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History of Collective Bargaining and the Right-to-Work By the time the United States entered World War I in 1917, the labor movement had grown to three million members.6 In an effort to promote peace between labor and management, President Wilson created the National War Labor Board in 1918, which recognized employees' rights to organize in trade unions and to bargain collectively.7 While the Board did not have enforcement powers, both labor and management agreed to refrain from lockouts and strikes, and to defer to mediation by the Board.8 Unfortunately, the truce between labor and management ended with the conclusion of the war and the return of hostility between labor and management in the 1920s.9 The Railway Labor Act10 was passed in 1926, stressing the importance of collective bargaining as a means to minimize strikes and lockouts, giving railroad workers the right to organize in trade unions, and paving the way for a national labor policy.11 A. The National Labor Relations Act In 1935, Senator Robert F. Wagner introduced the National Labor Relations Act (the \"NLRA\")12 to Congress, noting: \"Democracy cannot work unless it is honored in the factory as well as the polling booth; men cannot be truly free in body and in spirit unless their freedom extends into the places where they earn their daily bread.