Emma Binder Shapiro, 63, a National Labor Relations Board lawyer for 25 years, died Monday at Georgetown University Hospital. She had suffered from cancer.

Mrs. Shapiro was born in New York City. She graduated from Hunter College there and then studied at the Columbia University School of Social Work. She was director of the New York City Welfare Department's family shelter in the late 1940s. At the same time she earned law degree at Brooklyn Law School.

She moved to the Washington area about 1950, and joined the office of the general counsel of the NLRB. She retired in 1975 for reasons of health.

Mrs. Shapiro was active in the Girl Scouts in the Bannockburn area of Bethesda in the 1950s. She was a former member of the Tifereth Israel Congregation in Washington and was a member of the New York State Bar Association.Survivors include her husband, Milton H. and a son, Jonathan, both of the home in Bethesda, a stepdaughter, Ellen Shapiro, of San Francisco; her mother, Jennie Jahr Binder, of New York City; three sisters, Clara Binder also of New York, Slyvia Peri, Of Kibbutz Merhavi, Israel, and Lillian Rose of Paramus, N.J. and a brother, Sidney Binder, of Elkins Park, Pa.

The family suggests that expressions of sympathy be in the form of contributions to a charity of one's choice.