The opinion of the court was delivered by: ZAVATT
This is a petition by the Regional Director of the National Labor Relations Board, pursuant to Section 10(l) of the National Labor Relations Act (hereinafter referred to as 'N.L.R.A.'), 29 U.S.C. § 160(l), for a temporary injunction against the Respondent (hereinafter referred to as 'Local 27'), restraining it from picketing the premises of Star Corrugated Box Co. (hereinafter referred to as 'Star'), of Maspeth, Queens County, New York, and the premises of Pequot Manufacturing Corp. (hereinafter referred to as 'Pequot'), of Glendale, Queens County, New York, pending a final disposition by the Regional Labor Board of a charge, now pending before said Board, that the Respondent is engaging in acts and conduct in violation of Section 8(b)(7)(a) of the N.L.R.A., 29 U.S.C. § 158(b)(7)(a).
For the past fifteen to twenty years, employees of Star and Pequot have been represented by two labor unions as their respective bargaining agents. The inside employees have been represented by Local 381, International Brotherhood of Pulp, Sulphite & Paper Mill Workers, AFL-CIO (hereinafter referred to as 'Local 381'). The outside employees, i.e., truck drivers and helpers have been represented by the Respondent, Local 27. Each of these Unions has negotiated contracts simultaneously not only with Star and Pequot but also with approximately twelve to fourteen other employers engaged in the same type of manufacturing within the New York Metropolitan Area. All contracts so negotiated by both Unions have always terminated on the same date. Contract negotiations by each Union have been conducted by and between the several employers, on the one hand, and the officers of each Union and a negotiating committee of the inside or outside employees of all of said employers, on the other hand. Such negotiations, therefore, have been joint. But separate contracts have been entered into between each such employer and each of said Unions.
The last contracts between all of said employers and each of said Unions expired August 31, 1962. Shortly before that date, each Union began negotiations with all of said employers looking toward new contracts. This petition relates only to the contract entered into between Local 381 and Star and Pequot. Numerous joint conferences were held with said employers by the President of Local 381, Mr. Cianciulli, its Vice President, Mr. Capese, and a twenty member employees' negotiating committee, five of whose members were Local 381 member employees of Star. Mr. Cianciulli had represented Local 381 in the negotiation of such contracts with said employers for over a period of approximately fifteen years. Star was represented by Henry F. Bayges, its Vice President, who similarly had so represented Star in negotiating such contracts with Local 381 over a period of many years.
Agreement was reached during the latter part of September 1962. The contract so negotiated resulted in increased and additional benefits to all of the inside employees of all of said employers. The conclusion of negotiations was marked by what witnesses have described as a little celebration on the part of all of those who had participated, including the members of the employee negotiating committee. One of these members, Anthony Legotti (now a leader of the dissident group of Star employees) joined in the festivities and admitted on the stand during the hearing on this petition that the contract so negotiated was a fair contract.
Nevertheless, at a meeting of Local 381 member employees held on Saturday, October 13, 1962, a vote was taken. It is not clear exactly on what question the vote was taken, i.e., whether to reject the contract and strike or merely to strike. In either event, the vote was 141 to 79, either against acceptance of the contract and in favor of a strike or merely in favor of a strike. Article XV of the Constitution of International Brotherhood (of which Local 381 is a member) provides, in part, as follows:
'SECTION 1. Any local having a grievance so serious that a strike appears to be necessary shall call a meeting, which has been well advertised, for the purpose of taking action on the same. It will require a two-thirds vote of all votes cast by secret ballot to carry a vote on striking. This vote to become operative must receive the endorsement of the International Executive Board. To declare a strike off, after having been legally voted upon and endorsed by the Executive Board, a local must receive the approval of the International President-Secretary.
'SEC. 2. The Executive Board shall, in every case, exhaust every honorable means to settle trouble, even to submitting the same to a board of arbitration, should it be deemed advisable, before endorsing a strike.
'SEC. 3. The President-Secretary, with the approval of the International Executive Board, shall have the power to order any local or all locals out on strike, when, in the opinion of the International Executive Board, such a move is necessary. But the President-Secretary shall first exhaust every effort in his power to settle the trouble, or impending trouble, even to submitting the same to arbitration, should the International Executive Board deem it advisable.'
Article I, Section 4, provides in part:
'In the International Brotherhood * * * alone is vested power to establish subordinate local unions, and members must obey its mandates at all times and under all circumstances.'
On the afternoon of Saturday, October 13, 1962, the President of the International Brotherhood sent a telegram to Bernard Cianiulli, the President of Local 381, to the effect that '* * * the Executive Board (of the International) will not sanction a strike by the members of Local #381 employed by the Star Corrugated Company * * *.'
On October 14, 1962, Local 381, by Bernard Cianciulli, executed several contracts with such employers, including Star and Pequot, all having identical terms theretofore agreed upon. On the following day several employees of Star began to picket the premises of Star. At some later date they also began to picket Pequot. The picketing of Pequot appears to have ceased the day before this Court signed an order to show cause with a temporary restraining order. The picketing of Star continued until that order was signed.
Local 27 appears to have come on the scene, in connection with this picketing, about two days after the picketing commenced. It made a demand upon Star for recognition of Local 27 as the bargaining agent of the inside employees, claiming that it had signed up about 100 of such Star employees. On October 15, 1962, approximately 97 inside employees of Star, acting through what they termed a 'Star Box Decertification Committee,' filed with the Regional Board a ...