Document: 454 U.S. 555 102 S.Ct. 805 70 L.Ed.2d 768 UNITED STATES, Petitioner,v.Joseph J. CLARK, et al. No. 80-1121. Argued Nov. 3, 1981. Decided Jan. 12, 1982. Syllabus There are two principal pay systems for federal employees: (1) The General Schedule (GS), which applies to "white-collar" employees and is divided into numbered grades subdivided rates of or "steps" within each grade, with the salary "step" uniform nationwide; (2) prevailing wage system (WS), primarily "blue-collar" specifically excluded from GS, also "steps," based upon comparable work in local areas. Salary treatment shifted hired GS governed by 5 U.S.C. § 5334 implementing regulations. An employee's after promotion determined reference either "highest previous rate" rule under 5334(a) governing regulation "two-step increase" 5334(b), provides such an increase when employee promoted a position higher "grade." Title 5331 assigns word "grade" meaning given 5102(a)(5), turn defines as those positions sufficiently similar warrant their inclusion one range basic "in Schedule." Respondents, being WS positions, were administratively held be entitled rule, gave them smaller than they would have received rule. They then filed action Court Claims, contending that two-step pursuant 5334(b). Claims upheld claim accordingly invalidated construed 5334(b) limited transfers promotions GS. Held : Section does not apply positions. Pp. 560-567. (a) Giving its plain meaning, grade Schedule," he exceeds step increases his Schedule" was promoted. Absent statutory language indicating Congress intended include 5334(b)'s requirement, statute reveals intent requirement only already system. 560-561. (b) Although legislative history expressly indicate limit predecessor employees, provide ample indication Congress' intent. 561-565. (c) determinative, construction charged administration great deference, particularly interpretation has been followed consistently over long period time. Here, agency responsible proposing administering it 565-566. 220 Ct.Cl. 278, 599 F.2d 411, reversed. Alan I. Horowitz, Washington, D. C., petitioner. John Heise, Jr., Silver Spring, Md., respondents. Justice O'CONNOR delivered opinion Court. 1 issue this case whether requires "promoted . grade," rate We hold apply, reverse judgment Claims. 2 * This involves relationship between moving another entitled. Both 5, United States Code. 3 One systems, seq., (1976 ed. Supp.V), employees. See R. Vaughn, Principles Civil Service Law 6.2(a), at p. 6-4 (1976) (hereinafter Vaughn). 18 grades; number increases, so do responsibilities. §§ 5104 5332 Supp.V). "steps." 5332. nationwide.1 4 second 5341 5102(b), (c)(7), 5331, 5342(a)(2)(A); Vaughn 6.2(b), 6-17. surveys 5343 Supp.V); Office Personnel Management, Federal Manual, Supp. 532-1, 56 (Apr. 14, 1980) FPM). Pay thus vary locale another. who change employment status Supp.V) regulations promulgated thereto. Under statute, rule2 rule.3 6 Prior July 1973, all six respondents worked civilian Supervisor Shipbuilding, Department Navy. In paid WS. Between 1973 October 1974, covered GS.4 After promotion, Libretto learned other equivalent on appointment positions.5 Since Libretto's much smaller, As result, Navy reexamined afforded Concluding salaries should applying denied notified reduced accordingly. 7 Respondents unsuccessfully pursued administrative remedies Tucker Act, 28 1491, Back Act 1966, 5596. contended ed., Government opposed claims ground shifts 5334(a). 8 reasoning had "promoted" CFR 531.202(h)(2) (1969),6 Accordingly, court invalidated, inconsistent 531.204(a) (1969), 411 (1979). 9 remand, parties stipulated amount respondents' recovery, entered final August 8, 1980. granted Government's petition writ certiorari 450 993, 101 1693, 68 192 (1981). jurisdiction 1255. II 10 look first organization statutes If clear, ordinarily conclusive. Consumer Product Safety Comm'n v. GTE Sylvania, Inc., 447 102, 100 2051, 64 766 (1980). 11 part subchapter III, chapter 53 "General Rates." Subsection describes general conditions, including promotions, pay. It directs simply "governed prescribed [Civil Commission]. ." Following direction, Commission rule.7 12 subsection hand, restricted Commission's discretion situation: 13 "An transferred lowest existing less transferred." 14 For purposes term 5102(a)(5). That section, turn, then, 15 Wage System, IV 53, 5. No express provision how set position. Thus, applicable provisions found III accompanying regulations, Nothing indicates language, reveal congressional 16 any lingering doubt proper may resolved examining according due deference longstanding agencies interpretation. NLRB Bell Aerospace Co., 416 267, 94 1757, 40 134 (1974). reinforces apparent language. 802(b) Classification 1949, 63 Stat. 954, 1071 seq. (1946 Supp.IV) (1949 Act).8 Through 1949 completely revised 1923, Pub.L. 516, 42 1488, 661 (1925-1926 ed.). latter top could receive little no grade. inequity resulted because steps equal exceed lower next revision plainly undertook correct problem: among stated need "to permit solution certain troublesome problems avoid unintentional inequities conduct various personnel transactions." S.Rep.No.847, 81st Cong., 1st Sess., (1949). Congress, moreover, understood precise nature overlap problem. Committee Reports accompanied proposed revisions explained: 17 "At present, receives immediate if receiving occurs falls these rates. "In too many cases, accordingly, greater responsibilities more difficult duties accord commonly accepted principle [concurrently] accompany 19 "Subsection section 802 corrects situation." Id., 38; H.R.Rep.No.1264, 12-13 (1949), U.S.Code Cong.Serv. 2363. 20 Examination dispels notion corrective measure movement systems. own blue-collar workers. holding same often different wages agencies. addition, job grading widely varying numbers steps.9 suggests even aware of—much attempting adjust—the varied results might occur worker moved concerned through application 21 Moreover, 1972, approximately year before comprehensive examination amended laws declare policy payment S.Rep.No.92-791, (1972), Cong. & Admin.News pp. 2980, 2982. purpose codify law. Ibid. 1972 amendments, time directed established maintained employees.10 5346 Even made effort correlate used By time, practice limiting nearly 25 years.11 failure practice, did correspond intent, very revamping further evidence and, later, Bergh, 352 40, 77 106, (1956). 22 absence hardly surprising, since necessary obvious relationship. First, entirely separate structure areas, salaries. fact, locale, changing salary, lesser making identical country. although definition responsibility (see 5102(a)(5) Supp.V)), necessarily exists grade.12 23 reasons enactment consistent limitation. 24 Piper Chris-Craft Industries, 430 1, 97 926, 51 124 (1977). instance, drafted submitted Commission.13 Soon enactment, interpreting section. guaranteed [GS] Fed.Reg. 7868 (1950), 25.104(a) (Supp.1951).14 contrast, subject 1235 25.103(b) (Supp.1951). Subsequent versions continued automatic system.15 effect provided applied "only (i) transfer position, (ii) grade." 33 12450 (1968), 531.204(a)(1) (1969).16 V 26 entire scheme, history, demonstrate soundness inapplicable System Schedule. 27 ordered. Comparability 1970, 5301 principles determine derives 5334(a), part: "The Management [formerly Commission] conformity title when— legislative, judicial, executive branch apply; (6) otherwise changed; (7) changed At 531.203(c) authority "Subject 531.204 ., reemployed, transferred, reassigned, promoted, demoted, him highest rate; however, rate." codified pertinent step-increases provided: requirements Code, Respondents' changes follows: Clark, ship surveyor (shipfitter) quality assurance specialist; D'Aversa, (pipefitter) production controller; Libretto, (machinist) engineering technician; Proto, (electrician) controller, later contract negotiator; Scialpi, Wolfus, negotiator. agree Because fell new level disagree method postpromotion remaining allege increase, explains originally S8-3d FPM, Inst. (Jan. 16, 1973), scheduled one-step increment category Once adjustment made, computed (1969) adjusted awarded single utilized, determinations obviously erroneous action. Regardless used, give except increase. 12449 531.202(h) " 'Promotion' means employee, while continuously employed, from: grade; A (1969). initial regulation. 1978, substituted Commission. 1101 terms remained 1950. n. 15, infra. 1962, rather 1132(b) (1958 Staff Report, President's Panel Compensation 107 1976). 1965, President Johnson coordinate policies practices leadership Chairman App. A-1, B-1 (Nov. 1965). Coordinated developed. statutes. amendments law enact use determining (1972). added 5346, establish maintain IV. maintenance Part IV, independent. Unlike most currently uses 5343(c)(2) Supp.V)) H.R.Rep.No.92-339, (1971); 30 percent base rate, but percent. (chart), 5343(e)(1)(A)-(E) periodic considerably quickly Compare 5335(a)(1)-(3) 5343(e)(2)(A)-(C) maximum reached, far shorter employee. 1949. 1082(7) Those remain 5102(c)(7), See, e.g., (Supp.1951) (refers "[a]n repromoted grades"); 7147 (1960), (1961) ("[t]he [Classification] repromotion actions involving 10948 (1963), (1964) [A]ct, grade"). Accounting Office, authorized settle adjust "[a]ll demands whatever against [the Government]," 31 71, 72, step-increase provision, governs re Nail, 59 Comp.Gen. 209 (1980); Letter Decision, 52 695 (1973); 671 44 518 (1965).

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