Scott Hudgens (defendant) owned a shopping center, which housed over sixty retail stores, including the Butler Shoe Co. Employees of the Butler Shoe Co. warehouse decided to strike over labor issues and began picketing within the shopping mall and in front of the shoe store. The general manager informed them they could not picket in the center or would be arrested, and the picketers left. They went to a different, nearby location about thirty minutes later and were again told they had to leave or be arrested. The picketers left, and their union filed a complaint against Hudgens. The National Labor Relations Board (plaintiff) issued a cease and desist order against Hudgens because it believed he violated the National Labor Relations Act. The court of appeals upheld the order.