PROHIBITION OF WAGE RATE DIFFERENTIALS BASED ON SEX

SEC. 2. It shall be an unfair wage practice for any employer

(a) to discriminate in the payment of wages between the sexes by paying wages to any female employee at a rate less than the rate at which he pays wages to male employees for work of comparable character on jobs the performance of which requires comparable skills, except where such payment is made pursuant to a seniority or merit increases system which does not discriminate on the basis of sex; or the performance of which requires comparable skills; or

(b) to lay off or discharge or in any other manner discriminate against any employee because such employee has filed any charges or instituted or caused to be instituted any proceeding under or related to this Act, or has testified or is about to testify in any such proceeding.

ADMINISTRATION

(a) The Secretary of Labor may, subject to the civil-service laws, appoint such employees as he deems necessary in order to carry out his functions under this Act, and shall fix their compensation in accordance with the Classification Act of 1923, as amended.

The Secretary may utilize the service of Federal, State, and local agencies and may establish and utilize such regional, local, or other agencies, and utilize such voluntary and uncompensated services, as may from time to time be needed. The Solicitor of the Department of Labor may appear for and represent the Secretary in any litigation, but all such litigation shall be subject to the direction and control of the Attorney General.

(b) The Secretary shall have authority to make such expenditures (including expenditures for personal services and rent at the seat of government and elsewhere, for lawbooks and books of reference, and for paper, printing, and binding) as he may deem necessary for the administration and enforcement of this Act.

(c) The Secretary of Labor shall have authority from time to time to make, amend, and rescind such rules and regulations as may be necessary to carry out the provisions of this Act and to issue rulings, interpretations, and bulletins relative to the scope, meaning, and application of this Act which shall be entitled to recognition as being prima facie valid in judicial proceedings hereunder.

(d) The Secretary shall submit annually a report to the Congress covering his activities for the preceding year, including such information, data, and recommendations for further legislation in connection with the matters covered by this Act as he may find advisable.

INVESTIGATORY POWERS

SEC. 4. For the purpose of all hearings, surveys, inspections, and investigations, which, in the opinion of the Secretary, are necessary and proper for the exercise of the powers vested in him by this Act

(a) The Secretary or his duly authorized agent shall at all reasonable times have access to, for the purpose of examination, and the right to copy any evidence of any person being investigated or proceeded against that relates to any matter under investigation or in question, and shall have power to issue subpenas requiring the attendance and testimony of witnesses and the production of any evidence that relates to any matter under investigation or in question, before the Secretary or his duly authorized agent conducting the hearing or investigation. Secretary or any agent or agency designated by him for such purposes may administer oaths and affirmations, examine witnesses, and receive evidence. Such attendance of witnesses and the production of such evidence may be required from any place in the United States or any Territory or possession thereof, at any designated place of hearing.

The

(b) In case of contumacy or refusal to obey a subpena issued to any person, any district court of the United States or the United States courts of any Territory or possession, or the United States District Court for the District of Columbia, within the jurisdiction of which the inquiry is carried on or within the jurisdiction of which said person guilty of contumacy or refusal to obey is found or resides or transacts business, upon application by the Secretary shall have jurisdiction to issue to such person an order requiring such person to appear before the Secretary or his duly authorized agent, there to produce evidence if so ordered, or there to give testimony touching the matter under investigation or in question; and any failure to obey such order of the court may be punished by said court as a contempt thereof.

(c) No person shall be excused from attending and testifying or from producing books, records, correspondence, documents, or other evidence in obedience to the subpena of the Secretary, on the ground that the testimony or evidence required of him may tend to incriminate him or subject him to a penalty or forfeiture; but no individual shall be prosecuted or subjected to any penalty or forfeiture for or on account of any transaction, matter, or thing concerning which he is compelled, after having claimed his privilege against self-incrimination, to testify or produce evidence, except that such individual so testifying shall not be exempt from prosecution and punishment for perjury committed in so testifying.

(d) Complaints, orders, and other process and papers of the Secretary or his duly authorized agent, may be served either personally or by registered mail or by telegraph or by leaving a copy thereof at the principal office or place of business of the person required to be served. The verified return by the individual so serving the same setting forth the manner of such service shall be proof of the same, and the return post-office receipt or telegraph receipt therefor when registered and mailed or telegraphed as aforesaid shall be proof of service of the same. Witnesses summoned before the Secretary or his duly authorized agent shall be paid the same fees and mileage that are paid witnesses in the courts of the United States, and witnesses whose depositions are taken and the persons taking the same shall severally be entitled to the same fees as are paid for like services in the courts of the United States.

(e) All process of any court to which application may be made under this Act may be served in the judicial district wherein the defendant or other person required to be served resides or may be found.

(f) The several departments and agencies of the Government, when directed by the President, shall furnish the Secretary, upon his request, all records, papers, and information in their possession relating to any matter before the Secretary.

RECORDS AND REPORTING

SEC. 5. Every employer subject to this Act or to any order issued under this Act shall make, keep, and preserve such records of the persons employed by him and of the wages and wage rates thereof, job classifications, and other terms and conditions of employment maintained by him, and shall preserve such records for such periods of time, and shall make such reports therefrom as the Secretary shall prescribe by regulation or order as necessary or appropriate for the enforcement of the provisions of this Act or the regulations or orders issued thereunder.

ENFORCEMENT

SEC. 6. (a) The Secretary is empowered as hereinafter provided to prevent any person from engaging in any unfair wage practice affecting commerce as provided in this Act or any order issued thereunder. This power shall be exclusive and shall not be affected by any other means of adjustment or prevention that has been or may be established by agreement, code, law, or otherwise.

(b) The Secretary, or his duly authorized agent, on his own motion or a charge to that effect, shall have power to issue and cause to be served upon any employer a complaint stating that the employer has engaged in or is engaging in an unfair wage practice in violation of this Act or any order issued thereunder, and containing a notice of hearing before the Secretary or before a designated agent, at a place therein fixed, not less than ten days after the serving of said complaint. Any such complaint may be amended by the issuing officer or the designated agent conducting the hearing at any time prior to the issuance of a final order based thereon. An employer upon whom such complaint has been served shall have the right to file an answer to the original or amended complaint and to appear in person or otherwise and give testimony at the time and place fixed in the complaint. In the discretion of the issuing officer or the designated agent conducting the hearing, any other person or organization having a substantial interest may be allowed to intervene in the said proceeding and to present testimony. In any such proceeding the rules of evidence prevailing in courts of law or equity shall not be controlling. (c) If, upon all the testimony taken, the Secretary shall be of the opinion that any person named in the complaint has engaged in or is engaging in an unfair wage practice in violation of this Act or any order issued thereunder, he shall state his findings of fact and shall issue and cause to be served on such person an order requiring such person to cease and desist from such violation and to take such affirmative action, including reinstatement of employees with or without payment of back pay, as will effectuate the purpose of this Act. Such order mayf urther require such person to make reports from time to time showing the extent to

which he has complied with the order. If, upon all the testimony taken, the Secretary shall be of the opinion that the person named in the complaint has not engaged and is not engaging in such an unfair wage practice, he shall state his findings of fact and shall issue an order dismissing the said complaint as to him. (d) The Secretary shall have power to petition any circuit court of appeals (including the United States Court of Appeals for the District of Columbia) or, if all the circuit courts of appeals to which application might be made are in vacation, any district court of the United States (including the United States District Court for the District of Columbia), within any circuit or district, respectively, wherein the unfair wage practice in question occurred, or wherein the person in violation resides or transacts business, for the enforcement of such order and for appropriate temporary relief or restraining order, and shall certify and file in the court to which petition is made a transcript of the entire record in the proceeding, including the pleadings and testimony upon which such order was entered and the findings and the order of the Secretary.

Upon such filing, the court shall cause notice thereof to be served upon such person, and thereupon shall have jurisdiction of the proceeding and of the question determined therein, and shall have power to grant such temporary relief or restraining order as it deems just and proper, and to make and enter upon the pleadings, testimony, and proceedings set forth in such transcript a decree enforcing, modifying, and enforcing as so modified, or setting aside in whole or in part the order of the Secretary. No objection that has not been urged before the Secretary or his duly authorized agent shall be considered by the court, unless the failure or neglect to urge such objection shall be excused because of extraordinary circumstances. The findings of the Secretary as to the facts, if supported by substantial evidence, shall be conclusive. If either party shall apply to the court for leave to adduce additional evidence and shall show to the satisfaction of the court that such evidence is material and that there were reasonable grounds for failure to adduce such evidence in the hearing before the Secretary or his duly authorized agent, the court may order such additional evidence to be taken before the Secretary or his duly authorized agent, and to be made a part of the transcript. The Secretary may modify his findings as to the facts, or make new findings, by reason of additional evidence so taken and filed, and he shall file such modified or new findings, which, if supported by substantial evidence, shall be conclusive, and shall file his recommendations, if any, for the modification or setting aside of his original order. The jurisdiction of the court shall be exclusive and its judgment and decree shall be final, except that the same shall be subject to review by the appropriate circuit court of appeals if application was made to the district court as hereinabove provided, and by the Supreme Court of the United States upon writ of certiorari or certification as provided in sections 239 and 240 of the Judicial Code, as amended (U. S. C., title 28, secs. 346 and 347). (e) Any person aggrieved by a final order of the Secretary granting or denying in whole or in part the relief sought may obtain a review of such order in any circuit court of appeals of the United States in the circuit wherein the unfair wage practice in question was alleged to have been engaged in or wherein such person resides or transacts business, or in the Court of Appeals of the District of Columbia, by filing in such court a written petition praying that the order of the Secretary be modified or set aside. A copy of such petition shall be forthwith served upon the Secretary, and thereupon the aggrieved party shall file in the court a transcript of the entire record in the proceeding, certified by the Secretary, including the pleading and testimony upon which the order complained of was entered and the findings and order of the Secretary. Upon such filing, the court shall proceed in the same manner as in the case of an application by the Secretary under subsection (d), and shall have the same exclusive jurisdiction to grant to the Secretary such temporary relief or restraining order as it deems just and proper, and in like manner to make and enter a decree enforcing, modifying, and enforcing as so modified, or setting aside in whole or in part the order of the Secretary; and the findings of the Secretary as to the facts, if supported by substantial evidence, shall in like manner be conclusive.

(f) The commencement of proceedings under subsection (d) or (e) of this section shall not, unless specifically ordered by the court, operate as a stay of the Secretary's order. The court shall not grant any stay of the order unless the person complaining of such order shall file in court an undertaking with a surety or sureties satisfactory to the court for the payment to the employees affected by the order, in the event such order is affirmed, of the amount by which the compensation such employees are entitled to receive under the order exceeds the compensation they actually receive while such stay is in effect.

CRIMINAL PENALTIES

SEC. 7. Any person who shall (a) willfully resist, prevent, impede, or interfere with any officer, employee, or agent of the Department of Labor in the performance of his duties prescribed by this Act or (b) willfully violate section 5 thereof, or who shall make nay statement, report, or record filed or kept pursuant to the provisions of such section or of any regulation or order thereunder knowing such statement, report, or record to be false in any material respect, shall, upon conviction therefor, be subject to a fine of not more than $5,000 or to imprisonment for not more than one year, or both.

GOVERNMENT CONTRACTS

SEC. 8. Unless the Secretary shall otherwise determine and permit in an order issued by him, no contract shall be awarded by the United States or any agency thereof to any person found to have violated any of the provisions of this Act or to any firm, corporation, partnership, or association in which such person has a controlling interest, until three years have elapsed from the date when it is determined that such violation has occurred. The Comptroller General is authorized and directed to distribute a list to all agencies of the United States containing the names of such persons.

SEC. 9. When used in this Act

DEFINITIONS

(a) The term "person" includes one or more individuals, partnerships, associations, corporations, legal representatives, trustees, trustees in bankruptcy, or receivers.

(b) The term "employer" includes any person acting directly or indirectly in the interest of an employer in relation to eight or more employees, but shall not include the United States, or any State or political subdivision thereof, and shall not include any labor organization, except when acting in the capacity of employer. (c) The term "employee" includes any individual employed by an employer. (d) The term "wages" means all remuneration for the performance of service for an employer by an employee whether paid by the employer or another, including the cash value of all remuneration paid therefor in any medium other than cash.

(e) The term "wage rate" means the basis of remuneration for the performance of services by an employee for an employer and includes time, piece, commission, or any other basis of remuneration.

(f) The term "unfair wage practice" means a practice in violation of the provisions of section 2 of this Act.

(g) The term "commerce" means trade, traffic, commerce, transportation, or communication among the several States, or between the District of Columbia or any Territory of the United States and any State or other Territory, or between any foreign country and any State, Territory, or the District of Columbia or within the District of Columbia or any Territory, or between points in the same State but through any other State or Territory or the District of Columbia or any foreign country.

(h) The term "affecting commerce" means in commerce, or burdening or obstructing commerce, or the free flow of commerce, or having led or tending to lead to a labor dispute burdening or obstructing commerce or the free flow of

commerce.

SEPARABILITY

SEC. 10. If any provision of this Act or the application of such provision to any person or circumstance shall be held invalid, the validity of the remainder of the Act and the applicability of such provision to other persons or circumstances shall not be affected thereby.

Mr. BURKE. This is an open hearing. We are taking testimony on these bills which deal generally with the problem of equal pay for equal work for women in industry.

I have here a letter from the chairman of the House Committee on Education and Labor which I would like to read into the record. is addressed to Hon. Augustine B. Kelley, who is chairman of this

subcommittee, but who is unable to be present this morning. The letter reads:

DEAR COLLEAGUE: By virtue of the authority vested in me as chairman of the Committee on Education and Labor, and pursuant to House Resolution 75 of the Eighty-first Congress, first session, I hereby appoint you as chairman of a special subcommittee of the Committee on Education and Labor.

Other members of the subcommittee will be the Honorable Thomas H. Burke of Ohio, the Honorable Roy W. Wier of Minnesota, the Honorable Ralph W. Gwinn of New York and the Honorable Walter E. Brehm of Ohio.

You are hereby authorized and directed to conduct hearings and make a thorough study of H. R. 4997, H. R. 3853 and other similar legislation to create in the Department of Labor a Bureau of Accident Prevention for the purpose of promoting and maintaining safe and healthful conditions of employment in hazardous industries affecting commerce. You are further authorized to conduct hearings and make a thorough study of H. R. 1584, H. R. 2438 and similar legislation providing equal pay for equal work for women.

Upon completion of your investigation, you are directed to prepare a report to the Congress with such recommendations for legislation or otherwise, as in the judgment of your subcommittee the facts warrant.

Very sincerely yours,

JOHN LESINSKI,

Chairman, Committee on Education and Labor.

STATEMENT OF JOSEPH A. BEIRNE, PRESIDENT, COMMUNICATIONS WORKERS OF AMERICA, WASHINGTON, D. C.

Mr. BURKE. Our first witness is a representative of the Communications Workers of America, affiliated with the CIO. Will you give your full name and address to the reporter?

Mr. BEIRNE. Yes, Mr. Chairman. My name is Joseph A. Beirne, president of the Communications Workers of America, affiliated with the CIO. My address is 1808 Adams Mill Road, Washington, D. C. My telephone number is Hudson 9200.

CWA-CIO is the dominant trade-union in the communications industry. It represents approximately 300,000 telephone workers employed in cities and towns throughout the United States. The membership of CWA is comprised of all kinds of telephone workers including those who manufacture and install telephone equipment, as well as telephone operators, clerks, and various other workers directly involved in providing telephone service. Approximately 70 percent of our membership and 65 percent of the workers represented by CWA are women.

Frankly, CWA is weary of testifying on the equal-pay bill. We began appearing before congressional committees holding hearings on this subject over 5 years ago. Since then, we have presented testimony and briefs on substantially the same bill in different Congresses almost annually. We cannot comprehend Congress' annual hearings on what is practically the same piece of legislation and then its subsequent inaction. The equal-pay-for-equal-work concept was part of the 1948 Democratic Party platform. Let me refresh your memories by quoting directly from that platform:

We favor legislation assuring that the workers of our Nation receive equal-pay for equal work regardless of sex.1

The Democratic Party, I understand, enjoys a majority in the Eighty-first Congress. Moreover, there appears to be no substantial objection to the principles included in this legislation from any re

1 The New York Times, July 15, 1948, p. 8, column 4.