Document: 519 U.S. 248117 S.Ct. 796136 L.Ed.2d 736 INGALLS SHIPBUILDING, INC., et al., Petitioners,v.DIRECTOR, OFFICE OF WORKERS' COMPENSATION PROGRAMS, DEPARTMENT LABOR, al. No. 95-1081. Supreme Court of the United States Argued Nov. 12, 1996. Decided Feb. 18, 1997. Syllabus * While working for petitioner Ingalls as a shipfitter, Jefferson Yates was exposed to asbestos. After he diagnosed suffering from asbestosis and related conditions, filed claim disability benefits under Longshore Harbor Workers' Compensation Act ("LHWCA'' or "Act''). admitted compensability eventually settled with Mr. Yates, who, in meantime, had sued manufacturers suppliers asbestos products that were allegedly present his workplace when contracted asbestosis. Before death, some these defendants, each whom required releases respondent Yates' wife, even though she not party litigation. None predeath settlements approved by Ingalls. Mrs. death Act. contested §33(g)(1), which states: "If person entitled compensation . enters into settlement third an amount less than would be this [Act], employer shall liable only if written approval is obtained before executed.'' The Administrative Law Judge (ALJ) ruled Benefits Review Board (Board) affirmed, holding that, at time executed settlements, "person compensation'' §33(g)(1) because her husband still lived, and, therefore, right yet vested. Fifth Circuit agreed affirmed. court also rejected Ingalls' argument Director, Office Programs, lacked standing participate appeal decision. Held: 1.Before injured worker's spouse within §33(g)'s meaning, does forfeit collect failure obtain employer's entered death. Section 33(g)(1)'s plain language reveals two salient points. First, use tense (i.e., "enters'') indicates must so settlement. Estate Cowart v. Nicklos Drilling Co., 505 469, 475, 112 2589, 2594, 120 379. Second, ordinary meaning word "entitle'' very least qualified receive compensation. Id., 477, S.Ct., 2595. Thus, relevant inquiry case whether satisfied prerequisites obtaining signed contained settlements. Taken together, §9 Act, governs distribution benefits, §2, contains definitions, indicate surviving qualifies if: (i) survivor's deceased worker-spouse dies work-related injury; (ii) survivor married death; (iii) either living workerspouse, dependent upon worker-spouse, apart desertion other justifiable cause It impossible ascertain have been met any prior worker. therefore rejects seeking can satisfy those earlier time- e.g., worker initially Because alive releases, obligated seek preserve entitlement statutory benefits. arguments contrary-that effectively brings who "would entitled'' its purview, strict adherence section's odds Act's underlying policy avoiding double recovery-are unpersuasive. Pp. ___-___. 2.Although itself speak issue, appear courts appeals conferred OWCP, Federal Rule Appellate Procedure 15(a), which, pertinent part, "Review order administrative board filing clerk [the appropriate form] In case, agency named respondent.'' (Emphasis added.) declines adopt narrower reading 15(a) set forth Parker 75 F.3d 929, 934 (C.A.4), McCord Board, 514 F.2d 198, 200 (C.A.D.C.). Where single overarching has subagencies wear hats of, respectively, litigator/enforcer adjudicator, "agency'' agency, free designate enforcer/litigator voice appeals. necessary absolute veto power over decisions long it substantial control decisions. By statute regulation, LHWCA adjudicative enforcement/litigation functions Department Labor are divided between ALJs on one hand, Director other, Secretary Department's designated litigant thus purposes, concludes may Although always courts, Programs Newport News Shipbuilding & Dry Dock 122, ----, 115 1278, 1287-1288, 131 160, result "lopsided'' representation scheme whereby defense Board's respondent, argue behalf petitioner, see Perini North River Associates, 459 297, 301, 103 634, 639, 74 465, challenge 65 460 (C.A.5 1995), O'CONNOR, J., delivered opinion unanimous respect Parts I II, Part III, REHNQUIST, C.J., STEVENS, KENNEDY, SOUTER, GINSBURG, BREYER, JJ., joined. SCALIA, concurring part dissenting THOMAS, Richard P. Salloum, Gulfport, MS, petitioners. Beth S. Brinkmann, Washington, DC, federal respondent. Wynn E. Clark, private Justice O'CONNOR Court. 1 33 (LHWCA Act), 44 Stat. 1424, amended, U.S.C. §933, gives avenues recovery: Such recover damages parties ultimately fault injuries covered settles tortfeasors. question we decide today spouse, eligible after dies, agreement We consider proper proceedings 2 worked shipfitter Pascaguola shipyards Mississippi 1953 1967 during time. March 1981, asbestosis, chronic bronchitis, possible malignancy lungs. Less month later, §8 LHWCA, §908, asserting condition resulted exposure while employed formal satisfaction liability 3 lawsuit District against 23 whose period 1986, agreements 8 defendants ("pre-death settlements''). Each defendant Maggie join release sue loss consortium, Six eight action wrongful might accrue died. third-party 4 husband's stipulated occurred "in course scope [his] employment,'' App. Pet. Cert. A-59, widow §909. ground argued failing forfeited, eligibility response, deputy commissioner referred matter (ALJ). 5 ALJ favor Yates. Shipbuilding, Inc., 26 BRBS 174 (1992). recognized no more "potential widow'' agreements. A-67. Reasoning recovery could established found "spouse employee [under Act] until injury.'' — A-68. concluded 6 appealed Board. 28 137 (1994). appeared support largely reliance our decision 379 (1992), held purpose "the moment vested,'' id., 2595, suffered permanent injury. reasoned Cowart's "vesting'' rationale applied well observed "right vested became widow.'' A-35 (emphasis original). likely become several events occur prevent recovering Act-she predecease husband, divorce die causes independent For reasons, but acknowledged ruling Appeals Ninth Cretan Bethlehem Steel Corp., 843 (1993), cert. denied, 512 1219, 114 2705, 129 833 7 again appealed, Circuit. (1995). renewed §33(g) argument, reasons advanced moved strike brief disallow Director's further participation standing. dismissed footnote, citing Div., Litton Systems, Inc. White, 681 275, 280-284 1982), overruled grounds, Newpark Repair, Roundtree, 723 399, 406-407 (C.A.5) (en banc), 469 818, 105 88, 83 35 (1984), [Benefits Board] [before Appeals].'' F.3d, 463, n. 2. distinguished 160 (1995), Appeals, Courts disagreement both questions addressed. Circuits phrase compensation.'' Compare 464 (potential compensation'') Cretan, supra, 847 compensation''). Fourth, Fifth, Circuits, Columbia, split 935 (C.A.4 1996) (Director appear), 117 58, 136 21 (1996) Shahady Atlas Tile Marble 673 479, 483-484 (C.A.D.C.1982) "adversely affected aggrieved'' below); Goldsmith 838 1079, 1080 (C.A.9 1988) (same); 281-282 pursuant 15(a)). 9 granted certiorari resolve splits, 517 116 1671, 134 775 (1996). II 10 begin §33(g), must, examination statute. Moskal States, 498 103, 108, 111 461, 449 (1990) ("In determining statute, look first language, giving words used their meaning'') (citations internal quotation marks omitted). 33(g)(1) states part: 11 chapter, determined subsection (f) section carrier, executed, '' §933(g)(1) added). 12 Black's Dictionary 532 (6th ed.1990) (defining "To qualify for; furnish grounds claiming''). 13 reached same conclusion There, Cowart, worker, without consent insurance carrier. thereafter contested. settlement, barred asserted "to workers already receiving payments employer, award entered.'' 2594. 14 examining "entitled Ibid. —("The compensation' terms LHWCA''). then addressed definition term said: 15 "Both legal general usage, normal includes benefit qualifies, depend adjudicated. means satisfies attached right.'' 16 issue injured, agreement. 17 With mind, §909(b), provides "widow widower'' such " [i]f [employee's] injury death.'' See §902(11) "death'' basis "death resulting injury''); §902(2) "injury'' "accidental arising out employment''). defines decedent's wife him reason time.'' §902(16). 18 statutes worker-spouse's Cf. Thompson Lawson, 347 334, 336, 555, 556, 98 L.Ed. 733 (1954) (looking status determine "widow'' "widower'' purposes LHWCA). Accord, Cortner Chevron Int'l Oil 22 218, 220 (1989) ("It occurs arises potential beneficiaries identified''); 51 Fed.Reg. 4270, 4276 (1986) ("Since arise employee's there [against employer] then]''). reject time-e.g., 20 CFR §702.241(g) (no enter regarding dies). released actions, 19 contends mandates contrary conclusion. analysis focuses presence entitled'': [only obtained].'' examines argues Ingalls, "encompasses broad forward looking concept'' purview. Brief Petitioners 15. As support, draws (1993). On facts almost identical presented here, "little sense distinction turns made occur.'' 847. essentially takes evaluate position precedent, U.S., __. (g)(1) simply frames requirement applies all. If obtained. greater equal entitled,'' need 482, 2597-2598. assign additional unnecessary phrase. Under suggested reading, signs considered though, ineligible (e. g., predeceasing divorcing worker). context, actually nonetheless This cannot supported language. should depart policies More specifically, avers will abrogate offset amounts received 33(f) allows reduce obligations net recovers parties. §933(f) ("If institutes pay chapter sum excess determines payable account recovered person''). If, asserts, thing §33(f) 2596, permitted spouse's receives able once effect, situation-unlike day dies-would injuries. recovery, contends, contravenes central tenets §3(e), §903(e), Act: [A]ny paid injury, disability, claimed workers' law 688 title 46, Appendix (relating seamen), credited imposed chapter.'' 483, 2598 (noting "ensures fraudulent employee''); 2A A. Larson, Workmen's §71.21 (" [T]he strong ''). view, protections afforded employees settle claims.'' 22-23. 24 entire however, presupposes give qualification well. decide, leave another day. sake assumed proposition correct, change. agree generally reflects recovery. §903(e). But §903(e) fairly recent vintage, Pub.L. 98-426, 1640; E.P. Paup Co. 999 1341, 1350 1993) ("Prior [enactment of] 903(e), credit doctrine allowed awards awarded LHWCA'') added), reach all-inclusive. See, e. Todd Shipyards Corp. 848 125 (allowing veterans benefits); Brown Forest 29 966, 971 1994) ("Although admittedly avoid recoveries, noted limitations favored absent authority'') (footnote prohibition absolute, do find possibility context absurd glaringly unjust warrant departure Rodgers, 466 484, 104 1942, 1948, 80 492 (1984) (plain controls unless leads results ""absurd unjust'''). Furthermore, acknowledges, Reply 13, subrogation exclusive remedy responsible employees' injuries; remain indemnification through tort state court. Pallas Shipping Agency, Ltd. Duris, 461 529, 538, 1991, 1996, 76 (1983); Marine Terminals, Burnside 394 404, 412-414, 89 1144, 1149-1150, 371 (1969). Accordingly, hold III 25 challenges "standing'' cases adverse litigants. To assess claim, familiarity process, role helpful. A file timely local commissioner. §913(a) (one-year limitation period). notifies §919(b), might: fixed §702.231 seq. (procedures payment noncontroverted claims); (presumably) lesser amount, subject ALJ, §908(i); §702.241 (1996); notice denying for, controverting, §702.251. controverts empowered attempt parties' dispute informally. §702.311 Should informal discussions prove unsuccessful, refers hearing held. §§919(c)-(d); §702.316 interest'' ALJ's §921(b)(3). An initiated [a]ny adversely aggrieved final Board.'' §921(c); §802.410(a) 27 plays significant process. addition being charged LHWCA's administration, §701.202 (transferring "all administration programs [LHWCA]''), enforcement, §802.410(b) "responsible enforcement [LHWCA]''); News, 1287 "duty uniform enforcement''), authorized branches Labor, §702.333(b) ("The Solicitor designee ALJ] regulations interested party''); §802.202(a) ("Any and/or submit Review] Board''); §801.2(a)(10) "party'' include designee''); §802.201(a) OWCP certain circumstances] affected'' initiating Board). although limits authority clear. 21(c) §921(c), that: review circuit 30 aggrieved' refer acting governmental capacity,'' 1285, did "impai[r] Director's] ability achieve perform duties prescribes,'' 1283. expressed view appeals, review, 2, 1284, 31 Any impediment appearance constitutional origin. stated authorization petition "Congress infringing Article Constitution.'' 1286. light observation, surely poses bar courts. Diamond Charles, 476 54, 68-69, 106 1697, 1707, 90 48 (reserving persons intervene "must requirements [Federal Civil Procedure] 24(a)(2), Art III''). 32 Whether easily resolved. issue. terms, "may [a Board],'' purport delineate initiates them. §21(c) requires demonstrate "advers[e] [e]ffect aggriev[ement]'' 21a §921a, similarly authorization. §21a [a]ttorneys appointed represent Secretary, commissioner, 921 provisions chapter,'' says nothing about place. deemed all conducted Nor infer meaning. curtailed Secretary's most circumstances, foreclose situations. 3, (leaving open appealing §944 fund). 34 Left guidance itself, turn rule agencies 15(a). That Rule, board, commission, officer (hereinafter, "agency' officer) form indicated law] Fed. Proc. 36 believe confers clearly Board: authorizes appellate "final Board,'' [r]eview [or] board.'' decline read narrowly, Fourth Columbia done. Those where "a contesting defend merits insure adversarial clash requisite "case controversy.''' (C.A.D.C.1975). "there sufficient adversity claimant] litigation'', ibid., they reason, necessary'' fact run afoul 1(b) "extend[ing] jurisdiction appeals.'' Parker, (citing McCord, 200); ("These rules construed extend limit law''). 37 interpretation, require us tack "when adversity'' onto otherwise unqualified controversy properly court, court's extended inclusion consistent Pittston Stevedoring Dellaventura, 544 35, 42, (C.A.2 1976) existence thought preclude Government's many sorts action''), aff'd. sub nom. Northeast Terminal Caputo, 432 249, 97 2348, 53 320 (1977). Scalia concerned violated converse situation-i.e., sole "necessary adversity.'' post, courts' beyond perimeter 1286 director's participation), exceed hear case. transgression today, nevertheless raises concern interpretation controlling, when, 38 Having applies, becomes When unitary structure-i.e., entity wears adjudicator litigator/enforcer-the application straightforward. Communications Commission, instance, duties, 47 §§154(j), 155(c), litigant, §402. name FCC Indeed, so, since named. §160(f) (National Relations adjudicates unfair labor practice claims litigates appeals); §§825f, 825g (Federal Energy Regulatory Commission investigates, enforces, violations Power Act). 39 share structure. Some split-function regime Congress places adjudicatory outside administering enforcing Occupational Safety Health 1970, example, vests body, Commission. §§651(b)(3), 661; Martin Comm'n, 499 144, 147, 1171, 1174, 113 (1991). §§811, 823 (authorizing promulgate health safety standards Mine 1977, establishing exercise Other regimes involve sub-"agencies,'' umbrella agency. 40 latter type regime, address agency's reality itself. makes little interest stake defending orders district compel what strange result-the substitution litigator reaches 41 dissent points out, anomalies, neither dissent's interpretation. particular, take "within'' other. §3.1(h) (1996)(Attorney General modify Immigration Naturalization Service's adjudicator). methods oversight exist, inability employ compelling mean possesses supervisory tribunal somehow treat adjudicator's agency's. Labor's appoint five members §921(b)(1), establish procedure §802.101 (1996), demonstrates indirect Perhaps concerns animated confronted situation, seen fit, 2,000 decisions, allow WESTLAW, CTA database (Jan. 21, 1997). wish alter scheme, is, course, so. 42 stands now, conclude §702.332 (formal hearings ALJs); §921(b) (appeals heard Board), __-__. subdivision H.R.Rep. 92-1441, p. (1972)(describing "provid[ing] initial three-man Labor'') added); §801 (describing "establishment organizations structure order, Congress, delegated chief administrator, choose representative, exercised discretion naming 43 upset balance now Benefit 465 (1983) Second petitioner), plenary initiate appeal; usually wait someone else first. unusual, proceeding oddity wrought congressional "oversight,'' 1288 (GINSBURG, concurring), virtue today. judgment 45 ordered. 46 THOMAS joins, part. Today's concludes, sub-agency sought (BRB), body Department. produces bizarre arrangement troublesome consequences respectfully Court's provides: 49 review] 50 clear (and say otherwise) despite Rule's shorthand second sentence, officer. representative answer obviously unavoidably no. with, judicial BRB: 52 "Any Upon filing, decree affirming, modifying, setting aside, whole 1436-1437, §921(c) governing elsewhere specifies statutorily created "hear[ing] determin[ing] taken under'' (LHWCA). disposition capacity head Department, provision quoted above. 54 Despite clarity reality'' Ante, offers proposition. says-relying regulation promulgated §801.1 statement House Report Amendments 1972, 86 1251-that Labor.'' nor Committee's report transform something not. "subdivision'' Labor-and thereby authority-for see, §921(b)(1) (Secretary appoints members); §939(a) ("Except specifically provided, administer of'' LHWCA); (regulations expressly acknowledges direct override ante, Insofar vindication concerned, identity chosen delegate. 485 deleted). delegate hoping overturned 932-934, 935, Simpson 81, 82 (C.A.1 denied Bath Iron Works Workers 1127, 762, 977 (1983). attribution contradicts recognition, Terms ago, "quite structure'' province (implicitly) (explicitly) 1287, 55 offered (1) representing (2) certainly sensible candidate __, analysis, faute de mieux point, questionable: readily develop staff judgments, hard imagine worse defender disagree often disagree) review. (Friendly, J.) (suggesting rather respondent), real flaw reasoning step, assumes "agency, officer'' respondent,'' confer entities (or, parent agencies) litigating possess-so purely policymaking responsibility, party, suddenly step (perhaps parent) "defend'' judgment. unlikely function Rules suggestion, far unambiguous point); impermissible function, (if called dispute) ken, namely, victorious lower-court adjudication it, (or appears. extension litigation violate 1(b), "shall law.'' 1(b). chooses contest ceases exist pending, permit continued appeal. extending theoretical; past continue (at level) preferred pursue. E.g., 277 407 1984). 56 response "not controlling'' participating. interpret application, bound ramifications us, future cases. different approach make ascribe specifics good practice. interpreting sometimes result, given today's accords it. 57 Invoking (and, ignoring issued order) imaginable concluding regardless outcome below. There respectable participates prevails. runs ordinarily respondents appellees obvious Procedure-which, belief, prescribe named, party-do bother provide individuals. (That say, analogue them.) 58 Director-even assuming compare §802.201(a)(1) participation) 1283 [LHWCA] grant Director] prosecute Board'')- prevailing party. would, lost below, contrast, power. supra. limited character interests judgment, financial liability, nullification own orders, decision.* odd novel nature, side losing side. left choice, here. 59 Finally, observe game really worth candle. countertextual constructed perhaps excused excluding harm LHWCA. His "significant role'' essential. emphasized judicial-review process relatively minor consequence "power ambiguities statute'' rulemaking authority. 1287. addition, guaranteed amicus 29. 60 *** 61 think intent restructure Executive Branch, convert arms, status-i.e., criteria 15(d)-must respondents. making much flatly misidentifying, sheer power, "order'' creates zany system carefully independent, with-and against-the "defending'' where, arrived, instead maintain attack launch own. disruption orderly disputes employers employees. portion syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber Lumber 321, 337, 282, 287, 499. my akin appellee prevails administrator special fund §944. capacity. 1, 1282, 1.

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