Document: 518 U.S. 187116 S.Ct. 2092135 L.Ed.2d 486 LANEv.PENA, SECRETARY OF TRANSPORTATION, et al.Certiorari to the United States Court of Appeals for District Columbia Circuit. No. 95-365. Argued April 15, 1996 Decided June 20, Syllabus Respondents terminated petitioner Lane's enrollment at Merchant Marine Academy on ground that his recently diagnosed diabetes mellitus rendered him ineligible be commissioned service in Navy/Merchant Reserve Program or as a Naval Officer. Alleging separation from violated Section(s) 504(a) Rehabilitation Act 1973-which prohibits, among other things, discrimination basis disability "under any program activity conducted by Executive agency"-Lane brought this suit seeking reinstatement Academy, compensatory damages, and remedies. The ordered reinstated, but ultimately ruled he must denied damages because Congress has not waived Federal Government's sovereign immunity against monetary awards violations. summarily affirmed. Held: Pp. 3-12. (a) requisite "unequivocal expression" congressional intent grant such waiver, see, e.g., Irwin v. Department Veterans Affairs, 498 U. S. 89, 95, is lacking text 505(a)(2), which decrees remedies available violations Title VI Civil Rights 1964-including awards, Franklin Gwinnett County Public Schools, 503 60, 70-apply also "by . provider [financial] assistance." This provision makes no mention whatsoever "program[s] activit[ies] agency," plainly more far-reaching language employed itself. lack necessary clarity expression 505(a)(2) underscored precision with 501 505(a)(1) 1991. contention larger statutory scheme indicates "level playing field" subjecting Government same all defendants rejected. Franklin, supra, 69-71, distinguished. 3-10. (b) "equalization" 1003 Amendments 1986-which, after waiving States' Eleventh Amendment federal-court 504 civil rights statutes, specifies legal equitable are "to extent public private entity than State"-does reveal equalize violations, federal agencies, like entities, subject damages. Although argument effect without force, it defeated existence least two conceivable, if entirely satisfactory, interpretations equalization provision: (1) "public entit[ies]" refers nonfederal entities receiving financial assistance covered each referenced statutes; (2) meant only scope either defendants, whatever lesser (or perhaps greater) those might be. 10-12. Affirmed. O'Connor, J., delivered opinion Court, Rehnquist, C. Scalia, Kennedy, Souter, Thomas, Ginsburg, JJ., joined. Stevens, filed dissenting opinion, Breyer, NOTICE: formal revision before publication preliminary print Reports. Readers requested notify Reporter Decisions, Supreme States, Washington, D.C. 20543, typographical errors, order corrections may made goes press. Justice O'Connor Court. 1 Section 1973, 87 Stat. 355, 29 791 seq. (Act), agency." 794(a) (1988 ed., Supp. V). question presented case whether provision. I. 2 academy trains students serve commercial merchant marine officers armed forces. administered Maritime Administration, an organization within Transportation. Petitioner James Griffin Lane entered first-year student July 1991 meeting Academy's requirements appointment, including passing physical examination Defense. During first year however, was physician having mellitus. reported diagnosis Chief Medical Physical Examination Review Board hearing September 1992 determine "medical suitability" continue following Superintendent suffered insulin-dependent diabetes. 3 In December 1992, separated "disqualifying condition," rendering After unsuccessfully challenging Administrator, district court Secretary Transportation alleging Act, 794(a). He sought attorney's fees, costs. 4 granted summary judgment favor Lane, concluding solely Act. reinstated did dispute propriety injunctive relief. did, award, claiming protected doctrine immunity. disagreed; entitled award its violation 504(a), deferred resolution specific amount due. 5 Shortly thereafter, Circuit Dorsey Dept. Labor, 41 F. 3d 1551 (1994), waive 504(a). based absence, text, Court's instruction waivers implied, 95 (1990). 6 light Dorsey, vacated prior awarded held Government. appealed. rejected request initial en banc review reconsider then motion affirmance. We certiorari, 516 ___ (1996), resolve disagreement Courts important Compare, 1554-1555, J. L. Social Security Admin., 971 2d 260 (CA9 1992), Doe Attorney General, 941 780 1991). II. provides 7 "[n]o otherwise qualified individual shall, reason her disability, excluded participation in, benefits of, subjected under agency Postal Service." 8 describes 504(a): "The remedies, procedures, set forth title 1964 shall person aggrieved act failure recipient [Section(s) 504]." 794a(a)(2). Because see 70 (1992) (noting "a clear majority" confirmed Guardians Assn. Serv. Comm'n New York City, 463 582 (1983), intentional thereof), reads together establish waiver committed executive agencies. 9 While analysis superficial appeal, overlooks one critical requirement firmly grounded our precedents: A unequivocally expressed Nordic Village, Inc., 30, 33-34, 37 (1992), will Moreover, strictly construed, terms scope, sovereign. See, Williams, 514 ___, (1995) (slip op., 4) (when confronted purported immunity, "constru[e] ambiguities immunity"); Library Shaw, 478 310, 318 (1986); Lehman Nakshian, 453 156, 161 (1981) ("limitations conditions upon consents sued observed exceptions thereto implied"). To sustain claim liable extend unambiguously claims. S., 34. statute's legislative history cannot supply does appear clearly text; "the `unequivocal expression' elimination we insist text." Id., 37. 10 relevant provisions. provision, telling. section, decreed would similarly Whatever said about somewhat curious structure liability remedy provisions, disputed reference "federal provider[s]" not, more, beyond narrow category funding agencies acting such-that is, provider[s]." 505(a)(2)'s provider" claims 791, prohibits employment decisions 505(a)(1), expressly certain 501: 11 section 717 [which allows damages] available, respect complaint employee applicant final disposition complaint, take action complaint." 794a(a)(1). 12 505(a)(1)'s broad language-"any 501"-suggests comparison intend treat alike regard Had wished make broadly could easily have used sweeping "any complaint" contained 505(a)(1). 13 But need end there. 1991, perfectly plain (as well defendants), express limitations: 14 "In complaining party powers, procedures 794a(a)(1) applies Government] respondent who engaged unlawful (not practice disparate impact) regulations implementing 29, concerning reasonable accommodation recover punitive allowed subsection respondent." Rev. 1977A, added, 105 1072, 42 1981a(a)(2). 15 Act's fee similar point. 505(b) that, "[i]n proceeding enforce charge title, court, discretion, allow prevailing party, part costs." 794a(b). likewise illustrates Congress' ability craft particular these provisions sharp contrast seeks tease out 16 insists nonetheless compels result favor, arguing meaning thus regardless broader question. Reply Brief 8-9. disagree. Transportation, activities, itself administers through Administration. At oral argument, counsel effectively conceded much. See Tr. Oral Arg. (acknowledging "because decision [Department Transp. Paralyzed America, 477 597, 612 (1986)], funds actually provided manages itself, what DOT here Academy," do render provider"). argues providers" limited activities providers, instead reaches act" serves context. 9, n. 11. established construing narrowly sovereign, decline invitation read so broadly. 17 next encourages us look scheme, discern defendants. relief, when acts provider," when, commits posits, illogical foreclose conclusion intended create scheme. 18 hinges admittedly bewildering. perfect correlation various indicate, suggests, reading proposed irrational. It free awards. Administrative Procedure (APA) nicely. Under APA, "[a] suffering wrong action, adversely affected statute," authorized bring "[a]n relief money stating officer thereof acted failed official capacity color authority." 702 (emphasis added). 19 event, "equal treatment" largely misses crucial point comes places different footing parties. Petitioner's reliance 60 then, misplaced. implied right IX Education 1972 supports "[A]bsent direction contrary Congress," stated, courts power appropriate cognizable cause pursuant statute." 70-71. involved non-federal IX. contest obtained, wholesale application actions As puts it, "[w]here government, `appropriate,' been waived." 28. 20 And falters previously discussed: differently purposes 5. brings outside "general rule" discussed Franklin: exists silent remedies." 69. IX, statute issue 71. contrast, contains labeled "Remedies attorney fees," 505. spoken "remedies" directly addressed done way suggests fact agencies' Given directed precisely 504, jurisprudence conclude, dissent appears do, post, 11, III. 21 Even unequivocal insists, 1986, 100 1845, 2000d-7, reveals enacted response Atascadero State Hospital Scanlon, 473 234 (1985), where had unmistakably abrogate accordingly were "subject litigants retroactive 504." 235. By enacting 1003, provide sort precedents demand. That provides: 22 "(1) immune 1972, Age Discrimination 1975, 1964, prohibiting recipients assistance. 23 "(2) referred paragraph (1), (including both law equity) State." 2000d-7(a). 24 entities" refers, concludes, include named entities. 25 some bear weight assign it. susceptible across-the-board levelling proposes. interpretation, Government, by" statutes 1003(a)(1) refers: VI, 1975. 22. suggestion plausible one: 1003(a)(2) municipal hospitals, local school districts, like, unquestionably listed 1003(a)(1). alone acts, extends coverage 26 open second "levelling" interpretation suggested petitioner: entit[ies]," statute-one suggest provision-would very rely. governmental non-governmental private" superfluous. achieved simply "every entity," further elaboration. separately mentions there distinction classes 27 neither conceivable readings their points up fatal argument: 1003(a) ambiguity can comfortably thereon, care responded crafting unambiguous ironic indeed conclude "unequivocally" establishes means ambiguous attached 28 For reasons ordered. 30 whom Breyer joins, dissenting. 31 relies amalgam judge-made rules defeat authorize violates 794. reach unfortunate result, majority ignores purpose, history, relying 505 admits "curious," ante, 5, "somewhat bewildering," 8. 32 facts undisputed. separating injured violation, therefore maintain 504. parties agree form most wrongful conduct funding, state actors, capacity. carved special non-funding capacity, instance. I think not. 33 passed "develop implement, research, training, services, guarantee equal opportunity, comprehensive coordinated programs vocational rehabilitation independent living" disabled. 701, amended Pub. 95-602, I, 122(a)(1), 92 2984. originally provided: 34 "No handicapped handicap, 93-112, 394. 35 pays scant attention principle, interpreted contemporary 71 (1992). authorities convinces me created remedy. 36 modeled 601 race, color, national origin.1 Following passage unanimously action. Cannon University Chicago, 441 677, 696 (1979). never question, implicitly ratified judgment. 703. Our explicit holding patterned action.2 stemmed, part, understanding applied manner VI. 696. presumed, consistent well-established principles aware context 696-697. noted between enactment consistently found less text. 698. 38 just Relying Cannon, appeals uniformly victims prohibited discrimination.3 my circuit undoubtedly correct.4 39 equally traditional forms plaintiff seek system accused violating canvassed long principle "where invaded, general sue invasion, use good done." Bell Hood, 327 678, 684 (1946). 65-71. Applying rule government's "whatever presumption decided disappeared succeeding decades." 68. From follows ineluctably original version 504-enacted, bears repeating, IX-authorized persons provision's ban. 40 Against background, legislation 1978 504's prohibition handicap cover amendment lengthy piece strengthen protections embodied Rehabilitation, Comprehensive Services, Developmental Disabilities 1978, 2955 (statement purpose). evidenced continued commitment goals earlier by, example, adding aimed improving accountability enforcement, 122(a)(10), 106, 109(4), 711-715, 751, 761b, expanding support research programs, projects job training removal barriers places, 116(2) 120(a), 777 seq., 794b, creating centers across nation, 115(a), 775. Together, amendments represented substantial investment future disabled country. expansion forbid Service."5 address extension liability. answer surely "yes." understood individuals Congress, expect require clearer statement respecting defendant defendant. amendment-which inserted phrase extending into existing sentence grantees-gives indication remedial rejects conclusion, another amendment, limitation judgment, errs misinterpreting ignoring history. 43 evident inclusion fees fortified enforcement mechanisms. plaintiffs necessary, according Senate report accompanying amendments, extended V are, remain, constant vigilance assure compliance ." Rep. 95-890, p. (1978).6 44 505(a), ensure 1973 restrict section's demonstrates intent. 45 Between 1978,7 Health, Education, Welfare promulgated model antidiscrimination announced Fed. Reg. 2132 (1978).8 common 2000d, enforced manner,9 follow they 2137, 85.5 (1978). directive resulted uniform mechanisms allegations grantees origin.10 avoided needless duplication effort. accompanied additional explaining intentions implementation mandate. 2000d-1 enacted, stood alone. sense advantage details included 601. 46 explicitly recognized approved VI's Thus, despite focus incorporation "remedies, rights" recipient. 794a(a)(2) explained: 47 "It committee's conform codifies requirement." 19. 48 Viewed context, "Federal finds puzzling understood: defined applicable providers seq.; CFR 100.6-100.10 Part 101 (Department VI); 80.6-80.10 81 (same Health Human Services); id., 611.6-611.10 National Science Foundation). 49 analogous 501's employment, history.11 "aid attaining" providing rights, [to] creed, origin." 18-19. Like implementation. directs VII rights." 50 Unlike clause relating assistance, simple analogue. opines "Congress [had] `any complaint' 505(a)(1)." Ante, 6. agree. intend, because, words "[i]t odd cases involving [unlike 504] prohibit agencies," 16, 51 oddity nomenclature describe There substantive differences First, withdrawal continuing 2000d-1, Second, commit concern closely standard adopted alleged procedures. 15e.170(b) Agriculture mandate agencies); 8c.70 Commerce); 85.61 Services). 52 historical nonfunding delineates transgressions rooted 53 amply sufficient meet petitioner's needs. failing dictate left place accompany damages.12 case. 54 current jurisprudence, apparently vacuum. Since advent requires steadfastly refuses consider statute, matter how opaque crystalline history.13 objections here. 39-46 (Stevens, dissenting). Suffice say suspect years later adopt (and apply retroactively) radically new unforgiving approach 55 Not surprisingly, given fidelity reasoning leads implausible conclusions. credit analysis, believe indirectly own activities.14 Surely unexpected merited comment committee floor House Senate. Yet scintilla evidence purpose supporting statute. 56 addition, majority's necessarily presumes impose harsher (which come grantees) comparable misconduct. owed States-a ratio decidendi 234, 242 (1985)-this wholly unconvincing. once again, hint policy justification distinction. 57 strict concentrate carefully textual lost sight primary judicial construction Acts Congress. appropriately rely canons tiebreakers help message clear. neutral doubtful cases. honor even greater clarity, accept guidance reliable facilitate-indeed, obstructs-the performance task carrying 58 prompt reaction wisdom rigid immunity.15 true case, this, drafted task, educate busy legislators niceties scholarly draftsmanship, rather best convey. When valuable time reenacting whose skeptical hostile reader, should discarded. 59 respectfully dissent. precise follows: origin, 2000d. 901 sex, education 86 373, amended, 1681(a). Kampmeier Nyquist, 553 296, 299 (CA2 1977); NAACP Center, 599 1247, 1258-1259 (CA3 1979); Pandazides Virginia Bd. Ed., 823, 823 (CA4 1994); Camenisch Texas, 616 127, 130-131 (CA5 1980), grounds, 451 390 (1981); Jennings Alexander, 715 1036, 1040-1041 (CA6 1983), rev'd grounds sub nom. Alexander Choate, 469 287 (1985); Lloyd Regional Auth., 548 1277, 1284-1287 (CA7 Miener Missouri, 673 969, 973-974 (CA8), cert. denied, 459 909 (1982); Kling Los Angeles, 633 876, 878 474 936 Pushkin Regents Univ. Colo., 658 1372, 1376-1380 (CA10 1981); Jones Metropolitan Atlanta Rapid Transit 681 1376, 1377, (CA11 1982), 465 1099 (1984). Conference Report 1974, 93-1270, (1974) (hereinafter 1974 Amendments) "permit action"). amended: striking period inserting lieu `or Service. head promulgate carry 1978. Copies regulation submitted authorizing committees thirtieth day date committees.'" 2982. originated full Act." President Ford. Exec. Order 11914, "Nondiscrimination With Respect Handicapped Federally Assisted Programs," issued 28, 1976; 17871. encouraged step. Amendments, ("The Welfare, Department's experience dealing areas, assume responsibility coordinating effort conferees urge delegation [through Order]"). (the "language [Title IX], envisions Acts"). result. ibid. ("This administrative due process"). (42 2000e-16), sections 706(f) 706(k) 2000e-5(f) (k)), complaint. fashioning affirmative account reasonableness cost work accommodation, availability alternatives therefor achieve remedy." Aware needed, added directing 1978"). distinguishes whereas concerns 9. reconciled opinion. relied pecuniary upheld. 67 (citing Kendall ex rel. Stokes, Pet. 524 (1838), Dooley 182 222 (1901)). being so, restricting refer exclusively Otherwise 1985. override 1986. 2000d-7; 10. recent numerous pieces designed opinions Landgraf USI Film Products, 511 244, 250-251 (1994) (listing eight legislatively overruled Additional examples cited Eskridge, Overriding Statutory Interpretation Yale 331, App. (1991).

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