CORNELL UNIVERSITY 329
Cornell University and Association of Cornell Em-
ployers—Libraries
Cornell University, Petitioner and Staff Association
of the Metropolitan District Office, School of In-
dustrial and Labor Relations, Cornell University
Cornell University, Petitioner and Association of
Cornell Employers—Libraries
Cornell University, Petitioner and Civil Service Em-
ployees Association, Inc.
Syracuse University, Petitioner and Service Em-
ployees International Union, Local 200,
AFL-CIO. Cases 3-RC-4768, 3-RM-440,
34RM-441, 3-RM-442, and 3-RM-433
June 12, 1970
DECISION, ORDER, AND DIRECTION OF
ELECTION
By MeMBers FANNING, MCCULLOCH, BROWN, AND
JENKINS
Upon petitions duly filed under Section 9(c) of
the National Labor Relations Act, as amended, a
consolidated hearing was held before Hearing Of-
ficer John W. Irving of the National Labor Rela-
tions Board.
Following the hearing and pursuant to Section
102.67 of the National Labor Relations Board
Rules and Regulations and Statements of
Procedures, Series 8, as amended, by direction of
the Regional Director for Region 3, these cases
Were transferred to the Board for decision. Briefs
were filed by the Employers, the Association of
Comell Employees—Libraries, Civil Service Em-
ployees Association, Inc., and Service Employees
International Union, AFL-CIO, in behalf of Service
Employees International Union, Local 200,
AFL-CIO." The Hearing Officer's rulings made at
the hearing are free from prejudicial error and are
hereby affirmed,
On the entire record in this case, the Board finds:
1. Cornell University and Syracuse University,
the Employers herein, have filed representation
Petitions seeking elections to determine the bar-
"With the Board's content the following partes submitted amici curse
Teoria ie oar aneron of recto: AFL-C1, Boon
sivenity, Colgate. University, Dowling Coleg, Fordham Universit
Haniton Clee, Lsel Just College, Maria Regina Colege, New York
Usivenity, Rochester Institute of Technology, St. John Fier College
[eit of Rochester, Wheaton College, Yate Unversity, NAACP Leg
ve and Educational Fund, ne
183 NLRB No. 41
gaining representatives of certain of their
nonacademic employees. Association of Cornell
Employees—Libraries (herein called ACE) has also
filed a petition seeking to represent a group of
library employees.
The threshold question is whether the Board has
or should assert jurisdiction over nonprofit colleges
and universities in view of the 1951 decision in the
Columbia University case In that case, the Board
decided that it would not effectuate the policies of
the Act “‘to assert its jurisdiction over a nonprofit,
‘educational institution where the activities involved
are noncommercial in nature and intimately con-
nected with charitable and educational activities of
the institution.
Al the petitioners urge the Board to overrule the
Columbia University case. Syracuse and Cornell
argue that the operations and activities of educa-
tional institutions as a class, and of Cornell and
Syracuse in particular, have an overwhelming im-
pact and effect on interstate commerce, that the
‘Operations of universities and colleges have increas-
ingly become matters of Federal interest, and that
this interest coupled with the failure of the States
adequately to recognize and legislate for labor rela-
tions affecting these institutions and their em-
ployees now justifies the Board in asserting jurisdic-
tion. In support of their contention as to the impact
of the operations of Syracuse and Cornell, as well
as of educational institutions as a class, upon in-
terstate commerce, the Employers have presented
extensive documentation of financial activities
which are set forth hereinafter.
‘Syracuse University
Syracuse University is the largest employer in the
city of Syracuse, New York. It has about 3,500
‘academic and nonacademic employees. The cur-
rent student population is 21,000, of whom 4,000
to 5,000 are from out-of-State, and 900 from out-
of-country. In addition to facilities in New York
State, Syracuse has facilities in South America,
Holland, Italy, and France.
"The purchasing department of the University
makes annual purchases approximating $8 million
of which more than $5 million originate outside the
State of New York. In addition, the University
“Technology, Cafornia State Colleges, Federation of Independent inci
Fem ork Sats Labor Relations Board, Oregon Independent
Cole NStclaiom. Southern Methodut University, Texas Christian
Conc: Naren of Miami and Univers ofthe Poife. Alo the Nc
eaeaton af Sate Later Relations Agencies psd ressation a
ree aes requesting the Board o contin Ks exemption fr private
igs and universes
ecto Cohiba Unveraty 97 NLR
sata?|
330 DECISIONS OF NATIONAL LABOR RELATIONS BOARD
Book Store and Food Service annually make out-
of-State purchases valued at more than $2 million.
‘The University operates a theatre which annually
makes out-of State purchases valued at about
$300,000. The University realizes $500,000 an-
nally from the sale of tickets for football games,
‘and $250,000 from the sale of television and radio
rights
os hhas an annual operating budget of $66
nillion. It has an investment portfolio valued at $36
rillion, which includes stockholdings in industrial
firms, banks, and utilities. It also is the sole
stockholder in a country club whose employees are
represented by a union certified by the Board.
Further, it has real estate investments outside New
York State valued at $750,000.
Finally, Syracuse is a party to numerous spon-
sored research contracts with such Federal agencies
as the Department of Defense, National Aeronau-
tics and Space Administration, Institute of Health,
and Department of Labor and such private spon
sors as the Ford and Camegie foundations. The an-
‘nual value of these research contracts is in excess
of $13 million.
Cornell University
Cornell University is the largest employer i
Tompkins County, New York. It has ae
8,000 employees in New York State, of whom
2,700 are academic and 5,700 nonacademic. Cor.
nell presently has an enrolled student body exceed-
ing 14,000. Fifty percent of these students are from
guteide the State of New York. There ates in
excess of 1,100 students from 87 foreign counts:
ae at the Carrere tere e
University has offices in i
sachusets, llinos, Florida, and Pennsygia
‘operates an observatory in Puerto Rico,
During 1968-69, the University’s publishing de-
Partment purchased goods valued at $16-400¢0s,
Of this sum, $10,750,000 represented purcharse of
‘ional ising, and local and re-
retin $38,000 from national sd.
tases,
‘haere
pret 426-427,
Cornell's annual expenditures amount to
$142,300,000. Its current assets are valued at
$282,500,000. Included is an investment portfolio
of over $250 million which consists, inter alia, of in-
vestments in industrial concerns, banks, insurance
‘companies, and public utilities.
During 1968-69, Cornell had research contracts
amounting to $26,600,000 sponsored by various
agencies of the Federal Government, including Na-
tional Science Foundation, Public Health Service,
Atomic Energy Commission, Department of
Defense, and National Aeronautics and Space Ad-
ministration. In addition, the University received $6
million for research projects sponsored by such
foundations as Ford, Carnegie, and Rockefeller.
Discussion
Section 2(2) of the Act defines an “employer” as
follows:
+++ any person acting as an agent of an em-
ployer, directly or indirectly, but shall not in-
clude the United States or any wholly owned
Government corporation, or any Federal
Reserve Bank, or any State or political subdivi
sion thereof, or any corporation or association
operating a hospital, if no part of the net
earings inures to the benefit of any private
shareholder or individual . . . .
Although Section 2(2) specifically excludes non-
Profit hospitals from the Act's coverage, it contains
‘no such exclusion of private, nonprofit educational
institutions. In the Columbia University case, the
reviewed the then recently enacted Taft-
Hartley amendments to the National Labor Rela-
tions Act and concluded that
«+. the activities of Columbia University affect
commerce sufficiently to satisfy the require-
ments of the statute and the standards
established by the Board for the normal exer-
‘cise of its jurisdiction... .*
However, the Board, as a discretionary matter,
ied to assert such jurisdiction because of state-
‘ments in the House Conference Report? which
fiimed to indicate approval of what the report be-
leved to have been the Board’s pre-1947 practice
< — in the exercise of its discretion to assert
lrisdiction over certain nonprofit organizations
The Board concluded: e :
. Under all the circumstances, we do not be-
lieve that it would effectuate the policies of the
Act for the Board to assert its jurisdiction ovet
# nonprofit, educational institution where theCORNELL UNIVERSITY 331
activities involved are noncommercial in na-
ture and intimately connected with the charita-
ble purposes and educational activities of the
institution.
It should be noted that, although the House Con-
ference Report referred to the Board's pre-1947
practice with respect to exercising jurisdiction over
nonprofit employers, the 1947 amendments them-
selves placed no curb on the Board’s discretionary
jurisdiction except as to nonprofit hospitals. The re-
Port did not say that, because the Board had de-
Cided before 1947 it would not effectuate the poli-
cies of the Act to assert jurisdiction over certain
employers, it must continue to refuse to assert such
jurisdiction indefinitely in the future despite change
of circumstances. This hardly seems inadvertent.
Congress was well aware that the Board’s discre-
tionary standards for asserting jurisdiction were not
fixed, but had been changed from time to time. The
very fact that Congress rejected the 1947 House
proposals for the specific exemption from the Act
of broad classes of charitable or nonprofit organiza-
tions seems to indicate that Congress was content
to leave to the Board’s informed discretion in the
future as it had in the past, whether and when to as-
Sert jurisdiction over nonprofit organizations whose
operations had a substantial impact upon interstate
commerce.
We adhere to the view that the Board has statu-
tory jurisdiction over nonprofit educational institu-
tions whose operations affect commerce. But we
shall no longer decline to assert jurisdiction over
such institutions as a class.
In the intervening two decades since Columbia
University was decided, the Board has declined to
assert jurisdiction over nonprofit universities if the
activity involved was noncommercial and intimately
Connected with the school’s educational purpose.’
However, an analysis of the cases reveals that the
dividing line separating purely commercial from
Roncommercial activity has not been easily
defined.*
Those who urge adherence to the Columbia
University doctrine? contend that the legislative his-
tory of the Taft-Hartley amendments establishes
$e2-€6. Laon Sonord Senior Univers, 152 NLRB 704; Universi
{Miami a6 NLRB 1448, Tre cours have wot decty passed onthe
Julkity ofthe Board's interpretation of Sec. 2(2) and ite legislative history.
Mowevr this gueston i reteed to i Offer Employees eration
Hoel IP. NLRB. 353 US. 313, where he Sepeme Court
{Rese the Boards refs io tert radicion over nonprt Mbot
‘rotas 4 ciam Although the Court ote language rom the 1947 Cov
SEIS Betor with apparent approval, tseverbrlem sated that “the
‘Sew hs tevertecognted sci #Bnket of eacision overall 08+
employe It as destined juradiction on 2 ad he basset
Sows educational, and eleemonyary employer” (ld. 318) See
Hate Employes Lael 253 6. NERD. 38 US. 99, where the
that Congress intended to exempt nonprofit educa-
tional institutions from the coverage of the Act
They further argue that Congress ratified its earlier
position by amen
menting on or altering the 1947 Conference Report
relative to exclusion.
It is true that the legislative history of the 1959
Landrum-Griffin Act is completely silent on the
matter of nonprofit employers. We are not per-
suaded, however, that congressional silence may be
construed as indicating continued congressional ap-
proval of either the 1947 legislative history or
Board reliance on it. The fact remains that Section
2(2) contains no express exemption for nonprofit
employers. More to the point is that in 1959 Con-
gress enacted Section 14(c) which for the first time
both authorized and set limits on the Board’s di
cretionary refusal to exercise jurisdiction.
Two years before the enactment of Section
14(c), the Supreme Court ruled in Guss v. Utah
Labor Relations Board'® that the States were
powerless to entertain cases which fell within the
NLRB’s statutory jurisdiction, even though the
Board had declined to assert such jurisdiction.
Thus, a “no-man’s land” was created where em-
ployers and employees were denied a Federal
forum for the resolution of labor disputes and yet
were unable to turn to the States for alternative
relief!" Ample evidence in the legislative history
reveals that Section 14(c) was the Congressional
response designed to eliminate the “no-man’s
land.""* Toward this end, Section 14(c)(1) states
that the Board in its discretion may “decline to
assert jurisdiction over any labor dispute involving
any class or category of employers, where, in the
opinion of the Board, the effect of such labor dis-
pute on commerce is not sufficiently substantial to
warrant the exercise of its jurisdiction. . . .” Con-
versely, it impliedly confirms the Board's authority
to expand its jurisdiction to any class of employers
whose operations substantially affect commerce.
Section 14(c)Q) further attempts to narrow the
“no-man’s land” gap by empowering the States
to exercise jurisdiction when the Board declines to
so assert.
Supreme Court ruled that t was not permissible forthe Board to decline ju:
fadicion over an industry which substantial affects commerce.
" Compare Woods Hole Oceanogrephe Inston, 143 NLRB S68, Mas:
suchas Insti of Technology (Lincoln Laboratory), 110 NURB 16
2d California Institue of Techrology, 102 NLRB 1802 (jusdition at!
serted, with Armor Research Foundation of Hints Insite of Technolo.
(5, 1OTNLRB 1082 Gursdiciondecined)
i omit cna bls of Assocition of Independent California Co
Sod Universities, and New York State Labor Relations Board
W359 US. 1 (1957).
ST Leg Mis 422 (1959).
"ug at 1130, 1084, 1582,