1

The Honorable David S. Doty, United States District Judge for the District of

Minnesota, sitting by designation.

United States Court of Appeals

FOR THE EIGHTH CIRCUIT

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No. 05-3803

___________

Rob Senger; Mike Eliason; Jeff *

Fiferlick; Mario Gourde; Austin *

Hearnen; Rob Johnson; Brooks *

Kleffman; Tim A. Medenwald; *

Keith A. Sharisky, *

*

Appellants, * Appeal from the United States

* District Court for the 

v. * District of South Dakota.

*

City of Aberdeen, South Dakota, *

*

Appellee. *

*

__________________ *

*

United States Department of Labor, *

*

Amicus Curiae. *

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Submitted: June 15, 2006

Filed: September 29, 2006

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Before ARNOLD and BEAM, Circuit Judges, and DOTY,1

 District Judge.

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ARNOLD, Circuit Judge.

The plaintiffs are current and former firefighters for the City of Aberdeen,

South Dakota, who have sued the City to recover overtime pay that they claim is due

them under the Fair Labor Standards Act (FLSA). Both sides agreed that no facts

were in dispute and moved for summary judgment. The district court denied the

plaintiffs' motion for partial summary judgment but granted judgment to the City,

concluding that the FLSA's plain language prevents the payment of overtime wages

to those who have not actually worked. We review the district court's grant of a

motion for summary judgment de novo. Woods v. DaimlerChrysler Corp., 409 F.3d

984, 990 (8th Cir. 2005). Because the relevant facts are not in dispute and the

judgment is final, we also review the court's denial of the plaintiff's motion for partial

summary judgment de novo. See White Consol. Indus., Inc. v. McGill Mfg. Co.,

165 F.3d 1185, 1190 (8th Cir. 1999). After careful consideration, we reverse.

The plaintiffs were often scheduled to work more hours than the FLSA permits

an employee to work without receiving overtime pay, and on some of those occasions

the plaintiffs would ask other employees to work shifts on their behalf. This kind of

arrangement is common among firefighters and is permissible under the FLSA so long

as it is voluntary and done with the employer's permission. 29 U.S.C. § 207(p)(3).

When a substitution occurs, the employer pays the scheduled employee and not the

substitute; the amount that the substitute receives is fixed by private agreement

between the two employees. The City paid the plaintiffs straight time for their

substituted shifts and also credited them for the purposes of seniority and leave time,

but it refused to pay them the overtime to which the FLSA plainly would have entitled

them had they worked the shifts themselves. The plaintiffs contend that a federal

regulation entitled them to the same amount of overtime pay when substitutes worked

their shifts for them.
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When a public employee works a shift for another employee, the law provides

that "the hours such employee worked as a substitute shall be excluded by the public

agency in the calculation of the hours for which the employee is entitled to overtime

compensation under this section." 29 U.S.C. § 207(p)(3). A brief example may help:

Imagine two employees who are each scheduled to work 44 hours one week.

Employee A works thirty-six hours and asks employee B to work the last eight-hour

shift on her behalf. Employee B agrees and works the shift. Even though employee

B worked fifty-two hours that week, he is paid for only forty-four hours and receives

only four hours of overtime pay. (As we have said, the compensation that employee B

receives for the additional eight hours is determined by agreement between employees

A and B.)

The parties concede this but disagree on whether the employer in our example

has to pay four hours of overtime pay to employee A. The Department of Labor has

promulgated a regulation stating that when one employee substitutes for another the

hours worked are "excluded" from the hours "for which the substituting employee

would otherwise be entitled to overtime compensation," and "each employee will be

credited as if he or she had worked his or her normal work schedule for that shift."

29 C.F.R. § 553.31(a). The plaintiffs read this regulation as requiring the City to pay

overtime wages to the scheduled employee. The City contends that the regulation is

void because a statute governing overtime, 29 U.S.C. § 207(a)(1), requires that a

person actually work more than the statutory maximum number of hours to receive

overtime pay.

When reviewing an agency's construction of a statute, we look first to whether

the statute's language and legislative history clearly demonstrate what Congress

intended. North Dakota ex rel. Olson v. Centers for Medicare & Medicaid Servs.,

403 F.3d 537, 539 (8th Cir. 2005). When they do, that intent controls and a court will

not to defer to any regulation that interprets the statute in a contrary manner. Id; see

also Chevron U.S.A., Inc. v. Natural Resources Defense Council, Inc., 467 U.S. 837,
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843, 845 (1984). But when Congress's intent is unclear and the statute contains an

explicit or implicit gap, we will defer to the agency's regulation so long as it is not

"arbitrary, capricious, or manifestly contrary to the statute." Id. at 844; Friends of the

Boundary Waters Wilderness v. Bosworth, 437 F.3d 815, 821-22 (8th Cir. 2006).

In support of its plain-language argument, the City cites to language in the

FLSA that says "no employer shall employ any of his employees who in any

workweek is engaged in commerce or in the production of goods for commerce, or

is employed in an enterprise engaged in commerce or in the production of goods for

commerce, for a workweek longer than forty hours unless such employee receives

[overtime wages]." 29 U.S.C. § 207(a)(1) (emphasis added). This language, the City

says, means that the employee must be engaged (i.e, actively working) to receive

overtime wages. But a more careful parsing of the section reveals that the statute uses

the phrase "engaged in commerce" as a kind of applicational threshold: The overtime

provisions of § 207(a) apply if the employee is engaged in commerce or in the

production of goods for commerce at any time during the work week. And even if the

employee is not engaged in commerce or in the production of goods for commerce,

§ 207(a) applies if the "enterprise" for which he or she works is so engaged. Id. The

word "engaged" therefore relates not to whether the employee was actively working,

but whether the employee's or enterprise's work was of a certain kind.

We question, moreover, the applicability of § 207(a) to these current and former

firefighters. Congress amended the FLSA in 1974 so that its provisions would apply

to state and local employees. In the course of passing those amendments, the House

and Senate agreed to a partial exemption to the overtime rules for firefighters and

police officers. Section 207(k) of the FLSA reflects that compromise. Under that

provision, state and local employers of firefighters are not bound to the seven-day

work period in 207(a), but may instead extend the relevant work period to as long as

28 days. 29 U.S.C. § 207(k). In addition, an employer must pay overtime wages only

if a firefighter's total "tours of duty" exceed 212 hours in a 28-day work period; for
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shorter work periods, the ratio of 212 to 28 is used to compute how many hours must

be in a firefighter's total "tours of duty" before he or she is entitled to overtime pay.

Id.; 29 C.F.R. § 553.230(c). We see no indication in § 207(k) that all of those hours

must be worked by the employee him- or herself. We therefore conclude that the

FLSA's plain language does not reveal a Congressional intent to deny an employee

overtime wages when another worker voluntarily substitutes for him or her with the

employer's permission.

Examining the legislative history surrounding § 207(p)(3) helps clarify matters.

This provision was part of the 1985 FLSA amendments, see Fair Labor Standards

Amendments of 1985, PL 99-150 §3(a), 99 Stat. 787 (November 13, 1985), and both

the House and Senate Reports regarding those amendments note that employees

engaged in fire-protection or law-enforcement activities traditionally traded shifts with

one another without the substitution affecting the computation of overtime for either

employee. H.R. Rep. No. 99-331, at 25 (1985); S. Rep. No. 99-159, at 13 (1985).

The concern arose that without § 207(p)(3), certain FLSA regulations could require

the state or local government to pay overtime to the substitute employee. Consider

our earlier example, assuming that § 207(p)(3) did not exist. Employee B still works

eight hours on behalf of employee A: If the FLSA requires the employer to pay

employee B overtime for all the hours that he or she works above the statutory

maximum, the employer would have to pay employee B twelve hours of overtime

rather than four. Such a rule would leave the employer unable to control its overtime

expenditures, since the employees' voluntary substitutions could cause some

employees to accrue massive amounts of overtime. The only way that the employer

could cabin these costs would be to forbid voluntary substitutions altogether, which

would deprive both employers and employees of a useful and flexible tool. 

Addressing this concern, both the House and Senate Reports explain that under

the new subsection (§ 207(p)(3)), "[i]f two employees trade hours ... , each employee

will be credited as if he or she had worked his or her normal work schedule." H.R.
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Rep. No. 99-331, at 25 (1985); S. Rep. No. 99-150, at 13 (1985). This is a clear

indication that the purpose of § 207(p)(3) was to fashion a way to allow voluntary

substitutions without having overtime costs spiral out of control. By having the

employer credit each employee for the shift to which he or she was scheduled, the

subsection limits the amount that an employer will have to pay in overtime wages to

no more than what it would have paid absent the voluntary shift substitutions. The

Department of Labor used exactly the same language when it promulgated

§ 553.31(a). The regulation as written is therefore fully consistent with the clearly

expressed intent of Congress.

Even though the regulation as written is plainly consistent with Congress's

intent, we are still left with a question: What precisely does the regulation mean when

it says that each employee will be "credited"? The City contends that the word

"credited" requires it to give the scheduled employee only normal wages for the shift

along with any attendant benefits that he or she would have accrued. The plaintiffs,

on the other hand, argue that it means that the employer must treat the scheduled

employee in all respects as if he or she had worked the shift, including paying him or

her overtime wages if otherwise warranted. These arguments demonstrate that the

term is susceptible to two different interpretations; in other words, the regulation is

ambiguous on the question. The Department of Labor has consistently interpreted the

regulation to mean that "the employee scheduled to work receives credit (and

compensation) as if he or she had worked." Application of the Fair Labor Standards

Act to Employees of State and Local Governments, 52 Fed. Reg. 2012, 2018 (Jan. 16,

1987); see also Wage and Hour Opinion Letter, 2004 WL 3177870 (Nov. 23, 2004).

The Department of Labor's amicus brief in this case has reiterated that position. An

agency's interpretation of its own ambiguous regulation will stand so long as it is not

" 'plainly erroneous or inconsistent with the regulation.' " Rain & Hail Ins. Serv. v.

Federal Crop Ins. Corp., 426 F.3d 976, 979 (8th Cir. 2005) (quoting Auer v. Robbins,

519 U.S. 452, 461 (1997) (quotation marks and citations omitted). The agency's

interpretation in this case easily passes that test.
2

While the words "engaged in commerce" standing alone might well be

construed as requiring only a general employment in commerce, the additional words

"in any workweek" clearly lead to the more precise intent I find.

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We do not see much merit in the City's argument that the Department of Labor's

interpretation of § 553.31(a) creates an unreasonable burden on employers. All the

City has to do is pay the scheduled employee as if he or she had worked the scheduled

shift; it need not keep any additional records. And the City need not monitor all shift

exchanges, because any voluntary substitutions that take place will not cause the

employer's actual overtime expenditures to vary from the expectations that it

developed when it first scheduled the employees.

For the foregoing reasons, we reverse both the grant of the defendant's motion

for summary judgment and the denial of the plaintiffs' motion for partial summary

judgment, and we remand the case for further proceedings not inconsistent with this

opinion.

BEAM, Circuit Judge, dissenting.

I believe the City of Aberdeen has correctly construed and applied the

applicable statutes. Accordingly, I respectfully dissent.

Like the district court, I think the language adopted by Congress in 29 U.S.C.

§ 207(a) as part of the Fair Labor Standards Act (FLSA) controls the practices

involved in this litigation and requires an employee to actively work to receive an

overtime rate of compensation. The statute says "no employer shall employ any of his

employees who in any workweek is engaged in commerce or in the production of

goods for commerce . . . for a workweek longer than forty hours unless such employee

receives [overtime wages]." 29 U.S.C. § 207(a)(1).2

 The words "shall employ any of

his employees who in any workweek is engaged in commerce or in the production of

goods for commerce" for a period of time beyond an FLSA-designated workweek
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embrace the overarching and continuing overtime-pay focus of the Act, that is, that

overtime compensation is only due for actual working time beyond the non-overtime

pay periods established by the statute. While 1974 amendments (that added coverage

of state and local employees and congressional recognition that a "forty hour

workweek" frequently does not suffice for the employment of firefighters and

similarly situated public employees) slightly altered the thrust of the Act, see id. §

207(k), no modifications were made to the above-referenced "employee . . . engaged

in" language and nothing in the amendment attenuates or alters the purpose and intent

of section 207(a). 

Amendments to the FLSA in 1985 validated an already established practice of

substitution of services for scheduled work hours. In this regard Congress said:

If an individual who is employed in any capacity by a public agency

which is a State, political subdivision of a State, or an interstate

governmental agency, agrees, with the approval of the public agency and

solely at the option of such individual, to substitute during scheduled

work hours for another individual who is employed by such agency in

the same capacity, the hours such employee worked as a substitute shall

be excluded by the public agency in the calculation of the hours for

which the employee is entitled to overtime compensation under this

section.

Id. § 207(p)(3). While this language clearly excludes overtime pay for substituted

services, it says nothing about to whom or by whom regular time compensation will

be paid for the substituted hours. But, as noted above, the statute is unambiguous in

commanding that these substitute hours "shall be excluded . . . in the calculation of the

hours for which the [substituting] employee is entitled to overtime compensation."

Then, enters the Department of Labor (DOL) with a regulation on substitution.

The agency essentially repeats the section 207(p)(3) statutory language and adds

"[w]here one employee substitutes for another, each employee will be credited as if
3

In response to judicial interpretation of the FLSA, Congress passed the 1947

Portal-to-Portal Pay Act, codified as 29 U.S.C. §§ 251-262, which, among other

things, even more narrowly defined compensable activities. See 29 U.S.C. § 254. 

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he or she had worked his or her normal work schedule for that shift." 29 C.F.R.

§ 553.31(a) (third sentence). The remainder of section 553.31 otherwise takes the

public employer out of the compensation arrangements between the substituted-for

employee and the substituting employee, matters not directly at issue in this appeal.

DOL contends that sentence three "mandates the payment of overtime

compensation to the substituted-for firefights in this case." Amicus brief at 8.

Plaintiffs and the court, applying Chevron deference to DOL's regulatory gloss, agree

that the crediting arrangement in section 553.31(a) is responsive to an ambiguously

expressed statutory intent to require the public employer to pay overtime

compensation to the nonworking, substituted-for employee. I disagree with this

analysis.

The statutory amendments referred to by the court and the subsequent

regulatory edicts from DOL simply cannot override the clearly expressed legislative

intent contained in section 207(a). The section states that to require an employer to

pay overtime compensation a substituted-for employee must actually work overtimeeligible hours. Thus, DOL's overtime-oriented slant on the statute cannot command

deference from this court because the regulation is "plainly erroneous or inconsistent

with [section 207(a)]." Auer v. Robbins, 519 U.S. 452, 461 (1997) (quotations

omitted). Section 553.31(a) (third sentence) simply attempts to rewrite the language

of the Act on this point. And in doing so, DOL ignores established Supreme Court

precedent. In Tennessee Coal, Iron & R.R. Co. v. Muscoda Local No. 123, 321 U.S.

590 (1944),3

 the Supreme Court analyzed this portion of the legislative language in

section 207(a). The Court noted that the Act "defines the word 'employ' to include 'to

suffer or permit to work."' 321 U.S. at 597. Then, applying this definition, the Court

stated that the language of section 207(a) is "necessarily indicative of a Congressional
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intention to guarantee either regular or overtime compensation for all actual work or

employment." Id. at 597-98 (emphasis added). Thus, DOL's attempted regulatory

imprint on the unambiguous language of section 207(a) is improper. The City and

the district court were correct. Indeed, at the bottom line, I believe that under the

Tennessee Coal holding there is no enforceable FLSA-based requirement that a public

agency pay anyone anything for not working, but this is perhaps an issue for another

day.

Accordingly, I respectfully dissent.

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