3 B e n j a m i n M. S q u i r e s , " O p e r a t i o n o f t h e I n d u s t r i a l D is p u te s I n v e s t i g a t i o n Act o f C anada," U n ite d S t a t e s D e p a rt­ ment o f L a b o r, B ureau o f L ab o r S t a t i s t i c s , 2 3 3 :5 -1 4 8 , J u l y , 1 § 1 5 ' ; M a r g a r e t H . &olio e n f e T d , o p . c l t . , p p . 1 0 7 2 - 7 3 ; l a m e s H. B r e w s t e r , £ £ . c i t . , p p . 1 9 2 - 9 4 ; J o h n R. Commons a n d J o h n V. A ndrew s, o £ . c i t . , p . 1 4 0 . 4 T in g T s z D o, G-overnmental M eth o d s o f A d j u s t i n g L a b o r D i s p u t e s ( S t u d i e s i n H i s t o r y , Econom ics and P u b l i c Law. New Y o r k : C o l u m b i a U n i v e r s i t y P r e s s , 1 9 2 6 ) , p p . 1 0 5 106.

28

management and l a b o r t o m eet and c o n f e r u n d e r t h e of rep resen tativ es tiv e s of th e

o f t h e com m unity;

(2)

com m unity an o p p o r t u n i t y t o

auspices

to g iv e re p re se n ta ­ re c o n c ile th e

d i f f e r e n c e s b e tw e e n management and l a b o r and t h u s b r i n g a b o u t an a m i c a b l e effo rts f a il,

to

settlem en t; fu rn ish th e

th e f a c t s n ece ssa ry to

a n d (3 )

if

co n ciliato ry

comm unity t h r o u g h i n v e s t i g a t i o n

enable i t

to b rin g p r e s s u r e to b e a r

f o r a ju s t s e ttle m e n t b efo re a s t r i k e o r lo ck o u t tak e s p la c e ,5 T h e r e h a v e b e e n a l m o s t a s m any u n l a w f u l

strik es

and

l o c k o u t s i n Canada a s t h e r e have been c a s e s h a n d le d by t h e s p e c ia l boards.

Many s t r i k e s h a v e o c c u r r e d w i t h o u t a n y

a p p l i c a t i o n b e i n g made t o fo rm a n i n v e s t i g a t i o n b o a r d . ap pointm ent o f a b o ard r e q u i r e s tim e ,

The

and a s t r i k e , when

v o t e d f o r b y m en i n t o l e r a n t o f e x i s t i n g i n d u s t r i a l c o n d i ­ tio n s

and d e te rm in e d t o

a t a s p e c ifie d tim e, goal is

asser th e ir rig h ts,

m ust be d e c la re d

and c a n n o t be p o s tp o n e d i f

to be a c h ie v e d .

the d e s ire d

A s i n A u s t r a l i a a n d New Z e a l a n d ,

t h e r e h a v e b e e n no s e r i o u s a t t e m p t s t o p r o s e c u t e t h o s e p a rtic ip a tin g th is

i n unlaw ful s t r i k e s .

s e c t i o n w ould hav e a l i e n a t e d

Any a t t e m p t t o

enforce

a l l u n io n s u p p o r t and

w ould p r o b a b l y h a v e b r o u g h t a b o u t t h e q u ic k r e p e a l o f t h e

5 B e n M. S e l e k m a n , P o s t p o n i n g S t r i k e s (New Y o r k : R u s s e ll Sage F o u n d a tio n , 1927), pp. 48-61, 118-122.

29 A c t.6

S in c e C an ad ian e n tr y i n t o th 6 p r e s e n t w ar, t h e r e have b e e n s e v e r a l amendments t o g a tio n A ct.

These changes,

the i n d u s t r i a l D isp u te s I n v e s t i ­ h o w e v e r , do n o t a l t e r t h e f u n d a ­

m ental s t a t u s o r p ro ced u re to he fo llow ed ,

hut in th e in te r ­

est of b e tte r p reserv atio n of in d u s tria l peace, j u r i s d i c t i o n h a s b e e n a d d e d so a s t o

sw eeping

in clu d e "d isp u te s

b e tw e e n e m p lo y e r s and employed engaged i n t h e p r o d u c t i o n o f 7 m u n i t i o n s o f w ar and t h e e x e c u t i o n o f d e f e n s e p r o j e c t s . ” In the i n t e r e s t o f f o r e s ta l lin g

in d u stria l

strife,

by O rd e r i n C o u n c il o f Ju n e 6 , 1 9 4 1 , P .O . 4020, t h e r e was c r e a t e d a th re e m a n I n d u s t r i a l D i s p u t e s E n q u iry C om m ission. The f u n c t i o n o f t h i s

body i s t o

lim in ary in v e s tig a tio n in to se ttlem en t o f th e

c o n d u ct an im m ediate p r e ­

any t h r e a t e n e d d i s p u t e .

co n troversy i s

at a l l p o ssib le ,

If

th is

6 Thomas B u s s e l l F i s h e r , I n d u s t r i a l P i s p u t e s a n d F e d e r a l L e g i s l a t i o n (Hew Y o r k : C o l u m b i a U n i v e r s i t y P r e s s , 19 4 0 ), pp. 90-100; T w en tieth C en tu ry Fund, op. c i t . , p . 100; B e n M. S e l e k m a n , o p . c i t . , p p . 4 8 - 6 1 , 1 1 8 - 1 2 2 ; J a m e s H. B r e w s t e r , o p . c i t . , p p . 1 9 2 - 1 9 4 ; M a r g a r e t H. S c h o e n f e l d , o p . c i t . . p p . 1 0 7 2 -7 3 ; T ing T sz Ko, o p . c i t . . p . 114. 7 P . C. 3 4 9 5 , November 7 , 1 9 3 9 , a s amended by O r d e r i n C o u n c il P .O . 1 7 0 8 , M arch 1 0 , 1 9 4 1 ; U n s ig n e d a r t i c l e , " F u r t h e r R e s t r i c t i o n s on S t r i k e s i n C an ada," I n t e r n a t i o n a l L a b o u r Review. 4 4 : 5 6 5 - 6 6 , N o v e m b e r , 1 9 4 1 : U n s i g n e d a r t i c l e , " E x te n s io n o f Coverage o f C anadian I n d u s t r i a l D is p u te s A c t," M onthly L ab o r R eview . 5 2 :1 3 9 1 , J u n e , 1941.

C om m ission i s

empowered t o

e f f e c t t h e same and t h u s a v o i d

t h e d e la y and exp en se o f

e s t a b l i s h i n g a Board o f C o n c i l i a ­

tio n to h ear th e d isp u te .

I f t h e Com m ission i s u n a b l e to

e ffe c t a se ttlem e n t,

it

w ill

c l a r i f y t h e m a jo r i s s u e s and

p a v e t h e way f o r p r o m p t a c t i o n by t h e B o a r d o f C o n c i l i a t i o n if

th a t procedure i s

necessary. I I .

ft

GREAT BRITAIN

C om pulsory i n v e s t i g a t i o n p r o p o s e d f o r G r e a t B r i t a i n . I m m e d i a t e l y a f t e r C a n a d a h a d m ad e o p e r a t i v e i t s

In d u strial

D i s p u t e s I n v e s t i g a t i o n A c t , t h e r e w e r e two a t t e m p t s i n P a rlia m e n t to

in tro d u ce

such l e g i l a t i o n f o r G re a t B r i t a i n .

B o th a t t e m p t s , 1908 and 190 9 , f a i l e d t o p a s s P a r l i a m e n t by Q larg e m ajo rities. III.

UNITED STATES

The R a il w a y L a b o r A c t . L abor Act o f 1926,

By v i r t u e o f t h e R a i l w a y

a m e n d e d i n 1 9 5 4 , 10 t h e U n i t e d S t a t e s h a s

8

U n s i g n e d a r t i c l e , "Amendm ent o f t h e I n d u s t r i a l D is p u te s I n v e s t i g a t i o n A ct i n C anada," I n t e r n a t i o n a l L abour R eview , 9 4 4 :3 1 0 , S e p te m b e r , 1 9 4 1 . J o h n R. Commons a n d J o h n B. A n d r e w s , o p .

c it.,

p.

131. 10 4 4 S t a t . 577 ( 1 9 2 6 ) , a m e n d e d , 48 S t a t . 926 ( 1 9 3 4 ) , 4 8 S t a t . 1 1 8 5 ( 1 9 3 4 ) 49 S t a t . 1 9 2 1 ( 1 9 3 6 ) , 45 U . - S . C . A . s e c t i o n s 1 5 1 - 1 6 3 (1940 S u p p . ) ; amended i n 1936 t o i n c l u d e a i r l i n e s ( A c t o f A p r i l 1 0 , 1 9 3 6 ; c . 1 6 6 , 49 S t a t . 1 1 8 9 ) .

31 h a d some r e c e n t e x p e r i e n c e w i t h c o m p u l s o r y i n v e s t i g a t i o n and t h e p o stp o n e m e n t o f s t r i k e s d u r i n g t h e p en d an c y o f n e g o tiatio n s.

W hile i t

is

tru e th at th is

l e g i s l a t i o n was

i n t r o d u c e d a f t e r t h e F i r s t W o r l d War d u r i n g t i m e s o f p e a c e , it

is

now o p e r a t i v e a n d e f f e c t i v e

in m ain tain in g in d u s tr ia l

harm ony i n a n i n d u s t r y i n d i s p e n s a b l e to t h e n a t i o n a l w a r e ffo rt. U nlike th e l e g i s l a t i o n p re v io u s ly d is c u s s e d , R ailw ay L ab o r A c t a p p l i e s t o in i t s tio n

p r e s e n t form i s

b u t two i n d u s t r i e s .

th e

The Act

th e p ro d u ct of co n tin u o u s experim enta­

sin c e th e l a s t war in C o ngressT la b o ra to ry f o r

and s o c i a l l e g i s l a t i o n ,

econom ic

th e r a ilr o a d s o f th e U nited S ta te s .

The A c t r e g u l a t e s i n d u s t r i a l

rela tio n s

to an u n p a r a l l e l e d

d e g r e e . 11 The N a t i o n a l M e d i a t i o n B o a r d . f e a tu r e of th e Act i s

T he m o s t i m p o r t a n t

th e c r e a tio n o f a N atio n al M ed iatio n

B o a rd c o n s i s t i n g o f t h r e e members t o m e d i a t e d i s p u t e s w h ic h th e p a r t i e s th em selv es a re u n ab le t o proves u n su c ce ssfu l, p a r tie s to

se ttle .

I f m ediation

th e Board m ust t r y t o p e rs u a d e th e

subm it t h e d i s p u t e to

a rb itra tio n , th e

expenses

11

E d w i n E. W i t t e , T h e G o v e r n m e n t i n L a b o r D i s p u t e s (New Y o r k : M c G r a w - H i l l Book C o m p an y , I n c . , 1 9 3 2 ) , p p . 2 5 8 2 4 4 ; A l e x a n d e r F e l l e r a n d J a c o b E . H u r w i t z , How t o D e a l W i t h O r g a n i z e d L a b o r (New Y o r k : The A l e x a n d e r P u b l i s h i n g C om pany, I n c . , 1937) , p p . 1 6 6 - 1 6 9 .

32 f o r w hich, tio n is

if

accep ted ,

refused,

w ritin g th a t i t s

a r e p a i d by t h e B o a r d .

t h e Board n o t i f i e s th e

a rb itra ­

d isp u tan ts in

m ed iato ry e f f o r t s have f a i l e d

t h i r t y days th e r e a f te r th e re

If

and f o r

c a n b e no s t r i k e o r l o c k o u t .

Kor can t h e r e b e a s t r i k e d u r i n g t h e p e r i o d o f n o t i c e and n eg o tiatio n . At t h i s phase of t h e p ro c e e d in g s ,

if,

in th e

judgm ent

o f t h e M e d ia tio n Board,

th e d isp u te th reaten s su b s ta n tia lly

to i n t e r r u p t i n t e r s t a t e

commerce t o

d eprive

a degree

such as t o

any s e c t i o n o f t h e U n i t e d S t a t e s o f e s s e n t i a l t r a n s ­

p o rtatio n

s e r v i c e , t h e Board i s

s id e n t o f th e U n ited S t a t e s ,

required to n o tify th e P re ­

who may t h e n a p p o i n t an

em ergency b o a r d t o i n v e s t i g a t e t h e i s s u e s and t o re p o r t in re g a rd to such d is p u te . in v estig atio n , is

file d ,

D uring th e p e rio d o f

and f o r t h i r t y d a y s a f t e r t h e s p e c i a l r e p o r t

n e i t h e r d i s p u t a n t may m a k e a n y c h a n g e i n t h e c o n d i ­

t i o n s o u t o f w hich th e d i s p u t e a r o s e . o f th e em ergency b o a rd , how ever, and a s t r i k e is

subm it a

The r e c o m m e n d a tio n s

do n o t h a v e t o

be a c c e p te d ,

o r lo ck o u t a f t e r th e th ir ty - d a y w aitin g p e rio d

e n tire ly law fu l.

If,

how ever, n e i t h e r d i s p u t a n t r e q u e s t s

t h e s e r v i c e s o f t h e M e d ia tio n B oard and t h e Board does n o t i n t e r v e n e on i t s

own m o t i o n ,

there

can b e no s t r i k e o r

change i n w orking c o n d itio n s f o r t e n d ay s a f t e r t h e t e r m i n a t i o n o f n e g o t i a t i o n s betw een t h e

33 p a rties. ^ T h is procedure i s and c o m p u ls io n . se ttle

th eir

a com bination o f v o lu n ta ry

a ctio n

The r i g h t o f t h e d i s p u t a n t s u l t i m a t e l y t o

d i f f e r e n c e s by a s t r i k e

is

c a re fu lly preserved.

B u t t h i s r i g h t may n o t b e e x e r c i s e d u n t i l t h e m a c h i n e r y o f th e Act h as been f u l l y u t i l i z e d . th u s im posed i s

at le a st th ir ty

be a s lo n g as n i n e t y d a y s i f p ro v id in g o p p o rtu n ity f o r fu lle st

The " c o o l i n g - o f f " days i n a l l

cases,

c o n tin u e d n e g o t i a t i o n and f o r

i n many i n s t a n c e s ,

w ould b e l e g a l

it

a n d may

an em ergency b o a rd i s c r e a t e d ,

e x p lo ra tio n of a l l ra m ific a tio n s of the

The r e s u l t ,

p erio d

co n tro v ersy .

i s t h a t by t h e t im e a s t r i k e

h a s become u n n e c e s s a r y .

The A ct f u r t h e r c r e a t e s a s t a n d i n g t r i b u n a l , t h e N a tio n a l R a ilr o a d A djustm ent B oard,

to h e a r d is p u te s a ris in g

o u t o f th e in te r p r e ta tio n o r a p p lic a tio n of e x is tin g agree­ m ents.

T h e d i s p u t e s w h i c h come t o

b u t on t h e

average l e s s im p o rta n t,

it

a r e m ore n u m erous,

t h a n t h o s e w h i c h come

b e f o r e th e N a tio n a l M e d ia tio n B oard.

They in v o lv e m inor

a d ju stm en ts r a t h e r th a n m ajor a l t e r a t i o n s

in

ex istin g

r u l e s . - 1*'5

12 Edwin S . W i t t e , o p . c i t . , p p . 2 5 8 - 4 4 ; Thomas R u s s e l l F i s h e r , o p . c i t . , pp. 99-1^0; T w e n tie th C en tu ry Fund, o p . c i t . , p p . 9 1 - 9 3 ; R o b e r t A. S p r e c h e r , o j d . c i t . , p p . 2 9 5 - 9 6 . 13 F lo re n c e P e t e r s o n , "A djustm ent o f Labor D is p u t e s ," Mon t h l y L a b o r R e v i e w , 4 9 : 1 0 3 2 - 3 4 , N o v e m b e r , 1 9 5 9 ; D igest of S t a t e and F e d e r a l L a b o r L e g i s l a t i o n (D e p artm en t o f L a b o r , D i v i s i o n o f L a b o r S t a n d a r d s , B u l l e t i n No. 4 8 . ??ashington, D .C .: Governm ent P r i n t i n g O f f i c e , A u g u s t, 1 9 4 1 ) , p . 6 3 .

34 T h is sy stem h a s w orked w e l l i n t h e fe w y e a r s o f i t s o p e r a t i o n , b u t i t m u st be rem em bered t h a t t h e r a i l r o a d s r e c o g n iz e th e a lm o st co m p lete u n i o n i z a t i o n o f t h e i r em ployees and a re w i l l i n g o r a re co m p elled t o d e a l w ith em ployees on a co llec tiv e b asis. its

lab o r p o licy

F urtherm ore,

are u n iq y e,

the in d u s try i t s e l f

and t h e e x i s t i n g

and

system i s

the

r e s u l t o f m an y y e a r s o f e x p e r i m e n t a t i o n a n d t r i a l - b y - e r r o r . A n alo g o u s c o n d i t i o n s a r e a b s e n t i n t h e new ly o r g a n i z e d o r u n o rg an ized war p ro d u c tio n i n d u s t r i e s .

Any a t t e m p t t o a p p l y

s e m i-c o m p u lso ry m eth o d s o f a d ju s tm e n t to t h e s e i n d u s t r i e s w ould p r o b a b l y be o p p o s e d by b o t h m anagem ent and t h e u n i o n s . Even i f

t h i s o p p o s i t i o n c o u l d b e o v e r c o m e and l a w s e n a c t e d ,

th e r e s u lts

a c h i e v e d would n o t f o l l o w t h e r a i l r o a d p a t t e r n .

P r o p o s e d V in so n C om pulsory I n v e s t i g a t i o n B i l l .

On

M arch 2 1 , 1 9 4 1 , R e p r e s e n t a t i v e V in so n o f G e o r g ia i n t r o d u c e d a b ill,

H .R . 413 9 , by t h e t e r m s o f w h ich n o t i c e i s

g i v e n o f any i n t e n d i n g defense in d u s try , o b lig a te d to faith .

If

change o f w orking c o n d itio n s i n a

a f t e r w hich management and l a b o r a r e

attem pt to

th ey f a i l

tio n over the

to be

se ttle

t h e i r d i f f e r e n c e s i n good

in t h e i r bona f i d e a tte m p t,

ju risd ic ­

d i s p u t e i s t a k e n by t h e C o n c i l i a t i o n S e r v i c e

o f t h e D ep artm en t o f L a b o r, w hich i s a l l o t t e d

a sp ecified

p e r i o d o f tim e i n w hich to b r i n g th e d i s p u t a n t s t o g e t h e r and r e c o n c i l e t h e i r d i f f e r e n c e s .

If th is

effort fa ils ,

th e

35 B i l l p ro v id e s t h a t th e d is p u ta n ts co u ld th e n ta k e the c o n tro v e rsy to th e th e n e x is te n t N a tio n a l D efense M ed iatio n Board ( t o

be d i s c u s s e d i n f r a ) , w hich w o u ld a l s o h av e a

s p e c i f i e d t i m e i n w h i c h t o m ak e a f i n a l the d isp u te . pen d in g , of fin e

d e term in atio n o f

D uring a l l o f th e tim e w h ile n e g o ti a t i o n s a re

strik es

and l o c k o u t s a r e f o r b i d d e n u n d e r p e n a l t y

a n d /o r im p rison m ent. Proposed B a ll B i l l .

On J a n u a r y 1 3 , 1 9 4 1 , S e n a t o r B a l l

o f M innesota in tro d u c e d a b i l l , d isp u tes in a ll

s.

683, a p p l i c a b l e to l a b o r

defense i n d u s tr ie s ,

w hich p r o v i d e s f o r a

te n - d a y n o t i c e o f any in te n d e d change o f w orking c o n d i t i o n s , d u r in g w hich tim e n e g o t i a t i o n s f o r t h e

settlem en t

of th e

c o n tr o v e r s y a r e to be c a r r i e d on by t h e d i s p u t a n t s . n e g o tiatio n s f a i l , n o tic e of in te n t to

If

e i t h e r d i s p u t a n t may g i v e a s e c o n d - t e n - d a y c all

a strik e or effect

a lo ck o u t to

th e

D i r e c t o r o f C o n c i l i a t i o n o f t h e D e p a r t m e n t o f L a b o r , i n whom the B ill v e sts

a d m in is tra tio n o f th e

D irecto r of C o n c iliatio n ,

act.

In the

or h is agent, f a i l s

to

event the effect a

s e t t l e m e n t w i t h i n t e n d a y s , he m ust n o t i f y th e P r e s i d e n t o f t h e U n i t e d S t a t e s who may t h e n a p p o i n t a s p e c i a l b o a r d t o m e d i a t e and p r e p a r e

a p u b lic re p o rt.

a re forbidden u n t i l

th e s p e c ia l board has p u b lish ed i t s

report or u n til its

th irty

S t r i k e s and l o c k o u t s

d ay s have e la p s e d from t h e tim e o f

ap p o in tm en t, w hichever o c c u rs f i r s t ,

k t any tim e d u rin g

36 t h e d i s p u t e t h e p a r t i e s may s u b m i t t h e i s s u e s t o a r b i t r a t i o n board" The B i l l

a p p o in t e d by t h e D i r e c t o r o f C o n c ilia tio n .

f u r t h e r p r o v i d e s t h a t e i t h e r d i s p u t a n t may p e t i t i o n

a D i s t r i c t C ourt o f th e U n ited S t a t e s to p arty

a "defense

from e f f e c t u a t i n g

en jo in th e o th e r

a s t r i k e o r lo c k o u t d u rin g t h e no­

s trik e p erio d . P ro p o sed S m ith B i l l .

On J a n u a r y 2 4 , 1 9 4 1 , R e p r e s e n t a ­

t i v e S m ith o f V i r g i n ia in tro d u c e d a b i l l , amend t h e C r i m i n a l C o d e b y m a k i n g i t

H .R . 2 6 9 5 , t o

a crim e to

strik e

d uring a " c o o lin g -o ff" p e rio d . IV .

CONCLUSIONS

T h e r e h a s n o t b e e n a s much p u b l i c i n d i g n a t i o n a r o u s e d a g a i n s t com pulsory i n v e s t i g a t i o n com pulsory a r b i t r a t i o n .

as t h a t m a n ife s te d a g a in s t

N ev erth eless,

th is

sen tim en t i s n o t

to be c o n stru e d as approval o r ev id e n ce o f th e s u c c e s s o f com pulsory i n v e s t i g a t i o n a s a te c h n iq u e f o r a l l e v i a t i n g in d u stria l reg u la rly

strife.

C om pulsory n o t i c e p r o v i s i o n s h a v e b e e n

e v an d e d by t h e s i m p l e e x p e d i e n t o f g i v i n g a p r e ­

m atu re n o tic e whenever i t i s lik e ly to occur.

appears th a t

The " c o o l i n g - o f f "

an i n d u s t r i a l d i s p u t e p e r i o d r e q u i r e d by

t h e R a i l w a y L a b o r A c t a f f e c t s b u t two u n i q u e i n d u s t r i e s , th ere i t

w a s i n s t i t u t e d o n l y : a f t e r m uch e x p e r i m e n t a t i o n .

and

CHAPTER IV VOLUNTARY ARBITRATION I t w ould be a p a ra d o x i n te rm in o lo g y and t h o u g h t to s u g g e s t a s a g o v e rn m e n ta l rem edy f o r t h e in d u stria l

settlem en t of

d is p u te s th e tech n iq u e o f v o lu n ta ry a r b i t r a t i o n .

A fo rtio ri,

v o lu n tary a r b i t r a t i o n

co ercio n and p e rs u a s io n .

assum es v o l i t i o n and n o t

N ev erth eless,

a p a r t from s t a t u t o r y

e n a c tm e n t, governm ent p o l i c y i s m a n if e s t tow ard th e am ica b le a d ju s tm e n t o f g r i e v a n c e s b e tw e e n management and l a b o r b e f o r e governm ent a s s i s t a n c e i s and C o n c i l i a t i o n . )

som etim es i n c o r p o r a t i n g co llec tiv e

(See C h a p te r V on M e d ia tio n

In purusance of t h i s

and l a b o r h a v e s o u g h t t o

th eir

sought.

p o l i c y , management

ad ju st d iffe re n c e s v o lu n ta rily , such p r o v i s i o n s f o r m achinery in to

agreem ents*

U n fo rtu n ate ly ,

t h e common l a w , a s i n t e r p r e t e d b y t h e

c o u r ts , has n o t k ep t a b re a s t w ith th e

new t r e n d a n d p u b l i c

p o l i c y when p r o b l e m s o f v o l u n t a r y a r b i t r a t i o n h a v e b e e n p r e ­ sen ted to e x istin g

them .

At common l a w ,

and f u t u r e c o n t r o v e r s i e s

m ents w ere r e c o g n iz e d , thus to

a g r e e m e n ts to

arb itrate

a r i s in g under such a g re e ­

b u t w ere h e ld t o be " r e v o c a b le ,"

and

c o u r t s o f e q u i t y c o u ld n o t and w o u ld n o t compel a p a r t y

p e rfo rm an a g re em e n t to

a rb itrate.

However, o n c e an

a w a r d was m a d e p u r s u a n t t o a n a r b i t r a t i o n a g r e e m e n t ,

eq u ity

38 w ou ld compel s p e c i f i c p e r f o r m a n c e o f t h e I.

aw ard. ^

"VOLUNTARY SUBMISSION"

In th e U n ited S t a t e s th e c l o s e s t approach to pu lso ry a r b itr a tio n of d isp u tes under c o lle c tiv e v o l u n t a r i l y made i s

com­

c o n tracts

found i n t h e p r o v i s i o n s o f t h e R ailw ay

L a b o r Act f o r t h e N a t io n a l R a i l r o a d A d ju stm e n t B o a rd .

The

l a t t e r Board c o n s i s t s o f e ig h te e n r e p r e s e n t a t i v e s o f t h e c a r r i e r s and e ig h te e n r e p r e s e n t a t i v e s o f t h e b ro th e rh o o d s.2 h an d led i n

railro ad

The A c t p r o v i d e s t h a t g r i e v a n c e s s h a l l be

th e " u s u a l m an n e r up to and i n c l u d i n g t h e c h i e f

o p e ra tin g o f f i c e r o f th e

c a rrie r,"

but f a ilin g to

reach an

a d j u s t m e n t i n t h i s m a n n e r , t h e d i s p u t e may b e r e f e r r e d th e A djustm ent B o a rd .3 governm ental p o l i c y

f h e A ct em bodies w i t h i n i t

to

th e

and e n c o u r a g e s t h e s e t t i n g up o f

g r i e v a n c e m a c h in e r y by t h e i n d i v i d u a l c a r r i e r s and t h e i r em ployees.

The A c t a l s o p r o v i d e s t h a t i f

t h e Board d i v i d e s

1 S id n e y P . Sim pson, " S p e c i f i c E n fo rcem en t o f A rb i­ t r a t i o n C o n t r a c t s , " U n i v e r s i t y Of P e n n s y l v a n i a Law R e v i e w , 8 3 :1 6 0 , Decem ber, 1 9 3 4 . 2 4 4 S t a t . 5 7 8 , ( 1 9 2 6 ) , 48 S t a t . 1 1 8 9 , U . S . C . A . , s e c t i o n s 1 5 3 ( 1 ) ( a ) , ( h) ( 1 9 4 0 S u p p . ) . 3 4 5 U . S . C . A . , s e c t i o n 1 5 3 (1) ( i ) . 4 I b i d . , s e c t i o n 153 ( 2 ) .

ev en ly on any q u e s tio n su b m itte d o t i t , referee, or,

i f u n a b le t o do s o ,

i t may s e l e c t

a

a r e f e r e e may b e a p p o i n t e d

by t h e M e d ia tio n B o a r d .5 A lthough t h i s p ro c e d u re i s s i o n , 11 i n p r a c t i c e i t

subm is­

r e p r e s e n t s com pulsory a r b i t r a t i o n

i n so f a r a s t h e s t r i k e

i s n o t an a l t e r n a t i v e t o

E i t h e r d i s p u t a n t may r e f e r therm ore,

c a l l e d f,v o l u n t a r y

a g rievance

a rb itratio n .

to t h e B o a rd .

an em ployee c a n n o t c a r r y h i s g r i e v a n c e t o

Fur­ the

B oard u n l e s s th e u n io n a p p ro v e s , an d t h e u n io n i s u s u a l l y w illin g

t o h a v e a d i s p u t e d e t e r m i n e d by a b o a r d o n w h ic h i t

h a s p l a c e d h a l f o f t h e m em bers.

The A c t p r o v i d e s ,

fu rth er­

m o r e , t h a t a p a r t y w i t h a g r i e v a n c e may n o t i f y t h e o t h e r p arty th a t i t

d e s ire s to

confer in resp ec t to

such g r i e v a n c e ,

w hereupon t h e p a r t y so n o t i f i e d i s u n d e r a d u ty to tim e and p la c e f o r c o n fe re n c e . to p rev en t the use o f th e II. W hile t h e

sp ecify a

T h i s w ould seem by i n f e r e n c e

strik e.

7

MECHANICAL ARBITRATION a r b i t r a t i o n o f econom ic d i s p u t e s h a s b e en

opposed b e ca u se th e a r b i t r a t o r s

a r e g i v e n no r e f e r a b l e

5 Ib id .,

s e c t i o n 1 5 3 (1)

(e).

6 45 U . S . C . A . , s e c t i o n 152 ( 5 ) . 7 R a ilw a y L a b o r (The A t t o r n e y G e n e r a l ’ s Commitee on A d m i n i s t r a t i v e P r o c e d u r e , M onograph No. 1 7 . W a s h i n g t o n , D .C. U n i t e d S t a t e s Governm ent P r i n t i n g O f f i c e , 1 9 4 0 ), p . 7 .

40 stan d ard s o f a d ju d ic a tio n ,

t h e o t h e r extrem e a p p e a r s i n

e a s e s w here t h e N a tio n a l L a b o r R e l a t i o n s B oard o r th e R a i l ­ way M e d i a t i o n B o a r d c o n d u c t s a n e l e c t i o n t o

d eterm ine w h e th er

a c e r t a i n u n i o n o r w h ic h o f tw o o r m ore u n i o n s r e p r e s e n t s m ajo rity o f th e b arg ain in g .

em ployees f o r t h e p u rp o s e o f c o l l e c t i v e

The s t a n d a r d u s e d by t h e

boards to

th e c o n tro v e rs y i s m erely a num erical one. th is

is

a type o f a r b itr a tio n

d ecides th e

a

determ in e

N ev erth eless

since a n e u tra l t h i r d P a rty

d i s p u t e and t h e d e c i s i o n i s b i n d i n g up o n t h e

p a rtie s.8 III.

NATIONAL LABOR RELATIONS BOARD

The N a t i o n a l L a b o r R e l a t i o n s B o ard d i f f e r s fro m t h e ag en cies h e re to fo re d escrib ed in th a t i t ment agency.

P rim arily ,

it

is

is

n o t an a d j u s t ­

a law enforcem ent agency to

p r o t e c t t h e r i g h t s o f c o l l e c t i v e b a r g a i n i n g on t h e p a r t o f em ployees,

to p r e v e n t d i s c r i m i n a t i o n a g a i n s t w o rk e rs and

d o m i n a t i o n o f l a b o r o r g a n i z a t i o n s by e m p l o y e r s , t o and c e r t i f y

defin e

em ployee r e p r e s e n t a t i v e s where d i s p u t e s have

8 A ct o f J u l y 5 , 1 9 3 5 , c . 3 7 2 5 ; 49 S t a t . 4 4 9 , U .S .C .A . s e c t i o n s 1 5 1 -1 6 6 ; Handbook o f F e d e r a l L a b o r L e g i s l a t i o n ( U n ite d S t a t e s D e p a rtm e n t oT~Labor, D i v i s i o n o r L a b o r S t a n d a r d s , B u l l e t i n No. 3 9 , P a r t I I . W ashington, D .C .: U n ite d S t a t e s Governm ent P r i n t i n g O f f i c e , 1 9 4 1 ); E, L . O l i v e r , "The A r b i t r a t i o n o f L a b o r D i s p u t e s ," U n i v e r s i t y o f P e n n s y l v a n i a Law R e v i e w , 8 3 : 2 1 6 - 1 7 , D e c e m b e r , 1 9 3 4 .

41 arisen .

It

h a s no a u t h o r i t y t o p r e v e n t

s t r i k e s b ein g c a lle d

o r to u n d e r ta k e m e d ia tio n o f them . It

is

a known f a c t

c a l l e d w ere and a r e c a l l e d unio nism :

th a t th e g r e a t m a jo rity o f s t r i k e s f o r p u rp o ses con nected w ith

f o r exam ple, r e c o g n i t i o n o f t h e u n io n ,

u n io n d is c rim in a tio n , ing agreem ents,

in te r p r e ta tio n of c o lle c tiv e b arg ain ­

and j u r i s d i c t i o n a l s t r i k e s .

p a s s a g e o f t h e a fo re m e n tio n e d A ct, re c o g n iz e o r b a rg a in w ith o n ly by a s t r i k e i f stren g th in

P r io r to th e

a n e m p l o y e r who r e f u s e d t o

a u n i o n c o u l d b e c o m p e l l e d t o do so

th e union in o p p o s itio n had s u f f i c i e n t

ra n k a n d was f i n a n c i a l l y p r e p a r e d .

age o f t h e N a tio n a l L a b o r R e la ti o n s A c t, lab o r p ra c tic e

f o r an em ployer to

t o o r g a n iz e and a f f i l i a t e company u n i o n , t o

clo sed -sh o p ,

it

is

S ince th e p ass­ an u n f a i r

i n t e r f e r e w ith th e r i g h t

w ith a n a tio n a l un io n ,

to f o s te r a

d i s c r i m i n a t e a g a i n s t u n io n m em bers, o r t o

r e f u s e to b a rg a in c o l l e c t i v e l y w ith th e r e p r e s e n t a t i v e s o f a m a j o r i t y o f th e em ployees i n an a p p r o p r i a t e b a r g a i n i n g u n it.

T h eo re tica lly ,

th e p a ssa g e o f th e Act should have p u t

an end to

strik es

em ployer,

and b e c a u s e o f t h e A c t t h e B oard r e c o g n i z e d u n f a i r -

lab o r-p rae tic es strik es

c a u s e d by t h e u n f a i r l a b o r p r a c t i c e s o f a n

strik es

as th e f a u l t o f t h e em ployer.

Such

a r e n o t n e c e s s a r y w here N a tio n a l L abor R e l a t i o n s

Board p r o c e d u r e s a re a v a i l a b l e .

E m p l o y e r s who r e f u s e t o

b a r g a i n c o l l e c t i v e l y a f t e r t h e B o a r d h a s m ad e a n o r d e r r e q u i r i n g them t o

do so , c a n b e c o m p e l l e d t o

comply t h r o u g h

42 a j u d i c i a l a p p e l l a t e p r o c e s s w hich t r a n s f e r s t h e u l t i m a t e com pulsive d e te r m in a tio n to th e f e d e r a l M ost o f t h e B o a r d ’ s work i s

done i n f o r m a l l y i n

t r o v e r s i e s w hich h av e n o t re a c h e d t h e h earin g .

In th ese,

rep re se n ta tiv e

con­

sta g e o f a form al

t h e o n ly q u e s t i o n s w hich t h e B o a rd ’ s

seek s to

answer i s w h e th er th e p r o v is io n s

o f th e Act have been v i o l a t e d . v io la ted ,

co u rts*

I f th e p r o v is io n s have been

t h e B o a r d ’ s r e p r e s e n t a t i v e h a s no a u t h o r i t y t o

com prom ise,

and u n l i k e t h e m e d i a t o r , h e h a s c e r t a i n c o e r c i v e

weapons a t h i s d i s p o s a l . H o w e v e r , t h e r e a r e tw o p o s s i b l e t y p e s o f c a s e s w h e r e i n t h e e m p l o y e r may n o t b e a t f a u l t i n h i s (1 )

refusal

where a u n io n m e r e ly c la im s to h a v e a m a j o r i t y number o f

e m p lo y e e s i n i t s m e m b e r s h ip ; o r (2)

two o r m ore u n i o n s c l a i m

t o hav e a m a j o r i t y number o f e m p lo y e e s .9 o r m o r e o f t h e u n i o n s i n v o l v e d may c a l l or ju risd ic tio n a l

strik e,

In e i t h e r c a s e one a reco g n itio n s trik e

a n d i n n e i t h e r c a s e may t h e

em ployer be g u i l t y o f v i o l a t i n g t h e A c t. cause o f th e th e

to b a rg a in :

strik e

strik e

In both cases th e

could b e rem oved, o r a t l e a s t blam e f o r

could be f i x e d ,

if

th e N atio n al Labor R e la tio n s

B o a rd h a d t h e n e c e s s a r y p e r s o n n e l and a p p r o p r i a t i o n s t o conduct a j u r is d ic tio n a l

e l e c t i o n and to

c ertify in a ll

9 R o b e r t A. S p r e c h e r , o p . c i t . ,

p.

506.

cases

43 th e proper re p re se n ta tiv e s.

The R u l e s and R e g u l a t i o n s o f

t h e N a t i o n a l L a b o r R e l a t i o n s B o a r d now p e r m i t to p e titio n

fo r in v estig atio n

o r m ore u n i o n s p r e s e n t se n ts a m ajo rity o f th e

an em ployer

and c e r t i f i c a t i o n w h e n e v e r two

c o n flictin g

claim s t h a t

em ployees i n th e

each r e p r e ­

ap p ro p riate b a rg a in ­

i n g u n i t . 10 S m i t h B i l l - p r o p o s e d amendment t o R elatio n s H et.

A b ill

to

th e N atio n al Labor

amend t h e N a t i o n a l L a b o r R e l a t i o n s

JLct w a s i n t r o d u c e d b y R e p r e s e n t a t i v e S m i t h o f V i r g i n i a . 11 Under th e p ro v is io n o f the proposed b i l l , a f o r e m e n tio n e d , w ould g i v e t h e e m p lo y e r,

a p e titio n as as a m atter of r i g h t,

t h e p r i v i l e g e o f h a v i n g an i n v e s t i g a t i o n and c e r t i f i c a t i o n b y t h e B o a r d , w h e n e v e r tw o o r m o r e u n i o n s w e r e i n v o l v e d a n d w o u l d p e r m i t a n a p p l i c a t i o n f o r a n e l e c t i o n t o b e m ad e b y e m p lo y e e s o n l y when t w e n t y p e r c e n t o r m ore o f t h e i n an a p p r o p r i a t e u n i o n jo in e d i n p rac tic al d iffic u lty e le ctio n s

The

in v o lv ed in t h i s p ro p o sa l p e rm ittin g

as a m a tte r o f rig h t

em ployers w i l l

such a p p l i c a t i o n .

em ployees

i s t h a t b o th u n io n s and

s e e k new e l e c t i o n s a t

such t i m e s when t h e y

10 N a t i o n a l L a b o r R e l a t i o n s B o a rd , R u l e s and R e g u la t i o n s , S e r i e s 2 , a s amended (M arch 1 2 , 1 9 4 0 1 . 11 H .R . 1 1 0 9 , i n t r o d u c e d J a n u a r y 3 , 1 9 4 1 . S e e a l s o t h e R e p o r t o f t h e S p e c i a l C om m ittee t o I n v e s t i g a t e t h e N a t i o n a l L a b o r R e l a t i o n s B oard (S m ith C o m m itte e ), House R e p o r t 3 1 0 9 , P a r t I , 7 t h C o n g r e s s , 3 r d S e s s i o n (1 940).

44 b e lie v e th e re has been a s h i f t i n a lle g ia n c e fa v o ra b le to th em selv es. tin g en cy ,

The S m ith B i l l ,

i n a n t i c i p a t i o n o f such con­

a tte m p ts to p r o v id e a g a i n s t e n d le s s e l e c t i o n s by

m aking a c e r t i f i c a t i o n o r d e r b in d in g f o r one y e a r from t h e d ate o f e n try .

Such a f r e e z i n g o f

c o n d itio n s m ight p ro v e a

p r a c t i c a l s o l u t i o n o f m any d i f f i c u l t i e s .

A u n io n w inning a

m a j o r i t y o f e m p lo y ees d u r i n g t h e c o u r s e o f a y e a r w ould be certified year.

as b a rg a in in g r e p r e s e n ta tiv e f o r t h e fo llo w in g

To m ak e t h i s p r o p o s e d p r o v i s i o n e f f e c t i v e

i t w ould be

n e c e s s a r y t o o u t l a w s t r i k e s by u n c e r t i f i e d u n i o n s a g a i n s t e m p lo y e rs whose a n p l o y e e - r e p r e s e n t a t i v e s h a v e b e e n c e r t i f i e d . But even w ith o u t c u r t a i l i n g u n iv ersal

th e r ig h t to

strik e,

e le c tio n s w ith c e r t i f i c a t i o n f o r

prom pt and

a d e f in ite p erio d

w ould e n a b l e r e s p o n s i b i l i t y f o r r e c o g n i t i o n and j u r i s d i c t i o n ­ al

s t r i k e s to be p l a c e d on e i t h e r t h e em ployer o r u n io n a t

fau lt. IV .

CONCLUSION

The p r i n c i p l e s o f v o l u n t a r y t h e i h e o r y t h a t when d i s p u t a n t s

a r b i t r a t i o n a re based on

cannot s e t t l e

th e ir d isag ree­

m e n t s t h e m s e l v e s , a t h i r d p a r t y may o f t e n s t e p i n a n d a d j u s t th e d iffe re n c e .

V o lu n ta ry a r b i t r a t i o n r e s t s on th e s p i r i t

o f c o n c e s s i o n a s t h e f o u n d a t i o n u p o n -which t h e w h o l e e d i f i c e is b u ilt. its

In c a se e i t h e r o f th e d i s p u t a n t s r e f u s e s to

case to th e

judgm ent o f an o u t s i d e r , v o l u n t a r y

subm it

45 a rb itratio n fa ils . m ise i s w a n tin g . com prom ise,

It If

fails

the

because the

d isp u ta n ts are

and b o th t r y to

sp irit

o f compro­

ready to

reach a

av o id i n d u s t r i a l w a rfa re ,

v o l u n t a r y a r b i t r a t i o n w i l l p ro v e an e f f e c t i v e m e a su re . term i t s e l f ,

in fact,

The

s i g n i f ie s th a t su ccess depends e n tir e ­

l y upon th e a t t i t u d e o f t h e opposing p a r t i e s .

CHAPTER V CONCILIATION AND MEDIATION T h ere seems to

be l i t t l e

o r no e x c e p t i o n t o

p r o p o s itio n t h a t th e o n ly co m p letely s a t i s f a c t o r y

th e se ttle ­

m ent o f a n i n d u s t r i a l d i s p u t e i s t h a t made by a n d b e t w e e n th e p a r t i e s w ith o u t i n t e r v e n t i o n o f a t h i r d p a r t y , be i t an i n d i v i d u a l o r th e governm ent. I .

GREAT BRITIAN

G reat B r ita in preceding th e

c u rre n t w ar.

Because o f

t h e i n i m i c a l r e l a t i o n o f com pulsory a r b i t r a t i o n and p o l i t i ­ c a l d e m o c ra c y d u r i n g t h e F i r s t W o rld W ar, t h e r e was a r e a c ­ t i o n and w i d e s p r e a d movement to a b o l i s h

com pulsory a r b i t r a ­

tio n o f la b o r d isp u te s in G reat B r ita in . D n d e r t h e la w s o f 1896 and 1 9 1 9 , L a b o r i s , empowered to and a r b i t r a t i o n . l a b o r m ach in ery to

the M in is te r o f

e s t a b l i s h m achinery f o r

c o n cilia tio n

G o v e rn m e n t-e n c o u ra g e d j o in g m anagem entse ttle

d isp u te s w ith in th e in d u s trie s

th e m se lv e s h a s been so e x te n s i v e l y u se d s in c e t h e F i r s t W orld W ar, t h a t t h e r e h a s b e e n l i t t l e governm ental f a c i l i t i e s

req u est fo r av ailab le

fo r c o n ciliatio n

The g o v e r n m e n t a l f a c i l i t i e s

a v a i l a b l e t o management and l a b o r

a re c o n c i l i a t i o n com m ittees e s ta b l is h e d L abor,

the in d u s tr ia l c o u rt,

and a r b i t r a t i o n .

by t h e M i n i s t e r of.

ad hoc b o a rd s o f a r b i t r a t i o n ,

47 in d iv id u al a r b itr a to r s , are

seldom c r e a t e d .

req u est.

and s p e c i a l

The g o v e rn m e n t i n t e r v e n e s o n l y u p o n

The s i n g l e

ex cep tio n to

M in is te r o f Labor, i n h i s in q u iry to

in v estig ate

th rea te n ed s tr ik e

c o u r t s o f i n q u i r y w hich

if

th is

ru le

i s th a t the

d i s c r e t i o n , may c r e a t e

a court of

and r e p o r t on a n e x i s t i n g o r

such o c c u rre n c e has o r w i l l have

serio u s im p licatio n s

fo r th e n a tio n .

T h is d ev ice i s used

a s a t e c h n i q u e f o r i n f o r m in g P a r l i a m e n t and t h e p u b l i c , it

is

not w ith in the p ro v in ce o f t h i s

court to

as

n eg o tiate

w ith th e d is p u t a n t s .1 G overnm ental

c o n cilia tio n f a c ilitie s

a f t e r e v e r y e f f o r t h a s b e e n m ad e t o s e t t l e by e x i s t i n g i n d u s t r i a l m a c h i n e r y . i n t h a t m anner d i c t a t e d by good ru les

are l a i d

are used only th e

d ifferen ces

The M i n i s t e r i n t e r c e d e s

j u d g m e n t a s no s p e c i f i c

down t o g u i d e h i s a c t i o n s .

Where a r b i t r a t i o n

i s r e q u e s t e d by t h e d i s p u t a n t s

a f t e r an im p a ss i n v o l u n t a r y m a c h in e r y , t h e s e r v i c e o f a r b i t r a t i o n may b e p e r f o r m e d b y a p p o i n t e e s o f t h e M i n i s t e r o f Labor as fo llo w s:

(1)

a s in g le a r b i t r a t o r , w ith o r w ith ­

out a sse sso rs re p re se n tin g th e d is p u ta n ts ; t r i a l C o u rt, w hich i s hav in g

em ployer,

(2)

th e indus­

a stan d in g a r b i t r a t i o n tr ib u n a l

e m p lo y ee , i n d e p e n d e n t mem bers, a n d one o r

1 J o h n R. Commons a n d J o h n B. A n d r e w s , o p . 130.

c i t . , p.

m o r e women r e p r e s e n t a t i v e s ;

a n d (3 )

ad hoc b o a r d s , u s u a l l y

h a v i n g t h r e e members c o n s i s t i n g o f a c h a i r m a n ,

an em ployer

m em ber, and an em ployee member, c h o s e n f r o m p a n e l s o f t h e s e resp ectiv e

groups e s ta b lis h e d by th e M in is te r o f L abor u n d er

h i s s t a t u t o r y pow ers.

R egardless of th e

d is p u te , th e d e c is io n reached i s not d e v i a t i o n from t h e u s u a l d e f i n i t i o n " a rb itra tio n .”

agency h e a r in g a

conclusive.

T his i s

a

and u s a g e o f t h e t e r m

A cceptance of th e d e c is io n reached depends

upon th e c o o p e r a tio n o f t h e d is p u t a n t s o r p u b lic o p in io n u n le s s , o f c o u rse , se lv e s in advance to of the in d u s tria l

the fo rc e of

t h e d i s p u t a n t s b i n d them ­

a b id e by t h e d e c i s i o n r e a c h e d .

Aw ards

c o u rt a r e p u b lis h e d ; o t h e r aw ards a r e

reg a rd ed as th e p ro p e rty o f th e p a r t i e s c o n c e rn e d .1 4

G re at B r i ta i n d u rin g th e c u rre n t w ar.

Broad pow ers

f o r d e a l i n g w ith war c o n d i t i o n s w ere g r a n t e d to t h e B r i t i s h g o v e rn m e n t u n d e r t h e Emergency P o w ers (D e fen se) 24, 1939.

By i t s

th e p u b lic

August

t e r m s t h e K i n g w a s e m p o w e r e d t o m ak e s u c h

r e g u l a t i o n s by O r d e r s - i n - c o u n e i l reg u latio n s")

act,

(re fe rre d to as "defense

a s m ig h t be n e c e s s a r y o r e x p e d i e n t " f o r

s a fe ty , th e defense o f the

securing

realm , th e m aintenance

1 M a r g a r e t H. S ch o e n f e l d , o p . c i t . , p p . 1 0 7 0 - 7 1 ; J o i n t I n d u s t r i a l C o u n c i l s i n G r e a ' t * B r i t a i n ; R e p o r t o f Com­ m i t t e e o n R e l a t i o n s B e t w e e n E m p l o y e r s a n d E m p lo y e e s “T u n i t e d S t a t e s D e p a rtm e n t o f ~L abor, feureau o f L a b o r S t a t i s t i c s , B u l l e t i n No. 2 5 5 . W ashington, D .C .: U n ite d S t a t e s G overn­ ment P r i n t i n g O f f i c e , J u l y , 1 9 1 9 ).

49 o f p u b l i c o r d e r an d t h e and f o r " m a in ta in in g life

e f f i c i e n t p r o s e c u tio n o f any w a r,"

s u p p l i e s and s e r v i c e s

e sse n tia l to

the

o f th e co m m u n ity ."^ By an O r d e r i n C o u n c i l o n J u l y 1 0 , 1 9 4 0 , t h e M i n i s t e r

of Labor i s

au th o rized to

is s u e o rd e rs desig n ed to p re v e n t

t h e i n t e r r u p t i o n o f work by s t r i k e s o r l o c k o u t s . ter

The M i n i s ­

can p ro v id e f o r t h e e s ta b lis h m e n t o f a t r i b u n a l o f

s e ttlin g lab o r d isp u tes, w ise,

and re g u la te

its

procedure.

th e M in i s te r can p r o h i b i t s t r i k e s o r lo c k o u ts ,

im p ose s e v e r e r e g u l a t i o n s i n and w o r k in g c o n d i t i o n s ,

L ik e­ and

c o n n e c t i o n w i t h h o u r s o f work

though p e rs o n s r e t a i n t h e power to

r e f e r d is p u te s o r o th e r m a tte r s f o r s e ttle m e n t o r ad v ice u n d e r th e I n d u s t r i a l C o u rts Act o f 1919. U nder t h e pow ers g r a n t e d him , t h e M i n i s t e r o f L a b o r c re a te d a N a tio n a l A r b i t r a t i o n T rib u n a l on J u ly 18, 1940. T h e o r d e r e m p o w e r e d t h e n ew a r b i t r a t i o n b o d y t o d i s p u t e s w hich c o u ld n o t b e c o n c i l i a t i o n m ach in ery . p ractical

effect,

d e a l w ith

s e t t l e d u n d e r and by e x i s t i n g

I t i s p o in ted out th a t t h i s ,

in

from a s t a t u t o r y r e a d i n g , means t h a t

s t r i k e s and l o c k o u t s a r e u n la w fu l f o r th e d u r a t i o n o f t h e war em ergency.

The t r i b u n a l i s composed o f f i v e m em bers,

3 U n s ig n e d a r t i c l e , "W artim e C hanges i n L a b o r C o n d i­ t i o n s i n G r e a t B r i t i a n , " M o n th ly L a b o r R eview , 5 0 :5 2 - 5 6 , Jan u ary , 1940.

50 t h r e e o f whom a r e a p p o i n t e d m e m b e r s ,

in c lu d in g th e chairm an,

a n d two o f whom a r e s e l e c t e d f r o m p a n e l s o f e m p l o y e r s * em ployees*

rep re se n ta tiv e s.

I n accordance w ith th e o rd e r,

th e M in is te r o f Labor

d e term in es th e s u i t a b i l i t y o f e x is tin g b o d ies to d isp u tes.

and

I f he dees f i t ,

se ttle

h e may r e f e r t h e d i s p u t e t o

n a tio n al trib u n a l

in the f i r s t

f a i l u r e to e f f e c t

a s e ttle m e n t w ith in tw enty-on e d a y s, th e

M i n i s t e r may r e f e r t h e c a s e t o

in stan ce.

If

th ere i s

th e

th e n a tio n a l tr ib u n a l,

c i r c u m s t a n c e s m ak e p o s t p o n e m e n t d e s i r a b l e , d e c i s i o n , o r aw ard i s b i n d i n g on b o t h

a

u n less

Any a g r e e m e n t ,

e n p lo y e r and em ployee.

T h e y may n o t e n g a g e i n a s t r i k e o r l o c k o u t u n l e s s t h e d i s ­ p ute has been re p o rte d

t o t h e M i n i s t e r by e i t h e r p a r t y ,

and

tw en ty -o n e days have e la p se d s in c e th e d a te o f th e r e p o r t , and t h e d i s p u t e h a s n o t d u r i n g t h a t t i m e b e e n r e f e r r e d by the M in ister fo r s e ttle m e n t.4 C oncurrent w ith th e O rd e r-in -C o u n cil o f J u ly 10, 1 9 4 0 , B r i t i s h l a b o r u p i o n s and a s s o c i a t i o n s o f management a g re e d to p r o h i b i t em ergency.

a ll

s t r i k e s f o r th e d u r a tio n o f th e war

A l l d i s p u t e s w ere t o be s e t t l e d

o f v o l u n ta r y n e g o t i a t i o n s w ere i n a d e q u a te .

by a r b i t r a t i o n D eep ite the fo re

going agreem ent, t h e B r i t i s h M in is tr y o f Labor r e p o r t s t h a t ,

4 H aro ld S. R o b e rts , " B r i t i s h L ab or in th e P r e s e n t W ar," L a b o r I n f o r m a t i o n B u l l e t i n , 9 : 8 - 1 1 , F e b r u a r y , 1 9 4 2 .

51 fo r th e f i r s t

n in e m onths o f 1941, tim e l o s t t h r o u g h s t r i k e s

i n G r e a t B r i t a i n a m o u n t e d t o 6 , 8 9 2 , 0 0 0 man h o u r s - a f i f t e e n 5 p e r cent in c re a se over th e corresp o n d in g p erio d o f 1940. To d a t e , on e x is ti n g

t h e B r i t i s h governm ent h a s seen f i t t o

in d u stria l

d is p u te m achinery , t h e p r e s t i g e

rely and

power o f s e v e r a l le a d e r s o f th e L abor P a r ty k e y -p la c e d i n th e C a b in et,

and th e

cause

cham pioned f o r i n d u s t r i a l harm ony

r a t h e r t h a n s t a t u t e s o r O r d e r s - i n - c o u n c i l w hich m ig h t p r o v e u n p o p u la r w ith th e w orking m a s se s. II.

UNITED STATES

U n i t e d S t a t e s p o l i c y and p r o c e d u r e d u r i n g F i r s t W orld W ar. The U n i t e d S t a t e s h a s a lw a y s l i m i t e d in d u stria l

d i s p u t e s to

its

c o n c ilia tio n serv ices.

in te re s t in Even d u r i n g t h e

F i r s t W o rld W ar, when t h e g o v e rn m e n t a d o p te d t h e g e n e r a l p o lic y

and p r i n c i p l e o f "no

federal le g is la tio n to

i n w artim e,"

t h e r e w a s no

c o m p e llin g e i t h e r em ployers o r em ployees

subm it t h e i r d i s p u t e s to

5

strik es

any governm ent a g e n c y .6

U nsigned a r t i c l e , " N o - S tr ik e P le d g e : P r o s p e c t o f ♦ W ild cat* W a l k o u t s , ” U n i t e d S t a t e s News, 1 1 : 2 7 , D ecem ber 2 6 , 1 9 4 1 : H a r o l d S* R o b e r t s , op.V c i t ~ PP# 8 - 1 1 . 6 ~ G ordon S . W a tk in s , L a b o r P ro b le m s and L ab o r A d m in is­ t r a t i o n in th e U nited S ta te s (U n iv e rs ity o f I l l i n o i s S tu d ie s i n t h e S o c i a l S c i e n c e s , V o l . 8 , No. 4 . U rbana: U n iv e r s ity o f I l l i n o i s , 1 9 1 9 ) , - p p . 1 5 7 - 1 7 8 ; A l e x a n d e r M. B i n g , W a r t i m e S t r i k e s a n d T h e i r A d j u s t m e n t , 1 9 2 1 ; J o h n R, Commons a n d J o h n B. A n drew s, o£ . c i t . , PP . 1 2 8 - 1 5 1 ; T w e n t i e t h C e n tu r y F u n d , o p . c i t . , p p . 1 0 3 - 1 0 7 ; Edwin E. W i t t e , b £ . p i t . , p p . 2 4 6 - 5 1 ; F l o r e n c e P e t e r s o n , ojd. c i t . , p p . 1 0 7 0 - 7 1 7

52

C o n c i l i a t i o n S e r v i c e o f t h e D epartm ent o f L a b o r .

The

d o n c i l i a t i o n S e r v i c e o f t h e D e p artm en t o f L a b o r was e s t a b l i s h e d p u ru s a n t to

t h e p r o v i s i o n i n t h e Act o f 1913

w hich c r e a t e d t h e D e p a rtm e n t o f L a b o r and gave t h e S e c r e t a r y o f L ab o r t h e power to

a c t a s m e d i a t o r and to

m issio n ers of c o n c ilia tio n .

7

a p p o i n t com-

The C o n c i l i a t i o n S e r v i c e

h a s a s t a f f o f c o m m i s s i o n e r s who a r e s t a t i o n e d tria l

c e n te rs th ro u g h o u t th e c o u n try .

in key in d u s­

They i n t e r v e n e

in

any c o n t r o v e r s y a t t h e r e q u e s t o f e i t h e r d i s p u t a n t o r a t t h e r e q u e s t o f a m em b er o f t h e p u b l i c . on a v o l u n t a r y b a s i s . p e rs o n o r group to o r to

There i s

The e n t i r e p r o c e d u r e i s

no l e g a l o b l i g a t i o n f o r a n y

re q u e s t o r a c c e p t th e a id of th e S e rv ic e

a c c e p t any p r o p o s e d s e t t l e m e n t .

The S e r v i c e i s n o t a

l a w - e n f o r c i n g b o d y a n d e x e r c i s e s no p o w e r o f c o m p u l s i o n . 8 The t e c h n i q u e o f s e t t l e m e n t u su ally

stra ig h t

em ployed by t h e s e r v i c e i s

c o n c i l i a t i o n t h r o u g h t h e m e d iu m o f b o t h

j o i n t c o n fe re n c e s and m e e tin g s w ith each s i d e

sep arately .

When no f u r t h e r p r o g r e s s

c a n b e m a d e , t h e c o m m i s s i o n e r may

as a la s t

a r b itr a tio n o f th e p o in ts s t i l l

issu e;

resort

and,

o f h elp

if

suggest

th e d is p u ta n ts

so d e s i r e ,

at

t h e S e r v i c e m ay name

s e le c t an a r b i t r a t o r .

37 S t a t .

738 ( 1 9 1 3 ) ,

5 U .S .C .A .,

s e c t i o n 619 ( 1 9 2 7 ) .

8 U n i t e d S t a t e s Handbook o f F e d e r a l L a b o r L e g i s l a t i o n (U n ited -S t a t e s D epartm ent o f L aB o r, D e v isio n o f L a b o r S t a n d a r d s , B u l l e t i n No. 3 9 , P a r t I I . W ashington, D .C .: U n i t e d S t a t e s G overnm ent P r i n t i n g O f f i c e ) .

53 C o l le c t i v e b a rg a in in g ag reem en ts,

d is c u s s e d i n con­

n e c tio n w ith th e N a tio n a l L abor R e la tio n s A ct, f r e q u e n t ly p ro v id e f o r a r b i t r a t i o n o f s t i l l

an o th er ty p e ,

th e a d ju d ic a ­

t i o n o f any q u e s t i o n c o n c e rn in g t h e i n t e r p r e t a t i o n o r a p p l i c a t i o n o f th e ag reem en t w hich t h e p a r t i e s may b e u n a b l e t o

ad ju st.

Many s u c h c o l l e c t i v e b a r g a i n i n g

ag reem en ts p ro v id e t h a t , upon r e q u e s t , S erv ice

them selves

th e C o n c iliatio n

s h a l l d e s i g n a t e some n e u t r a l t h i r d p a r t y t o a c t

as

a rb itrato r. F i r s t W o r l d W a r N a t i o n a l War L a b o r B o a r d . t o a g e n e r a l dem and f o r m o r e e f f i c i e n t

In response

a d m in istratio n of lab o r

c o n d i t i o n s , P r e s i d e n t W ilso n e a r l y i n J a n u a r y , 1918, in au g u rated

a new l a b o r a d m i n i s t r a t i o n .

c o n fe re n c e s on th e

A fter a se rie s of

su bject o f la b o r p o lic y ,

d ire c tio n of a sp ecially

held under th e

c re a te d C o u n cil o f N a tio n a l D efense

and t h e D ep artm en t o f L a b o r ,

a c o m p r e h e n s i v e p r o g r a m wa s

d e s i g n e d and draw n t o p r o v i d e m a c h in e r y f o r e f f e c t i v e m o b i l ­ iz a tio n of lab o r,

its

s t a n d a r d i z a t i o n i n a l l war i n d u s t r i e s ,

e q u ita b le ad ju stm en t o f i n d u s t r i a l

d is p u te s , and c o o rd in a ­

t i o n o f a c t i o n betw een t h e d e p a rtm e n ts o f th e governm ent p e rtain in g to lab o r.

9

9

R o b e r t E . Cushm an, The I n d e p e n d e n t R e g u l a t o r y C o m m i s s i o n s (New Y o r k : O x f o r d U n i v e r s i t y P r e s s , 1 9 4 1 ) , pp. 352-53.

54 On M a r c h 2 9 , 1 9 1 8 , m itte d to

a W ar L a b o r C o n f e r e n c e B o a r d s u b ­

th e S e c r e t a r y o f L a b o r a unanim ous r e p o r t o f i t s

d e c i s i o n i n w h ic h w as recom mended t h a t t h e r e be c r e a t e d a N a t i o n a l W ar L a b o r B o a r d c o n s i s t i n g o f e q u a l n u m b e r s o f r e ­ p resen tativ es g en eral,

from m anagem ent, l a b o r ,

t h e new B o a rd w as t o

and t h e p u b l i c .

co n sid er a l l

In

c o n tro v ersies

a r i s i n g b etw een em p lo y ers and em ployees w ith a v ie w to g u aran teein g u n in te rru p te d o p e ra tio n o f in d u stry

a n d maximum

p r o d u c t i o n o f war m a t e r i a l s . T h e N a t i o n a l "War L a b o r B o a r d , w h i c h h a d i t s

in ce p tio n

i n t h e r e c o m m e n d a t i o n s o f t h e W ar L a b o r C o n f e r e n c e B o a r d , w a s a p p o i n t e d by t h e S e c r e t a r y o f L a b o r and w as composed o f rep resn tativ es

o f m anagem ent, l a b o r and t h e p u b l i c .

The

a p p o in t m e n t o f t h e B o ard was a p p ro v e d and a f f i r m e d by P r e s i ­ d e n t W ilson i n h i s p ro c la m a tio n o f A p r il 8 , he sum m arized i t s

pow ers, f u n c tio n s ,

1918,

i n w hich

a n d d u t i e s . 10

D u t i e s and pow ers o f t h e B o a rd .

The d u t i e s a n d p o w e rs

o f t h e N a t i o n a l W ar L a b o r B o a r d w e r e o u t l i n e d i n t h e r e p o r t o f t h e War L a b o r C o n f e r e n c e B o a r d , M a r c h 2 9 , 1 9 1 8 , P ro c la m a tio n o f th e P r e s i d e n t on A p r il 8 , 1918. a n d p o w e r s m ay b e s u m m a r i z e d a s f o l l o w s :

(1)

and t h e

These d u t ie s

th e settlem en t

10 P ro c la m a tio n o f th e P r e s id e n t of the U n ited S t a t e s , A p r i l 8 , 1 9 1 8 , c r e a t i n g t h e N a t i o n a l W ar L a b o r B o a r d .

55 by c o n c i l i a t i o n and m e d i a t i o n o f e v e r y

co n tro v ersy a r i s in g

b e tw ee n management and l a b o r i n t h e f i e l d e s s e n t ia l to

th e war e f f o r t ;

(2)

of p ro d u ctio n

e x e r c i s e o f t h e same

ju ris d ic tio n in a ll o th er f ie ld s of n atio n al a c tiv ity , w here sto p p a g e o r t h r e a t e n e d be d e tr im e n ta l; o th erw ise, fo r

(3)

c e s s a t i o n o f p r o d u c t i o n w ould

pro v isio n ,

by d i r e c t a p p o in tm e n t o r

com m ittees o r b o a rd s t o

c o u n try w here d i s p u t e s a r i s e ,

so t h a t

e f f e c t e d w here and w henever p o s s i b l e and m e d i a t i o n . to e f f e c t

s i t thro u g h o u t th e s e t t l e m e n t may b e

by l o c a l

c o n cilia tio n

I n case o f the f a i l u r e o f th e s e lo c a l

boards

a s e t t l e m e n t t h e p a r t i e s w e r e t o b e summoned b y t h e

n a tio n a l board, board should f a i l

(4) to

In case th e e f f o r t s of th e n a tio n a l se ttle

u m pire c o u ld be a p p o in te d ,

th e d isp u te '; as a l a s t

resort

an

^ o r t h e Ip p o in tm e n t o f an um pire

u n a n i m o u s a g r e e m e n t among t h e m e m b e r s o f t h e b o a r d w a s n ecessary ., b u t i f was t o

such an a g re e m e n t co u ld n ot be r e a c h e d he

be draw n from a l i s t

of ten su itab le

and d i s i n t e r e s t e d

p e r s o n s n o m in a t e d by t h e P r e s i d e n t o f t h e u n i t e d S t a t e s . The b o a r d was v e s t e d w i t h t h e p o w er t o p rac tic e (6)

lin

se ttlin g

(5 )

a l t e r i t s m ethods and

d is p u te s as ex p erien ce su g g ested ;

and

no c o g n i z a n c e w a s t o b e t a k e n b y t h e B o a r d o f d i s p u t e s

b e tw e e n e m p lo y ers and e m p lo y ees i n any f i e l d

of in d u stria l

a c t i v i t y w h e re by f e d e r a l la w o r by a g re e m e n t t h e r e a l r e a d y e x i s t e d means o f s e t t l e m e n t w hich had n o t b e en

56 i n v o k e d . 11 These o p e ra tin g p r i n c i p l e s much t o t h e B oard.

and p o l i c i e s c o n t r i b u t e d

s u c c e s s a c h i e v e d by t h e N a t i o n a l War L a b o r

Not o n l y w ere t h e s e p r i n c i p l e s and p o l i c i e s

h en siv e in c h a ra c te r, t h a t m ig h t a r i s e

compre­

to u c h in g upon a lm o st every problem

i n m anagem ent-labor r e l a t i o n s ,

but th ey

w ere a ls o r e a s o n a b le i n t h a t due c o g n iz a n c e was ta k e n o f the r ig h ts , w e lfa re , volved i n

and i n t e r e s t s o f th e t h r e e p a r t i e s

any i n d u s t r i a l

in ­

c o n t r o v e r s y - m anagem ent, l a b o r ,

and t h e g e n e r a l p u b l i c . M ethod o f p r e s e n t i n g

co m p lain ts.

Any p e r s o n who

d e s i r e d to p r e s e n t an e x i s t i n g o r p o t e n t i a l c o n t r o v e r s y b e t w e e n m a n a g e m e n t a n d l a b o r t o t h e N a t i o n a l War L a b o r B o a r d w a s r e q u i r e d t o do so b y a w r i t t e n s t a t e m e n t o f t h e s p e c i f i c g r i e v a n c e o r c h a r g e nam ing t h e p e r s o n s a n d / o r e s t a b l i s h m e n t s in the in d u s tr ia l

d isp u te.

A s i m i l a r s t a te m e n t was r e q u i r e d

when e m p l o y e r s a n d e m p l o y e e s t h e m s e l v e s p r e s e n t e d a com­ p l a i n t t o t h 6 N a t i o n a l W ar L a b o r B o a r d . Procedure fo r h earin g

and a d j u s t i n g d i s p u t e s .

In a ll

c o n t r o v e r s i e s b e t w e e n m an ag em en t and l a b o r , two m em bers o f

11 G ordon S. W a tk in s , o p . C u s h m a n , 0£ . c i t . , p . 3 5 5 .

c i t . , pp . 164 -6 5 ; R o b ert E.

57 t h e N a t i o n a l War L a b o r B o a r d , o n e r e p r e s e n t i n g m a n a g e m e n t and one r e p r e s e n t i n g l a b o r , w ere a p p o in te d to a c t f o r t h e B o a r d , t h e m e m b e r s i n e a c h c a s e b e i n g n am ed b y t h e

jo in t

chairm en a t th e i n s t a n c e o f th e r e s p e c t iv e g roups o f th e board.

T h e s e two members c o n s t i t u t e d w h a t w as d e n o m i n a t e d

a " s e c t i o n ” o f th e B oard t o h e a r and a d j u s t c a s e s w hich were assigned to

them .

I f th ese

s e ttl e m e n t b etw een t h e

d isp u tan ts,

sum m arize and a n a l y z e a l l a n d p r e s e n t t h e sa me t o Local

the f a c t s

com m ittees,

effect a

i t was t h e i r d u ty to and i s s u e s i n t h e d i s p u t e

th e Board w ith reco m m en d atio n s.

c o m m itte e s i n any c i t y o r d i s t r i c t

by t h e Board to

L abor,

sectio n s fa ile d to

co u ld be a p p o in ted

a c t i n e a s e s w hich a ro s e l o c a l l y .

a s s o c i a t i o n s o f m anagem ent,

a nd o t h e r l o c a l

Local

o rg an izatio n s of

i n t e r e s t g ro u p s w ere e n t i t l e d

r e c o m m e n d a t i o n s to , t h e B o a r d ,

t o m ak e

i n l o c a l i t i e s w h e re no p e rm a ­

n e n t l o c a l com m ittee e x i s t e d o r had b een a p p o in te d

sectio n s

o f t h e n a t i o n a l B o a r d w e r e a u t h o r i z e d to make t e m p o r a r y appo in tm e n t s . 1 s If

t h e N a t i o n a l War B o a r d f o u n d i t

a co n tro v ersy a f t e r

i m p o s s i b l e to

se ttle

due d e l i b e r a t i o n and e f f o r t t h r o u g h t h e

v a r i o u s a g e n c i e s and p r o c e d u r e s above e n u m e ra te d , t h e Board itse lf

th en

convened as a b o a rd o f a r b i t r a t i o n to

12 Gordon S. W atk in s,



.

c it.,

p. 165.

se ttle

th e

58 d i s p u t e a n d m ak e an a w a r d , reached.

In

if

a unanim ous d e c i s i o n c o u ld be

case such u n a n im ity could n o t be a c h ie v e d t h e

Board s e l e c t e d

a n u m p i r e who s a t w i t h t h e B o a r d , r e v i e w e d

t h e i s s u e s and r e n d e r e d h i s r e s o r t alw ay s,

aw ard.

The u m p ire w as a l a s t

and was a p p o i n t e d o n l y a f t e r a u n a n im o u s v o t e

o f t h e B o ard deemed su c h an a p p o in tm e n t n e c e s s a r y . Board f a i l e d

I f the

to r e a c h a unanim ous a g re e m e n t r e g a r d i n g t h e

c h o ic e o f an um pire,

he was draw n by l o t fro m a l i s t

of ten

11s u i t a b l e a n d d i s i n t e r e s t e d p e r s o n s , ” n o m i n a t e d b y t h e P r e ­ s id e n t of th e U nited S t a te s . In fu rth e ra n c e of th e p r in c ip le s o f settlem en t of in d u s tria l d isp u tes

set fo rth

i n th e P re s id e n t p ro clam atio n

o f A p r i l 8 , 1 9 1 8 , t h e N a t i o n a l War L a b o r B o a r d h e a r d a p p e a l s in th e fo llo w in g

cases:

(1)

w here t h e r e had b e e n v i o l a t i o n s

o f th e p r in c ip le s o f th e P r e s id e n t’s p ro clam atio n r e l a ti v e u n in te rru p te d pro d uctio n ; in to

(2)

where e m p lo y ers f a i l e d

e f f e c t o r em ployees r e f u s e d to

award o f any b o a rd o f s e t t l e m e n t ;

governm ent b o a r d s .

a c c e p t o r a b i d e by a n

and (3)

n e ce ssa ry to d e te rm in e q u e stio n s o f

to p u t

where i t

became

j u r i s d i c t i o n as betw een

T h e N a t i o n a l W ar L a b o r B o a r d w a s n o t

empowered t o h e a r a p p e a l s f r o m t h e d e c i s i o n o f " r e g u l a r l y c o n s t i t u t e d b o a rd s o f a p p e a l, n o r from any o t h e r b o a rd to re v is e fin d in g s o f f a c t . ”

13 G o r d o n S . W a t k i n s , o p . c i t :., p p . 1 6 5 - 6 6 .

to

59

I n s p i t e o f t h e e x i s t e n c e of t h e w ar em ergency, th e attem p t to

s e t up m a c h in e ry ,

adjustm ent o f i n d u s t r ia l

"by t h e g o v e r n m e n t , f o r t h e

c o n t r o v e r s i e s , more s t r i k e s

o c cu rred during th e w ar p e rio d

than d u r in g any p r e v io u s

s im ila r p e rio d i n th e h is to r y of th e U nited S ta te s . th e

and

Most o f

s t r i k e s t o o k p l a c e i n i n d u s t r i e s n o t c o v e r e d by a d j u s t ­

ment a g e n c ie s w h ile o t h e r s to o k p la c e b e f o r e t h e a g e n c ie s began e f f e c tiv e ly to

fu n ctio n .

A number o f s t r i k e s ,

o c cu rred in c o n n e c tio n w ith i n d u s t r ie s boards.

Some o f t h e s t r i k e s ,

co vered by a d ju s tm e n t

h o w e v e r, w ere m e r e ly m eans o f

in fo rm in g th e given board t h a t

im m e d ia te a c t i o n was n e c e s s a r y .

The b o a r d s w e r e so o v e r w o r k e d a n d w e r e s o f a r settlem en t of d isp u te s re f e r r e d to

them t h a t

v elo p ed o f g iv in g a t t e n t i o n only to th o s e strik es th is

e x iste d .

how ever,

Labor u n io n s began t o

b ehind i n t h e a h a b it de­

c a s e s w here a c t u a l

take

co g n izan ce o f

c ir c u m s ta n c e and c a l l e d s t r i k e s t o o b t a i n im m e d ia te

g o v e r n m e n t a l a t t e n t i o n . 14 W h a te v e r r e s u l t s w e re a c c o m p lis h e d by t h e N a t i o n a l W ar L a b o r B o a r d v/as d u e t o t h e i r c o n c i l i a t o r y

effo rts

and

t h e p r e s s u r e o f p u b l i c o p i n i o n s , w hich opposed s e r i o u s stoppages in p ro d u c tio n d u rin g th e w ar. a l and i n d u s t r y ,

14

h a d no l e g a l

Ludwig T e l l e r ,

0£ .

a u th o rity

The B o a r d s ,

n atio n ­

to compel e i t h e r

c i t . , p. 129.

60 em p lo y ers o r em ployees t o them , n o r t o

s u b m i t a n y ;m a t t e r o f d i s p u t e t o

compel e i t h e r

once th ey had in te r v e n e d .

sid e to accep t t h e i r d e c isio n The p r e s t i g e o f t h e B o a r d s e n a b l e d

them t o o b t a i n c o m p l ia n c e i n m o st o f t b e d i s p u t e s i n w h ic h t h e y i n t e r v e n e d d u r i n g t h e tim e t h e w ar was i n p r o g r e s s . A f t e r t h e a i m i s t i c 6 was s i g n e d , h o w e v e r , em ployees r e f u s e d t o in d u s try boards

em ployers and

c a r r y o u t t h e i r recom m endations.

The

soon c e a s e d to f u n c t i o n and i n A u g u st, 1919,

t h e N a t i o n a l W ar L a b o r B o a r d w a s f o r m a l l y d i s s o l v e d . 1 5 An o u t s t a n d i n g d e f e c t r e v e a l e d by g o v e r n m e n t a l t r e a t ­ m e n t o f l a b o r p r o b l e m s d u r i n g t h e F i r s t W o r l d War i s t h e fact th at

c e n traliza tio n

and g e n e r a l t r e a t m e n t o f l a b o r co n ­

t r o v e r s i e s was n e v e r r e a l l y a c h i e v e d .

T h e N a t i o n a l War L a b o r

B oard sh o u ld h a v e been one o f t h e f i r s t i n s t e a d o f one o f t h e l a s t to be fo rm ed . war t im e s , general

a ll

T h e r e i s a need., i n

f o r t h e im m ediate a p p o in tm e n t o f a b o a rd h a v in g

and n a t i o n a l

ag en cies

ag en cies o rg an ized

ju risd ic tio n

stem as s u b s i d i a r i e s .

It

from w hich a l l o t h e r i s im p o rtan t a lso

a g e n c i e s b e manned w i t h a d e q u a t e p e r s o n n e l

se ttle

th at

and f u n d s to

c o n tr o v e r s ie s im m ed iately upon t h e i r a r i s i n g .

15 T w e n t i e t h C e n t u r y F u n d , ojd. c i t . , p p . 8 6 - 8 7 ; F l o r e n c e P e t e r s o n , 0£ . c i t . , p . 1 0 S 3 ; U n s i g n e d a r t i c l e , r,War L a b o r B o a r d , " L a b o r i n f o r m a t i o n B u l l e t i n , 9 : 3 - 4 , F e b ru ary , 1942.

61 N a tio n a l D efense M ed iatio n B o ard .

A f t e r a number o f

i m p o r t a n t m a n a g e m e n t- la b o r d i s p u t e s i n 1940 and e a r l y 1 9 4 1 , P re s id e n t R o o sev elt,

by a n

e x e c u tiv e o r d e r o f M arch 1 9 , 1941,

c r e a t e d t h e N a tio n a l D e fen se M e d ia tio n Board w i t h i n t h e O f f i c e f o r E m e r g e n c y M a n a g e m e n t . 16 1. (a) T h e r e i s h e r e b y c r e a t e d i n t h e O f f i c e f o r E m ergency M a n ag em en t, a b o a r d t o b e known a s t h e N a t i o n ­ a l D e fen se M e d ia tio n Board ( h e r e i n a f t e r r e f e r r e d to a s th e B o ard .) The B oard s h a l l be composed o f e l e v e n m e m b e r s t o b e a p p o i n t e d b y t h e P r e s i d e n t , o f whom t h r e e s h a l l be d i s i n t e r e s t e d p e rs o n s r e p r e s e n ti n g t h e p u b l ic , f o u r s h a l l be r e p r e s e n t a t i v e s of em ployers, and f o u r s h a l l be r e p r e s e n t a t i v e s o f e m p l o y e e s . The P r e s i d e n t s h a l l d e s i g n a t e a s c h airm an o f t h e Board one o f t h e members r e p r e s e n t i n g t h e p u b l i c . 2 . W henever th e S e c r e t a r y o f L ab o r c e r t i f i e s to t h e Board t h a t any c o n tr o v e r s y o r d i s p u t e h a s a r i s e n b etw een any em ployer ( o r group o f em p lo y ers) and any em ployees ( o r o r g a n i z a t i o n o f em ployees) w hich t h r e a t e n s to b u r d e n o r o b s t r u c t t h e p r o d u c t i o n o r t r a n s p o r t a t i o n o f equipm ent o r m a te r ia ls e s s e n tia l to n a tio n a l defense (ex clu d in g any d i s p u t e coming w i t h i n t h e p u r v i e w o f t h e R a ilw a y L a b o r A c t a s amended) and w h ic h c a n n o t b e a d j u s t e d by t h e com m issioners o f c o n c i l i a t i o n o f t h e D epartm ent o f L a b o r, th e Board i s h e re b y a u th o r i z e d -

(a) To make every reasonable e f f o r t t o ad ju st and s e t t l e any such controversy or d isp u te by a s s i s t i n g the p a r t ie s th er eto to n e g o tia te agreements fo r th a t purpose; (b) To afford means fo r voluntary a r b itr a t io n w ith an agreement by the p a r t ie s th e r e to to abide by the d e c is io n arrived at upon such a r b it r a t io n , and, when requested by both p a r t i e s , to d e sig n a te a person or persons t o a ct as im p artial a r b itr a to r or a r b itr a t o r s o f such controversy or d is p u te . (c) To a s s i s t in e s t a b lis h in g ; when d esired by the

E x e c u t i v e O r d e r No. 1 8 1 6 , M a r c h 1 9 , 1 9 4 1 , F e d e r a l R e g i s t e r , 6 : 1 5 3 2 - 3 3 , M a rch 2 1 , 1 9 4 1 , amended b y E x e c u t i v e 6 r a e r 8731, A p r il 4 , 1941, F e d e ra l R e g is te r , 6:180 9, A p ril 8, 1941.

62

p a r t i e s , m ethods f o r r e s o l v i n g f u t u r e c o n t r o v e r s i e s o r d i s p u t e s betw een th e p a r t i e s ; and t o d e a l w ith m a t t e r s o f i n t e r e s t t o b o t h p a r t i e s w h i c h may t h e r e a f t e r a r i s e ; (d ) To i n v e s t i g a t e i s s u e s b e t w e e n e m p l o y e r s a n d e m p lo y e e s, and p r a c t i c e s and a c t i v i t i e s t h e r e o f , w i t h re s p e c t to such c o n tro v ersy or d is p u te ; conduct h e a rin g s , t a k e t e s t i m o n y , make f i n d i n g s o f f a c t , a n d f o r m u l a t e re c o m m e n d a tio n s f o r t h e s e t t l e m e n t o f any s u c h c o n t r o ­ v e r s y o r d i s p u t e ; a n d m ake p u b l i c s u c h f i n d i n g s a n d r e c o m m d n d h tio n s f o r t h e s e t t l e m e n t o f any Buch c o n t r o ­ v e r s y o r d i s p u t e ; a n d make p u b l i c s u c h f i n d i n g s and reco m m en d atio n s w henever i n th e judgm ent o f th e B oard t h e i n t e r e s t s o f i n d u s t r i a l p e a c e so r e q u i r e ; f e ) To r e q u e s t t h e N a t i o n a l L a b o r R e l a t i o n s B o a rd , i n any c o n t r o v e r s y o r d i s p u t e r e l a t i n g to t h e a p p r o p r i a t e u n i t o r a p p r o p r i a t e r e p r e s e n t a t i v e s t o be d e s ig n a te d f o r p u rp o se s o f c o l l e c t i v e b a r g a in in g , to e x p e d i t e a s m uch a s p o s s i b l e t h e d e t e r m i n a t i o n o f t h e a p p ro p ria te u n it o r ap p ro p ria te re p re s e n ta tiv e o f th e w orkers, 1^ i s h e r e b y d e c l a r e d t o b e t h e d u t y o f e m p l o y e r s a n d em ployees engaged i n p r o d u c t i o n o r t r a n s p o r t a t i o n o f m a te r ia ls e s s e n tia l to n a tio n a l d efense to e x e rt every p o s s ib le e f f o r t to s e t t l e a l l t h e i r d isp u te s w ith o u t any i n t e r r u p t i o n i n p r o d u c tio n o r t r a n s p o r t a t i o n . In th e i n t e r e s t o f n a tio n a l d e fe n se th e p a r t i e s sh o u ld g iv e to th e C o n c i l i a t i o n S e r v ic e o f th e D epartm ent of L abor and t o t h e O f f i c e o f P r o d u c t i o n M anagem ent: (a) n o t i c e i n w r i t i n g o f any d e s ir e d change i n e x i s t i n g a g re e m e n ts , w a g e s , o r w o rk in g c o n d i t i o n s ; (b) f u l l i n f o r m a t i o n a s t o a l l d e v e l o p m e n t s i n l a b o r d i s p u t e s ; a n d ( c) s u c h s u f f i c i e n t advance n o tic e o f any th re a te n e d i n t e r r u p ­ tio n s to co n tin u o u s p ro d u c tio n as w ill p erm it e x p lo ra ­ t i o n o f a l l avenues o f p o s s i b l e s e t tl e m e n t o f such c o n t r o v e r s i e s so a s t o a v o id s t r i k e s , s t o p p a g e s , o r l o o k o u t s . 17 The p r e s t i g e

and e f f e c t i v e n e s s o f t h e

N atio n al D efense

M e d i a t i o n B o a rd w e re d r a s t i c a l l y m i n i m i z e d when r e p r e s e n t a ­ t i v e s o f t h e C ongress f o r I n d u s t r i a l O rg a n iz a tio n re s ig n e d t h e i r m em b ersh ip o n t h e B o a rd and m o st o f t h e C . I . O . u n i o n s

17

E s t a b l i s h m e n t o f th e N a tio n a l D efense M e d iatio n B o a r d ,” F e d e r a l R e g i s t e r , 6 :1 5 3 2 - 3 3 , M arch 2 1 , 1 9 4 1 .

65 w ithdrew t h e i r o a ses fo llo w in g t h e B oard’ s 9-2 a d v erse r u l ­ i n g i n t h e Un i t e d M i n e W o r k e r s " c a p t i v e " m i n e - c l o s e d - s h o p d isp u te la te

i n November o f 1 9 4 1 . 18

T h is , to g e th e r w ith th e

added n e c e s s i t y f o r u n i n t e r r u p t e d p r o d u c tio n f o llo w in g th e o u tb r e a k o f w ar on December 7, 1941, December 1 7 , 1 9 4 1 , t o

cau sed th e P r e s i d e n t on

summon a c o n f e r e n c e o f e m p l o y e r ,

em ployee, and governm ent r e p r e s e n t a t i v e s t o and m eans f o r in d u strie s.

e lim in a tin g

s t r i k e s and l o c k o u t s i n d e f e n s e

T h i s g ro u p u n a n im o u s ly recommended t o t h e

P resid en t th a t:

(1)

th ere

s h a l l b e no s t r i k e s o r l o c k o u t s

f o r th e d u r a t i o n o f t h e war em ergency; p u tes

f o r m u la te ways

s h a l l be s e t t l e d

(2 )

by p e a c e f u l m e a n s ;

a ll lab o r d is­ a n d (5 )

a N atio n al

War L a b o r B o a r d s h a l l b e e s t a b l i s h e d f o r t h e p e a c e f u l a d j u s t m ent o f such d i s p u t e s .

1Q

P r e s e n t N a t i o n a l War L a b o r B o a r d . P r e s i d e n t R o o s e v e lt, by e x e c u tiv e o r d e r ,

On J a n u a r y 1 2 , 1 9 4 2 , p ro v id ed f o r th e

e s t a b l i s h m e n t o f t h e p r e s e n t N a t i o n a l War L a b o r B o a r d * 20 The p r o v i s i o n s o f t h e o r d e r a r e : 1. T h e r e i s h e r e b y c r e a t e d i n t h e O f f i c e f o r Emer­ g e n c y M a n a g e m e n t a N a t i o n a l W ar L a b o r B o a r d , h e r e i n ­ a f t e r r e f e r r e d to as th e Board. The B o a r d s h a l l b e composed o f t w e lv e s p e c i a l c o m m is s io n e rs to be a p p o i n t e d

18

U n sig n e d a r t i c l e , " C a p tiv e -C o a l-M in e s t r i k e and S e t t l e m e n t t w M o n th ly L a b o r R eview , 5 4 : 9 4 - 9 7 , J a n u a r y , 1 9 4 2 . 19 U n s i g n e d a r t i c l e , " N a t i o n a l War L a b o r B o a r d E s t a b l i s h e d , " _M o n t h l y L a b o r R e v i e w , 5 4 : 4 2 7 - 2 8 , F e b r u a r y , 1 9 4 2 . E x ec u tiv e O rder 9017, Ja n u ary 12, 1942.

64 by th e P r e s i d e n t . P o u r o f t h e members s h a l l b e r e p r e ­ s e n ta tiv e o f th 6 p u b lic ; fo u r s h a ll be r e p r e s e n ta tiv e o f the em ployees; and f o u r s h a l l b e rep re se n ta tiv e o f the em ployers. . . 2• T h is O rd e r d o e s not a p p ly to la b o r d is p u te s fo r w hich p r o c e d u r e s f o r a d ju s tm e n t o r s e t t l e m e n t a r e o t h e r ­ w ise p ro v id ed u n t i l th o se p ro c e d u re s have b een ex h au ste d . 3. The p r o c e d u r e s f o r a d j u s t i n g an d s e t t l i n g l a b o r d i s p u t e s w h ich m ig h t i n t e r r u p t work w h ic h c o n t r i b u t e s t o t h e e f f e c t i v e p r o s e c u t i o n o f t h e w a r s h a l l be a s fo llo w s: (a) t h e p a r t i e s sh & ll f i r s t r e s o r t t o d i r e c t n e g o tia tio n s o r to the p ro c e d u re s p ro v id ed i n c o lle c ­ t i v e b a rg a in in g ag reem en ts, (b) I f n o t s e t t l e d i n t h i s m anner, th e C om m issioner o f C o n c i l i a t i o n o f t h e D e p a r t­ ment o f L ab o r s h a l l be n o t i f i e d i f th e y h av e n o t a l r e a d y in terv en ed in th e d isp u te . (c) I f n o t p r o m p tly s e t t l e d by c o n c i l i a t i o n , th e S e c r e t a r y o f L a b o r s h a l l c e r t i f y th e d is p u te to th e B oard, p ro v id e d , how ever, t h a t th e B oard i n i t s d i s c r e t i o n a f t e r c o n s u l t a t i o n w ith t h e S e c r e t a r y o f L a b o r may t a k e j u r i s d i c t i o n o f t h e d i s p u t e o n i t s own m o t i o n . A fte r i t ta k e s ju r is d ic tio n , th e B o a rd s h a l l f i n a l l y d e t e r m i n e t h e d i s p u t e and f o r t h i s p u r p o s e may u s e m e d i a t i o n , v o l u n t a r y a r b i t r a t i o n , o r a r b i t r a t i o n u n d e r r u l e s e s t a b l i s h e d by t h e B o a r d .

4. T h e B o a r d s h a l l h a v e p o w e r t o p r o m u l g a t e r u l e s and r e g u l a t i o n s a p p r o p r i a t e f o r t h e p e rfo rm a n c e o f i t s d u tie s. 5. . . . The B o a rd s h a l l a v a i l i t s e l f , i n so f a r a s p r a c t i c a b l e , o f t h e s e r v i c e s and f a c i l i t i e s o f t h e O f f i c e o f 3©nergency M a n a g e m e n t a n d o t h e r d e p a r t m e n t s and a g e n c ie s o f t h e g o v ern m en t. 6. Upon t h e a p p o i n t m e n t o f t h e B o a r d and t h e d e s i g n a t io n o f i t s chairm an, th e N a tio n a l D efense M e d i a t i o n B o a rd e s t a b l i s h e d b y E x e c u t i v e O r d e r No. 8016 o f M a r c h 19, 1941, s h a l l c e a s e t o exist.21

SI E x e c u t i v e O r d e r 9017, ffE s t a b l i s h m e n t o f t h e N a t i o n a l W ar L a b o r B o a r d , n F e d e r a l R e g i s t e r , 7:237, J a n u a r y 14, 194S.

65 N othing i n th e

e x ec u tiv e o rd e r c r e a tin g th e N atio n al

War L a b o r B o a r d w a s i n t e n d e d a s s u p e r s e d i n g a n y o f t h e p r o ­ v is i o n s o f t h e N a tio n a l L abor R e la tio n s A ct, A c t, th e F a i r L abor S ta n d a rd s A ct,

R ailw ay L ab o r

and t h e P u b l i c C o n t r a c t s

A ct. The new B o ard assu m ed a l l d u t i e s w i t h r e s p e c t t o c a s e s w hich had b e e n c e r t i f i e d

to th e p re v io u s ly e x is te n t

N a tio n a l D efense M e d iatio n B oard. ex iste n ce ,

I f t h e f i r s t w eek o f

t h e d o c k e t o f t h e N a t i o n a l War L a b o r B o a r d c o n ­

siste d of th irty -se v en cases, o v e r from t h e p e n d in g f i l e

tw e n ty o f w hich w ere c a r r i e d

o f th e d e fu n c t N a tio n a l D efense

M e d i a t i o n B o a r d . 22 At i t s

f i r s t m eetin g ,

t h e Board s e t

fo rth

the p o lic y

by w h ic h t h e i r f u t u r e a c t i v i t i e s would b e g u i d e d , n am ely: i t s members w ould n o t

engage i n

w ould d e v o te t h e i r tim e to

th e f i n a l d e te rm in a tio n o f th o se

d i s p u t e s v fo ich h a v e n o t b e e n tio n o r m ed iation .

s e t t l e d by v o l u n t a r y

A few d a y s l a t e r ,

t w e n t y - f o u r a s s o c i a t e m em bers, o f m anagem ent, l a b o r , In a d d itio n th e re to ,

c o n c ilia tio n a c tiv itie s but

e ig h t

th e P re s id e n t ap p o in ted each r e p r e s e n t a t i v e

and t h e p u b l i c , to

serve

as m e d ia to rs.

t h e B oard was a u t h o r i z e d to

s p e c i a l m e d ia to rs o r ex am in ers,

a rb itra ­

ap p o in t

in s id e o r o u ts id e th e govern-

22 U nsigned a r t i c l e ,

B u s i n e s s W eek, J a n u a r y 2 4 , 1 9 4 2 .

66 m ent s e r v i c e f o r any p a r t i c u l a r c a s e . I f t h e m e d ia to r i s u n a b le to e i t h e r o r both p a r t i e s v e rsy to fact

a rb itratio n ,

se ttle

are u n w illin g to

a d i s p u t e and

subm it th e

t h e m e d i a t o r may s u b m i t f i n d i n g s o f

and re c o m m e n d a tio n s t o

t h e Board.

On t h e b a s i s o f

t h e s e f i n d i n g s , t h e B o a r d may r e n d e r t h e f i n a l

d ecisio n ,

i t may d e c i d e t o h a v e t h e p a r t i e s t o t h e d i s p u t e b e f o r e th e Board i t s e l f a fin al

decisio n .

co n tro ­

or

appear

i n form al h e a r in g s b e fo re re n d e rin g

CHAPTER V I SUMMARY A ® CONCLUSIONS D e m o c r a t i c p r i n c i p l e s m u st be t h e f o u n d a t i o n u p o n w h ic h r e s t s harm onious m an ag em en t-lab o r r e l a t i o n s .

I n a dem ocracy,

m anagem ent and l a b o r m u st a d j u s t t h e i r d i f f e r e n c e s by w h a t m ach in ery th e y th e m s e lv e s have c r e a t e d , o r th e y m ust u se w hat m a c h in e r y t h e g o v e rn m e n t h a s c r e a t e d f o r t h e i r u s e and b en efit

and w h ic h m a c h in e r y t h e g o v e rn m e n t h a s e n c o u r a g e d

them t o u s e .

D u rin g w a r e m e rg e n c ie s , t h e w atchw ord of

management and l a b o r th ere

is

sib ility

s h o u l d n o t be " b u s i n e s s a s u s u a l , "

for

a g r o w in g r e c o g n i t i o n t h a t m anagem ent owes a r e s p o n ­ to la b o r ,

l a b o r owes a r e s p o n s i b i l i t y

a n d b o t h owe a r e s p o n s i b i l i t y t o lo n g er a l i s in te reste d

in te r p a rte s, for

and c o n c e rn e d .

It

so ciety .

to m anagem ent,

G r i e v a n c e s a r e no

so ciety i t s e l f

is

s e e m s so e v i d e n t l y

d ire c tly ju st

re a s o n a b le t h a t d i s p u t a n t s should not be th e u ltim a te

an d judges

i n t h e i r own c a u s e a n d a d m i n i s t e r b y e c o n o m i c f o r c e t h e i r self-m ade

ju stic e,

war e f f o r t or i s governm ent i s d esired ,

e s p e c i a l l y where su ch p o l i c y im pedes t h e

d e trim e n tal to

so ciety .

not le g a lly h e lp le s s ,

for i t

u n d e r t h e w ar power c l a u s e o f t h e

a c tio n in d is re g a rd of

C e r ta in ly the co u ld ,

if

it

so

c o n s titu tio n take

th e w is h e s o f management and l a b o r .

The apparent " h elp lessn ess" or " refu sa l to act" on the part o f government i s freq u en tly a h e lp le s s n e s s o f c h o ic e .

68 It

re su lts

from a c h o ic e o f p o l i c y ,

and t h i s i n t u r n ,

o u r r e p r e s e n t a t i v e form o f governm ent, is

a ch o ice o f l e g i s l a t i v e p ro c e ss:

It

under

g e n e ra lly speaking, is

a "popular"

ch o ice.

F o r m a l p o l i c y - m a k i n g i n t u r n m ay h e a s u b j e c t o f

p o licy .

It

Of l a t e ,

t h e r e h a s been a clam or f o r t h e go vernm ent t o

is

s o m e tim e s g o o d p o l i c y n o t t o make p o l i c y . sta te

a l a b o r p o l i c y by w h i c h m a n a g e m e n t a n d l a b o r c o u l d b e g u i d e d in th e ir re la tio n s.^ I f one i s tra tiv e lead ers,

to

ju d g e by t h e p ro n o u n ce m en ts o f a d m in is ­

th ere is

a grow ing u n f r i e n d l i n e s s to

d i c t i o n a l l a b o r d i s p u t e s and t o

stoppages a ris in g

ju ris­

from

m o t i v e s deemed e x t r a - i n d u s t r i a l o r n a r r o w ly d o c t r i n a i r e . T here i s

no l o n g e r a d i s p o s i t i o n t o u p h o l d ” s o c i a l g a i n s ”

a t t h e expense o f war p r o d u c tio n ,

even i n

c a s e s w here

r e c a l c i t r a n c e o f m anagement h a s b e e n m ost m a r k e d .2 In f o r m u la tin g an i n d u s t r i a l p eace program , rem embered t h a t t h e to r e a liz e

its

strik e

dem ands.

i s l a b o r ’ s o n ly e f f e c t i v e weapon

T he e x i s t e n c e o f a s t r i k e

prim a f a c i e e v id e n ce t h a t l a b o r i s a t f a u l t . in stitu te

i t m ust be

p o l i c i e s w hich p r e c i p i t a t e

is

not

M a n a g e m e n t may

such d i s p u t e s .

Or,

1 B u sin ess, 2

F r e d DeArmond, ” W an ted : A L a b o r P o l i c y , ” T he N a t i o n ’ s 3 0 :5 0 -5 2 , 73-76, A p r il, 1942.

New R e p u b l i c , S p e c i a l S u p p l e m e n t o n D e m o c r a t i c D efense, P a r t I I , 104:240-42, F eb ru ary 17, 1941.

69 n e i t h e r d i s p u t a n t may h e a t f a u l t . approach i s thereupon,

first

to

rig h t

to

a s c e rta in a l l of the f a c ts

attem p t to a d ju s t

ra th e r th an a tta c h

The m ore e n l i g h t e n e d and, based

th e in d u s tr ia l r e la tio n s h ip

stig m a s and p e n a l t i e s .

To a b o l i s h t h e

s t r i k e w ould b e t o p e n a l i z e o n e o f t h e p a r t i e s

w i t h o u t a n y a t t e m p t made t o rem e d y t h e m a l a d j u s t m e n t w h ic h caused th e It

strife .3 is

an i n te r e s tin g f a c t to

number o f r e q u e s t s

fo r th e

note t h a t

the g r e a t e s t

serv ices of th e C o n c iliatio n

S e r v i c e o f t h e D e p a r t m e n t o f L a b o r cam e f r o m t h e l a b o r u n i o n s . I n r e c e n t m onths a b o u t s i x t y - f i v e p e r c e n t d f a l l r e q u e s t s came f r o m u n i o n s , t w e n t y - f i v e p e r c e n t f r o m e m p l o y e r s , a n d i n the. re m a in in g i n s t a n c e s t h e C o n c i l i a t i o n S e r v i c e i n t e r ­ v e n e d &n i t s

own m o t i o n o r a t t h e

The m e r i t o f t h e sy ste m o f

c a ll of p u b lic o f f i c i a l s . 4 com pulsory i n v e s t i g a t i o n

is th a t im p artial in v e stig a tio n o fte n b rin g s

about m utual

u n d e r s ta n d in g betw een t h e d i s p u t a n t s .

A rgum ents b a s e d on

ab stract p rin cip le s

d iffic u lties.

d isp u tes,

u su a lly ,

seldom s o lv e g r e a t

Labor

a r e .p r o b le m s o f b u s i n e s s r e l a t i o n s w hich

a r e c a p a b le o f a com prom ise.

By m e a n s o f p u b l i c a t i o n o f

3 D o n a l d s o n Brown,



.

c i t .,

p. 16.

4 T w en tieth C en tu ry Fund, o p . c i t . ,

p. 89.

70 fin d in g s,

com pulsory i n v e s t i g a t i o n

assists

em ployers i n

s e e in g th e em ployee’ s s id 6 o f t h e i r r e l a t i o n s h i p . The w e a k n e ss o f a s y s te m o f c o m p u ls o r y i n v e s t i g a t i o n i s not th a t th e underly in g p rin c ip le o f p u b lic in v e s tig a tio n i s unsound, b u t t h a t

th e r e lia n c e on p u b lic o p in io n fo r

e n fo rcem en t o f aw ards i s larg e

in effe ctiv e .

s u f f e r s in co n v en ien ces,

In a m a jo rity o f the or in d iffe ren t.

cases,

i n t e r e s t may b e a r o u s e d .

how ever, th e p u b lic i s

ap ath etic

C om pulsory i n v e s t i g a t i o n la w s r e q u i r e t h e

em ployees t o d e f e r t h e i r th ey

its

When t h e p u b l i c - a t -

strik es at

s t r a t e g i c t i m e s when

can u s e t h e i r power o f c o l l e c t i v e b a r g a i n in g m ost

effectiv ely .

D uring th e p ro c e e d in g s o f i n v e s t i g a t i o n

em ployers have th e

a d v a n t a g e o f h a v i n g a m p l e t i m e t o make

ad eq u ate p r e p a r a tio n of g u aran teein g

to m eet any s u s p e n s io n .

ju stic e

v isio n req u irin g in

to both s id e s ,

d e fin ite

For th e sake

th erefo re,

some p r o ­

te rm s th e norm al o p e r a t i o n o f

b u sin ess i s h ig h ly d e s ir a b le .

The C a n a d ia n Act p r o v i d e s

th a t during th e p erio d of in v e s tig a tio n c o n d itio n s of ment s h o u ld re m a in u n a l t e r e d . n o t go f a r

In t h i s

resp ect,

em ploy­

th e Act does

enough inasm uch a s e m p lo y ers a r e n o t p r e v e n t e d

fro m m aking p r e p a r a t i o n s f o r stra te g y of tim e,

w hile i t

alm o st e v e ry th in g to

in d u stria l w arfare.

means n o th in g to

The

a l o c k o u t , means

a strik e.

The a d v a n t a g e o f v o l u n t a r y a r b i t r a t i o n may b e c o n s i d e r e d f r o m two s t a n d p o i n t s :

th e b e n e fic ia l

aspect of a rb itra tio n

71 p r o c e e d i n g s and t h e h u m a n i t a r i a n e f f e c t o f a r b i t r a t i o n . a c tu a l p roceedings in r e c o r d e d by a l l

c o n n ectio n w ith a r b i t r a t i o n

responsible

g re a t h elp in th e

boards.

The

cases are

These re c o r d s a re o f

ad ju stm en t o f s im ila r cases w ith o u t t e s t s

o f s tr e n g th on every i s s u e .

The i n t e r p r e t a t i o n o f p r e c e d e n t s

i n i t s e l f makes f o r a g a i n i n

efficien cy .

Cases s e t t l e d

by

a r b i t r a t i o n may f o r m t h e f o u n d a t i o n f o r l a t e r l e g i l a t i o n , j u s t , a s j u d i c i a l p r e c e d e n t s may e s t a b l i s h law .

F urtherm ore,

a common r u l e o f

t h e im m e n s e e c o n o m y o f a r b i t r a t i o n may

r e a d i l y b e s e e n w h en t h e l o s s e s r e s u l t i n g f r o m i n d u s t r i a l strife to

are estim ated .

forsee,

but i t

is

A r b i t r a l a w a r d s a r e by no m eans e a s y s t i l l m ore d i f f i c u l t

to

p r o b a b l e outcom e o f an i n d u s t r i a l b a t t l e . choose a r b i t r a t i o n i n p re fe re n c e t o u n le s s th ey have reached th e

com pute t h e

D isp u tan ts w ill

s t r i k e s and l o c k o u ts

co nclusion th a t

a c o m b a t may

b r i n g g r e a t e r s p o i l s t h a n a com prom ise. The d i f f i c u l t i e s o f a r b i t r a t i o n , and c o m p l i c a t e d .

They f a l l

h o w e v e r , a r e m any

c h ie fly under th re e heads;

th e

q u e stio n o f th e i m p a r ti a li t y o f the

arb itrato rs;

th e

e f f i c i e n c y o f t h e m ethods of p ro c e d u re ;

a n d (3)

(1)

(2) th e

b a s is f o r th e aw ards. C om pulsory a r b i t r a t i o n th e

fin d s i t s

safeg u ard in g of th e p u b lic i n t e r e s t .

com pulsory a r b i t r a t i o n ,

strik es

ju s tific a tio n in Under th e

system o f

an d l o c k o u t s a r e made

c r im in a l a c t s a g a i n s t t h e p u b l i c on t h e t h e o r y t h a t th e y

72 im pose a n in c o n v e n ie n c e upon th e p u b l i c . m oreover, co n fo rt,

th at

c iv iliz a tio n

ex acts,

as th e p ric e

for great A com m unity

a s t r i c t o b s e rv a n c e o f law and o r d e r ,

c a n no m o r e t o l e r a t e

th e c r ip p lin g o f p ro d u c tio n and th e

in te rru p tio n of su p p lies of n e c e s s itie s life

The t h e o r y i s ,

and s a f e t y th a n i n j u r i e s done to

e sse n tia l to

its

in d iv id u al p ro p e rtie s .

T h e r e f o r e , w he n s t r i k e s o c c u r , t h e g o v e r n m e n t a s s u m e s t h e p o s i t i o n o f an i m p a r t i a l

a r b i t r a t o r and e n f o r c e s a ju d g m e n t,

s u b s titu tin g le g a l proceedings f o r i n d u s t r i a l w ars. C om pulsory a r b i t r a t i o n , human n a t u r e i s i

concerned,

so f a r a s t h e q u e s t i o n o f

encounters a l l th e

which confront voluntary a r b i t r a t io n .

d iffic u ltie s

The o p era tio n o f

compulsory a r b it r a t io n , moreover, c r e a te s s p e c i f i c problems d i s t i n c t l y i t s own.

Some of th e c h i e f problems o f th e

system a r e , to w it:

(1) th e q u estion o f wages; (2) hours;

(3)

un ion p re fe re n c e s ;

(4)

p a rtisa n rep re se n ta tio n ;

the

se lec tio n of a rb itra to rs ;

and (6)

the

(5 )

enforcem ent o f aw ards.

T h e s e p r o b l e m s a n d m an y o t h e r s a r e b o u n d t o b e e n ­ c o u n te re d upon t h e i n t r o d u c t i o n o f com pulsory a r b i t r a t i o n . The a d v i s a b i l i t y facto rs.

o f a d o p tin g t h e system

The c h i e f

i n d u s t r y and th e

d e p e n d s u p o n many

elem en ts a re th e c h a r a c t e r of t h e

s i z e of t h e w orking p o p u l a t i o n .

W here

i n d u s t r i a l d e v e lo p m e n t h a s r e a c h e d a h i g h l y com plex s t a g e , and where t h e w o r k i n g p o p u l a t i o n i s l a r g e ,

com pulsory

73 arb itratio n is

im p ra ctica b le .

The q u e s t i o n o f e f f i c i e n c y

i n a d m i n i s t r a t i o n w eighs h e a v i l y a g a i n s t i t s

a d o p tio n .

The a n a l y s i s o f t h e v a r i o u s t e c h n i q u e s w h ic h a r e u t i l i z e d by d e m o c ra tic

c o u n trie s in t h e i r attem p t to m in i­

m ize i n d u s t r i a l

lead s to

strife

optim um i n d u s t r i a l

co o p eratio n i s

in te r v e n tio n i s lim ite d to the p a r tie s . d esired

th e co n clusion th a t th e a t t a i n e d when g o v e rn m e n t

fa c ilita tin g

an agreem ent b etw een

A fo rce d se ttle m e n t does not achieve the

r e s u l t s and i s

a lw a y s som ewhat l e s s t h a n s a t i s f a c t o r y .

C o m p e t e n t a n d r e s p e c t e d g o v e r n m e n t a g e n c i e s c a n do m uch i n se ttlin g

th e

d i f f e r e n c e s w hich e x i s t b e tw ee n t h e d i s p u t a n t s ,

show ing e a c h t h e d i f f i c u l t i e s th e o th e r.

and p r o b l e m s w h ic h c o n f r o n t

T h is o b j e c t i v e i s r e a d i l y r e c o g n iz e d and so u g h t

by ev en t h o s e d e m o c r a c ie s w hich r e q u i r e

com pulsory a r b i t r a ­

tio n . Ho a p o l o g i e s n e e d n e c e s s a r i l y b e m a d e f o r t h e i n c o n ­ c lu s iv e n e s s o f c o n c lu sio n s h e re u n d e r, f o r th e shape o f th e fu tu re

is

n o t y e t adum brated e x c e p t u pon th e i m a g i n a t io n .

W ith t h e above r e s e r v a t i o n ,

th e fo llo w in g o bserva­

t i o n s a n d r e c o m m e n d a t i o n s a r e made f o r i n d u s t r i a l

peace

d u rin g war e m e rg en c ie s: 1.

L a b o r d i s p u t e s a r e b e s t a v e r t e d and s e t t l e d by

agreem ent o f th e p a r t i e s ,

and such a g re e m e n t s h o u l d b e

o p e r a t i v e t h r o u g h t h e m e d iu m o f w r i t t e n c o n t r a c t s .

74 2.

-Management a n d l a b o r s h o u l d r e c o g n i z e r i g h t s and

recip ro cal re s p o n s ib ilitie s t io n s as w ell 3.

a r i s i n g from e th ic a l

as law .

B ecause t h e r e i s alw ays a p o s s i b l e

agreem ent u n d e r a c o l l e c t i v e b a rg a in in g tract

should s p e c ify th e

suance th e r e o f 4.

m aintenance of t h e

5.

area of d is­

c o n tr a c t, th e con­

settlem e n t procedure,

and i n p u r ­

th e n e c e s s a r y m achinery sh o u ld be s e t u p .

The c o n t r a c t

tim e o f i t s

co n sid era­

should c o n ta in a p r o v is io n f o r th e

sta tu s

quo d u r i n g t h e p e r i o d f r o m t h e

term in a tio n u n til

its

renew al*

The c o l l e c t i v e con tract should provide a

" c o o lin g -o ff" period fo r i n v e s t i g a t i o n b efore a s t r ik e may be c a l l e d . 6.

Ju risd ic tio n a l

agreem ent o f th e r i v a l act,

d i s p u t e s s h o u l d b e e l i m i n a t e d by

p a rties,

as in o th er areas,

only to

and t h e governm ent sh o u ld enforce le g a l o r e q u itab le

rig h ts. 7.

C om pulsion t o

be p r i m a r i l y

so cial.

se ttle

Such le g a l

o c c a s i o n a l l y be r e q u i r e d to

in d u stria l

d is p u te s should

co m p u lsio n a s m igh t

e ffe c tu a te th e

c iv il process

should o p e r a te th ro u g h re c o g n iz e d c h an n e ls u n d e r p ro p e r c o n stitu tio n a l

safeguards.

BIBLIOGRAPHY

BIBLIOGRAPHY A.

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New Y o r k : H a r p e r New Y o r k : H a r p e r

Sc

B in g , A l e x a n d e r , M ., W artim e S t r i k e s and t h e i r A d ju s tm e n t, 1921. Commons, J o h n R. L eg islatio n . 131-136 p p .

a n d J o h n B. A n d r e w s , P r i n c i p l e s o f L a b o r New Y o r k : H a r p e r & B r o t h e r s , 1 9 2 ? .

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N i x o n , L a r r y , e d i t o r , W h a t W i l l H a p p e n a n d W h a t t o do When War Comes. New Y o r k : T h e G r e y s t o n e P r e s s , 13139, p . 106. S e l e k m a n , Ben M . , P o s t p o n i n g s t r i k e s . New Y o r k : R u s s e l l Sage F o u n d a tio n ', 1927. 48- £ 1 , 118-112 p p . T e l l e r , Ludw ig, L a b o r D i s p u t e s and C o l l e c t i v e B a r g a i n i n g . V ol. I . New Y o r k : ' B a k e r , V o o r h i s & C o m p a n y , 5 L c . , 1 9 4 0 . 129-130 pp. T w e n tie th C e n tu ry Fund, L ab o r and N a tio n a l D e f e n s e . Y ork: T w e n tie th C e n tu ry Fund, 1 941. 8 6 -liO pp.

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W i t t e , Edwin E . , T he g o v e r n m e n t i n L a b o r D i s p u t e s . New Y o r k : M c G r a w - H i l l B oo k C o m p a n y , I n c . , 1 9 3 2 . 238-244 p p . Y e l l e n , S a m u e l , A m e r i c a n L a b o r S t r u g g l e s ., & C o m p a n y , l9 $ 3 6 . B.

H a rc o u rt, B race

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" Am endment o f t h e I n d u s t r i a l D i s p u t e s I n v e s t i g a t i o n A c t i n C a n a d a ,” I n t e r n a t i o n a l L a b o u r R eview , 4 4 :3 1 0 , S e p te m b e r, 1941. i\ " A m e r i c a n L a b o r i n t h e W orld lla r P e r i o d 1 9 1 4 t o A p r i l , M onthly L ab o r R ev iew , 4 9 :7 8 5 -7 9 5 , O c to b e r, 1939.

1 9 17 ,"

B r e w s te r , Jam es H . , " C o n c i l i a t i o n and A r b i t r a t i o n o f I n d u s ­ t r i a l D i s p u t e s , " M i c h i g a n Law R e v i e w , 1 3 : 1 9 5 , J a n u a r y . 1915. Brown, D o n a l d s o n , " P a n e l D i s c u s s i o n : N a t i o n a l D e f e n s e and t h e E conom ic O u t l o o k , " N a t i o n a l A s s o c i a t i o n o f M a n u f a c t u r e r s , December 1 1 , 19 4 0 . B u s i n e s s Week, J a n u a r y 2 4 , 1 9 4 2 . " C a p t i v e - C o a l - M i n e S t r i k e and S e t t l e m e n t , " M o n th ly L a b o r R eview , 5 4 :9 4 -9 7 , J a n u a r y , 1942. " C o n c i l i a t i o n a n d A r b i t r a t i o n i n New Z e a l a n d , " N a t i o n a l I n d u s t r i a l C o n f e r e n c e B o a r d , R e s e a r c h R e p o r t No. 2 3 , 1919. r=46 pp.

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O l i v e r , E. L . , "The A r b i t r a t i o n o f L a b o r D i s p u t e s ," U n iv e r ­ s i t y o f P e n n s y l v a n i a Law' R e v i e w , 8 3 : 2 1 6 - 2 1 7 , D e c e m b e r ,

T S34. P e t e r s o n , F l o r e n c e , "A d ju stm e n t o f L a b o r D i s p u t e s ," M onthly L a b o r R e v ie w , 4 9 :1 0 3 2 - 1 0 3 4 , November, 1 9 3 9 . R o b e r t s , H a r o ld S . , " B r i t i s h L a b o r i n t h e P r e s e n t W ar," Labor In fo rm atio n B u l le t in , 9 :8 -1 1 , F ebruary, 1942. S c h o e n fe ld , M a rg a re t H . , "M achinery f o r S e t t l i n g L ab o r D is ­ p u te s," M o n th ly L a b o r R e v ie w , 4 9 :1 0 6 0 , Novem ber, 1 9 3 9 . Sim pson, S id n ey P . , " S p e c i f i c E nforcem ent o f A r b i t r a t i o n C o n t r a c t s , " U n i v e r s i t y o f P e n n s y l v a n i a L aw R e v i e w , 8 3 : 1 6 0 , D e c e m b e r “T " 9 3 1 ' . :

79 " S p e c ia l su p p lem en t: D em ocratic D e fe n se ," P a r t I I , R e p u b l i c , 1 0 4 : 2 4 0 - 2 4 2 , F e b r u a r y 1 7 , 1941*

New

S p r e c h e r , R o b e r t A . , " I n d u s t r i a l D i s p u t e s i n Time o f f a r and P e a c e , " I l l i n o i s Law R e v i e w , 3 6 : 2 9 0 - 3 0 9 , N o v e m b e r , 1 9 4 1 . W a lk e r, 1 . R o n a ld , "W artim e L a b o r P ro b le m s i n A u s t r a l i a , " I n t e r n a t i o n a l L ab o u r R e v ie w , 4 4 :4 1 0 - 4 1 1 , O c to b e r , 1941* "War C o n t r o l o f L a b o r . " N a t i o n a l A s s o c i a t i o n o f M a n u f a c t u r e r s , 1940. "War L a b o r B o a r d , " L a b o r I n f o r m a t i o n B u l l e t i n , $ : 3 - 4 , F eb ru ary , 1942. "W artim e C hanges i n L a b o r C o n d i t i o n s i n G r e a t B r i t a i n , " M onthly L abo r R eview , 5 0 :5 6 , J a n u a r y , 1940. "W artim e L a b o r P o l i c i e s i n A u s t r a l i a , " M o n th ly L a b o r R e v ie w , 5 4 : 6 2 5 , Biarch, 1 9 4 2 . C.

PARTS OF SERIES

D i g e s t o f S t a t e and F e d e r a l L a b o r L e g i s l a t i o n , D ep artm en t o f L a b o r , D i v i s i o n o f L a b o r S t a n d a r d s , B u i1 e t i n No. 4 8 . W ash in g to n :: D *C .: U n i t e d S t a t e s G o vern m en t P r i n t i n g O f f i c e , A ugust, 1941. Handbook o f F e d e r a l L a b o r L e g i s l a t i o n , D e p a rtm e n t o f L a b o r , D i v i s i o n o f L a b o r S t a n d a r d s , B u l l e t i n No. 3 9 , P a r t I I . W a sh in g to n , D .C .: U n i t e d S t a t e s G overnm ent P r i n t i n g O ffic e , 1941. J o i n t I n d u s t r i a l C o u n c i l s i n G r e a t B r i t a i n : R e p o r t o f Com­ m i t t e e o n R e l a t i o n s B etw een E m ployers a n l S m p l o y e e s , U n ite d S p a te s D epartm ent o f L ab o r, B ureau o r L ab o r S t a t i s t i c s , B u l l e t i n No. 2 5 5 . W ashington, D .C .: U n ite d S t a t e s G overnm ent P r i n t i n g O f f i c e , J u l y , 1919. K o , T in g T s z , "G o v e rn m e n tal M ethods o f A d j u s t i n g L a b o r D i s ­ p u t e s , " S t u d i e s i n Hi s t o r y , E c o n o m ic s , and P u b l i c Law . New Y o r k : C o l u m b T a U n i v e r s i t y P r e s s , 1 9 2 6 . 165-106 pp. M alick , C lay P a c k e r, s i t y o f C olorado S o c ia l S cien ces, J u ly , 1939. pp.

L abor P o l i c y U nder D em ocracy. U n iv e r­ S t u d i e s , S e r i e s C. S tu d ie s in th e V o l . 1 , No. 1 . B o u ld er, C olorado, 17-18, 64, 81.

80 R a ilw a y l a b o r , A t t o r n e y G e n e r a l i C om m ittee on A d m i n i s t r a t i v e P r o c e d u r e , M o n o g r a p h No. 1 7 . W ashington, D .C .: U n ite d S t a t e s G overnm ent P r i n t i n g O f f i c e , 1 9 4 0 . p. 7. S q u i r e s , B enjam in M ., " O p e r a tio n o f t h e I n d u s t r i a l D i s p u te s In v e s tig a tio n Act in Canada. U n ite d S t a t e s D epartm ent o f L a b o r, B ureau oT ~ labor S t a t i s t i c s . W a s h i n g t o n , D #c . : U n ite d S t a t e s G overnm ent P r i n t i n g O f f i c e , 2 3 3 :5 -1 4 8 ,* Ju ly , 1918. W a t k i n s , G o rd o n S . , L a b o r P r o b l e m s and L a b o r A d m i n i s t r a t i o n fr*16 U n i t e d S t a t e s . U n i v e r s i t y o f I l l i n o i s S t u d i e s i n "tEe S o c i a l S c i e n c e s , V o l . 8 , N o . 4 . U rbana, I l l i n o i s : U n iv e rs ity o f I l l i n o i s , 1919. 157-58 pp. D.

NEWSPAPERS

F e d e r a l R e g i s t e r , M arch 2 1 , 1 9 4 1 ; A p r i l 8 , 1 9 4 1 ; J anuary 14, 1942.

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