Document: 453 U.S. 156 101 S.Ct. 2698 69 L.Ed.2d 548 John F. LEHMAN, Secretary of the Navy, Petitioner,v.Alice NAKSHIAN. No. 81-242. Argued March 31, 1981. Decided June 26, Syllabus The Age Discrimination in Employment Act 1967 (ADEA or Act) was amended 1974 to extend federal employees Act's protection older workers against discrimination workplace based on age. Section 15(c) provides that any aggrieved employee "may bring a civil action Federal district court competent jurisdiction for such legal equitable relief as will effectuate purposes" Act. Respondent brought suit District Court Navy under § 15(c), alleging violations and demanding jury trial. ruled, over Secretary's objection, respondent entitled On an interlocutory appeal, Appeals affirmed. Held : not Pp. 160-169. (a) Where Congress waives Government's immunity from suit, it has ADEA, plaintiff right trial by only where affirmatively unambiguously granted statute. 160-161. (b) done so here. Neither provision employer cases be courts rather than Claims, nor use word "legal" section, evinces congressional intent ADEA plaintiffs who proceed Government may do before jury. Lorillard v. Pons, 434 575, 98 866, 55 40, distinguished. contrasts with 7(c) Act, which expressly trials actions private employers state local governments. Moreover, extending cover employees, Fair Labor Standards 7, but Title VII Civil Rights 1964, where, unlike FLSA, there no 162-165. (c) legislative history more supports holding does statutory language itself. 165-168. 202 U.S.App.D.C. 59, 628 F.2d reversed. Edwin S. Kneedler, Washington, D.C., petitioner. Patricia J. Barry, respondent. Justice STEWART delivered opinion Court. 1 question presented this case is whether United States 2 * amendments 19671 added new 15,2 within scope first time. 15(a)3 prohibits age most its civilian employment decisions concerning persons 40 years 15(b)4 enforcement 15(a) agencies, including military departments, responsibility Equal Opportunity Commission. Commission directed "issue rules, regulations, orders instructions [the Commission] deems necessary appropriate" carry out responsibility. 15(c)5 provides: 3 "Any person purposes Act." 88 Stat. 75. 4 In 1978, Alice Nakshian, then 62-year-old Department 15(c). She requested defendant moved strike request, denied motion. Nakshian Claytor, 481 F.Supp. 159 (DC). stressed "legal relief" used establish sue identical had previously Act6 authorize suits. That language, said, important basis Court's permits suits stated "if intended consent [against Government] limited non-jury trials, could have easily said much." F.Supp., at 161. Recognizing result 1978 7(c)(2) confers trial, whereas exists 15,7 161, found "explicit refusal" grant Government, noted spoke general terms about 5 appeal 28 U.S.C. 1292(b), divided panel affirmed, 59. appellate rejected argument when been authorized. Instead, viewed "an ordinary interpretation," sufficient evidence provide this. Noting conferred upon courts, concluded " 'absent method law carries trial.' Id., 63, F.2d, 63 (quoting Moore, Lucas, & Wicker, Moore's Practice ¶ 38.32[2], p. 38-236 (1979) (footnotes omitted). also adopted view . Further, court's existence explicit negate since resolve conflict issue confirm correctness decision case. 6 We certiorari consider presented. Sub nom. Hidalgo 449 1009, 563, 66 467. II 7 It long settled Seventh Amendment apply Government. Galloway States, 319 372, 388-389, 1077, 1086, 87 L.Ed. 1458, observed omitted): 8 "The one enforce monetary claim States. hardly can maintained common 1791 matter asserting claims sovereign. Whatever force therefore derived because Congress, legislation cited, made applicable." 9 See Glidden Co. Zdanok, 370 530, 572, 82 1459, 1484, 671, McElrath 102 426, 440, 26 189. recognized principle "the sovereign, 'is immune save consents sued define entertain suit.' Testan, 424 392, 399, 96 948, 953, 47 114; quoting Sherwood, 312 584, 586, 61 767, 769, 85 1058. Mitchell, 445 535, 538, 100 1349, 1352, 607. Thus, if 29 633a (1976 ed. Supp. III), Government's] sued." supra, S.Ct., 953. Like waiver itself, must "unequivocally expressed." King, 395 1, 4, 89 1501, 1502, 23 52, "this decided limitations conditions strictly exceptions thereto are implied." Soriano 352 270, 276, 77 269, 273, 306. Kubrick, 444 111, 117-118, 352, 357, 62 259; 590-591, 771-772. 10 When waived sovereign almost always conditioned plaintiff's relinquishing Jury example, available Claims broad range 1491—i. e., all united stateS "foUnded either Constitution, express implied contract liquidated unliquidated damages sounding tort." Co., supra. And same concurrent jurisdiction. §§ 1346(a)(2) 2402. Finally, tort see 1346(b), similarly provided shall without 2402.8 11 appropriate inquiry, therefore, clearly unequivocally departed usual practice area, ADEA.9 12 15 employment. means judicial guarantee: 626(c) ed., authorizes governments, trials. accordingly demonstrated knew how wished elsewhere very "legislation cited," Galloway, 389, 1086. But failed explicitly so.10 SeeFedorenko 490, 512-513, 737, 750-751, 686, cf. Monroe Standard Oil 452 549, 561, 2510, 2517, 226. 13 infers providing award relief," relying proposition authorization right. application context. place, cannot deemed what described "a term art" respect availability Lorillard, significant largely presence constitutional question. litigation between parties, guarantees jury, reasoned aware significance recognized. Thus particular attributed 14 another chose incorporate scheme (FLSA) into FLSA making available. U.S., 580-583, 869-871. Again, reasoning relevance case, did 15. 633a(f) III). Rather, patterned after 717(a) 1972, Pub.L.92-261, 86 111-112, employees. 42 2000e-16(a) (b). 118 Cong.Rec. 24397 (1972) (remarks Sen. Bentsen, principal sponsor ADEA). And, course, contrast FLSA,11 arising VII. 583-584, 871-872; Great American Savings Loan Assn. Novotny, 442 366, 375, n. 19, 99 2345, 2350, 60 957. fact ordinarily available, they not. Not little logical support inference, offers either.12 Rule 38(a) Rules Procedure "as declared Constitution given statute preserved parties inviolate" (emphasis added). This states rule presumed whenever courts.13 Indeed, requires affirmative apply. B 16 As already indicated, unnecessary go beyond itself conclude intend confer proceeding helpful briefly explore history, demonstrate 17 point single reference subject There none. nothing indicate mean plainly indicated cases. fact, few inferences drawn inconsistent respondent's position. 18 originally applied employers. incorporated FLSA. incorporation should incorporated. codified section. 19 expanded include governments State were potential defendants simple expansion "employer" ADEA. existing substantive procedural provisions 7(c), thereby extended government contrast, entirely 15, address problems Here deliberately prescribed distinct applicable sector,14 but, VII,15 jury.16 20 amendment declined opportunity plaintiffs. Before announcement Senate, House, included pending bill revise After Conference Committee recommended enacted present 7(c)(2), closely resembling passed Senate. recommend, enact, corresponding conferees 15(f), personnel covered other section exception relevant H.R.Conf.Rep.No.95-950, (1978), U.S.Code Cong. Admin.News 504. H.R.Rep.No.95-527, (1977) ("Section complete itself"). Since subsection (f) emphasized self-contained unaffected sections, those governing procedures employers, Judge Tamm, dissenting Appeals, surely correct he "[i]n amending both sections did, overlooked need amend [§ 15(c)] allow wished." U.S.App.D.C., 69, 8, 8. C 21 even ambiguous, would affect proper resolution obviously private-sector governmental entities. employer, indeed, conclusion inescapable depart normal 22 For these reasons, judgment ordered. 24 BRENNAN, whom MARSHALL, BLACKMUN, STEVENS join, dissenting. 25 held brings his Act), 626(c), 633a(c). today holds actions. Because I believe unmistakably manifested intention accord right, dissent. lawsuit Columbia demanded demand. motion certified 1292(b). petition review affirmed ruling 59 (1980). Relying principally vested (c)he construed 27 well "United sued.' 114 (1976), 1058 (1941). Consent V. 607 (1980); 52 (1969). immunity, doubt sued. requirement expressed, however, not, suggests, presumption immunity. we adopt presumption. Law 266 494, 45 175, 401 (1925); Pfitsch, 256 547, 41 569, 65 1084 (1921).1 belied statutes cites often "conditioned [the] [of immunity] trial." Ante, 1346, 2402, demonstrates legislate backdrop believe, once construction.2 inquiry fair implication trial.3 supra; 38.31[2], 38-237 (1981); C. Wright A. Miller, 2314, (1971). turn, protect 621(b), 623; Oscar Mayer Evans, 441 750, 756, 2066, 2071, 609 (1979); 577, 868. generally Note, Employment, 50 N.Y.U.L.Rev. 924, 945 (1975). sector, Pub.L.90-202, 11, 81 605, 630(b) (1970 ed.),4 adding well. 633a. affecting "shall free age," while 15(b) grants authority provisions.5 Although precludes 75, "[a]ny [federal employee] 633a(c) 7(b) 7(c)6—a respects afford employers.7 reached two reasons. First, 7(b), 626(b), "[t]he chapter enforced accordance powers, remedies, procedures" certain (FLSA), suggested "[l]ong established pursuant FLSA." 580, 869. Second, 7(c)'s individuals seek added), strongly 583, 871. held, construction, allows 30 instant authorized "such chapter," suggesting unanimous Lorillard: 31 'legal' art: rights determined, Curtis Loether, 415 189, 195-196 [94 1005, 1008-1009, 39 260] (1974). '[W]here words employed time well-known meaning country sense unless context compels contrary.' 221 [31 502, 515, 619] (1911). Gilbert 650, 655 [82 1399, 1402, 750] (1962); Montclair Ramsdell, 107 147, 152 [2 391, 394, 431] (1883). infer, specifically relief, 'legal,' ." 583,8 32 legislation. 1458 (1943). Congress' 33 strong inference reinforced vest Courts, decide vesting incident" "exclusive Courts." 552, 570. Similarly, erred denying War Risk Insurance "was exceptional Claims," "exercised laws procedure money compensation." 496, 176.9 suggest, plaintiffs.10 34 amendments, consistent failure 35 "did represent conscious limit sector. reflects 1967, enacted, outside Wage Hour Public Contracts Divisions Labor, enforces assigned enforcing S.Rep.No.93-690, 55. 36 1974, "Government protections arbitrary sector." 120 8768 (1974) proponent extension employees) added).11 To sure, schemes federal-sector complaints. "same protections" ibid., expressly. disallow defendant, authorizing parties. suggests make approved equally 37 manifestation enhanced total absence persuasive contrary intent. argues, nonetheless, 7,12 preclude am completely unpersuaded. 38 led codification introduced Senator Kennedy Lorillard. order settle among Courts employers,13 proposed haec verba allowed. 123 34317-34318 (1977).14 Kennedy's Senate debate. subsequently decided. Thereafter, amendment, modification House damages. discern sequence events. plausible explanation, textual H.R.Conf.Rep. 95-950, pp. 13-14 understood conferring power right15 reason proceeded clear wages tried left unresolved 2, 868, 2.16 add indicative prohibit additional prompted introduce bill. parallel development interpreting seeks draw it. argues "powers, refers partially relied our rested independent indication addition, likely explanation referred administrative "to 15(a)] through reinstatement hiring backpay." 633a(b) Prior coverage complaints processed Service Commission, surprising machinery protecting Fed.Reg. 24351 (1974), reprinted CFR 1613.501-1613.521 (1980).17 refer apparently derives, desire employ different Government.18 Seen light, strained interpretation totally unpersuasive. III Based my hold 602, amended, 621-634 15(a), pertinent part: "All applicants least departments [and enumerated agencies] age." 633a(a) set forth "(1) Any chapter; Provided, terminate commencement chapter. "(2) paragraph (1), recovery amounts owing violation chapter, regardless sought party action." With proviso 7(c)(1), 6, difficult appreciate reluctance fashioning narrow permit tax refund 1346(a)(1), "wholly precedent," H.R.Rep.No.659, 83d Cong., 1st Sess., (1953), expressed concern juries "might tend overly generous virtually unlimited ability pay verdict." Ibid. their firm opposition breaking precedent, took year acceding passage containing exception. Only much debate, became convinced danger excessive verdicts unique context—because recoveries amount taxes illegally erroneously collected—was passed. H.R.Conf.Rep.No.2276, 2d (1954). But, doctrine attendant presumptions inform favor never existed attaches accepted principles require creating cause action. dissenters contend expense overruling decision. hereafter position taken dissent loses infra, 167-168, cited 870, appear Amendment, comparable 216(b). Accordingly, inferring number reasons why chosen courts. They, along 7(c). follow course cases, confined Exclusive jurisdictional references 1964. 2000e-5(f)(3) 2000e-16(c). believed they, accustomed awarding sort relies 1084. Pfitsch dicta, agreed sitting id., 471, directly event, distinguishable. proposal, "presented attention precise form," 472, Tucker instead exclusive Given "difficult conceive rational ground" except That, true 12, arose Procedure. establishes mechanism determining right—i. applies, 401. statement regarding cite dictum, A Bentsen 9, S.3318, 92d 7745 (1972), represented attempt simply definition presumably 7. submitted revised version form amendments. 15894 (1972). Bentsen's original bill, governments; accomplished addition separate (presently 15). reported Welfare, S.Rep.No.92-842, 93-94 remained 1974. Sections offered finally acknowledged measures [from discrimination] substantially similar incorporated" recently during floor consideration 1972 VII, 4919-4920. Javits, opposing impose "what special distinguished antidiscrimination field generally, 4920. correctly noted: "Since bars Government—actions jury—it create [O]nce specified followed, drops picture. scrutinize indicia authorized." reliance 306 (1957), misplaced. ante, There, barred petitioner's "disability" asserted petitioner toll period disabilities context, Court, "limitations 273. is, "exceptions [to limitations] (1943); 189 (1880). contrary. inviolate." express, otherwise known. fully though "trial jury," argue stating grant" 165. express. Obviously, frivolous Either wrong. Still, misapprehends thrust "hardly courts." argued conferral raises alternative forum Here, forum. passed, excluded political subdivisions coverage. Pub.L. 90-202, ed.). assumed Reorganization Plan 2. 321 (1979), U.S.C.App. 354 read decided, full: chapter: chapter." By construing lost option having heard jury." question" correct. 163. ground Amendment. differently way implausible. 163-164, fails note does. Lever hear lawsuits dissatisfied President's compensation supplies requisitioned deciding rendered reviewable direct writ error, "had granting adjudication 10] establishing incident." 570 far indicates, debate weaken despite protestations ignores, 165, 13, considered What that, allowing opted self-evident, undoubtedly aware. One leading commentator concluded: "Congress (or equity), claims, admiralty. determine some dealing absent law, 38-239 (1981) added; footnotes rejects statute's language. similarities federal-court had. further thought relief. 164, 12. These explanations purely speculative. them counter stated: "There enterprise restrictions "What give pursue complaints." 5741 now contends "knew so." 162. find hard fathom. recognizes, must, months four Therefore, wrong, bound analysis Compare Rogers Exxon Research Engineering 550 834 (CA3 1977) (right trial), cert. denied, 1022, 749, 54 770 Pons 549 950 (CA4 (same), aff'd, Morelock NCR Corp., 546 682 (CA6 1976) (no vacated remanded, 435 911, 1463, 503 (1978). explained: "[J]uries open issues raised Sometimes, judge slightly callous, perhaps himself protected life tenure, somewhat removed employer-employee relationship. neutral circumstances." 34318 (1977). Report went state: "Because nature manifest factual underlying H.R.Conf.Rep.No. Code Admin. News 535. Supreme ruled wages, damages." lower follows contemplate unpersuasive, "it remedial crucial differences." 872. 'legal relief' many VII." supported occurred definitional "employer," 630(b), entities be. Nowhere evince withholding used.

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