Palagonia Baker Co.

National Labor Relations Board - Board Decisions

Jul 10, 2003

339 N.L.R.B. 515 (N.L.R.B. 2003)

PALAGONIA BAKERY CO. 515
Palagonia Bakery Company, Inc. and Local 348-S,
United Food & Commercial Workers Interna-
tional Union, AFL–CIO, CLC. Cases 29–CA–
23632, 29–CA–23666, 29–CA–23693, 29–CA–
23700, 29–CA–23746, 29–CA–23831, 29–CA–
23784, and 29–RC–9507
July 10, 2003
DECISION, DIRECTION, AND ORDER
BY CHAIRMAN BATTISTA AND MEMBERS LIEBMAN
AND ACOSTA
On November 2, 2001, Administrative Law Judge Ste-
ven Fish issued the attached decision. The Union filed
exceptions and a supporting brief.
The National Labor Relations Board has delegated its
authority to a three-member panel.
The Board has considered the decision and record in
light of the exceptions and brief and has decided to af-
firm the judge’s rulings, findings,1 and conclusions, and
to adopt the recommended Order.
DIRECTION
IT IS DIRECTED that the Regional Director for Region
29 shall, within 14 days from the date of this Decision
Direction and Order, open and count the ballots of Mario
Arroyave, Leonard Pitter, Frank Sigismondi, Alexander
Justi, and Gibbs Saintvil. The Regional Director shall
then serve on the parties a revised tally of ballots and
issue the appropriate certification.
ORDER
The National Labor Relations Board adopts the rec-
ommended Order of the administrative law judge and
orders that the Respondent, Palagonia Bakery Company,
Inc., Brooklyn, New York, its officers, agents, succes-
sors, and assigns, shall take the action set forth in the
Order.

Richard Bock, Esq. and Rachel Zweighaft, Esq., for the General
Counsel.
Richard Greenberg, Esq. (Jackson, Lewis, Schnitzler & Krup-
man), of New York, New York, for the Respondent.
Warren Mangan, Esq. (O’Connor & Mangan), of Long Island
City, New York, for the Charging Party.
DECISION
STATEMENT OF THE CASE
STEVEN FISH, Administrative Law Judge. Pursuant to vari-
ous charges filed by Local 348-S United Food & Commercial

1 In the absence of exceptions, we adopt the judge’s unfair labor
practice and election objection findings. We find no merit in the Un-
ion’s exceptions to the judge’s findings that Mario Arroyave, Leonard
Pitter, Frank Sigismondi, Alexander Justi, and Gibbs Saintvil are not
statutory supervisors.
Workers Union, AFL–CIO (the Union or Local 348), the Re-
gional Director for Region 29, issued a series of complaints,
culminating in a second further order consolidating cases, con-
solidated amended complaint and notice of hearing, on Novem-
ber 2, 2000,1 alleging that Palagonia Bakery Company, Inc.
(Respondent) violated Section 8(a)(1) and (3) of the Act, as
well as, ordering a consolidated hearing with Case 29–RC–
9507, which involved objections by both parties, as well as
seven determinative challenges. The trial with respect to the
allegations in the above-mentioned complaint, plus the issues in
the representation case was, held before me on February 28,
March 2, 8, and 9, 2001. During the trial, the General Counsel
amended the complaint to allege two additional violations of
the Act. Briefs have been filed2 and have been carefully con-
sidered based upon the entire record,3 including my observation
of the demeanor of the witnesses, I make the following
FINDINGS OF FACT
I. JURISDICTION AND LABOR ORGANIZATION
Respondent, a corporation, with its principal office and place
of business at 508 Junius Street, Brooklyn, New York, has been
engaged in the wholesale sale and distribution of baked goods.
During the past year, Respondent purchased and received at
its Brooklyn, New York facility goods and materials valued in
excess of $50,000 directly from suppliers located within the
State of New York, which entities, in turn, purchased the goods
and materials directly from suppliers located outside the State
of New York. Respondent, admits, and I so find that it has
been an employer engaged in commerce within the meaning of
Section 2(2), (6), and (7) of the Act.
It is also admitted and I so find that the Union is a labor or-
ganization within the meaning of Section 2(5) of the Act.
II. FACTS
A. The CA Cases
Respondent is a business owned and operated by the Palago-
nia family. Christopher Palagonia is the president who is es-
sentially in charge of the production functions of the bakery,
and is more or less a “working president.” Joseph Palagonia,
Christopher’s cousin, is the general manager, who oversees the
general operations of the Company, including administrative
and personnel functions. Two other Palagonia’s, Anthony and
Richard, are admitted supervisors of Respondent in charge of
various aspects of the operation. Another admitted supervisor
of Respondent is Signorino DiBua, who is in direct charge of
production from 10 a.m. to 8:30 p.m.
The record reflects that in July 1991, as a result of a petition
filed by the Union, an election was conducted amongst Re-
spondent’s employees. While the results demonstrated that a
1 All dates hereinafter are in 2000 unless otherwise indicated.
2 The General Counsel subsequent to the close of the trial, made a
motion to reopen the record to include two documents in the formal
papers which had been inadvertently left out. This motion which was
not opposed by any party is granted.
3 The General Counsel’s posttrial motion to correct the transcript,
which was not opposed by any party, is granted. [Certain errors in the
transcript have been noted and corrected.]
339 NLRB No. 74
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 516
majority of voters had selected the Union to represent them,
Respondent thereafter filed timely objections to the election,
alleging certain objectionable conduct by representatives of the
Union.
On September 29, 1991, following an administrative investi-
gation, the Regional Director issued a report, directing a hear-
ing on one of Respondent’s objections. Thereafter, a hearing
was held before a hearing officer of the Board concerning the
issues raise by the objections. The hearing officer issued his
decision on January 24, 1992, in which he discredited Respon-
dent’s witnesses, including Joseph and Christopher Palagonia
and recommended that the objections be dismissed and the
Union certified. No exceptions were filed to the hearing offi-
cer’s recommendation. Therefore, on February 18, 1992, the
Board overruled Respondent’s objections, and certified the
Union as the collective-bargaining representative for Respon-
dent’s employees.
The record does not reflect what transpired from 1992
through 2000, vis-à-vis the relationship between Respondent
and the Union, except that it does not appear that the parties
ever reached a collective-bargaining agreement. The record
suggests, although is not clear, that at some point thereafter, the
Union ceased its representation of Respondent’s employees,
since it started to organize again in 2000.
Meanwhile, on July 19, 1997, a different Union, Local 3 of
the Bakery and Confectionery Workers filed a petition to repre-
sent Respondent’s employees. Thereafter, on August 29, 1997,
an election was held, resulting in votes of 32 yes, 71 no, and 3
challenges. Local 3 filed objections to the election, which after
an investigation by the Region, resulted in a report recommend-
ing that the objections be dismissed and a certification of re-
sults be issued. No exceptions were filed to the Regional Di-
rector’s report, so the Board consequently issued a Certification
of Results on October 24, 1997.
In early June of 2000, porters Nelson Polanco and Andres
Veras contacted Jose Merced, an organizer for the Union, to
discuss representation by the Union of Respondent’s employ-
ees. Pursuant thereto, a meeting was held at Polanco’s home on
June 10, with Merced and several other employees. Polanco
and Veras signed authorization cards for the Union on that day,
and Merced gave them blank authorization cards to distribute to
Respondent’s employees. Thereafter, Veras and Polanco dis-
tributed authorization cards to employees during lunch hour,
and returned signed authorization cards to Merced. Subse-
quently, the employees regularly held meetings at Polanco’s
house, once or twice a week.
On June 19, the Union sent a telegram to Respondent assert-
ing that it represented a majority of employees, and demanding
recognition. On the same date, the Union filed a petition in
Case 29–RC–9507, and sent a fax to Respondent with a copy of
its demand for recognition.
Andres Gonzalez who was employed by Respondent as a
consultant, performing accounting functions, credibly testified
that he delivered the fax from the Union to Chris Palagonia in
the presence of Joseph Palagonia. After Gonzalez left the of-
fice, he overheard Chris Palagonia say to Joseph, “I can’t be-
lieve they’re doing this to me.”
A few minutes later, Gonzalez heard employee Ivan Diarrio
(known as Paiser) summoned to the office over the loudspeaker
into the office. Gonzalez heard both Joseph and Chris Palago-
nia ask Diarrio if he knew anything about forming a Union?
Diarrio denied that he knew anything about the Union. The
Palagonia’s persisted in asking him about it, and Diarrio con-
tinued to deny any knowledge of the Union. Other parts of the
conversation, Gonzalez could not hear.
Immediately after this conversation, the Palagonia’s called
Gonzalez into the office. They directed Gonzalez to bring them
the passport of employee Efraim Bolwar Espinoza, an em-
ployee to whom Gonzalez had previously provided assistance
in securing his job with Respondent. Chris Palagonia informed
Gonzalez that he believed that Espinoza was the person who
was organizing the Union. Later that day Gonzalez confronted
Diarrio, since based on the above facts, he suspected that Diar-
rio may have told the Palagonia’s that Espinoza was organiz-
ing. Gonzalez asked Diarrio if he had told the Palagonia’s that
Espinoza was the union organizer? Diarrio denied that he had
so informed them, but confirmed what Gonzalez himself had
overheard—that the Palagonia’s had questioned him about what
he knew about union organizing, but he had denied knowing
anything.
Also in late June, after employee Emilio Peralta had been
talked to about the Union by Polanco and attended a union
meeting at Polanco’s house, he was approached while working
by Supervisor Signorino DiBua. DiBua asked Peralta who had
formed the committee of the Union? Peralta replied that he did
not know who had formed it, but that he agreed with the Union
100 percent. The very next day, Peralta was confronted by
Chris Palagonia, who asked Peralta why he was against the
Company? Peralta made no response and walked away. About
a week later, Chris Palagonia again asked Peralta why he was
against the Company, since he was working for the Company?
Peralta made no response. Palagonia then informed Peralta that
if he voted against the Union, he would get “all the benefits that
you get from the company.” However, he added that if the
Union wins the Company wouldn’t be able to give Peralta all
the benefits that he would get if the Union doesn’t win.
On June 22, Chris Palagonia approached Veras near the large
oven. Palagonia began yelling at Veras that he was trying to
organize for the Union, and get the coworkers into the Union,
and called Veras an “unhappy motherfucker.” Veras admitted
that he was one of the organizers for the Union. Palagonia
responded that Veras was “not good for the company,” and “he
was really bad for the company.”
The next day, June 23, Chris Palagonia summoned Veras
into his office. Palagonia asked Veras what is it that he wanted
to stop organizing the workers, cash or a salary raise? Veras
declined the offer, stating that what he wanted was a contract
for all the workers. Palagonia suggested that Veras think about
it. Veras answered no, and the conversation ended.
The next day, June 24, Chris Palagonia was waiting for
Veras outside the premises as Veras arrived for work. Palago-
nia asked Veras if he was going to accept the offer that Palago-
nia had made to him the day before. Again Veras replied no,
and Palagonia said to think about it. Veras returned to work.
PALAGONIA BAKERY CO. 517
On June 23, a union meeting was scheduled at 7:30 p.m. at
the home of Polanco. Polanco picked up several employees,
including Veras in order to drive them to the meeting at his
home. He also drove another employee, Marina to her house.
While he was driving, Polanco noticed that a wine colored jeep
driven by Joseph Palagonia appeared to be following him.4
Polanco first noticed Palagonia when he was on Elderts Lane as
he was about to drop off Marina. After dropping off Marina,
Polanco passed Palagonia, and noticed that Palagonia made a
U-turn and hid behind another vehicle. Polanco then men-
tioned to Veras, “[L]ook, Andres, Joey is there.” Polanco con-
tinued driving and Palagonia continue to follow him. Polanco
then decided to drop off two employees at the train station, and
instructed them to go to his house by train. Palagonia stopped
while Polanco left the two people on the train. When Polanco
proceeded to drive into Fulton Street, Palagonia continued to
follow him. When Polanco reached Logan Street, he lost
Palagonia and did not see him any more.
Sometime during the month of June, Chris Palagonia ap-
proached employee Wilner Desgraves in the cafeteria. Palago-
nia told Desgraves that if he gave Respondent his help by vot-
ing for Respondent, Desgraves would receive a 50-cent raise.
Later on in June, Desgraves was spoken to in Chris Palagonia’s
office, in the presence of Gibbs Saintvil a “manager,” according
to Desgraves. Palagonia on this occasion told Desgraves that
he would receive a 50-cent raise, provided that he voted for
Respondent and if he convinced other Haitian employees to do
the same.
During the day immediately after Respondent received the
fax from the Union demanding recognition, Gonzalez noticed
numerous “supervisors” being called into the office, including
DiBua, Richard Palagonia, and Mario Arroyave. During the
week of June 19, Arroyave departed from the Palagonia’s of-
fice and asked Gonzalez for a spreadsheet of all porters, includ-
ing their names, identification numbers, and rates of pay and
days off. Arroyave took the list and walked back into the of-
fice. Gonzalez overheard Chris Palagonia say to Arroyave,
“[Y]ou have to give them the raise, but first tell them this.” At
that point Palagonia slammed the door so Gonzalez could not
hear the rest of Chris’ instructions to Arrvoyave.
Shortly thereafter, Arroyave returned the list to Gonzalez,
with handwritten notes from Chris Palagonia. The list directed
25-cent raises for a number of porters, but no raises for Polanco
or Veras, who were also porters. Gonzalez processed the raises
in Respondent’s computer, but gave raises of 50 cents to em-
ployees Sanchez, Torres, Bencosme, and Araujo, and 25-cent
raises to employees Britt and Charles, all starting with the pay-
roll period ending June 24.
On June 26, Chris Palagonia asked Gonzalez if he had given
some employees a 50-cent raise and some a 25-cent raise. Af-
ter checking in the computer, Gonzalez conceded that he had in
fact given some employees 50-cent and others 25-cent raise.
Palagonia admonished Gonzalez that he didn’t have the money
to be giving out such raises, and that Gonzalez had made an
error. Palagonia added that this was not his plan. It was sup-

4 Polanco did not see anyone else in the vehicle with Palagonia.
posed to have been 25 cents now and another 25 cents after the
election.
Respondent’s witnesses, Chris and Joseph Palagonia, testi-
fied that the raises were given to the employees pursuant to a
promise made by Chris Palagonia to the employees in Septem-
ber 1999, that if it was successful in obtaining a contract from
the New York City Board of Education, they would receive a
raise. Chris Palagonia further testified that he did not tell the
employees when or how much of a raise they would receive.
However, the record discloses that Respondent did not secure
the contract until August 14. Chris Palagonia in an attempt to
explain this discrepancy, explained that as early as March or
April he believed that Respondent would obtain the contract,
since it had passed a Board inspection and was given permis-
sion to bid.5 Nonetheless, Palagonia did not give the raises in
April. According to Chris Palagonia, Respondent did not give
the raises in April for financial reasons, but he was able to give
the raises in late June, because the new machines that Respon-
dent had bought were working better, and Respondent was
financially able to afford the raise in late June. No records
were introduced to substantiate Palagonia’s testimony in this
regard. Nor did Palagonia testify as to why he did not give
raises to Polanco or Veras, who were also, porters, and were
doing the same work as the employees who received raises.
Polanco, in early June, received permission directly from
Chris Palagonia to take a 5-week vacation starting on June 28,
and returning on August 4. Initially, Richie Palagonia told
Polanco that he could not go at that time, but then Chris
Palagonia came to Polanco and told him that there was no prob-
lem. Nothing was said to Polanco about whether there would
be a job for him when he returned only if there was work for
him.
However, prior to June 27, Polanco had been informed by a
coworker that if he took his vacation as scheduled, he would be
fired. Thus, although he accepted his vacation check on June
27 as scheduled, he decided not to go on vacation at that time.
On June 28, when Polanco appeared for work, Richie Palagonia
asked what he was doing there, he was supposed to be on vaca-
tion. Polanco replied that he could not go because he had fi-
nancial problems. Palagonia insisted that Polanco was on vaca-
tion and ordered him to punch out. Polanco refused. Palagonia
then went to get Chris Palagonia. Chris began yelling at Po-
lanco, called him a “motherfucker,” and accused Polanco of
being the one to bring in the Union.
Several days later, Chris Palagonia approached Polanco by
the foyer area of the plant. He placed his hand on Polanco’s
shoulder, and promised him a raise and a 2-week vacation, if
Polanco told the Union that the employees don’t want them
here anymore. Chris added that Respondent would give him
more than with the Union, and asked Polanco to tell the other
employees that the Union will not help the employees. Polanco
replied that Palagonia had promised him a raise and benefits the
5 The record reveals that on March 14, Respondent was notified that
the previous bar on its right to bid on Board of Education contracts was
terminated. On March 28, Respondent submitted a bid for a contract,
and on March 31, the Board notified Respondent that its bid has been
considered.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 518
last time a union was organizing, if he spoke to other employ-
ees on behalf of the Respondent, and no raise was forth-
coming.6
Palagonia responded that the Respondent didn’t have the
money to give a raise at that time. Chris Palagonia repeated his
promise of a raise and 2 weeks paid vacation, if Polanco spoke
to the workers and convinced them to abandon the Union.
Chris asked Polanco if he was going to do so, and he said yes
and they shook hands.
Sometime in July, Joseph Palagonia approached Polanco in
the production area. Palagonia told Polanco that he did not
want a Union, and asked Polanco why the employees wanted a
Union? Polanco replied that the employees wanted benefits
and medical insurance, and respect from Richie Palagonia.
Joseph Palagonia replied that he would be speaking to Richie
about respect for employees.
Chris Palagonia also told Veras and other employees at,
various times, that if they voted for the Union, Respondent
would close the Company and the employees would have to go
on strike.
The election was scheduled for July 28. Prior thereto, Re-
spondent held several preelection meetings of employees in
groups, to discuss the election. However, neither Polanco nor
Veras were invited to attend any of these meetings. Joseph
Palagonia conducted the meetings on behalf of Respondent. At
one of the meetings, attended by employee Emilio Peralta and
five other employees, Joseph Palagonia told the employees that
if they vote for the Union, they would lose their money, be-
cause the money the Union makes, comes from the employees.
Peralta spoke and asked why Respondent didn’t give the em-
ployees medical insurance, and other benefits offered by the
Union. After the meeting, Chris Palagonia, who was present at
the meeting spoke to Peralta at his machine. Palagonia asked
Peralta not to vote for the Union and added that if he was
against the Union, Respondent would give him all the benefits
that Respondent offers. Palagonia also told Peralta that if the
Union wins the election, the “company is going to fail,” and
that “we’re going to have problems.”
Desgraves also attended one of Respondent’s preelection
meetings. At this meeting both Joseph and Christopher spoke
and six employees plus Saintvil were present. Chris Palagonia
promised all the workers who were there a 50-cent raise, if they
voted for Respondent. Joseph Palagonia said that the Union
will not do anything “serious” for the employees, they will take
$35 from employees checks, and they are driving nice cars.
Palagonia added that “the door is open for you, if you vote for
the Union, you close the door.”
A week later, at the timecard, Richie Palagonia told Des-
graves to vote for Respondent and to convince all the Haitians
to vote for the Respondent.

6 Polanco was referring to July 1997, when Local 3 filed a petition to
represent Respondent’s employees. At that time, Chris Palagonia asked
him to talk to other employees and tell them that the union people were
“thieves,” and offered him a raise and benefits if he did so. Polanco
agreed, but never received the promised raise, although he had spoken
to employees as promised.
Veras, Polanco, and Desgraves wore union hats and shirts
prior to the July 28 election, and distributed prounion leaflets to
employees on the premises in the cafeteria or the lockerroom.
They were seen by various supervisors engaging in this con-
duct. On July 22, DiBua saw Veras distributing pamphlets in
the cafeteria. DiBua told Veras that he could not give out the
leaflets on company premises. Veras replied that he could do
so, because the law says that during his breaktime and lunch-
time, he can give out leaflets and talk to his coworkers. DiBua
told him that he could only give out the leaflets on the street.
On July 26, 2 days before the election, Desgraves handed out
flyers to employees during lunch hour in the cafeteria at12
noon. Desgraves handed one of the flyers to Chris Palagonia,
in the presence of Joseph Palagonia. Chris Palagonia spit on
the flyer.
The next day, July 27, the day before the election, Desgraves
was approached by DiBua at 11 a.m., and told to eat lunch at 11
a.m. that day. This was the first and only time that he was told
to eat lunch at 11 a.m. His normal lunch began at 12 noon,
wherein he would normally go to lunch with the other Haitian
employees, and would sit with them in a section of the cafete-
ria. On July 27, DiBua instructed Saintvil to eat with Des-
graves on that day. Saintvil, was a “supervisor” according to
Desgraves, and had been campaigning against the Union. The
next day, July 28, the day of the election, Desgraves was the
union observer. On July 29, the day after the election, and all
subsequent days, Desgraves was permitted to have his lunch at
the normal hour beginning at 12 noon.
On one of the days that Respondent conducted its campaign
meetings with employees, Richie Palagonia directed Polanco to
have lunch at 12 noon, instead of 12:30 p.m., his normal lunch
hour. Thus, Polanco could not have lunch with his normal
lunch companion. From that point on, until Polanco eventually
went on vacation, starting August 7, Polanco’s lunch hour con-
tinued to start at 12:30 p.m.
Palanco testified that after he began to organize for the Un-
ion, Richie Palagonia began to follow him everywhere. Ac-
cording to Polanco, Palagonia would follow him when he went
upstairs to change or if he wanted to talk to another employee.
Polanco also asserts that when he would take a break for lunch
or changed clothes, he would be followed and observed by
Chris, Richard, or Joe Palagonia.7
Veras also testified, without contradiction from Chris
Palagonia, that after he began to organize, Palagonia was con-
stantly “yelling at him.” Prior to Veras’ organizational activi-
ties, Chris Palagonia did not yell at him.
As related above, the election was held on July 28, which re-
sulted in determinative challenges, as well as objections filed
by both Respondent and the Union. While these matters were
pending, Respondent terminated both Veras and Polanco in
August and September respectively.8 On October 26, after the
issuance of the Regional Director’s report, 3 challenges were
opened, resulting still in an indeterminate election, and the
7 All three Palagonia’s denied supervising any employees closely at
any time.
8 The facts relating to these terminations will be detailed below.
PALAGONIA BAKERY CO. 519
instant hearing directed with respect to the remaining chal-
lenges and the objections.
After the election, Desgraves testified that Respondent
“abused” him, by assigning him to work in a hot oven, and then
immediately assigning him to go to the freezer. Prior to the
election, he had not been assigned to work on the oven, so
therefore had not been compelled to go to the freezer immedi-
ately after working on the oven.
Desgraves also testified, without refutation from Chris
Palagonia, that after the election, on several occasions, Chris
Palagonia yelled at him for punching in 10 or 15 minutes early,
accusing him of “stealing time.” According to Desgraves,
Palagonia had never yelled at him about this problem, prior to
the election. On one of these occasions, sometime in Novem-
ber, after yelling at Desgraves for allegedly “stealing time,”
Chris Palagonia called Desgraves a “slave” and a “fucking
piece of shit,” in front of several other employees.9
On August 24, at about 7:30 p.m., Veras was picking up gar-
bage from the floor near the oven, when he was approached by
employee Herman Cera, who asked for his home address.
While Cera and Veras were talking, Chris Palagonia came over
to the two workers. Chris spoke to Veras, but not Cera. And
asked, “[W]hat are you doing talking, you’re not working?”
Veras did not reply. At that point, Palagonia called Veras a
“motherfucker Dominican,” and added that he was not work-
ing. Again, Veras made no response, at which time, Palagonia
took the garbage can, which Veras was on his way to empty,
and threw it and a sweeper about 10 feet. Chris Palagonia then
told Veras that he was going to the office to look for a camera
to take a picture and walked away. Veras then picked up the
sweeper and the garbage and went to the yard to throw the gar-
bage out. As Veras was transferring the garbage from the small
can to a bigger container, in the yard, Chris Palagonia ap-
proached Veras and again called Veras a “motherfucker Do-
minican.” After Veras finished transferring the garbage, as he
was walking back from the yard to the plant, Palagonia once
more called Veras a “Dominican motherfucker.” At that point,
Veras asked Palagonia why he was calling Veras a “Domincan
motherfucker.” Palagonia responded yes and put his hand on
Veras’ chest.
Veras and Palagonia walked into the plant together and
stopped at the oven where Cera was working. Also present
were employees Rafael Dominguez and Rubian Hernandez in
addition to Cera. As they reached the oven, Palagonia ordered
Veras to go back to work. Veras did not reply. Palagonia
raised his voice and told Veras to go back to work, “or I will
send you home.”

9 My findings above with respect to the various statements made to
and actions taken by Respondent’s officials with respect to Respon-
dent’s employees is based on the mutually corroborative and credible
testimony of Peralta, Gonzalez, Desgraves, Veras, and Polanco. I note
that Peralta and Desgraves are current employees of Respondent, and
not discriminatees. Therefore, their testimony, where adverse to their
employers is considered more worthy of belief. Stanford Realty Asso-
ciates, 306 NLRB 1061, 1064 (1992); Molded Acoustical Products, 280
NLRB 1394, 1398 (1986). Moreover Gonzalez although no longer
employed by Respondent has nothing to gain by testifying against
Respondent in this proceeding.
At that point, Veras “lost it,” and began to curse at Palagonia
in English and in Spanish.10 Veras in English said, “[F]uck
you, fuck the bakery, you’re a motherfucker.” Veras then con-
tinued, “[T]he Union is coming soon, we’ll see. We’ll go to
court. I’ve got the Union.” Palagonia said, “[W]e’ll see, we’ll
see,” and then speaking to other employees who were present,
said, “[L]ook, look at this guy. Look what he’s doing, scream-
ing and hollering.”
Palagonia then walked away from Veras. Veras then pointed
his middle finger at Palagonia, while Palagonia’s back was
turned. Palagonia did not see this event, but it was apparently
reported to him by someone, possibly Supervisor Castiblanco,
who also allegedly related to Palagonia the Spanish words used
by Veras during the incident.
My findings set forth above concerning the events of August
24, are based on a compilation of the credited testimony of
Veras, Palagonia, employees Cera, Ramirez, Dominguez, and
Louis Gilberti, a supplier of Respondent who happened to be
present on that day. I note that the testimony of the employee
witnesses essentially confirm Palagonia’s testimony that Veras
cursed at him after he told Veras to return to work, and I have
so found. However, it is significant that none of these wit-
nesses heard the entire conversation, nor did they hear any con-
versation between Palagonia and Veras in the yard. In these
circumstances, I credit Veras’ version of the events preceding
his conduct of cursing at and giving the finger to Palagonia.11 I
also rely in part on the failure of Respondent to call as a wit-
ness, its supervisor, Jose Castiblanco, who was a witness to the
incident, and who allegedly reported to Palagonia on what he
had heard and seen. In such circumstances, I find it appropriate
to draw an adverse inference that his testimony with respect to
this incident would not have favorable to Respondent’s case.
United Parcel Co., 321 NLRB 300 fn. 1, 308–309 fn. 21
(1996); Ready Mix Concrete, 317 NLRB 1140, 1143 fn. 16
(1995); Basin Frozen Foods, 307 NLRB 1406, 1417 (1992).
Chris Palagonia further testified that he immediately reported
the incident to Joseph Palagonia on the phone. Joseph replied
that he would look into the next day. The next day, the Palago-
nia’s met and after again discussing the previous days events,
Joseph indicated to Chris that Veras should be fired and Chris
agreed. Chris denies that Vera’s union affiliation came up dur-
ing their conversation, but does recall Joseph saying that if
Veras was a union supporter, he’s probably going to file
charges. Thus, Chris asserts that he replied, “[I]f it happens, it
happens.”
Joseph Palagonia testified that on August 24, his cousin
Chris told him about the argument with Veras, and that after
being told three or four times to go back to work, Veras ex-
ploded, called Chris a “motherfucker” and gave him the finger.
Joseph alleges that he asked Chris if he did anything to provoke
10 Veras also called Palagonia a name in Spanish which translated
means “dummy.”
11 I credit in this regard the testimony of employees Dominguez and
Ramariez that Veras gave Palagonia the finger behind his back, so
Palagonia could not see it. These findings are contrary to the testimony
of Palagonia, who insisted that Veras gave him the finger directly into
his chest, and to Veras, who denied that he gave Palagonia the finger at
all.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 520
Veras and Chris said no. Joseph asked if there were any wit-
nesses, and Chris replied that there were three employees, plus
Supervisor Castiblanco. Joseph contends that he asked Chris
why he didn’t fire Veras on the spot. Chris allegedly replied
that “with all of this stuff with the union,” he didn’t want to
make waves. Joseph replied that he was going to find out
what’s going on and they would talk the next day. Joseph fur-
ther testified that he immediately called Castiblanco on the
phone, who allegedly confirmed what Chris had told Joseph.
Castiblanco also allegedly told Joseph that three employees
witnessed the incident. One of the employees, Rubian Rami-
rez, was there at the time, so Joseph contends that he asked
Castiblanco to put Ramirez on the phone. Joseph asserts that
Ramirez told him that Veras called Chris a “motherfucker” and
cursed at him in Spanish. Joseph then asked Castiblanco if
everyone knows that Veras called Chris a “motherfucker,” and
that Chris walked away. At that point, Joseph asserts that he
made up his mind that Veras must be fired. Joseph did not
speak to the other employee witnesses about the incident or to
Veras to get his version. According to Joseph, there was no
need to get Veras’ version, because he admitted that he cursed
at Chris and everyone in the bakery knew about it. When asked
if it might have made a difference, that as Veras testified
herein, that Chris cursed at Veras first, Joseph replied that he
was “almost positive” that his cousin wouldn’t do that.
On the day of the discharge, Joseph contends that after dis-
cussing the incident personally with Chris, Joseph said, “I think
we should let him go.” Chris agreed, although Joseph said that
Respondent would probably get charges. After checking with
Respondent’s attorney, Respondent decided to terminate Veras
on that day. While Chris is the cousin and president of the
Company and could and has fired people on his own, he gener-
ally relies on Joseph in regard to personnel decisions, who as
the general manager is entrusted with that authority.
Castiblanco, as noted although a supervisor of Respondent
was not called to testify in this proceeding, nor was any expla-
nation given for Respondent’s failure to call him as a witness.
Respondent did call several employees witnesses as detailed
above, namely Dominguez, Cera, and Ramirez. Respondent’s
attorney spoke to the employee on September 11, took affida-
vits from them, and obtained written assurances from the em-
ployees, which comply with the Johnnie’s Poultry, 196 NLRB
770 (1964), safeguards. However, on September 11, prior to
employees Cera and Dominguez being interviewed by Respon-
dent’s attorney, Chris Palagonia, told both of these employees
that they “had” to testify and talk to Respondent’s attorneys.
Moreover, on March 8, 2001, the day that these employees
testified at the instant trial, the employees met with Respon-
dent’s attorneys in a conference room located next door to the
hearing room. During that meeting the attorneys did not show
the employees or make reference to the documents that they
signed on September 11, 2000, which detailed the Johnnies
Poultry safeguards. They did show the employees their affida-
vits that they had given on September 11, and discussed the
testimony that they were about to give.
Respondent contended in its objections to the election, that
employee Desgraves, who was the Union’s observer at the
election, called Joseph Palagonia a “motherfucker” in the pres-
ence of the company observer, the Board agent, and the
Board’s interpreter. Desgraves was not terminated for this
alleged conduct. According to Joseph Palagonia, he chose not
to terminate Desgraves, even though Desgraves had called him
a “motherfucker” for several reasons. These reasons include
Desgraves was not on the payroll at the time, since the com-
ments were made at the election, they were not made in the
presence of other employees, other than the company observer,
and he was not refusing orders at the time. Thus, in those cir-
cumstances, Palagonia testified that he did not think it was fair
to fire Desgraves at that time.
Polanco, as noted above had received permission, without
qualification, to take his 5-week vacation starting in late June.
However, he canceled that request and as also detailed above,
after hearing the news that Polanco was not taking his vacation,
Chris Palagonia called Polanco a “motherfucker” and accused
him of bringing in the Union. Shortly after the July 28 election,
Polanco approached Joseph Palagonia, and asked to go on va-
cation on August 7 and to return on September 8. Palagonia
responded that Polanco could go, and when he returns, if there
is work, Respondent would give it to him. In this regard, Po-
lanco had been, employed by Respondent for 6 years and every
year, he would go on vacation for 6 weeks to Santo Domingo.
In each of those prior years, he never had any problems with
getting permission to go for 6 weeks, and was never told by any
official of Respondent that there would only be a job for him
when he returned if there was work available.
Subsequent to Polanco’s conversation with Palagonia, Re-
spondent received a letter dated August 2, from the Union’s
attorney, confirming an alleged oral understanding between
Polanco and Respondent that Palanco can be away from Re-
spondent from August 7 and to return on September 8.
Respondent’s attorney responded by letter, dated August 3.
This letter asserts that no oral understanding was reached with
regard to Polanco’s “extended leave.” It further asserts that
when extended leaves are taken, Respondent does not guarantee
their jobs. Thus, the letter continues, “consistent with the Bak-
ery’s longstanding practice, if Mr. Polanco’s job is filled by the
time he is ready to return to work on Friday, September 8,
2000, and no other suitable position is available, he will not be
returned to work at that time. His return to work would then be
contingent upon a suitable position becoming available.”
Notwithstanding this response, Polanco went on his vacation,
and returned to Respondent on Sunday, September 10. On that
date Polanco was informed by Joseph Palagonia that there was
no work available for him, and said that he was going to call
Polanco on Friday. Palagonia did not tell Polanco to call Re-
spondent to see if there was work available in the future.12
Respondent did not call Polanco on Friday as promised, or
on any other day. Thereafter Polanco never called Respondent
subsequent to September 10 to inquire about work opportuni-
ties.
On or about August 21, Respondent hired Osvaldo Garcia to
replace Polanco as a porter. According to both Joseph and
Richie Palagonia, Respondent needed a replacement for Po-

12 I credit Polanco over Joseph Palagonia’s contrary testimony in this
respect.
PALAGONIA BAKERY CO. 521
lanco, and Garcia who had been previously employed by Re-
spondent, had been making inquires about returning to work for
Respondent. Both Richard and Joseph Palagonia insist that
Respondent’s policy had always been that when an employee
extends his vacation past Respondent’s allowed time, they are
permitted to return to work, only if their job has not been
filled.13
In that regard, Respondent’s witnesses concede that this pol-
icy was never put in writing, but contend that employees are
told about it when they leave for extended vacations, just as
Polanco was when he left in August. However, neither Richard
nor Joseph Palagonia could dispute Polanco’s credited testi-
mony as detailed above, that he was never told about this policy
in any prior years.14 Indeed, Chris Palagonia did not deny Po-
lanco’s similar credited testimony that in May when he initially
asked to go on vacation starting in late June, Chris granted him
permission without any qualification and without indicating
that his job might not be available if he returned after 5 weeks.
Joseph Palagonia did not dispute Polanco’s testimony that in
past years, Respondent always permitted him to return to his
job after an extended 5–6-week vacation. Joseph Palagonia did
specifically recall in the past of two occasions when Respon-
dent took Polanco back after his extended leave, because there
was work available for him. Palagonia could not recall the
circumstances that led to the availability of a job for Polanco on
the other occasions. He testified that generally Respondent
tries to replace everyone who takes a vacation in excess of 1
week, and sometimes it cannot find anyone and sometimes they
hire someone who doesn’t work out, and sometimes someone
else leaves. In 2000, Joseph asserts that Respondent sought to
replace Polanco after 2 weeks, and that Richie Palagonia had
been contacted previously by Garcia about a job, and Joseph
authorized Richie to hire Garcia, which was done on August
21.
Respondent also hired nine other employees subsequent to
its refusal to take back Polanco, in such classifications as pack-
ers, mechanics and bagel workers. During his 6 years of work-
ing for Respondent, Polanco worked in production, on the oven
and worked with bagels and rolls. Respondent’s witnesses
gave no explanation as to why it did not offer, or consider hir-
ing Polanco for any of those positions.
Moreover, as noted above, Veras who was also a porter, was
terminated on August 25, and was not replaced. Thus, when
Polanco sought to return on September 10, Respondent was still
one porter short. Respondent’s witnesses provided no explana-
tion as to why it simply did not permit Polanco to replace
Veras, rather than tell Polanco that there was no work for him.
Nor did Respondent provide any other explanation, such as loss
of work or any other reason why it concluded that there was no
work for Polanco on September 10.

13 Richie Palagonia testified that Respondent gives its employees 2
weeks vacation, while Joseph Palagonia contends that Respondent
allows 1 week.
14 Former employee of Respondent Quinonez Buenaventura testified
that in 1993, he took a 4-week vacation, was allowed to return to work,
and was never told by Respondent prior to leaving, that his return to
work would be dependent upon the availability of work.
Joseph Palagonia testified that its treatment of Polanco was
consistent with its treatment of several employees. According
to Palagonia, in the year 2000, five employees took extended
vacations, ranging from 4 to 15 weeks, and in each instance
when these employees sought to return to work their request
was denied by Respondent, because there was no work avail-
able for these employees. Palagonia testified that in connection
with the investigation of the instant charges, he looked at Re-
spondent’s records, and was able to find on the computer screen
the dates that these employees left for vacation and the dates
that they requested to return to work and they had been re-
placed. These records that Palagonia asserts that he looked at
in order come up with this information were not introduced into
the record. However, Palagonia did testify that he specifically
recalled three of the employees mentioned and that they were
not given jobs when they sought to return. He also testified that
one of these employees Martin Luther, he recalled speaking to
personally about the matter before Luther went on vacation.
Palagonia contends that he told Luther, who was planning to go
to Santo Domingo for 4 or 5 weeks, that if he goes for that
long, he “might not have a job” when he comes back. Palago-
nia further recalls that when Luther returned after 5 weeks,
Respondent had nothing available for him and did not permit
him to return to work.
The record also reveals that prior to the trial, the General
Counsel subpoenaed records that would show the duration of
vacations taken by all unit employees for a 3-year period back
to 1998. At the start of the trial, Respondent indicated that it
did not turn over such records to the General Counsel, because
it does not keep records in the form requested. However, upon
discussion on the record, on the first day of trial, Respondent
conceded that it did have payroll records from which that in-
formation could be obtained, and promised to either go through
its records and create the document containing the information
sought by the General Counsel, or submit to the General Coun-
sel the underlying records which contain the relevant informa-
tion. Insofar as the record discloses, Respondent never submit-
ted these promised documents to the General Counsel.
B. Case 29–RC–9507
1. The challenges
All of the disputed challenges were made by the Union. Six
of the challenges15 were made on the basis of alleged supervi-
sory status. The seventh challenge, to the ballot of Patricia
Palagonia was on the grounds of her special status as a relative
of the Palagonia’s, her not being in the unit, and her alleged
confidential status.
The Union presented a number of witnesses in support of its
challenges, who were the same witnesses presented by the
General Counsel in the CA cases. As I have described above, I
have generally credited their witnesses in the CA cases, and I
similarly credit their testimony concerning the challenged vot-
ers.
Respondent on the other hand presented no witnesses to di-
rectly contradict the testimony of these witnesses concerning
15 Gibbs Saintvil, Mario Arroyave, Leonard Pitter, Frank (Cheech)
Sigismondi, Uriel (Sanchez) Londano, and Alexander Justi.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 522
the alleged supervisory status of the disputed individuals. It
merely presented generalized testimony that these individuals
did not posses any of the specific indicia set forth in Section
2(11) of the Act, without addressing any of the specific testi-
mony offered by the Union’s witnesses.
I therefore credit these witnesses, and find the following
facts. Gonzalez, who as related above was employed by Re-
spondent as a consultant to perform accounting functions, was
told by Arroyave that he was a maintenance supervisor, by
Londono that he was in charge of the morning shift, and by
Justi that he was the foreman of the night shift, and by Sigis-
mond, that he was a foreman. Gonzalez also saw some records
of Respondent that identified Saintvil as a foreman.
Saintvil punched a timecard, but Londono, Sigismondi, Ar-
royave, and Justi did not. Gonzalez testified credibly that all of
these individuals would initial timecards of employees. In such
cases, the initials would be necessary before Gonzalez would
be authorized to pay overtime to the employees. Thus, Gon-
zalez was told by Joseph Palagonia that, it was the direct super-
visor’s responsibility to initial the overtime for employees,
before employees could get paid overtime. Similarly, when the
time card machine malfunctions, the employees would initial
the employees timecards to authorize payment to these employ-
ees.
At various times, Arroyave told Gonzalez that he had rec-
ommended to Chris Palagonia that certain employees receive
raises. However, the raises were not given until the 25–50-cent
raises given to employees in June, as detailed above.
Londono’s salary is $500 per week, the same salary as
admitted Supervisor DiBua. Pitter’s salary was $600 per week,
Arroyave’s was $300, Saintvil made $236, Sigismondi made
$325, and Justi made $206.16
Polanco was hired by Respondent in 1995. At that time,
Richie Palagonia after speaking to Polanco, called Londono and
asked Londono if he needed employees to work on the ovens.
Londono replied yes, and Polanco was then hired to work on
the oven.
In September 1999, Desgraves was hired by Respondent, and
began working from 9 a.m. to 5 p.m. At that time, after speak-
ing with Londono, he was hired by Richie Palagonia. Richie
Palagonia told Desgraves that Londono was his supervisor, and
instructed Londono to show Desgraves where he will be work-
ing. Three days later, Londono brought Desgraves to Richie
Palagonia, and told Richie that he wanted Desgraves to work
from 12 noon to 10 p.m. Desgraves protested saying that the
time is not good for him because he is going to school. Richie
replied that Desgraves would have to accept the change of
hours. Thereafter, Desgraves continued to work from 12 noon
to 10 p.m. for some period of time, until his shift was changed
to 7 a.m. to 5 p.m.
When Desgraves worked the 12 noon to 10 p.m. shift, his
lunch hour would start at either 2:30 or 3 p.m., and Londono
would make the decision when Desgraves would start. On one
occasion, Desgraves asked Londono if he could eat at 3 p.m.

16 Peralta and Desgraves who identified Londano as their supervisor
received salaries of $355 and $286 respectively. Veras received a
weekly wage of $236 while Polanco was paid $330.
Londono replied, “[Y]ou have to wait. I’m the boss. I don’t
have enough people.”
On another occasion, Desgraves got sick on Sunday and
wanted to go home. He told Londono that he was sick and
could not stay, and felt like he was going to vomit. Londono
told Desgraves, “[I]f you go, don’t return tomorrow.” Des-
graves then went to Richie Palagonia and told Richie that he
was truly sick and could not stay. Richie replied that “I’m not
the manager of the back. Whatever Sanchez said, you have to
agree with him.” Desgraves therefore stayed and worked until
6 p.m., and eventually spent 2 weeks in the hospital.
Desgraves, Peralta, Veras, and Polanco all testified that Lon-
dono was the production supervisor of about 15 employees in
the bakery department. Londono is in charge of the shift that
starts at 6 a.m. and ends at 2 p.m. In that capacity, Londono
assigned work to the employees, and trains the new employees
concerning their responsibilities towards Respondent. Accord-
ing to Desgraves, Londono has the same job as DiBua and
Castiblanco (both admitted supervisors of Respondent), except
that DiBua and Castiblanco perform these functions on differ-
ent shifts.
If Londono needs a porter to work in the production depart-
ment, he makes the decision, and asks the porter to come to
perform production tasks. In such cases, Londono signs that
employees timecard to make sure the employee gets paid. If
the breads are cooked and must be taken to the freezer, Lon-
dono will call employees from the freezer department, and
order them to bring the breads to the freezer. Initially, Peralta
was assigned to take bread out of the oven. After another em-
ployee left, Londono changed Peralta’s job assignment to tak-
ing bread out of a machine.
While Veras was employed by Respondent as a porter, he
would once or twice a week be assigned by Londono, Castib-
lanco, or DiBua to perform work in the production department,
such as mixing dough. Generally, Londono would ask Veras to
work in the production department on Sundays, when the regu-
lar employee would be absent, which was usually once or twice
a month. Veras was the only porter that Londono asked to mix
dough, since it requires skills such as knowing the amounts of
water that needs to be put in for a pound of flour. Veras also
observed Londono changing job assignments of the 15–17 em-
ployees that he supervises, such as changing from one machine
to another or changing them from the machine to pushing a
cart. At times, when a worker in production would go to lunch,
Londono would ask Veras or other porters to put boards in the
oven or otherwise fill in for the employees going to lunch.
When overtime is needed, particularly when employees are
absent, Londono would make the decision on his own, without
checking with anyone, to assign employees overtime.
All the machines under Londono’s supervision are not the
same, some are more difficult to operate than others, and Lon-
dono decides which employees perform work on which ma-
chine based on his assessment of the employees’ ability to op-
erate that machine.
Polanco worked for Respondent for 7 months under Lon-
dono’s supervision. When Polanco arrived at 6 a.m., the oven
was not working so Londono would give Polanco other things
to do until 9 a.m., when the oven began operating. If overtime
PALAGONIA BAKERY CO. 523
was needed, Londono would authorize the overtime for Po-
lanco. When Londono left for the day, DiBua replaced him as
supervisor, and DiBua authorized overtime.
Desgraves testified that Arroyave and Saintvil are managers
of the cleanup crew. Peralta stated that he has seen Arroyave
serve as supervisor of the people who clean. Although Peralta
is not a porter, he claims that he observed Arroyave supervise
the porters. In that regard, Peralta observed Arroyave tell peo-
ple what to do and give direction to them such as “clean this,
clean that.”
Veras testified that when he worked as a porter, Arroyave
and Saintvil were his supervisors. Both Chris and Richie
Palagonia told Veras that they were his supervisors. Veras
came to work at 12 noon, and at about that time Arroyave was
leaving. However, before he would leave, Arroyave would tell
Veras what to do, and if there was an emergency, he would tell
Veras “clean first this area, have it done soon.”
According to Polanco, he was supervised as a porter by
Steve Todo (an admitted supervisor of Respondent) and Saint-
vil. Todo at one point had an operation, and Respondent had a
meeting of porters. At that time Chris told the porters that
Saintvil would become the supervisor of porters. While Todo
was out, Polanco asserts that Respondent promoted Arroyave
also to be a supervisor of porters. Polanco claims that Ar-
royave “took care” of the Hatians and Saintvil supervised the
Dominicans. In that regard, Arroyave and Saintvil directed the
employees, told them what to do, and say “do that, do here, do
there.”
Prior to the election, Polanco also worked in the shipping
and receiving department from time to time. On those occa-
sions, Richie Palagonia would transfer him temporally from the
oven to that department. According to Polanco, when Richie
Palagonia was not present in the shipping and receiving de-
partment, in the mornings, Alex Justi was the supervisor. In
that regard, Justi would direct Polanco to pick up the boxes and
collect the boards. Justi also had a desk in the shipping and
receiving area that he shared with Richie and Anthony Palago-
nia and Sigismondi.
Polanco also observed Sigismondi directing people in the
shipping and receiving department. In that regard, Polanco was
helping Sigismondi roll the bread boards with plastic, and Sig-
ismondi would direct Polanco to take the plastic out. The re-
cord also reflects that in Case 29–RC–7825, Sigismondi, testi-
fied on behalf of Respondent during a hearing on Respondent’s
objections in November or December 1991. The hearing offi-
cers report characterized Sigismondi, as Respondent’s “man-
ager,” with no further description of his duties and responsibili-
ties at the time.
Patricia Palagonia is the wife of Anthony Palagonia, who is
an admitted supervisor of Respondent and the brother of Joseph
Palagonia. Anthony Palagonia has no ownership interest in
Respondent and is not a corporate officer. Patricia Palagonia
works in the office where she is under the supervision of Joseph
Palagonia. She is not supervised by her husband Anthony, who
in fact, works a different shift than her husband.
She performs filing and bookkeeping functions. When em-
ployees are hired by Respondent, Patricia obtains personal in-
formation from these employees, such as their social security
number, passport, or resident alien card. She prepares a folder
for each individual and turns it over to Gonzalez.
Gonzalez generally prepares the payroll checks for each em-
ployee, including its supervisors. After Gonzalez prepared the
payroll checks, he would turn them over to Patricia Palagonia,
who would “stamp” Christopher Palagonia’s signature on each
check. She also takes orders that come in over the phone and
will either bring them out to the plant and give the orders to
DiBua or another supervisor, or call the supervisor into the
office and give him the order. Patricia also will document the
order that comes in, sort out accounts payable files and place
them back into the file cabinets.17
2. The objections
Respondent’s sole witness with respect to its objections to
the election was Joseph Palagonia. He testified on direct ex-
amination that on the day of the election, the last session began
at 8 p.m. After the polls were opened, Palagonia heard an ar-
gument between Jose Merced, and DiBua Joseph asserts that he
came over and asked Merced what he was doing and telling
Merced, “[Y]ou don’t belong here.” Palagonia alleges that
Merced answered, “I don’t have to listen to anybody, fuck
you.” At that point, according to Palagonia, Merced left the
building. After Merced left the building, Palagonia testified
that Merced was screaming through the windows and yelling all
kinds of stuff in English and Spanish through the windows.
Palagonia adds that there were 10–15 employees in the polling
area at the time, who could hear Merced yelling.
On cross-examination, Palagonia admitted that the front en-
trance to the premises was closed during the election, and in-
sists that these doors were closed during the morning session as
well, as per a discussion with the Board agent in Merced’s
presence. Palagonia also insisted that Merced did not tell him
why he was in the premises on that day. He also testified that
after Merced left, DiBua told Palagonia that he had ordered
Merced not to come into the bakery and Merced had replied, “I
don’t have to listen to you.” Palagonia also denied that he saw
any other people with Merced at the time, and insists that until
the Union filed its objections, he did not know what caused
Merced to come into the bakery.
Merced then provided his testimony with respect to the inci-
dent. According to Merced, Respondent had kept the front
entrance opened during the earlier polling periods, but for the
evening period, Joseph Palagonia came out and announced to
Merced that he was going to close the main entrance. Merced
asserts that he protested that people would be unable to get into
vote. Palagonia answered that they could enter the facility
through the back, and that he would post a sign at the front,
informing voters to enter through the back.
During this polling period, Merced testified that he picked up
two employees, Yessina Chavez and Jose Medina.18 Merced
directed them to go in through the back as Palagonia had in-
structed. Three minutes later, the employees informed Merced

17 My findings with respect to Patricia Palagonia’s functions are
based on a compilation of the credited portions of the testimony of
Gonzalez and Joseph Palagonia, which is substantially in accord as to
her responsibilities. Patricia Palagonia did not testify.
18 They are husband and wife and Chavez was pregnant at the time.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 524
that Londono was by the back door and wouldn’t let the em-
ployees vote. Merced further testified that he then asked the
employees to follow him. He walked through the parking lot to
the back entrance. He was confronted by Londono who said,
“[W]here the fuck are you going?” Merced replied that these
people have a right to vote, they are on the Excelsior list and
that Londono had denied them access. Londono answered,
“[F]uck that. You’re not coming in, I don’t care what you say.”
Merced at that point, grabbed Chavez by the arm, opened the
back door, and walked both employees into the building. He
walked with the employees about 10 feet into the plant and
directed the employees to go to the polling area, which was 75
to 100 feet away from where Merced was standing. The em-
ployees then went to the polling area and voted. Meanwhile,
Londono followed Merced into the bakery and continued to
curse at him. Londono said, “[M]other fucker, I told you that
you can’t come in here.” Merced raised his voice and said,
“[Y]ou’re the motherfucker. Don’t talk to me that way.”
At that point, according to Merced, Joseph Palagonia came
over. He asked Merced, “[W]hat are you doing here?” Merced
replied that he wanted Medina and Chavez to vote, and added
that they were on the list. By that time the employees had al-
ready voted. Palagonia then asked Merced to leave. Merced
claims that he immediately left and denies that he cursed at
Palagonia. Merced also denies that he yelled and screamed
outside the plant, after he left. Further, Merced insists that
employees in the polling area could not hear his argument with
Londono.
Palagonia was then called back to the stand for rebuttal tes-
timony. He testified that when he confronted Merced on the
day of the election, Merced was in the packing area, which is
20 feet away from the polling area. He asserts that there were
12–15 employees in the area that heard Merced curse at him.
Palagonia also insists that if an employee was in the polling
area at the time, the employee would have heard the cursing.
However, Palagonia admits that he did not know if any em-
ployees were in the voting area at the time. He did recall that
Medina and Chavez had already voted, and were on their way
out. In fact, Palagonia recalls congratulating Chavez and ask-
ing when the baby was due?
During this portion of his testimony, Palagonia recalled that
Londono was present during the incident along with DiBua and
that both of them were yelling and arguing with Merced.19
Palagonia again denied that Merced told him why he was there
or that he was bringing people into the premises to vote. How-
ever, on questioning by me, Palagonia admitted (contrary to his
earlier testimony), that he was told by DiBua, that Merced
sought to bring these two employees into vote. However, ac-
cording to Palagonia, DiBua informed him that Merced insisted
on coming in, but that DiBua had not denied entrance to the
employees, but only to Merced, and that DiBua had permitted
the employees to come into vote.

19 Londano did not testify. DiBua although called as a witness by
Respondent as to other issues, did not testify about this incident.
III. ANALYSIS AND CONCLUSIONS
A. The CA Cases
1. Alleged conduct in violation of Section 8(a)(1)
of the Act
(a) Alleged threats
I have found that Chris Palagonia, at various times, told em-
ployees that if they voted for the Union, he would close the
company and employees would be forced to go on strike. Such
comments are clearly violative of the Act. I so find. Dluback
Co., 307 NLRB 1138, 1151–1152 (1992).
Additionally, Chris Palagonia told employee Peralta that if
the Union wins the election, the “company is going to fail,” and
that “we’re going to have problems.” I conclude that these
comments can reasonably be construed as an unlawful threat to
close or to take other reprisals against the employees, if the
employees support the Union, and are violative of Section
8(a)(1) of the Act.
While Peralta testified that he did not interpret Palagonia’s
statement as a threat to close, this is not determinative. Thus, it
is well established that a “finding of restraint or coercion de-
pends not on the subjective impressions of employees, but on
the objective standard as to whether such conduct reasonably
tends to interfere with the free exercise of employee rights.”
Wis-Pack Foods, Inc., 319 NLRB 933, 937 (1995); Helena
Laboratories Corp., 228 NLRB 294, 295 (1977). Palagonia’s
remarks clearly met that standard, and are unlawful.
(b) Alleged promises of benefit
I have also found above that Respondent’s officials made
several blatantly unlawful promises of benefit to employees, in
order to discourage them from supporting the Union. They
include:
(1) Chris Palagonia’s inquiry of Veras what he wanted to
stop organizing the workers, cash or a salary raise, and Chris
Palagonia asking Veras the next day whether Veras was going
to accept the offer that Palagonia made the day before.
(2) Chris Palagonia promised Polanco a raise and a 2-week
vacation, if Polanco told the Union that the employees didn’t
want them here anymore. Chris added that Respondent would
give him more than the Union, and asked him to tell other em-
ployees that the Union will not help them.
(3) Chris Palagonia’s statements to Desgraves in June that he
would receive a 50-cent-an-hour raise if he voted for Respon-
dent, and if he convinced other Haitian employees to do the
same.
(4) Chris Palagonia’s informing employees at a meeting in
July, that they would receive a 50-cent raise if they voted for
Respondent.
(5) In June, Chris Palagonia informed Peralta that if he voted
against the Union, he would get “all the benefits that you get
from the company,” while adding that if the Union wins the
company won’t be able to give Peralta all the benefits he would
get if the Union doesn’t win.
PALAGONIA BAKERY CO. 525
Further, at a meeting of employees in July, Joseph Palagonia
after criticizing the Union for taking money from employees
and driving nice cars, told employees, “the door is open for
you, if you vote for the Union, you close the door.” The Gen-
eral Counsel concedes that such statements do not constitute
unlawful threats to withdraw an existing benefit, since the
comments merely reflects the effect that a 9(a) representative
would have on Respondent’s policy. Ben Venue Laboratories,
Inc., 317 NLRB 900 (1995). However, the General Counsel
contends that Palagonia’s remarks constitute an unlawful prom-
ise of a new benefit to employees, in violation of Section
8(a)(1) of the Act. Parts Depot, 332 NLRB 670, 673 (2000).
In that regard, the General Counsel argues that, since the record
is barren of any evidence that Respondent had an “open door”
policy prior to the organizing drive, or that such a policy had
been advertised to employees, Palagonia’s statement represents
a promise of a new benefit, in violation of the Act. I disagree.
The General Counsel misperceives its burden of proof in
these circumstances. It is the General Counsel’s obligation to
prove that the announcement by Palagonia represented a
change of prior practice, and that his remarks therefore
amounted to an unlawful promise of benefit. The fact that the
open door policy may not have been advertised to employees
does not mean it did not exist. Indeed, Joseph Palagonia credi-
bly testified that his office is always open to speak to any em-
ployee who wishes to speak to him.
An examination of Parts Depot, supra, confirms my conclu-
sions. Thus, the Board found a violation therein, because the
employer had previously prevented employees from taking
their concerns to the Employer’s division president, Bassett,
and were told to bring their concerns only to the warehouse
manager. In such circumstances, the Board concluded that
when Bassett during a meeting with employees, made reference
to an ambiguous “open door” policy in the Employer’s manual
and told employees that they could see himself or the opera-
tions manager, this represented the articulation a new policy
and improvement in working conditions in violation of the Act.
In the absence of any evidence that Respondent had ever
prevented or discouraged employees from speaking to Joseph
or indeed to any Palagonia, a similar finding cannot be made
here.
I therefore recommend dismissal of this allegation of the
complaint.
(c) The wage increase
During the week ending June 24, Respondent granted wage
increases of from 25 to 50 cents per hour to six porters. These
raises were granted, during the same week after the Union
made its demand for recognition, on July 19. The timing of this
raise by itself would be sufficient to raise an inference of
unlawful motivation, which could be rebutted if Respondent
could show that it decided upon such increase prior to the ad-
vent of the Union or that it was granted pursuant to Respon-
dent’s regular practices. Skyline Distributors, 319 NLRB 270,
275–276 (1995), Capitol EMI Music, 311 NLRB 997, 1012
(1993). Here, there is significantly more evidence than the
timing of the raise that indicates its unlawful nature. Thus,
after the raises were granted, Chris Palagonia criticized Gon-
zalez for giving some employees 50-cents-an-hour raises rather
than 25 cents an hour as Chris Palagonia had instructed.
Palagonia told Gonzalez that he didn’t have the money to be
giving out such raises, and added that his plan was to give
raises of 25 cents now and 25 cents after the election. This
comment clearly connects the raise to the outcome of the elec-
tion.
Respondent argues however that the wage increase was mo-
tivated by its receipt of a Board of Education contract, and that
it was merely fulfilling a promise that it had made to employees
in September 1999. However, the record discloses that Re-
spondent was not awarded the contract until August 14, over 7
weeks after the raise was granted. This evidence severely dam-
ages the validity of Respondent’s defense.
Chris Palagonia attempted to explain this discrepancy be as-
serting that once it was informed by the Board that the previous
bar on its right to bid was lifted, it believed that it would be
granted the contract. However, Palagonia furnished no testi-
mony and Respondent introduced no evidence to support this
uncorroborated assertion, that Respondent had any reason to
believe that merely because it had permission to bid on the
contract, that it would in fact be the low bidder or otherwise be
awarded the contract.
More importantly, even if I were to credit Palagonia’s testi-
mony that he believed in March or April that Respondent
would win the contract, which I do not, such a finding would
still not be sufficient to substantiate Respondent’s defense.
Thus, Respondent did not grant the raise in March or April,
when Palagonia testified that Respondent believed that it would
obtain the contract, but instead waited until the week of June
24, over 2 months after the date that it allegedly became confi-
dent of winning the bid. Respondent provided no credible ex-
planation for waiting until the week of June 24, to grant the
raises, and could point to no particular or significant event that
motivated it to select that date for the raise. It goes without
saying, that the date chosen was immediately after the Respon-
dent was notified that the Union was seeking to organize its
employees.
Palagonia did provide generalized and unconvincing testi-
mony that it waited until late June to grant the raises for finan-
cial reasons, since it previously spent large sums to purchase
machinery, and the machines were now working better. He
furnished no explanation as to the alleged connection between
the new machinery working better and Respondent’s ability to
give the raises. As to his implicit assertion that the purchase of
the machinery had hampered Respondent’s ability to give the
raises, and that condition had changed by June, no records or
other documents were produced to substantiate his vague and
unconvincing testimony in this regard.
Finally, it also significant that Veras and Polanco, the two
leading union adherents, were not granted raises, although they
perform the same porters work as the employees who received
the raises. Respondent provided no explanation for the failure
to include Veras or Polanco in the group receiving raises. This
constitutes additional support for my conclusion that the raises
were motivated by the appearance of the Union, and Respon-
dent’s desire to dissuade its employees from supporting the
Union.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 526
Accordingly, based on the foregoing analysis and authorities,
I conclude that Respondent has violated Section 8(a)(1) of the
Act by granting wage increases to its employees.
(d) Alleged surveillance and giving employees the impression
that their union activities were under surveillance
It is well settled that statements to employees that suggest
that the employer is closely monitoring the employees union
involvement, unlawfully creates the impression that his union
activities are under surveillance in violation of Section 8(a)(1)
of the Act. Acme Bus Co., 320 NLRB 458, 477 (1995); Lex-
steel Industries, 311 NLRB 257, 258 (1993); Emerson Electric
Co., 287 NLRB 1065 (1988).
Here, the record establishes several instances of Respon-
dent’s violating the Act in the fashion described in the above
cases. Thus, three days after the Union demanded recognition,
Chris Palagonia yelled at Veras, called him an “unhappy
motherfucker” and accused him of trying to organize for the
Union and getting the coworkers into the Union. Similarly, in
late June, Chris Palagonia yelled at Polanco, called him a
“motherfucker,” and accused Polanco of being the one to bring
in the Union. These remarks of Palagonia are clear violations
of Section 8(a)(1) of the Act.
I have credited the testimony of Polanco that on June 23, the
night of a scheduled union meeting at Polanco’s house, he was
driving several employees to the meeting in his car. The evi-
dence establishes that Polanco and the other employees noticed
that they were being followed by Joseph Palagonia. After be-
ing passed by Palagonia, Polanco noticed that Palagonia made a
U-turn and hid behind another vehicle, and then continued to
follow Polanco’s car. These circumstances lead to the reason-
able conclusion, which I make, that Palagonia became aware of
the union meeting and was attempting to surveil the union ac-
tivities of Respondent’s employees.
Respondent attempts to explain this event by the testimony
of Palagonia corroborated by employee Torres that Palagonia
has, at times, driven Torres home, which is in the general vicin-
ity of Elderts Lane, where part of the surveillance took place.
However, I find this evidence unconvincing, since it was far
from clear from their testimony that Palagonia taking Torres
home occurred on the same day of the incident. More impor-
tantly, the credited evidence of Palagonia following Polanco,
including making a U-turn and hiding behind another car, is
inconsistent with the alleged activity of driving Torres home.
Moreover, Polanco credibly testified that no one was in
Palagonia’s car on the day in question.
Accordingly, I conclude that by Palagonia’s conduct, Re-
spondent has engaged in surveillance of its employees’ union
activities, and has further violated Section 8(a)(1) of the Act.
Chopp & Co., 295 NLRB 1058, 1066 (1989); NLRB v. Nueva
Engineering, Inc., 761 F.2d 961, 967 (4th Cir. 1985).
(e) The alleged interrogations
Immediately after receiving the Union’s demand for recogni-
tion, Respondent summoned employee Ivan Diarrio into the
office, where both Joseph and Chris Palagonia asked him if he
knew anything about forming a Union? I find this questioning
to be coercive and violative of the Act. The inquiry was made
to Diarrio, who insofar as the record discloses was not an open
and active union supporter, the questioning took place in Re-
spondent’s office, and was conducted by the two highest rank-
ing officials of Respondent. These circumstances are sufficient
to establish the coerciveness of the questioning, but coupled
with the fact that it occurred in the context of and contempora-
neous with Respondent’s other unfair labor practices, as de-
scribed above, there can be no doubt that the interrogation is
violative of Section 8(a)(1) of the Act. Parts Depot, Inc., 332
NLRB at 672–673; Seton Co., 332 NLRB 979, 981–982
(2000); EDP Medical Computer Systems, 284 NLRB 1232,
1264–1265 (1987).
Similarly, Peralta was question by DiBua the day after a un-
ion meeting, and asked who had formed the committee of the
Union? The next day, Chris Palagonia asked Peralta why he
was against the Company since he was working for the Com-
pany? Palagonia accompanied these questions with unlawful
promises of benefit as I have concluded above.
I find that both of these incidents are coercive and violative
of the Act. Once again Peralta was not shown to be an open
adherent of the Union. He was questioned by Palagonia, Re-
spondent’s highest official, which questioning was accompa-
nied by unlawful promises of benefit. Such interrogation is
clearly coercive. See cases cited above.
DiBua’s questioning, particularly in the context of Respon-
dent’s other pervasive unfair labor practices as described above,
and below, reasonably tends to color the employees perception
of the character and reasons for the inquiry, and renders such
questioning coercive and unlawful. EDP, supra; Cardivan Co.,
271 NLRB 563 (1984).
The General Counsel also contends that Respondent violated
the Act by failing to provide the appropriate Johnnies Poultry20
safeguards before conducting an investigatory interview. Thus,
in order to minimize the coercive impact of such an interview,
while allowing the employer to investigate facts concerning
issues in preparation for its defense, the Board requires the
employer to

communicate to the employee the purpose of the questioning,
assure him that no reprisals will take place, and obtain his par-
ticipation on a voluntary basis; the questioning must occur in
a context free from employees hostility to union organization
. . . . When an employer transgresses the boundaries of these
safeguards he loses the benefits of the privilege. [Id. at 775.]

Here, in connection with preparing a response to the Region
in response to the instant charges, Respondent’s attorney inter-
viewed several employees, and took affidavits from them that it
eventually submitted in support of its position.
These affidavits were taken on September 11. Prior to
speaking with Respondent’s attorney, Chris Palagonia informed
employees Cera and Dominguez that they had to testify, and he
failed to give them any assurances against reprisals if they re-
fused. After Palagonia brought the employees into the office to
speak to the attorney, he left, and the attorney provided the
employees with the appropriate Johnnies Poultry safeguards,

20 146 NLRB 370 (1964), enfd. denied on other grounds 344 F.2d
617 (8th Cir. 1965).
PALAGONIA BAKERY CO. 527
and had them sign a statement to that effect. The General
Counsel argues that in these circumstances, Respondent has
violated the requirements of Johnnie’s Poultry. I agree.
Notwithstanding the fact that the attorney provided the em-
ployees with the appropriate assurances before questioning
them, prior to that, Chris Palagonia had informed the employ-
ees that they had to testify, without any qualifications. In such
circumstances, the employees could not have felt free to re-
spond to the questions of Respondent’s attorney, or to believe
that their participation was voluntary. Moreover, the record
reveals as I have found above that Respondent committed nu-
merous unfair labor practice, such as threats to close, unlawful
wage increases and promises of benefit, interrogation, surveil-
lance and creating the impression of surveillance. Thus, these
expressions by Respondent of hostility towards union activities
of its employees, renders the questioning coercive. Adair Stan-
dish Co., 290 NLRB 317, 331 (1988).
Further, on the day that Respondent prepared Cera for the in-
stant trial in March 2001, Respondent’s attorney failed to give
Cera any Johnnie’s Poultry assurances, and merely discussed
his pending testimony. Since the prior assurances that Respon-
dent’s attorney gave to Cera were not sufficiently close in time
to the day of his testimony, Respondent cannot rely on these
prior assurances to justify its failure to provide Cera with the
requisite safeguards in March of 2001. Le Bus, 324 NLRB 588
(1997). Therefore, I conclude that by its conduct in preparing
Cera for trial, without providing Johnnie’s Poultry safeguards,
Respondent has further violated Section 8(a)(1) of the Act.
2. The alleged violations of Section 8(a)(3) of the Act
(a) Alleged unlawful changes in working conditions
The complaint alleges and the General Counsel contends that
Respondent unlawfully changed working conditions in several
respects for employees Polanco and Desgraves, including
closer supervision, imposing more onerous assignments, and
changing their lunch hours in retaliation for their activities on
behalf of the Union. These allegations, as with all alleged
8(a)(3) violations must be assessed under Wright Line stan-
dards, 251 NLRB 1083 (1980), enfd. 662 F.2d 899 (1st Cir.
1981); Portsmouth Ambulance Service, 323 NLRB 311, 321
(1997).
Thus, the General Counsel must first establish that the work-
ing conditions of the employees, was changed and that the em-
ployees’ union activities was a motivating factor, in the adverse
changes.
The starting point for this analysis is the union activities of
the employees involved. Here it is clear that both Polanco and
Desgraves were active union adherents. Indeed, the record
establishes that they were two of three leading union organiz-
ers, along with Veras. Polanco held union meetings at his
home, wore union hats and shirts, and handed out leaflets and
cards. Desgraves also handed out union leaflets to employees,
attended union meetings, and acted as the union observer at the
election.
Knowledge by Respondent of their union activities, is clear
and not disputed. Indeed, Joseph Palagonia admitted that he
was aware of Polanco’s union activities. Both employees were
seen by supervisors distributing union leaflets to employees.
Degraves, in fact, gave one to Chris Palagonia, who responded
by spitting on the documents.
Moreover, both employees were directly subjected to several
statements that I have violative of Section 8(a)(1) of the Act.
Thus, Polanco was directly accused of being responsible for
organizing employees, thereby creating the impression of sur-
veillance, was followed by Joseph Palagonia on the way to a
union meeting, which amounted to unlawful surveillance, and
was twice offered a raise and a additional vacation by Chris
Palagonia, if he would abandon the Union and encourage other
employees to do so. Desgraves was twice offered raises if he
voted for the Respondent and if he convinced other Haitian
employees to do the same. These blatant violations of the Act
coupled with the other violations described above, particularly
including the unlawful wage increase granted to employees,
constitutes substantial evidence of animus towards the union
activities of its employees.
Finally, these alleged unlawful changes all occurred shortly
before or immediately after the July 28 election, which consti-
tutes highly suspicious timing.
I now turn to the question of whether the General Counsel
has proven that Respondent has made a change in working
conditions of its employees as contended. With respect to Des-
graves, one of the allegations is that after the election (where he
served as an observer), Respondent directed him to work in a
hot oven, and then immediately assigned him to go to the
freezer, which Desgraves believed constituted “abuse.” How-
ever, since he had not been assigned to work at the oven at all
prior to the election, he had not been compelled to go to the
freezer, immediately after working in the oven. Therefore, I
cannot conclude that the General Counsel had established a
change in his working conditions, by Desgraves being assigned
to work on the oven immediately before working in the
freezer.21
In such circumstances, I cannot find that the Respondent’s
assigning him to work in the freezer immediately after working
in the oven is unlawful. Moreover, I am not persuaded that this
assignment amounts to more onerous working conditions as the
General Counsel asserts.
I therefore recommend dismissal of this allegation of the
complaint.
However, I have credited Desgraves that Chris Palagonia
yelled at him for punching in 10–15 minutes early and accused
him of “stealing time.” Palagonia had never yelled at him for
this problem prior to the election. On one of these occasions,
Palagonia accompanied this accusation by calling Desgraves a
“slave” and or “fucking piece of shit.” I find this conduct by
Respondent to be in violation of the Act. It does represent a
change from prior to the election, and since Desgraves acted as
the union observer and was a leading union adherent, I find that
this activity was a motivating factor in Respondent’s actions.
Respondent had given no explanation for Chris Palagonia’s
conduct, since Chris Palagonia furnished no testimony concern-
ing this incident, or any explanation for his conduct.

21 While Respondent did begin assigning him to work at the oven af-
ter the election, neither the complaint nor the General Counsel allege
that this assignment violated the Act.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 528
Therefore, I find that Respondent has not shown that it
would have engaged in the same conduct, i.e., criticizing Des-
graves for punching in early and cursing at him, absent his
union activities. It has thereby violated Section 8(a)(1) and (3)
of the Act.
Polanco credibly testified that after he started to organize for
Respondent, he began to be followed by Richie Palagonia when
he went upstairs to change or if he wanted to talk to another
employee. Moreover, when he would also take a break for
lunch or changed clothes, he would be followed and observed
by either Richie, Chris, or Joseph Palagonia. I find Polanco’s
testimony believable and I credit same over the unconvincing
denials of the Palagonia’s.
I also conclude, that in view of the fact that Polanco was a
leading union adherent, and was subject to numerous unfair
labor practices as detailed above, that his union activities was a
motivating factor in this increased supervision of his work.
Since Respondent has offered no explanation for its decision to
constantly follow him around the plant, including at lunch and
breaktime, I find that it has failed to meet its Wright Line bur-
den of proof. Accordingly, by its conduct in more closely su-
pervising Polanco, Respondent has violated Section 8(a(1) and
(3) of the Act.
I have also found above that Respondent changed the lunch
hours of both Desgraves and Polanco. As for Desgraves, he
normally ate lunch at 12 noon with other Haitian coworkers.
On July 26, 2 days before the election, Desgraves handed out
prounion leaflets to employees, and to Chris Palagonia, who in
turn spit on the flyer.
The next day July 27, the day before the election, DiBua di-
rected Desgraves to eat lunch at 11 a.m. and to eat with Saint-
vil, who Desgraves considered to be a supervisor and who had
been campaigning against the Union. Thereafter, he was di-
rected to eat lunch at his normal time. In these circumstances,
the evidence is strong that Respondent’s conduct was motivated
by a desire to isolate Desgraves from his fellow employees on
the day before the election, and was unlawful. Although DiBua
was called as a witness, he was silent on the issue of changing
Desgraves lunch hour on that day, and Respondent provided no
other evidence or explanation for the change. Therefore, I find
that Respondent has violated Section 8(a)(1) and (3) of the Act.
Overnite Transportation Co., 332 NLRB 1331 (2000); Indiana
Hospital, 315 NLRB 647, 654 (1994).
Similarly, Polanco normally ate his lunch at 12:30 p.m. On
one of the days that Respondent conducted its campaign meet-
ings with employees (to which Polanco was not invited), Richie
Palagonia changed Polanco’s lunch hour to 12 noon. From that
point on, until he went on vacation on August 7, Polanco’s
lunch hour continued to start at 12 noon. In view of the timing
of this change, as well as the animus directed towards Polanco,
the evidence is sufficient to conclude, which I do, that this
change of lunch hour of Polanco was motivated by his union
activities. Since Respondent as offered no explanation for this
change of Polanco’s lunch hour, it has failed to meet its Wright
Line burden of establishing that it would have changed his
lunch hour, absent his union activities. Accordingly, Respon-
dent has once more violated Section 8(a)(1) and (3) of the Act.
(b) The discharges of Polanco and Veras
The complaint also alleges and the General Counsel con-
tends that Respondent’s terminations of Veras and Polanco are
also violative of Section 8(a)(1) and (3) of the Act. Turning to
Polanco, I find that the General Counsel has presented compel-
ling evidence that a motivating factor in Respondent’s decision
to terminate him was Polanco’s union activities.
In that regard, Polanco was one of the three leading union
adherents and organizers amongst Respondent’s employees.
He distributed authorization cards to employees, gave out union
leaflets to employees in the presence of supervisors on Respon-
dent’s premises, and held union meetings at his house. He was
subject to several unfair labor practices, such as surveillance
(being followed by Joseph Palagonia going to a union meeting),
creation of the impression of surveillance, by being accused by
Chris Palagonia of bringing in the Union, accompanied by
Palagonia calling him a “motherfucker”; unlawful promises of
benefits, when Chris Palagonia promised him a raise and 2-
week vacation if he told the Union that the employees didn’t
want the Union anymore; as well as unlawful changes in his
lunch hour and closer supervision, as I have found above.
Moreover, the timing of the discharge, on September 10,
coming after the election and while objections and challenges
are still pending, is further evidence of discriminatory motiva-
tion.
The above evidence, as noted above, is more than sufficient
to establish a strong link between the discharge and protected
conduct of Polanco. Thus, since the General Counsel has made
a strong prima facie showing of discriminatory motivation,
Respondent’s burden of proof under Wright Line, supra, is sub-
stantial. Vemco, Inc., 304 NLRB 911, 912 (1991); Eddyleon
Chocolate Co., 301 NLRB 887, 889 (1991).
Respondent attempts to meet its Wright Line burden by argu-
ing that it would have in effect terminated Polanco, by replac-
ing him before he returned from vacation, absent his union
activity. In this regard, it relies on the testimony of Joseph
Palagonia that Respondent simply acted in accordance with its
well-established policy, of not guaranteeing a job for any em-
ployee when they extend their vacation beyond 1 week. Thus,
Joseph Palagonia testified that this policy on extended vaca-
tions has been made known to employees in the past and been
consistently applied to other employees.
However, I found Palagonia’s testimony, as to this issue to
be unconvincing, unsupported by any records, and contradicted
by credited testimony of Polanco as to Respondent’s prior prac-
tice. Thus, Polanco in each of his past 6 years, was permitted
to take vacations of 5–6 weeks, and never had a problem with
returning to work. More importantly, he was never told, as
Joseph Palagonia asserts, before he left on those occasions, that
he would be allowed to return to work, only if work was avail-
able for him. Notably, Polanco was corroborated in this regard
by former employee Quinonez Buenaventura, who credibly
testified that in 1993, he went on a 4-week vacation, and was
never informed that his return to work would be dependent on
the availability of work. He returned to work after his vacation
as Polanco did after his prior vacations, and was permitted to
return to work.
PALAGONIA BAKERY CO. 529
This credited testimony severely damages Palagonia’s asser-
tion as to Respondent’s prior practice. More importantly, how-
ever, is what happened in early June, when Polanco originally
requested to take a 5-week vacation, starting June 28. Notably,
at that time, prior to the Union’s demand for recognition, Chris
Palagonia granted Polanco permission to go on vacation (over
the objection of Richie Palagonia) without saying anything
about the possibility of his job not being available for him when
he returns.
However, on June 27 (after the Union made its demand and
filed its petition), Polanco changed his mind and decided not to
go on vacation at that time. Respondent’s reaction to that
change of mind was quite significant. Richie Palagonia insisted
that Polanco was on vacation and ordered him to punch out.
Chris Palagonia began yelling at Polanco, called him a
“motherfucker,” and accused him of bringing in the Union. It
is thus clear from the above evidence that Respondent was
perfectly willing to allow Polanco to go on vacation starting
June 28, and had given him unconditional permission in early
June, before the Union’s appearance became known. However,
when Polanco declined to go on June 28, by that time Respon-
dent was aware of his role as a union organizer. Therefore,
Respondent was obviously disappointed at Polanco’s decision
not to leave on June 28, since it was aware that a petition had
been filed and an election would be imminent. Indeed, Re-
spondent had been through union election campaigns before,
and knew that the absence of the key union organizer due to
vacation, during the election campaign would be helpful to
Respondent and be likely to hamper the Union’s ability to win
the election.22
Therefore, shortly after the July 28 election, when Polanco
asked Joseph Palagonia for permission to go on vacation for 5
weeks and to return on September 8, Palagonia told him that he
could go, but when he returns only if there is work, Respondent
would employ him. This instruction was followed up by a let-
ter, from Respondent’s attorney, in response to a letter from the
Union’s attorney, reasserting this position, and asserting an
alleged “longstanding practice” of Respondent. I conclude that
it was the appearance of the Union, and Polanco’s leadership
role, that motivated Respondent to assert this alleged longstand-
ing policy which was in effect a new policy, prior to Polanco
leaving for his vacation. I believe that Respondent intended to
replace him, as it eventually did, and had no intention of allow-
ing him to return to work after his vacation ended.
While Palagonia testified that Respondent had, consistent
with this alleged policy, terminated five other employees in
2000 for extending their vacation, this testimony is also uncon-
vincing and most importantly not supported by any records.
Palagonia testified that he looked at certain computer records of
Respondent to compile the information, as to the names and
dates of these alleged incidents, but these records were never
introduced into the record by Respondent to support Palago-
nia’s testimony. Additionally, and more significantly, Respon-
dent never provided information subpoenaed by the General

22 The election was eventually held on July 28, a date that Polanco
would have missed, if he had gone on his scheduled vacation, which
was due to end on August 9.
Counsel that would show vacations taken by all employees for
a 3-year period. Thus, Respondent’s evidence, i.e., Palagonia’s
unsupported testimony, is out of context, without an opportu-
nity to determine, the duration of vacations, of others who were
not terminated. Thus, an adverse inference is appropriate that
these documents would show many others who took extended
vacations without losing their jobs. Teamsters Local 776
(Pennsy Supply), 313 NLRB 1148, 1152–1154 (1994). Indeed,
Respondent’s evidence that five employees were terminated for
excessive vacations is an incomplete submission which makes a
proper analysis of Respondent’s past practice impossible, and
lends credence to my finding that Respondent’s evidence can-
not be relied upon to meet its Wright Line burden.
Respondent argues that Palagonia’s testimony is not neces-
sarily inconsistent with the testimony of Polanco or Buenaven-
tura that they were always permitted to return to work after
extended vacations in the past, since there may simply have
been work available for them in the past when they sought to
return. I disagree. As I have related above, the important fact
is that in the past, unlike in August 2000, these employees (Po-
lanco and Buenaventura) were not told anything about an al-
leged policy of a return to work only if work was available.
Further, Palagonia testified that Respondent generally tries to
replace anyone who takes a vacation in excess of 1 week,23
sometimes it cannot find anyone, sometimes they hire someone
who doesn’t work out, and sometimes someone else leaves.
These various alleged occurrences, which allegedly according
to Palagonia were responsible for work being available for
Polanco and Buenaventura, in the past, when they returned
from extended vacations, could easily have been established by
Respondent’s records. However, no such records were pro-
duced. Thus, Palagonia’s unsupported testimony that in past
years, they were allowed to return to work, after extended vaca-
tions, only because work was available for them, cannot be
relied upon.
Most importantly, of all however, even if I were to accept
Palagonia’s unsupported testimony as to its past practice, Re-
spondent still has not met its Wright Line burden of proof.
Respondent claims that it replaced Polanco with Garcia on
August 21, because it needed another porter, and it did not hire
another porter thereafter. However, Respondent terminated
Veras, also a porter, on August 25, 2 weeks before Polanco
sought to return on September 10. Yet, Respondent did not
permit Polanco to return to work, claiming there was no work
for him. Respondent provided no explanation why it did not
permit Polanco to replace Veras, or any other evidence as to
why there was no work available for Polanco on September 10.
I find this evidence highly significant and extremely damaging
to Respondent’s case. Indeed, porters work of cleaning up the
facility is clearly the kind of work that is generally “available”
in some respects, unlike for example work on a particular ma-
chine. Thus, the question of availability of porters work ap-
23 I note in this respect that Richie Palagonia testified contrary to Jo-
seph Palagonia that Respondent gives employees 2 weeks vacation, and
after that, a job is dependent upon availability. This contradiction
between Respondent’s witnesses on this point, further undermines
Respondent’s defense.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 530
pears to be highly subjective, and Respondent provided no
guidance to explain how it determined that Polanco needed to
be replaced on August 21, and yet on September 10, after Veras
had been fired, and not replaced, there was no need for Po-
lanco. It is obvious to me particularly in the absence of any
contrary explanation from Respondent, that Polanco’s union
activities is the only plausible explanation for Respondent’s
decision that there was no work for him on September 10.
Further support for this conclusion is found in the results of
the election. Thus, despite Respondent’s intensive campaign of
coercive conduct, including unlawful threats, promises of bene-
fits and an unlawful wage increase, as I have detailed above,
the election although indeterminative, showed the Union ahead.
In view of Respondent’s unlawful campaign, it must have been
disappointed by the results, which at least suggested that its
unlawful campaign was not successful. I believe that Respon-
dent was particularly disappointed with Polanco, since Chris
Palagonia had promised him a raise and a 2-week vacation, if
he convinced other employees not to vote for the Union. Ini-
tially, Polanco expressed skepticism about Palagonia’s officer,
since he had failed to deliver on a similar promise made to
Polanco in 1997 during a prior union campaign. However,
Palagonia explained that he didn’t have money to give a raise at
that time, and repeated his promise of a raise and 2 weeks paid
vacation, if Polanco spoke to his coworkers and convinced
them to abandon the Union. Palagonia asked Polanco if he was
going to do so, Polanco said yes, and they shook hands. There-
fore, it is reasonable to conclude, which I do, that Respondent
was particularly upset with Polanco since it believed that it had
“made a deal” with him to persuade others not to support the
Union in exchange for a raise and benefits. Therefore, when
the results of the election indicated that the Union was ahead,
Respondent likely believed that Polanco had “doublecrossed”
Respondent and had not carried out his part of the bargain,
which I conclude provided substantial motivation for Respon-
dent to retaliate against Polanco.
Finally, I also note that after Respondent’s refusal to employ
Polanco, it hired nine new employees, including packers, me-
chanics and bagel workers. During his 6 years of employment
with Respondent, Polanco worked in production on the oven
and worked with bagels and rolls. Respondent’s witnesses
provided no explanation for failing to offer or consider hiring
Polanco for some of these positions, in view of his past experi-
ence. To the extent that Respondent might argue that, it was
expecting Polanco to call, if he was interested in any future
opening, I note that I have not credited Joseph Palagonia’s tes-
timony that he told Polanco to call Respondent to see if work
became available. Instead, I have credited Polanco’s testimony
that Palagonia promised to call him about any future openings.
Thus, the failure to offer Polanco any of these jobs, some of
which he had experience with Respondent in performing, is
further evidence damaging to Respondent’s defense and to its
attempt to meet its Wright Line burden. The Board has consis-
tently held that the subsequent failure to offer employment to
employees with experience to perform such available jobs, is
further evidence of discrimination, and relates back to the ini-
tial decision to fail to employ Polanco. Champion Rivet Co.,
314 NLRB 1097, 1099 (1994), Handy Andy, Inc., 296 NLRB
1001, 1003 (1989).
Accordingly, based on the foregoing analysis, I find that Re-
spondent has fallen short of meeting its burden of proving that
it would have refused to employ Polanco on September 10,
thereby in effect terminating him, absent his activities and sup-
port of the Union. Therefore, by such conduct, Respondent has
violated Section 8(a)(1) and (3) of the Act.
Turning to the discharge of Veras, once again a strong prima
case of discriminatory motivation has been established. As
with Polanco, Veras was one of the leading union adherents,
Respondent was admittedly aware of same, and Veras was
directly subjected to several serious unfair labor practices.
Thus, Veras was yelled at and accused by Chris Palagonia of
trying to organize for the Union, and called “an unhappy
motherfucker.” After admitting that he was one of the organiz-
ers for the Union, Palagonia replied that Veras was “not good
for the company,” which amounts to an implied threat of dis-
charge or other reprisal. Over the next 2 days, Chris Palagonia
tried a different tact with Veras, by twice offering him a raise in
exchange for stopping his role in organizing. While Veras
declined these offers, Palagonia told him to think about it.
Further, Veras was in the car with Polanco, when Joseph
Palagonia unlawfully followed them heading for the union
meeting. Finally, Veras was told by Chris Palagonia that if he
voted for the Union, Respondent would close the Company.
Moreover, Veras was terminated on August 24, less than
month after the July 28 election, and at a time when objections
and challenges were still pending. As I observed above with
respect to Polanco, I believe that Respondent was quite disap-
pointed that its unlawful campaign had not been successful, and
that the Union was ahead in the election, pending determination
of challenges. I conclude also that Respondent was particularly
upset with Veras (as well as Polanco) for their role in organiz-
ing the Union, particularly since Respondent had promised
Veras a raise to cease his union activities.
Finally, and perhaps most importantly, during the course of
his confrontation with Palagonia, Veras raised the issue of the
Union by stating that the “Union’s coming soon, I’ve got the
Union.” These comments obviously in response to Veras’ be-
lief that representation by the Union will prevent Palagonia
from mistreating employees amounts to union activity, and
clearly establishes a link between such union activities and his
discharge. Thus, once again the evidence is compelling that
Veras protected conduct was a motivating factor in Respon-
dent’s decision to terminate him. Wright Line, supra. As with
Polanco, where the prima facie showing is so strong, Respon-
dent’s burden of proof that it would have taken the same action
absent such protected conduct, is substantial. Vemco, supra;
Eddyleon Chocolate, supra.
In that regard, Respondent argues that it has met that burden
by establishing that Veras engaged in a “vile, grossly insubor-
dinate manner towards Christopher Palagonia in the presence of
numerous employees and management witnesses.” I have
found above that in the course of a confrontation with Chris
Palagonia, Veras did curse at Palagonia, calling him a “mother-
fucker” and adding “fuck you, fuck the bakery.” He also
pointed his middle finger at Palagonia, although Palagonia’s
PALAGONIA BAKERY CO. 531
back was turned at the time. Respondent argues that this con-
duct of Veras more than justifies Veras’ discharge, relying on
Joseph Palagonia’s testimony, that “if you can get away with
calling the President of the Company a ‘motherfucker,’ and
giving him the finger, how can any supervisor run the bakery
after that, it would be totally impossible.” Respondent’s posi-
tion has some surface appeal, since the Board has frequently
found that such conduct, particularly where, as here, it occurs in
the presence of other employees, warrants discharge and loss of
the Act’s protection. Piper Realty Co., 313 NLRB 1289, 1290
(1994); Transit Management of Southeast Louisiana, 331
NLRB 248, 249–250 (2000); see also Atlantic Steel Co., 245
NLRB 814, 816 (1979).
However, the Board has also long held, supported by the
courts, that an employer cannot provoke an employee to the
point where the employee commits acts of misconduct, includ-
ing insubordination, profanity, threats or even at times physical
assaults, and then rely on such acts to discipline the employee.
Caterpillar, Inc., 322 NLRB 674, 678–679 (1996); Indian Hills
Care Center, 321 NLRB 144, 151–155 (1996); Romar Refuse
Removal, 314 NLRB 658, 671 (1994); Teskid Aluminium
Foundry, 311 NLRB 711, 720 (1993); Action Auto Stores, 298
NLRB 875, 900 (1990); 299 Lincoln Street, Inc., 292 NLRB
172, 203 (1988), Tubari Ltd., 287 NLRB 1273, 1285 (1988),
E. I. du Pont & Co., 263 NLRB 159, 160 (1982), enfd. on other
grounds 750 F.2d 524 (6th Cir. 1984); NLRB v. Vought Co.,
788 F.2d 1378, 1383–1384 (8th Cir. 1986); NLRB v. South-
western Bell Telephone, 694 F.2d 974, 978–979 (5th Cir.
1982); NLRB v. Steinerfilm, 669 F.2d 845 (1st Cir. 1982);
NLRB v. M & B Headwear, Inc., 349 F.2d 170, 174 (4th Cir.
1965).
In assessing the issue of provocation, it is appropriate to
compare the seriousness of Respondent’s conduct with the
extent of Veras’ reaction, Caterpillar, supra at 678. Here, as in
Caterpillar and other cases cited, Veras was subject to a pat-
tern of “unjust and discriminatory treatment.” Thus, on or
about June 22, shortly after the Union requested recognition,
Chris Palagonia yelled at Veras that he was trying to organize
for the Union and called Veras “an unhappy motherfucker.”
Chris added that Veras was “not good for the Company,” an
implied threat of discharge.24 Palagonia continued to harass
Veras by constantly yelling at him (contrary to his conduct
prior to Veras’ protected union activities), and then tried a dif-
ferent tact by promising him benefits if he withdrew his support
from the Union. Further, Veras was in the car with Polanco,
going to a union meeting, when they were followed by Joseph
Palagonia constituting surveillance in violation of Section
8(a)(1) of the Act.
Finally, on August 24, Chris Palagonia approached Veras
while he was conversing with employee Cera, and asked Veras,
but not Cera why he was talking and not working? When
Veras did not reply, Palagonia called Veras a “motherfucker

24 Since this statement is not alleged as a violation of the Act, I make
no such finding, but I can and do conclude that I would have so found
had it been alleged, and I can rely on the statement in assessing the
issue of provocation. Felix Industries, 331 NLRB 48, 49 (2000), enfd.
denied on other grounds 251 F.3d 1051 (D.C. Cir. 2001).
Dominican,” and again accused Veras of not working. It is
significant to note that although Veras and Cera were both talk-
ing, Palagonia said nothing to Cera about either talking or not
working. While Respondent attempted to explain this disparity
by pointing out that Cera’s machine was in operation, this ex-
planation is unconvincing. Indeed, Chris Palagonia testified
that it was dangerous for Veras to be talking with Cera since
Cera would not be able to concentrate on his machine. Clearly,
it would be just as dangerous for Cera to be talking with Veras,
since it would be just as likely to affect his concentration. Yet,
Palagonia did not instruct Cera to either stop talking or to go
back to work. This blatantly discriminatory harassment of
Veras continued, when Palagonia then took the garbage can
which Veras was on his way to empty, and threw it and a
sweeper about 10 feet away. He then told Veras that he was
going to the office to look for a camera to take a picture. This
conduct could only be construed as an attempt by Palagonia to
photograph the mess that he had created and charge Veras with
misconduct and possible discipline or discharge.25 When Veras
foiled that scheme by picking up the sweeper and the garbage
and emptying it in the yard, Palagonia continued his harassment
of Veras in the yard. He again called Veras a “motherfucker
Dominican,” and then repeated that profanity once more as they
were walking back from the yard. When Palagonia asked why
he was calling Veras such names, Palagonia responded yes and
put his hand on Veras’ chest.
Finally, by the time Palagonia walked back into the plant,
Palagonia ordered Veras to go back to work, or “I will send you
home.” At that point, Veras “lost it” and began to curse at
Palagonia, adding that “the Union is coming . . . . I’ve got the
Union.”
I conclude that the statement of Palagonia in these circum-
stances, and against this history of harassment, can reasonably
be construed as an unlawful threat of discharge, which if al-
leged I would have so found. Since there is no such allegation,
I can, however, consider this as further unlawful harassment
and provocation for Veras’ response. Felix Industries, supra.26
See also Action Auto Stores, supra (supervisor’s statement to an
employee get to work or “get the f— out,” held to be uncalled
for ultimatum reasonably calculated to generate an angry re-
sponse, which it did).
Thus, based on the above described facts, particularly
Palagonia singling Veras out for talking to a coworker, having
had garbage thrown by Palagonia in an attempt to charge Veras
with misconduct, Palagonia calling Veras a “Dominican
motherfucker” three times, Palagonia jabbing his finger in
Veras’ chest, and finally threatening to discharge him, leads me
to conclude that this “relentless harassment” drove Veras to the
point of no return; and when Veras reacted by cursing at
Palagonia and giving him the finger, Respondents seized on
25 In this respect, it is clear that Palagonia’s conduct must be evalu-
ated from Veras’ perspective. Felix Industries, supra, 251 F.3d at 1056.
Thus, there can be no doubt that Veras reasonably believed that he was
being singled out and Palagonia was attempting to set him up for possi-
ble discharge.
26 I note that the court of appeals although denying enforcement, and
remanding the case for further explication by the Board, specifically
affirmed the Board’s findings on the issue of provocation.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 532
that as a justification for his discharge. “The statute does not
permit Respondent to so act.” E. I. du Pont, supra at 159.
Veras’ conduct was clearly provoked by Respondent, and Re-
spondent cannot rely on this misconduct to support its dis-
charge decision. Caterpillar, supra; Teskid Aluminum, supra at
220 (Employee called supervisor a “stupid motherfucker.”
Held supervisor provoked and baited employee into inviting the
result obtained.); 299 Lincoln Street, supra; Tubari Ltd., supra;
E. I. du Pont, supra.
Indeed, much more serious misconduct than that engaged in
by Veras, including threats and physical assaults have been
found to have been provoked by prior conduct of employers,
and thereby preclude the employers from relying on such mis-
conduct to justify discharge. Caterpillar, supra (employee
called supervisor a “motherfucking liar,” threatened to deal
with supervisor on the outside, and with his finger struck su-
pervisor on the top part of his body); Tubari, supra (employee
threw his gloves on the floor and angrily headed towards com-
pany president only to be stopped by another employee, and
began screaming at president); Romar Refuse, supra (employee
punched supervisor, threatened to “stomp his goddam ass in the
floor,” and asked supervisor if he wanted to fight); Blue Jeans
Co., 170 NLRB 1425, 1426 (1968) (employee “threatened to
kill the S.O.B.,” who informed on her, and threatened plant
manager with scissors); NLRB v. Vought, supra, enfd. 273
NLRB 1290, 1291 (1984) (employee told supervisor, “I’ll have
your ass”); NLRB v. Steinefilm, supra (employee offered to
“settle” things with supervisor “out in the cornfield,” slapped
his fist into his palm, plus using abusive and offensive lan-
guage).
Further, in addition to concluding which I do, that Respon-
dent’s provocation of Veras, precludes it from relying on
Veras’ profanity and alleged insubordination to justify the dis-
charge, I also rely on other evidence to find that Respondent
had failed to meet its Wright Line burden of proof.
Thus, the evidence reveals that profanity is common at Re-
spondent’s facility, and that indeed, Chris Palagonia, used it
frequently towards employees, including Veras. Such evidence
demonstrates that Respondent has not shown that it would have
discharged Veras absent his union activity. Sunbelt Mfg., 308
NLRB 780, 786–788 (1992); Action Auto Sales, supra at 900,
Vought, supra, 273 NLRB at 1295; Burle Industries, 300 NLRB
498, 505 (1970). Here, the fact that Chris Palagonia himself
had previously not only called Veras a “motherfucker,” but
made a similar comment to Polanco another union adherent,
and called a third union advocate, Desgraves, a “slave” and a
“fucking piece of shit,” makes Respondent’s alleged reliance on
profanity directed towards Chris Palagonia as a justification for
discharge, highly suspect. Greystone Bakery, 327 NLRB 433,
445 (1999) (supervisor used same profanity as employee).
Finally, I note that Respondent failed to afford Veras an op-
portunity to respond or give his side of the allegations against
him. In this regard, although Chris Palagonia is the president of
Respondent with full authority to discharge, he generally leaves
or at least consults with Joseph Palagonia, who is in charge of
personnel matters as general manager. Thus, Joseph Palagonia
testified that after hearing from Chris about Veras’ conduct, he
investigated by speaking to Supervisor Castiblanco and one
employee, who allegedly confirmed Chris’s version of events.
However, Joseph admits not calling in Veras to get side of the
incident, before deciding to discharge him. When asked might
it have made a difference in his decision had he been told about
Veras’ version of the incident, Joseph testified no, since he did
not believe that Chris would curse at employees. However, I
find this testimony unconvincing and strained. Had Veras
given his version of the incident, including the provocation that
I have found above, it certainly would have been likely to at
least require further investigation, if not at least asking Chris if
any of what Veras testified to was true.
Thus, Respondent’s failure to afford Veras an opportunity to
respond to the allegations against him, demonstrates that Re-
spondent was not truly interested in determining whether mis-
conduct had actually occurred, and lends support to an infer-
ence of unlawful motivation Government Employees (IBP0),
327 NLRB 676, 701 (1999); Washington Nursing Home; 321
NLRB 366, 375 (1996); Paper Mart, 319 NLRB 9, 10 (1995).
Accordingly, based on the foregoing analysis and authorities,
I conclude that Respondent has not shown that it would have
terminated Veras, absent his protected conduct, and that it has
therefore violated Section 8(a)(1) and (3) of the Act.
Veras’ discharge can also be evaluated under a somewhat
different rationale, although the ultimate result is the same.
Thus, where an employee is engaged in concerted activity, the
employee’s right to engage in such activity “may permit some
leeway for impulsive behavior that must be balanced against
the employer’s right to maintain order and respect.” NLRB v.
Thor Power Tool Co., 351 F.2d 584, 587 (7th Cir. 1965). In
that regard, the use of strong language in the course of pro-
tected activities supplies no legal justification for disciplining
an employee except in those circumstances where the conduct
is so flagrant or egregious, that it renders the individual unfit
for future service. Indian Hills Care Center, 321 NLRB 144,
151–152 (1946); Hawthorne Mazda, Inc., 251 NLRB 313, 316
(1980); Dreis & Krump Mfg. Co. v. NLRB, 544 F.2d 320, 329
(7th Cir. 1976); Caterpillar, supra at 677.
In making the assessment as to whether an employee’s con-
duct crosses the line and is transformed into unprotected activ-
ity, the inquiry focuses on whether the employee’s language is
“indefensible,” in the context of the concerted activity in-
volved. Caterpillar, supra, NLRB v. Vought, supra, 788 F.2d at
1384; NLRB v. Max Factor & Co., 640 F.2d 197, 204 (9th Cir.
1980); NLRB v. Florida Medical Center, 576 F.2d 666, 672
(5th Cir. 1978).
In applying these principles to the instant case, it must first
be determined whether or not Veras was engaged in protected
conduct, during his confrontation with Palagonia. While ordi-
narily the cases applying this analysis deal with situations
where an employee is attempting to enforce a contract claim
under a collective-bargaining agreement, Felix Industries, su-
pra, or engaging in a grievance discussion Caterpillar, supra, or
otherwise engaging in concerted activity under the standards of
Meyers Industries, 268 NLRB 493 (1984); Indian Hills, supra,
the analysis is also appropriate where the employee is engaged
in union activity. Fairfax Hospital, 310 NLRB 299, 300
(1993); Brunswick Food & Drug, 284 NLRB 663 (1987), enfd.
mem. 859 F.2d 927 (11th Cir. 1988).
PALAGONIA BAKERY CO. 533
Here, it is clear that during the course of his confrontation
with Palagonia, Veras stated that “the Union is coming soon,
. . . . We’ve got the Union.” These comments amounted to
Veras’ invoking his belief that the Union was going to become
the representative of Respondent’s employees, and that this
would protect Veras from future harassment by Respondent.
Such conduct is therefore considered “union activity” and
makes the above analysis appropriate. Fairfax, supra.
Interestingly, generally the Board views the burden on em-
ployer’s to be somewhat higher in such cases, and in fact, has
held that a Wright Line analysis is not proper. Felix Industries,
supra. Thus, while the employer might in some circumstances
meet its Wright Line burden by proving it would have termi-
nated the employee, absent his protected conduct, that cannot
justify the discharge, unless it meets the standards set forth
above, i.e., egregious or indefensible conduct of the employee,
rendering him unfit for future service. On the other hand, the
Board has also observed that even if the employee’s conduct is
held to have lost its protection by virtue of employee miscon-
duct, the employer’s decision is still subject to a Wright Line
analysis, which then decides whether other prior union or pro-
tected conduct of the employee, motivated the termination.
Caterpillar, supra, Fairfax, supra.
The Board in Fairfax, supra, and Caterpillar, supra, ana-
lyzed the cases under both rationales and concluded that under
either theory the employer violated the Act. I make the same
finding here.
Thus, in assessing whether an employee’s conduct is “inde-
fensible” in the context of the protected conduct, it is highly
significant whether or not the employee’s conduct was pro-
voked by the Employer. Caterpillar, supra at 677; Indian Hills,
supra at 152; Felix Industries, supra at 49; Brunswick Food,
supra at 664–665;Vought, supra, 788 F.2d at 1384, Steiner
Film, supra, 669 F.2d at 852; Florida Medical, supra, 536 F.2d
at 673.
As I have described in detail above during my Wright Line
analysis, I conclude that Respondent provoked Veras prior to
and during his confrontation with Chris Palagonia, including
Palagonia calling Veras a “motherfucking Dominican,” three
times on that day (and once on a prior incident), and Palagonia
putting his finger on Veras’ chest, all prior to Veras engaging in
any profanity or misconduct. Further, I have also found that
Palagonia attempted to set Veras up for discharge, by throwing
the garbage can plus a sweeper 10 feet away, and threatening to
get a camera. In these circumstances, I find that Veras’ conduct
was a spontaneous and impulsive outburst that was triggered by
Palagonia’s own inflammatory conduct. Caterpillar, supra at
677. There is no evidence that during his years with Respon-
dent, Veras was a violent or dangerous person or had engaged
in similar conduct before. Thus, here as in Caterpillar, supra,
Veras simply “lost it,” after Palagonia’s provocative conduct,
and made the spontaneous and emotional outburst at issue.
Therefore, I conclude that Veras’ conduct during the confronta-
tion was not of such a flagrant or serious character, as to be
“indefensible” in the “context of the grievance involved,”
thereby depriving him of the protections of the Act and render-
ing him unfit for further service. Caterpillar, supra at 677 (em-
ployee called supervisor a motherfucking liar and threatened to
deal with him outside, found not to be “indefensible,” since it
was provoked by supervisors calling employee names and mak-
ing unlawful statements to employee); Brunswick, supra; NLRB
v. Southwestern Bell, 694 F.2d 974 978–979 (5th Cir. 1982). I
note that Respondent emphasizes the fact that Veras’ conduct
took place on the shop floor, in the presence of other employ-
ees. While that has been considered in an important element in
determining whether conduct losses its protection, Piper Realty,
supra, Atlantic Steel, 245 NLRB 814, 816–817 (1979), this is
only one element in the Board’s analysis, and is generally out-
weighed where as here, there is provocation by the employer.
Felix Industries, supra; Southwestern Bell, supra; Brunswick,
supra. It is significant in this respect, that it was Palagonia who
started the confrontation on the shop floor in the presence of
other employees. Thus, having started the dispute in front of
other workers, Respondent can hardly complain about the pub-
lic nature of the discussion. Southwestern Bell, supra, 694 F.2d
at 978; Brunswick Food, supra at 665 (employer selected the
setting for the confrontation, and is thus hardly in a position to
object that customers were drawn into it).
Accordingly, I conclude that Veras’ conduct during the con-
frontation with Palagonia was provoked, and did not lose the
protection of the Act. Therefore, Respondent’s discharge of
Veras for his conduct during their confrontation was violative
of Section 8(a)(1) and (3) of the Act, apart from Wright Line
considerations.27
B. The Representation Case
1. The challenges
The Board in Azusa Ranch Market, 321 NLRB 811, 812
(1996), summarized the key elements in determining supervi-
sory status.

Section 2(11) of the Act defines the term “supervisor” as “any
individual having authority, in the interest of the employer, to
hire transfer, suspend, lay off, recall, promote, discharge, as-
sign, reward or discipline other employees, or responsibly to
direct them, or to adjust their grievances, or effectively to rec-
ommend such action, if in connection with the foregoing the
exercise of such authority is not of a merely routine or clerical
nature, but requires the use of independent judgment.” Only
individuals with “genuine management prerogatives” should
be considered supervisors, as opposed to “straw bosses, lead-
men . . . and other minor supervisory employees.” Chicago
Metallic Corp., 273 NLRB 1677, 1688 (1985), enfd. in rele-
vant part 794 F.2d 527 (9th Cir. 1986). Thus, an individual
who exercises some “supervisory authority” only in a routine
clerical, or perfunctory manner will not be found to be a su-
pervisor. Bowne of Houston, 280 NLRB 1222, 1223 (1986).
“The Board must judge whether the record proves that an al-
leged supervisor’s role was other than routine communi-
cations of instructions between management and employees
without the exercise of any significant discretion.” Further,
the burden of proving that an individual is a supervisor is on
the party alleging such status. California Beverage Co., 283

27 As related above, I have previously found that using a Wright Line
analysis, Respondent has also violated the Act by discharging Veras.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 534
NLRB 328 (1987). The Board has a duty not to construe the
statutory language too broadly because the individual found to
be a supervisor is denied the employee rights that are pro-
tected under the Act. Hydro Conduit Corp., 254 NLRB 433,
437 (1981).”

However, it is also clear that the possession of any one of the
indicia of supervisory status listed in Section 2(11) of the Act is
sufficient to confer supervisory status on an employee. Sunny-
side Farms, 308 NLRB 346, 347 (1992); Butler Johnson Corp.
v. NLRB, 608 F.2d 1303, 1306 fn. 4 (9th Cir. 1979).
In applying those principles to the challenges before me, I
conclude that the Union has presented sufficient evidence that
Uriel Londono (also known as Sanchez) exercised independent
judgement in connection with several of the indicia under Sec-
tion 2(11) of the Act, and is therefore a supervisor under that
section.
Thus, I have found above that Londono assigned overtime to
employees without checking with any other members of
management. Cannon Industries, 291 NLRB 632 (1988). He
also brought Desgraves to Richie Palagonia and said that he
wanted Desgraves’ hours changed. Although Desgraves
protested stating that the new time was not good for him,
Richie Palagonia went along with Londono’s recommendation,
and Desgraves’ hours were changed. Although the ultimate
decision was made by Palagonia, the above evidence
demonstrates that Londono effectively recommended the
change in Desgraves’ hours, based on his independent judg-
ment of Respondent’s production needs, which is an indicia of
supervisory authority. Entergy Systems & Services, 328 NLRB
902 (1999); Venture Industries, 327 NLRB 918, 919 (1999).

Moreover, the evidence reveals that Londono assigned work
to 15 employees in the bakery department, which assignments
involved the exercise of independent judgment, since there are
differences in ability amongst employees, as well as differences
in degree of difficulty of operating Respondent’s machines. It
is Londono who makes the decision based on his assessment of
the employee’s ability to operate the machine. DST Industries,
310 NLRB 957, 958 (1993); Supervisor Bakery, 294 NLRB
256, 262 (1989); Rose Metal Products, 289 NLRB 1153
(1988); IIlini Steel Fabricators, 197 NLRB 303 (1972).
Also, Londono regularly exercised the authority to reassign
employees working in other departments such as porters to
work in the production department, as well to reassign employ-
ees within the department to different tasks. Once again, Lon-
dono exercised independent judgment in regard to these re-
sponsibilities, particularly where for example he would assign
Veras to work in the production department mixing dough.
This assignment required Londono to make an assessment that
Veras was capable of mixing dough, a task that other porters
were not capable of performing. Such reassignment of em-
ployees is also sufficient to establish supervisory status of Lon-
dono. Sunnyside Home Care, supra; Polynesian Hospitality
Tours, 297 NLRB 228, 238–240 (1984); Liquid Transporters,
257 NLRB 345 (1982).
Additionally, when Desgraves was hired, Richie Palagonia
asked Londono if he needed employees to work in the oven.
When Londono said yes, Desgraves was hired. This evidence
indicates that Londono’s role in the hiring process is supportive
of his supervisory status. Holly Farms Co., 311 NLRB 273,
293 (1993).
Additional factors in the record which further support my
finding that Londono was supervisor, include the facts that
employees consider him to be a supervisor, K.B.I. Security, 318
NLRB 268 (1995); Baby Watson Cheesecake, 320 NLRB 779,
784 (1996),28 his salary is considerably higher than unit em-
ployees and is in fact the same as that of admitted Supervisor
DiBua, McLatchy Newspapers, 307 NLRB 773 (1992), Illini
Steel, supra; he told employees when to take their lunch hours,
Illini Steel, supra, and he used a separate room (under lock and
key) that was not available to unit employees, to meet and relax
during his shift. Based on the above, I conclude that Londono
is a supervisor under Section 2(11) of the Act, and that the chal-
lenge to his ballot should be sustained.
The Union argues that the evidence establishes that the re-
maining challenged individuals, Saintvil, Arroyave, Pitter, Sig-
ismondi, and Justi exercised independent judgment in assign-
ment of work, transfer of employees, and direction of employ-
ees to stay beyond their shifts. That plus various secondary
indicia such as higher pay, use of separate room and attendance
at management meetings, according to the Union leads to the
conclusion that these individuals are also supervisors under
Section 2(11) of the Act. I do not agree.
The Union relies primarily on the credited testimony of Gon-
zalez, which established that these individuals would initial
time cards of employees, which was necessary in order for
Gonzalez on behalf of Respondent to pay employees for over-
time or for work where the timecards malfunctioned. Accord-
ing to the Union, this evidence supports the conclusion that
these individuals authorize overtime or other pay beyond their
normal weekly wage. However, in my judgment this evidence
proves only that these individuals were merely certifying that
the employees either worked the overtime or that the overtime
was authorized by Respondent. It proves nothing about who
actually authorized or assigned the overtime, or what role, if
any, was played by these individuals in that regard. Thus, there
is no evidence that any of these five individuals ever assigned
or authorized in advance overtime for employees, or even if
these individuals requested the employees to work the over-
time. It is noted that asking employees to perform overtime
does not entail the exercise of independent judgment. Ryder
Truck Rental, 326 NLRB 1386, 1387 (l998).
In contrast to Londono, where as I have found above, he as-
signed the overtime to employees without checking with any
one from management, these individuals by initialing the time
cards merely engaged in a reportorial, clerical functions, which
is insufficient to confirm supervisory status on them. Fleming
Cos., 330 NLRB 277, 281 (1999); Byers Engineering Co., 324
NLRB 740 (1997).
28 I note in this regard that Desgraves was specifically told by Richie
Palagonia that Londono was his supervisor, and that when Desgraves
complained to Richie about Londono not allowing him to go home
because of illness, Richie told Desgraves, “I’m not the manager of the
back, whatever Sanchez says, you have to agree with him.”
PALAGONIA BAKERY CO. 535
In terms of assigning work, the evidence indicates that Ar-
royave and Saintvil directed the work of the porters by telling
them what to do, such as “clean this, clean that,” or clean first
this area, have it done soon, or “do that, do here, do there.”
Such assignments and directions do not establish the requisite
independent judgment on the part of either Saintvil or Ar-
royave. There is no evidence that any of the jobs assigned to
the porters requires any particular skills, nor that the abilities of
any of the employees who perform the jobs differed substan-
tially, such that selecting a particular employee for a task would
require independent judgment. Bozeman Deaconess Founda-
tion, 322 NLRB 1107 (1997). Therefore, the assignment and
direction of work exercised by Saintvil and Arroyove is routine,
and not supportive of supervisory status. Bozeman, supra;
Fleming, supra.
Similarly, the record discloses that Justi and Sigismondi
would direct people in the shipping and receiving department,
when Richie Palagonia was not present. These directions
would include taking out the plastic or picking up boards.
Once more there is no evidence of any difference in skills
amongst employees in that department, or that the different jobs
require particular skills or abilities. Thus, there is no evidence
that Justi or Sigismondi exercises independent judgment in
their assignment of work. Bozeman, supra, Fleming, supra.
There is also evidence in the record that Arroyave had at
various times informed Gonzalez that he had recommended to
Chris Palagonia that certain employees receive raises. How-
ever, as Gonzalez conceded raises were not given to employees
until June, as detailed above. Thus, there is no evidence that
Arroyave made an effective recommendation of wage increases
for Respondent’s employees.
The record did reveal that immediately after the Union’s de-
mand in June, Arroyave asked Gonzalez for a spreadsheet of all
porters, including their names and rates of pay. After receiving
the list from Gonzalez, Chris Palagonia said to Arroyave,
“[Y]ou have to give them the raise, but first tell them this.”
Although employees received raises shortly thereafter, this
evidence falls far short of establishing that Arroyave made an
effective recommendation for raises. On the contrary, the
above suggests that although Arroyave may have previously
recommended raises for employees, the raises were not given
until the Union appeared. Therefore, Respondent granted the
raises not due to any recommendation of Arroyave, but because
the Union demanded recognition. The fact that Chris Palagonia
instructed Arroyave to tell employees something about the
raise, merely establishes that Arroyave acted as a conduit for
management, which is not sufficient to prove supervisory
status. Fleming, supra; Chicago Metallic, 273 NLRB 1677,
1693 (1985).
Further, Gonzalez was told by various of these individuals
that they were either a supervisor or a foreman, and by Joseph
Palagonia that in effect these individuals (who initial time
cards) were direct supervisors of the employees in their de-
partments, Veras was told by Chris and Richie Palagonia that
Saintvil and Arroyave were his supervisors, and Chris Palago-
nia told porters that Saintvil would become the supervisor of
the porters, while Todo (an admitted supervisor) was out of
work. However, this evidence provides no indication of what
functions or responsibilities these individuals performed as
supervisors or foreman. These terms are conclusionary and do
not establish supervisory status, since it is well settled that the
use of a title does not make an employee a supervisor. Flem-
ing, supra at fn. 1; North Miami Convalescent Home, 224
NLRB 1271, 1272 (1976).
Similarly, the evidence that in a 1991 hearing officer’s re-
port, Sigismondi was referred to as a “manager,” is inconse-
quential. Thus, the record does not reflect how the hearing
officer concluded that Sigismondi was a “manager” in 1981 or
even that the issue was litigated in that proceeding. Moreover,
as noted the conclusionary title of manager or supervisor does
not make an employee a supervisor.
The above evidence, i.e., the fact that these individuals were
referred to by management as “supervisor,” is at best secondary
indicia of supervisory status, which along with other evidence
relied on by the Union, such as pay differential, attendance at
supervisors meetings, and use of an office under lock and key,
cannot be considered in the absence of evidence that these indi-
viduals possessed any of the enumerated categories of authority
in Section 2(11) of the Act. Hausner Hard-Chrome of Ky, Inc.,
326 NLRB 426, 427 (1998); J. C. Brock Corp., 314 NLRB 157,
159 (1994).
Accordingly, I conclude that the Union has not met its bur-
den of proof that Saintvil, Arroyave, Justi, Sigismondi, or Pitter
are supervisors under Section 2(11) of the Act, and that the
challenges to their ballots should be overruled.
That leaves the final challenge for determination, the ballot
of Patricia Palagonia. The Union contends that the challenge to
her vote should be sustained, because she is not a unit em-
ployee, is a confidential employee, and is a relative of man-
agement.
The unit agreed to by the parties in the Stipulated Election
Agreement includes plant clericals, and excludes office clerical
and sales employees. The distinction drawn by the Board be-
tween office clericals and plant clericals, is not always clear.
Hamilton Halter Co., 270 NLRB 331, 332 (1984); Gordonsville
Industries, 252 NLRB 563, 590 (1980). The distinction is
posted in community-of-interest concepts. Clericals whose
principal functions and duties relate to the general office opera-
tions and are performed within the office itself are office cleri-
cals who do not have a close community of interest with a pro-
duction unit. Mitchellace Co., 314 NLRB 536, 537 (1994). A
key element in determining whether a community of interest
exists is whether the asserted plant clericals “perform functions
closely allied to the production process or to the daily opera-
tions of the production facilities at which they work.” Fisher
Controls Co., 192 NLRB 514 (1971); Gordonsville, supra.
In making that determination, my review of the relevant
cases indicates that the crucial element in finding such an alli-
ance with the production process, is significant contact with
production employees. Thus, in cases where employees were
found to be plant clericals, the Board consistently relies upon
the presence of significant direct contact with production em-
ployees in finding functional integration with the production
process and a sufficient community of interest. Columbia Tex-
tile, 293 NLRB 1034, 1037–1038 (1984); Hamilton Halter,
supra; Raytee Co., 228 NLRB (1977); Jacob Ash & Co., 224
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 536
NLRB 74, 75 (1976); Weyerhaeuser Co., 132 NLRB 84, 85
(1961). On the other hand, where the Board finds employees
not to be plant clericals, it consistently relies heavily on the
absence of evidence of substantial contact with production
employees to conclude that the asserted plant clericals do not
share a community of interest with production employees and
or are office clerical employees. Aerospace Co., 331 NLRB
561, 572 (2000); Mitchellace, supra; Cook Composites, 313
NLRB 1105, 1108 (1994) (distinguishing Hamilton Halter Co.,
supra on its basis); Avecor Inc., 309 NLRB 74, 75 (1992) (dis-
tinguishing Columbia Textile, supra); Conchemco, Inc., 182
NLRB (1970); Wilder Mfg. Co., 173 NLRB 214 (1968), Fa-
mous Barr Co., 153 NLRB 341, 345 (1965).
In applying the principles of these cases to Patricia Palago-
nia, the record discloses that she performs various functions for
Respondent, including, bookkeeping and filing, collecting per-
sonnel information from employees and preparing a folder for
employees. She also stamps Christopher Palagonia’s signature
on payroll checks. These functions are clearly office clerical
responsibilities and are not functionally related to the produc-
tion process.
She also will take orders that comes in over the phone and
will then bring the order out to the plant and give the order to a
supervisor, or call the supervisor into the office and give him
the order. Finally, she sorts out accounts payable files and
places them back into the file cabinets. The latter function I
also find to be essentially office clerical in nature. Mosler Safe,
188 NLRB 650, 651 (1971); Famous-Barr, supra.
However, her function of taking orders over the phone and
distributing same to the production department has been held to
be part of the production process. Hamilton Halter, supra,
Columbia Textile, supra. However, as I have detailed above,
those cases and others cited also found that the employees had
direct contact with production employees in connection with
that job function. There is no such evidence here, other than
Patricia Palagonia’s role in taking personnel information from
employees when they are hired, which as noted is clearly an
office clerical function, and not related to the production proc-
ess.
While she does, at times, bring the order onto the production
floor for processing, she has, insofar as this record discloses, no
direct contact with unit employees. Her only contact is with
supervisors in connection with this job function. This is insuf-
ficient involvement with the production process to warrant a
community of interest finding. See Aerospace, supra, where an
employee “on occasion” handed orders to mechanics, or placed
orders in mechanics boxes. The Board concludes that the em-
ployee had “little interaction” with employees, and therefore
such “minimal interface” with such employees does not provide
the requisite community of interest. Here as noted, there is no
evidence of any interaction with production employees, with
regard to the production process.
Accordingly, based on the above precedent, I conclude that
Patricia Palagonia does not share a community of interest with
Respondent’s unit employees, since she performs mainly office
clerical functions, does not interact with such employees with
regard to production matters, and works in a separate office not
on or near the production floor. In such circumstances, she is
not a plant clerical, and is excluded from the unit. Aerospace,
supra; Mitchellace supra; Cook Composites, supra; Conchemco,
supra; Mosler Safe, supra.
The Union also argues that Patricia Palagonia should be ex-
cluded from voting because she is a relative of management.
The Board in R & D Trucking Co., 327 NLRB 531, 533 (1999),
summarized applicable Board law on this subject:

The Board has long hesitated to include the relatives of man-
agement in bargaining units because their interests are suffi-
ciently distinguished from those of other employees: See
NLRB v. Action Automotive, 469 U.S. 490, 494–495 (1985).
The Board, however, does not exclude an employee simply
because he or she is related to a member of management. In-
ternational Metal Products Co., 107 NLRB 65 (1953).
Rather, the Board considers a variety of factors in deciding
whether an employee’s familial ties are sufficient to align his
interests with management and thus warrant his exclusion
from the bargaining unit. The greater the family involvement
in the ownership and management of the company, the more
likely the employee-relative will be viewed as aligned with
management and hence excluded. See NLRB v. Action
Automotive, supra. The Board utilizes an expanded com-
munity of interest test to determine whether relatives of
owner-managers should be excluded from the unit. However,
in cases where ownership is not an issue, the question is
whether the relative enjoys a special status on the job because
of their relationship to the nonowner manager. Cumberland
Farms Store, 272 NLRB 336 (1984). See also Allen Services
Co., 314 NLRB 1060, 1062–1063 (1994).

Here, Patricia Palagonia is the wife of Anthony Palagonia, a
supervisor of Respondent, and the cousin of Chris Palagonia,
Respondent’s sole shareholder and owner. Additionally, An-
thony is the brother of Joseph Palagonia, who is Respondent’s
general manager, who acts as a sort of cochief executive with
Chris,29 and another brother of Joseph and Anthony, Richie
Palagonia is also a supervisor of Respondent. Thus, Patricia is
a relative30 of Chris Palagonia. and it need not be shown that
she enjoys job related privileges, in order to find her interests
aligned more closely to management, and therefore, that she
does not share a community of interest with the unit employees.
Marvin Witherow Trucking, 229 NLRB 412 (1977); Parisoff
Drive-In Market, 201 NLRB 813, 814 (1973); Caravelle Wood
Products, 200 NLRB 855, 856 (1972), enfd. 504 F.2d 1181,
1183–1188 (7th Cir. 1974).
However, although it is not essential that job related privi-
leges be shown to demonstrate the lack of community of inter-
est, Parisoff, supra, Caravelle Wood, supra, it is an important
factor in assessing whether the employee shares a sufficient
29 I note in that regard that when Respondent terminated Veras, as a
result of a confrontation with Chris Palagonia, Chris, although the
owner and president with full authority to terminate, reported the inci-
dent to Joseph and Respondent did not terminate Veras until Joseph
conducted an “investigation” of the incident and recommended to Chris
that Veras be fired.
30 A relative is defined in the dictionary as “a person who is con-
nected with another by blood or marriage,” Random House College
Dictionary p. 1113.
PALAGONIA BAKERY CO. 537
community of interest with other employees. Luce & Sons,
Inc., 313 NLRB 1355, 1356 (1994) (sister of principal owner.
Board relies on job related privileges not enjoyed by other em-
ployees to find employee ineligible); Blue Star Ready Mix, 305
NLRB 429, 430–431 (1991). (Grandson of sole owner. Board
reverses hearing officer and find in the absence of special job
related privileges, employee had sufficient community of inter-
est with other employees.); R & D Trucking, supra (son-in-law
of owner president. Excluded from unit because he enjoyed job
related privileges not shared with other employees.).
Here, there is no evidence that Patricia Palagonia received
any job related privileges as a result of her relationship to either
Anthony or Chris Palagonia. While she does have responsibil-
ity of stamping Chris Palagonia’s name on payroll checks, I do
not view this as a job related privilege that would disqualify her
from eligibility. Therefore, I do not find that her relationship to
either Chris or Anthony Palagonia is sufficient by itself to war-
rant a finding that she lacks a community of interest with other
employees. Allen, supra, Blue Star, supra.
However, I do note that my findings above that Patricia
Palagonia is not a plant clerical, is based a finding that she does
not share of community of interest with unit employees. In my
view her status as a relative of the Palagonia’s does reinforce
and support that conclusion. I note that the Board observed in
Parisoff, supra, that, where the relative of the challenged voter
is but one of a “number of unrelated owners, an identity of
interest between the voter and the corporations management
may or may not be shown to exist. Where, however, all the
owners are members of the same family and related to one an-
other, as well as to the questioned employee, we believe it more
likely that the business interests of the corporation will be syn-
onymous with the interests of the family to which the employee
belongs. His interests as a member of the governing family
may well outweigh his interests as an employee of the corpora-
tion and, to that extent, his interests may be entirely different
from the interests of the other employees whose sole stake in
the corporation is that they work there.” Id. at 813. The Board
also noted the significance of the challenged individuals rela-
tive being active in the day-to-day management of the em-
ployer. The Board observed that in these circumstances, “it is a
virtual certainty that such individuals would get a more atten-
tive and sensitive ear to their day-to-day and long-range work
concerns than would other employees. While this accessibility
to management may not always result in easily identifiable
special privileges or favorable working conditions, the fact that
they have this peculiar access gives them a status and area of
interest not shared by the rest of the employees.” Id. See also
Caravelle Wood, supra, where the Board found that wives and
children of a family that was principally owned, controlled,
managed, and supervised by members of that family were
closely allied to management. The court affirmed the Board by
observing that “blood is thicker than water,” and that it is pos-
sible that the inclusion of the relatives in the unit would inter-
fere with the “fullest freedom of other employees to engaged in
the selection of their bargaining unit.” 504 F.2d at 1187.
I recognize that these cases involve children or wives of
owners, but the language therein appears applicable to the in-
stant situation. Patricia Palagonia works for a company con-
trolled and operated by the Palagonia family. Although she is
married to Anthony, a nonowner, Anthony is a supervisor and a
cousin of the owner and brother of Joseph, Respondent’s gen-
eral manager, who jointly runs the business with Chris. I also
note, that although Patricia is not supervised by her husband,
she is directly supervised by Joseph. In these circumstances, a
strong argument can be made, as in Parisoff, supra, that in view
of the role of the Palagonia family in managing and supervising
Respondent’s business, that Patricia Palagonia’s status as a
relative of the family makes it likely that her interest is more
closely allied with management, than with those of her fellow
employees. As set forth above, I do not find these facts alone
sufficient to so conclude, in view of the lack of any evidence of
job related privileges, but I am of the opinion that her status as
a relative of the Palagonia family, is further supportive of my
finding above that she is not a plant clerical and does not share
a community of interest with unit employees.
I therefore conclude that the challenge to her ballot should be
sustained.
The Union also contends that Patricia Palagonia should be
excluded from the unit, as a confidential employee, since she is
“involved in a close working relationship with an individual
who decides and effectuates management labor policy and is
entrusted with decisions and information regarding the policy
before it is known by those affected by (such decision). Inter-
mountain Electric Assn., 177 NLRB 1, 4 (1985). I disagree.
While the record discloses that Patricia Palagonia has access
to the offices of Chris and Joseph Palagonia, who are Respon-
dent’s officials in charge of labor relations, such access is insuf-
ficient to confer confidential status. It must be shown that the
employee played a substantive role in creating labor relations
documents or making substantive decisions being recorded or
has regular access to labor relations information before the
Union or employees involved. Inland Steel Co., 308 NLRB
868, 877 (1992). Here, no evidence was adduced that Patricia
Palagonia engaged in any of these functions. While she was
authorized to stamp Chris Palagonia’s name on payroll checks,
this function has no relationship to any labor nexus, and is not
an indication of confidential status. Therefore, I reject the Un-
ion’s contention that she is a confidential employee.
However, as detailed above, because she is not a plant cleri-
cal and does not share a community of interest with production
employees, I find that the challenge to her ballot should be
sustained.
2. The objections
The objections filed by the Union have largely parallel the
allegations of the complaint that I have decided above. In that I
regard, I have found that Respondent committed numerous
violations of Section 8(a)(1) of the Act, all of which took place
within the critical period, between the filing of the petition and
the election. These allegations include the unlawful granting of
wage increases to employees, unlawful promises of benefit,
threats to close, interrogations and engaging in surveillance of
employees, and creating the impression that their union activi-
ties were under surveillance. These violations are more than
sufficient to warrant setting aside the election. I so find.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 538
Respondent’s objections relate to the conduct of Jose
Merced, a union official on the day of the election. The evi-
dence presented revealed a stark difference between the testi-
mony of Merced and Joseph Palagonia as to most of the rele-
vant facts in dispute. Based on comparative demeanor consid-
erations, as well as several other factors, I credit Merced’s ver-
sion of the events in question.
I note that one of the significant issues in dispute, is whether
as testified to by Merced, he entered the premises in order to
accompany two employees to vote, because they were denied
entrance by Supervisor Londono, who in turn, cursed at Merced
when he insisted on the employees being permitted to enter the
premises in order to vote. Moreover, Palagonia testified that it
was reported to him by DiBua that Merced sought to bring the
employees into vote, but that DiBua had not denied entrance to
the employees, but only to Merced. Further, according to
Palagonia, both Londono and DiBua witnessed his alleged con-
frontation with Merced, wherein Merced allegedly refused to
leave the premises and cursed at Palagonia, when Palagonia
first confronted him.
Significantly, Londono did not testify, and DiBua testified
about other matters, but was not asked about this incident. I
find that Respondent’s failure to call or ask these witnesses
about this incident, gives rise to an adverse inference, that if
called these witnesses testimony would be adverse to Respon-
dent as to this incident. United Parcel Co., supra, Ready Mix
Concrete, supra, International Automated Machines, 285
NLRB 1122, 1123 (1987) (“[W]hen a party, fails to call a wit-
ness who may reasonably be assumed to be favorably disposed
to the party, an adverse inference may be drawn regarding any
factual question on which the witness is likely to have knowl-
edge.”).
Such an adverse inference is particularly appropriate here,
since Palagonia did not witness Merced’s entrance into the
plant, and his testimony that Respondent allowed the employ-
ees in but not Merced is based on his alleged report from
DiBua. Thus, the failure of DiBua and Londono to corroborate
Palagonia takes on even more significance in these circum-
stances.
Further, Palagonia’s own testimony revealed significant in-
consistencies. Initially, he never even mentioned that Londono
was present during the incident, but only after Merced testified,
did he recall on rebuttal that Londono was present. More im-
portantly, initially Palagonia denied that he knew why Merced
was in the plant, but only after questioning by me did he recall
that DiBua had allegedly informed him of the reason.
Therefore, based on the foregoing, I have credited Merced’s
version of the incident. This testimony establishes that two
employees informed Merced that Londono had denied them
entrance to the plant in order to vote. Merced then walked with
the employees to the back entrance, in order to assist them in
gaining entrance to the facility. He was confronted by Londono
who cursed at him and denied entrance to both Merced and the
employees. Merced then opened the door, walked the employ-
ees into the plant, and directed them to the polling area. Lon-
dono followed Merced, and continued to curse at him. Merced
then cursed back at Londono and said, “[D]on’t talk to me that
way.”
Joseph Palagonia then came over and asked what Merced
was doing in the plant? Merced explained that he wanted to
make sure that employees could vote, since they were on the
list. By that time, the employees had voted. Palagonia asked
Merced to leave. Merced immediately left and did not curse at
Palagonia. Merced also did not yell and scream outside the
plant, after he left as Palagonia alleges.
Based on these factual findings, it is clear that the Union en-
gaged in no objectionable conduct, and that Respondent’s reli-
ance on Phillips Chrysler Plymouth, 304 NLRB 16 (1991), is
misplaced. There, two union representatives refused to leave
an employer’s premises for 45 minutes, prior to an election,
although repeatedly directed to do so by management represen-
tatives, and engaged in a “shouting match” in front of employ-
ees. The Board concluded that this major incident, wherein the
union representatives, who had no legal right to be there, re-
peatedly and belligerently refused to heed requests of the em-
ployer’s president to leave, amounted to objectionable conduct.
The Board reasoned that this direct challenge to the employer’s
assertion of its property rights conveyed to employees that the
employer was powerless to protect its own legal rights in a
confrontation with the Union.
The facts here, however, are quite different. Merced when
confronted by Palagonia and asked to leave the premises, im-
mediately complied, since the employees had already voted.
Thus, there was no refusal to leave belligerent or otherwise, and
no conveyance to employees that the Employer was powerless
to protect its legal rights. While Merced did have a confronta-
tion with Londono, wherein he cursed at Londono within hear-
ing of some employees, this confrontation was provoked by
Londono’s conduct in first refusing to allow the employees into
the premises to vote, and by Londono’s cursing at Merced for
his conduct in assisting these employees in their right to vote. I
note that in Phillips, supra, the Board pointedly observed that
there is no evidence of any misconduct on the part of the em-
ployer to weigh against the misconduct on the part of the peti-
tioner’s agents. Here, there is clear misconduct on the part of
Londono, a supervisor of Respondent, by denying entrance to
the employees and cursing at Merced for his attempts to assist
the employees in the exercise of their rights. Thus, Merced’s
conduct in cursing at Londono was clearly provoked, and does
not warrant setting aside the election.31
Accordingly, based on the foregoing, I conclude that the ob-
jections of Respondent must be overruled.
3. Conclusions—Case 29–RC–9507
In sum, I have recommended that the challenges to the bal-
lots of Uriel Londono and Patricia Palagonia be sustained, and
the challenges to the ballots of Mario Arroyave, Leonard Pitter,
Gibbs Saintvil, Frank Sigismondi, and Alexander Justi be over-
ruled, and that their ballots be opened and counted.

31 I note further, even if Merced’s cursing at Londono was not pro-
voked, I do not believe that such conduct was sufficient under Phillips,
supra, to set aside the election, since when he was asked to leave by
Palagonia, Merced immediately complied and left the premises.
PALAGONIA BAKERY CO. 539
Thereafter, the Regional Director shall issue a revised tally
of ballots. If the revised tally reveals that a majority of ballots
has been cast in favor of union representation, the Regional
Director shall issue a certification of representatives.
If on the other hand, the revised tally does not show that the
Union has received a majority of the votes, then I recommend
that the election be set aside, and that a new election be or-
dered, due to the objectionable conduct of Respondent.
CONCLUSIONS OF LAW
1. The Respondent, Palagonia Bakery Company, Inc., is an
employer within the meaning of Section 2(2), (6), and (7) of the
Act.
2. Local 348-S United Food & Commercial Workers Interna-
tional Union, AFL–CIO is a labor organization within the
meaning of Section 2(5) of the Act.
3. By interrogating its employees concerning their activities
on behalf of or support for Local 348-S, United Food & Com-
mercial Workers, AFL–CIO (the Union) interrogating its em-
ployees about events that are the subject of unfair labor practice
proceedings, granting wage increases to employees in order to
discourage its employees from supporting the Union, promising
wage increases, increased vacation benefits, and other im-
provements in their terms and conditions of employment, to
induce said employees to abandon their support for the Union,
or to convince other employees to abandon their support for the
Union, engaging in surveillance of the union activities of its
employees, creating the impression that the union activities of
its employees were under surveillance, and threatening its em-
ployees with closing of the facility, if employees supported or
voted for the Union, Respondent has violated Section 8(a)(1) of
the Act.
4. By discharging its employees Nelson Polanco and Andre
Veras, more closely supervising its employees, changing the
lunch hours of its employees, and by harassing its employees,
because the employees engaged in activities on behalf of and
supported the Union, Respondent has violated Section 8(a)(1)
and (3) of the Act.
5. The above described unfair labor practices affect com-
merce within the meaning of Section 2(2), (6), and (7) of the
Act.
6. The Respondent has not otherwise violated the Act as al-
leged in the complaint.
REMEDY
Having found that Respondent has engaged in certain unfair
labor practices, I shall recommend that it cease and desist there-
from and take certain affirmative action designed to effectuate
the policies of the Act.
Having found that the Respondent discriminatorily dis-
charged Andres Veras and Nelson Polanco, I shall recommend
that the Respondent offer them immediate and full reinstate-
ment to their former jobs or substantially equivalent positions
without prejudice to their seniority or other rights and privi-
leges, and make them whole for any loss of earnings they may
have suffered by reason of the discrimination against them. All
backpay provided shall be computed with interest on a quar-
terly basis in the manner prescribed by the Board in F. W.
Woolworth Co., 90 NLRB 289 (1950), and New Horizons for
the Retarded, 283 NLRB 1173 (1987).
On these findings of fact, conclusions of law, and the entire
record, I issue the following recommended32
ORDER
The Respondent, Palagonia Bakery Co., Inc., Brooklyn, New
York, its officers, agents, successors, and assigns, shall
1. Cease and desist from
(a) Interrogating its employees concerning their activities on
behalf of Local 348-S, United Food & Commercial Workers
AFL–CIO (the Union).
(b) Interrogating its employees about events that are the sub-
ject of unfair labor practice proceedings.
(c) Granting wage increases to its employees in order to dis-
courage its employees from supporting the Union.
(d) Promising its employees wage increases, increased vaca-
tion benefits, or other improvements in their terms and condi-
tions of employment, in order to induce its employees to aban-
don their support for the Union or to convince other employees
not to support the Union.
(e) Engaging in surveillance of the union activities of its em-
ployees.
(f) Creating the impression that the union activities of its
employees were under surveillance.
(g) Threatening its employees with closing of the facility, if
its employees supported or voted for the Union in an NLRB
election.
(h) More closely supervising its employees, changing the
lunch hours of its employees, or harassing its employees, be-
cause said employees engaged in activities on behalf of or sup-
ported the Union.
(i) Discharging its employees because of their activities on
behalf of or support for the Union.
(j) In any other manner interfering with restraining or coerc-
ing employees in the exercise of their rights guaranteed them
under Section 7 of the Act.
2. Take the following affirmative action necessary to effec-
tuate the policies of the Act.
(a) Within 14 days from the date of this Order, offer Andres
Veras and Nelson Palanco full and immediate reinstatement to
their former positions of employment, or if their positions no
longer exist, to a substantially equivalent position without
prejudice to their seniority or other rights and privileges previ-
ously enjoyed.
(b) Make Andres Veras and Nelson Polanco whole for the
discrimination against them in the manner set forth in the rem-
edy section of this decision.
(c) Within 14 days from the date of this Order, remove from
its files any reference to the discharges of Andres Veras and
Nelson Polanco, and within 3 days thereafter, notify them in
writing that this has been done, and that evidence of the dis-

32 If no exceptions are filed as provided by Sec. 102.46 of the
Board’s Rules and Regulations, the findings, conclusions, and recom-
mended Order shall, as provided in Sec. 102.48 of the Rules, be
adopted by the Board and all objections to them shall be deemed
waived for all purposes.
DECISIONS OF THE NATIONAL LABOR RELATIONS BOARD 540
charges will not be used as a basis for future personnel actions
against them.
(d) Preserve and, within 14 days of a request, or such addi-
tional time as the Regional Director may allow for good cause
shown, provide at a reasonable place designated by the Board
or its agents, all payroll records, social security payment re-
cords, timecards, personnel records and reports, and all other
records, including an electronic copy of such records if stored
in electronic form, necessary to analyze the amount of back pay
due under the terms of this Order.
(e) Within 14 days after service by the Region, post at its
Brooklyn, New York facility copies of the attached notice
marked “Appendix.”33 Copies of the notice, on forms provided
by the Regional Director for Region 29, after being signed by
the Respondent’s authorized representatives, shall be posted by
the Respondent and maintained by it for 60 consecutive days in
conspicuous places including all places where notices to em-
ployees are customarily posted. Reasonable steps shall be
taken by the Respondent to ensure that the notices are not al-
tered, defaced, or covered by any other material. In the event
that during the pendency of these proceedings, the Respondent
has gone out of business or closed the facility involved in this
proceeding, the Respondent shall duplicate and mail, at their
own expense, a copy of the notice to all current employees and
former employees employed by the Respondent at any time
since June 19, 2000.
(f) Within 21 days after service by the Region, file with the
Regional Director a sworn certification of a responsible official
on a form provided by the Region attesting to the steps that the
Respondents have taken to comply.
IT IS FURTHER ORDERED, that the complaint be dismissed in-
sofar as it alleges violations not found herein.
IT IS FURTHER ORDERED, that in Case 29–RC–9507, the chal-
lenges to the ballots of Uriel Londono and Patricia Palagonia be
sustained and their ballots not be opened or counted. The chal-
lenges to the ballots of Mario Arroyave, Leonard Pitter, Frank
Sigismondi, Alexander Justi, and Gibbs Saintvil are overruled
and their ballots shall be opened and counted. Upon the issu-
ance of a revised tally of ballots, if the Union is designated by a
majority of the votes counted, the Region should issue of Certi-
fication of Representatives. If the Union has not been so desig-
nated, the election should be set aside, and a new election or-
dered.

33 If this Order is enforced by a judgment of the United States court
of appeals, the words in the notice reading “Posted by Order of the
National Labor Relations Board” shall read “Posted Pursuant to a
Judgment of the United States Court of Appeals Enforcing an Order of
the National Labor Relations Board.”
APPENDIX
NOTICE TO EMPLOYEES
POSTED BY ORDER OF THE
NATIONAL LABOR RELATIONS BOARD
An Agency of the United States Government

The National Labor Relations Board has found that we violated
the National Labor Relations Act and has ordered us to post and
abide by this notice.

WE WILL NOT interrogate our employees concerning their ac-
tivities on behalf of Local 348-S, United Food & Commercial
Workers, AFL–CIO (the Union)
WE WILL NOT interrogate our employees about events that are
the subject of unfair labor practice proceedings.
WE WILL NOT grant wage increases to our employees in order
to discourage our employees from supporting the Union.
WE WILL NOT promise our employees wage increases, in-
creased vacation benefits, or other improvements in their terms
and conditions of employment, in order to induce our employ-
ees to abandon their support for the Union or, to convince other
employees not to support the Union.
WE WILL NOT engage in surveillance of the union activities of
our employees.
WE WILL NOT create the impression that the union activities
of our employees are under surveillance.
WE WILL NOT threaten our employees with closing of the fa-
cility, if our employees support or vote for the Union in an
NLRB election.
WE WILL NOT more closely supervise our employees, change
the lunch hours of our employees, or harass our employees,
because said employees engage in activities on behalf of or
support the Union.
WE WILL NOT discharge our employees because of their ac-
tivities on behalf of or support for the Union.
WE WILL within 14 days from the date of this Order, offer
Andres Veras and Nelson Polanco full and immediate rein-
statement to their former positions of employment, or if their
positions no longer exist to a substantially equivalent position
without prejudice to their seniority or other rights and privi-
leges previously enjoyed.
WE WILL make Andres Veras and Nelson Polanco whole for
the discrimination against them , plus interest.
WE WILL within 14 days from the date of this Order expunge
from our files any reference to the discharges of Andres Veras
and Nelson Polanco and within 3 days thereafter, notify them in
writing that this has been done, and that evidence of the dis-
charges will not be used as a basis for future personnel actions
against them.

PALAGONIA BAKERY COMPANY, INC.