By: Michael Zanni
On September 6, 2023, New York Governor Kathy Hochul signed Senate Bill 4982 and Assembly Bill 6604 into law prohibiting most employers from requiring employees to attend employer-sponsored meetings where the “primary purpose” is to communicate the employer’s opinions on political[1] or religious matters[2], including joining a labor organization.[3] These efforts, which took immediate effect, make New York the latest state to ban “captive audience meetings,” which are “anti-union meeting[s] held on company time, [where] worker attendance is mandatory, and [where] workers can be fired for refusing to attend.”[4] The new law amends New York Labor Law Section 201-d,[5] making it unlawful for employers to take adverse action against employees who refuse to attend “captive audience” meetings or listen to alternative communications.[6] Additionally, employers are required to post a notice at work locations notifying employees of their rights under Section 201-d.[7]
Despite the restrictions, the amended law still permits certain meetings and communications. First, employers are allowed to communicate information required by law and information that is necessary for employees to perform their job duties.[8] Second, institutions of higher education may meet/communicate with employees who are part of coursework, symposia, or academic programs at the institution.[9] Third, “casual conversations” between employers and non-supervisory employees about religious and/or political matters are permitted, so long as the employees are not required to participate in the discussion.[10] Fourth, religious entities and educational institutions that are exempt under Title VII of the Civil Rights Act of 1964 are allowed to engage in speech related to “religious matters” with employees who perform work connected with the activities undertaken by the entity or institution.[11]
This change comes after the release of the National Labor Relations Board’s (“NLRB”) General Counsel’s April 2022 memorandum, which outlined a proposal to bring before the NLRB asking they find employer captive audience meetings and other related mandatory meetings unlawful under the National Labor Relations Act (the “Act”).[12]
More than 70 years ago, the National Labor Relations Board held in Babcock & Wilcox Co., 77 NLRB 577 (1948), that employers are permitted to hold captive audience meetings to urge employees to reject union representation.[13] This has resulted in employers forcing employees to attend meetings, so long as they do not threaten, punish, or promise benefits to employees.[14] However, employers still wind up using express or implicit threats to discharge or discipline employees who assert their right to refrain from listening by failing to attend meetings, or leaving them early.[15] Captive audience meetings have for decades been used by employers taking part in election campaigns to communicate their message to employees.[16]
Though New York acted in response to the NLRB memo, the state law may be challenged by employers arguing that it unconstitutionally restricts their First Amendment free speech rights and that it is preempted by controlling federal law, primarily Section 8(c) of the Act.[17] As more states have passed similar legislation to New York’s, challenges have followed.[18] For example, the U.S. Chamber of Commerce is currently challenging Connecticut’s law, arguing it is preempted by Section 8(c) of the Act and violates the First and Fourteen Amendments.[19]
While New York, as a union-friendly state, may face their own battle later, they feel the Board under the Biden Administration has made clear it intends to follow a pro-labor agenda encouraging increased unionization.[20] New York employers subject to these laws need to consider whether they should make meeting attendance voluntary or, simply proceed accoriding to the Act.[21]
[1] “Political matters” is defined as “matters relating to elections for political office, political parties, legislation, regulation and the decision to join or support any political party or political, civic, community, fraternal or labor organization.” S. B. S4982, 2023-24 Leg. Sess. (N.Y. 2023); Assemb. B. A6604, 2023-24 Leg. Sess. (N.Y. 2023).
[2] “Religious matters” includes “matters relating to religious affiliation and practice and the decision to join or support any religious organization or association.” S. B. S4982; Assemb. B. A6604.
[3] See, e.g., Steven M. Swirsky et al., New York State Bans Workplace “Captive Audience” Meetings, The Nat’l L. Rev. (Nov. 17, 2023), https://www.natlawreview.com/article/new-york-state-bans-workplace-captive-audience-meetings.
[4] Elizabeth J. Masson, “Captive Audience” Meetings in Union Organizing Campaigns: Free Speech or Unfair Advantage?, 56 Hastings L.J. 169, 171 (2004). Captive audience meetings are considered a “union-busting tactic.” See Rebecca Gans, Out of Captivity: Preventing Captive Audience Meetings in the Age of National Labor Relations Board Flip-Flopping, 31 J.L. & Pol’y 164, 165-66 (2022). New York joined Connecticut, Maine, Minnesota, and Oregon as the only states currently prohibiting captive audience meetings. Simone R.D. Francis et al., New York Governor Signs Law Banning Mandatory ‘Captive Audience’ Meetings, Ogletree Deakins (Sept. 16, 2023), https://ogletree.com/insights-resources/blog-posts/new-york-governor-signs-law-banning-mandatory-captive-audience-meetings/.
[5] N.Y. Lab. Law § 201-d (McKinney 2023).
[6] Francis et al., supra note 4. Adverse actions can include refusing to hire, discharging, disciplining, discriminating against, or otherwise penalizing or threatening an employee. See id.
[7] Swirsky et al., supra note 3.
[8] S.B. S4982, 2023-24 Leg. Sess. (N.Y. 2023); Assemb. B. A6604, 2023-24 Leg. Sess. (N.Y. 2023). Employers are permitted to create a meeting/conversation requirement, but it may only be limited to the employer’s managerial and supervisory employees. S. B. S4982; Assemb. B. A6604.
[9] S. B. S4982; Assemb. B. A6604.
[10] S. B. S4982; Assemb. B. A6604.
[11] S. B. S4982; Assemb. B. A6604.
[12] See Roy R. Galewski & Taylor C. Ventre, NLRB General Counsel Aims to Drastically Change Employers’ Rights Related to “Captive Audience” and Other Mandatory Meetings About Unionization, Harris Beach (Apr. 8, 2022), https://www.harrisbeach.com/insights/nlrb-general-counsel-aims-to-drastically-change-employers-rights-related-to-captive-audience-and-other-mandatory-meetings-about-unionization/. Section 7 of the National Labor Relations Act “promises employees the right to engage in—and to refrain from engaging in—a wide range of protected activities at work.” Memorandum from Jennifer A. Abruzzo on The Right to Refrain from Captive Audience and other Mandatory Meetings 1 (Apr. 7, 2022) (on file with author).
[13] Babcock & Wilcox Co., 77 NLRB 577 (1948).
[14] See Jonathan J. Spitz et al., Legislation Banning ‘Captive Audience’ Meetings Enacted in Minnesota, Awaiting Enactment in New York, Jackson Lewis (June 16, 2023), https://www.jacksonlewis.com/insights/legislation-banning-captive-audience-meetings-enacted-minnesota-awaiting-enactment-new-york.
[15] Abruzzo, supra note 12, at 2.
[16] See Jonathan L. Israel, New Labor Day Labor Laws for New York, The Nat’l L. Rev. (Sept. 18, 2023), https://www.natlawreview.com/article/new-labor-day-labor-laws-new-york.
[17] See Francis et al., supra note 4. Section 8(c) of the Act states that “expression of views without threat of reprisal or force or promise of benefit” does not constitute evidence of an unfair labor practice. 29 U.S.C. § 158(c).
[18] See Swirsky et al., supra note 3. The U.S. Chamber of Commerce initiated litigation after Oregon passed its law in 2010 asserting federal preemption, but the litigation was dismissed based on lack of ripeness. Spitz et al., supra note 16. The Oregon law later survived a lawsuit by the NLRB in 2020, based on lack of standing. Id.
[19] Id.
[20] Id.
[21] Id.