Document: 514 U.S. 122115 S.Ct. 1278131 L.Ed.2d 160 DIRECTOR, OFFICE OF WORKERS' COMPENSATION PROGRAMS, DEPARTMENT LABOR, Petitionerv.NEWPORT NEWS SHIPBUILDING AND DRY DOCK COMPANY et al. No. 93-1783. Supreme Court of the United States Argued Jan. 9, 1995. Decided March 21, Syllabus * The Director Labor Department's Office Workers' Compensation Programs petitioned Appeals for review a Benefits Review Board decision that, inter alia, denied Jackie Harcum full-disability compensation under Longshore and Harbor Act (LHWCA). did not seek and, while opposing Director's pursuit action, expressly declined to intervene on his own behalf in response an inquiry by court. Acting sua sponte, court concluded that lacked standing appeal benefits denial because she was "adversely affected or aggrieved" thereby within meaning § 21(c) Act, 33 U.S.C. 921(c). Held: is Pp. __. (a) Section 921(c) does apply agency acting as regulator administrator statute. This strongly suggested fact despite long use phrase term art designate those who have federal decision, no case has held agency, without benefit specific authorization appeal, falls designation; Code's general judicial provision, 5 702, which employs aggrieved," specifically excludes agencies from category persons covered, 551(2); clear evidence Code when its governmental capacity meant standing, Congress says so, see, e.g., 29 §§ 660(a) (b). While text particular statute could make being used peculiar sense, points such LHWCA. (b) Neither categories interest asserted demonstrates this must extraordinary meaning. ensuring adequate payments claimants insufficient. Agencies do automatically sue actions frustrate purposes their statutes; absent some distinctive responsibility conferred upon provision leaves private interests (even favored public policy) be vindicated parties. Heckman v. States, 224 413, 32 424, 56 L.Ed. 820; Moe Confederated Salish Kootenai Tribes Flathead Reservation, 425 463, 96 1634, 48 96; Pasadena City Bd. Ed. Spangler, 427 2697, 49 599; General Telephone Co. Northwest EEOC, 446 318, 100 1698, 64 319, distinguished. Also insufficient fulfilling important administrative enforcement responsibilities. She fails identify any statutory duties erroneous ruling interferes with, reciting instead conjectural harms abstract remote concerns. 8 F.3d 175 (CA4 1993), affirmed. SCALIA, J., delivered opinion Court, REHNQUIST, C.J., STEVENS, O'CONNOR, KENNEDY, SOUTER, THOMAS, BREYER, JJ., joined. GINSBURG, filed concurring judgment. Beth S. Brinkmann, Washington, DC, petitioner. Lawrence P. Postol, respondents. Justice SCALIA Court. 1 question before us whether Department (LHWCA), 44 Stat. 1424, amended, 901 seq., decisions view deny they are entitled. 2 On October 24, 1984, Harcum, employee respondent Newport News Shipbuilding Dry Dock Co., working bilge steam barge piece metal grating fell struck him lower back. His injury required surgery remove herniated disc, caused prolonged disability. Respondent paid LHWCA until he returned light-duty work April 1987. In November 1987, regular department medical restrictions. He proved unable perform essential tasks, however, company terminated employment May 1988. ultimately found elsewhere, started new job February 1989. 3 claim further contested claim, dispute referred Administrative Law Judge (ALJ). One issues entitled total disability, only partial date stopped began job. "Disability" means "incapacity earn wages receiving at time same other employment." 902(10). 4 After hearing 20, 1989, ALJ determined partially, rather than totally, disabled left respondent's employ, therefore owed partial-disability interval unemployment. affirmed ALJ's judgment, also ruled 908(f), cease after 104 weeks, special fund would liable disbursements pursuant 944. Fourth Circuit both aspects Board's ruling. Appeals. sponte raised had order. 1993). It with regard aspect order denying Harcum's compensation, since 921(c).1 We granted petition certiorari. 512 ----, 115 41, 129 936 (1994). II 6 provides workers injured killed employed navigable waters adjoining, shipping-related land areas States. 903. With exception imposed 919(d), 921(b), 941, Secretary delegated all responsibilities respect administration (OWCP). 20 CFR 701.201 701.202 (1994); 52 Fed.Reg. 48466 (1987). For ease exposition, will hereinafter recipient 7 A worker seeking file OWCP district director. 919(a); 701.301(a) 702.105 If director cannot resolve informally, 702.311, it authorized issue order, 702.316; 919(d). reviewable Board, whose members appointed Secretary. 921(b)(1). turn appealable appeals, instance "[a]ny person adversely aggrieved by" claims proceed hearings, terms party proceedings, grant her authority prosecute appeals thence appeals. argues nonetheless "a Specifically, contends injures impairs ability achieve Act's prescribes. 9 "person many statutes challenge courts. See, Federal Communications 1934, 47 402(b)(6); Occupational Safety Health 1970, 660(a); Mine 1977, 30 816. affected" "aggrieved," alone combination, history law, dating back least 402(b)(2) (codified, 402(b)(6)). They were already familiar 1946, embodied Procedure (APA), entitles "[a] . action relevant statute" review. qualification "within addition what conveys; but acknowledgment constitutes adverse effect aggrievement varies As Dept. Justice, Attorney General's Manual (1947) put it, "The determination 'adversely statute' 'been marked out largely gradual process inclusion exclusion, aided times courts' judgment probable legislative intent derived spirit scheme.' " Id., (citation omitted). thus interpreted 702 requiring litigant show, outset case, seeks vindicate arguably "zone protected regulated question. Association Data Processing Service Organizations, Inc. Camp, 397 150, 153, 90 827, 830, 25 184 (1970); see Clarke Securities Industry Assn., 479 388, 395-396, 107 750, 754-755, 93 757 10 Given lineage question, significant counsel cited neither nor courts APA individual statutory-review provisions present one, holds regulatory policy-making capacity, "aggrieved." Cf. Director, Perini North River Associates, 459 297, 302-305, 103 634, 639-641, 74 465 (1983) (noting 921(c), finding unnecessary reach question).2 There cases been might called nongovernmental capacity—that is, member market group protect. example, ICC, 337 426, 69 1410, 1451 (1949), we Interstate Commerce Commission overturn Government recovery damages allegedly unlawful railroad rate. Government, said, "is less shipper invoke protection." 430, 1413.3 But status beneficiary participant sharply distinguished administrator. 11 latter if—to example continues ICC analogy—the Environmental Protection Agency sued establishing high tariffs transportation recyclable materials. Students Challenging Regulatory Procedures (SCRAP), 412 669, 2405, 37 254 (1973). Or if Transportation, policy encouraging so-called "telecommuting" reduce traffic congestion, "party 28 2344, reverse Commission's approval rate increases second phone lines modems. aware "policy interest" sufficed confer provision. To acknowledge adequacy into business deciding intrabranch intraagency disputes—a role most inappropriate. 12 That suggested, well, two Code: First, contained APA, include aggrieved." See 551(2) (excepting definition "person"). Since, reflects "the pattern relationships," U.S., 433-434, S.Ct., 1414-1415, indicates even (there number extant adopted) normally standing. And second, displays throughout so. LHWCA's silence regarding Secretary's take laid beside law. Black Lung (BLBA), 932(k) ("The shall proceeding relative [a] benefits"); Title VII Civil Rights 1964, 42 2000e-5(f)(1) (authorizing initiate civil against employers) 2000e-4(g)(6) Equal Employment Opportunities "intervene brought ."); Employee Retirement Income Security 1974 (ERISA), 1132(a)(2) (granting power various Act). particularly illuminating compare 1970 (OSHA), 651 seq. OSHA virtually identical 921(c): allows (a body distinct Secretary, is) OSHA, contains 660(b), grants petitioning Secretary—suggesting, course, considered 660(a), should so 13 All foregoing refer capacity. Of course sense. LHWCA, relies solely mere existence impairment interest. ever suffice contradict normal (which doubtful), nature, extraordinarily impaired. discuss, here. III 14 assigns four broad Director: (1) supervising, administering, making rules regulations calculation processing claims, 906, 908-910, 914, 919, 930, 939; (2) care covered workers, 907; (3) assisting vocational rehabilitation, 939(c); (4) enforcing orders administering established payment certain benefits, 921(d) assert hampers performance these express affected, remotely suggests determinations. 15 "has elements social insurance, designed promote interest," Brief Petitioner 17, "advance claimants," id., 18. doubtful, begin goal simply support workers. fact, said represents compromise between competing laborers employers," correct interpret guaranteeing co mpletely remedy disabilities." Potomac Electric Power Programs, 449 268, 282, 101 509, 516-517, 66 (1980). scheme fair efficient resolution class disputes, managed arbitered Government. "quid pro quo employer employee. Employers relinquish legal rights law affords them turn, employees." M. Norris, Maritime Personal Injuries 4.1, p. 106 (4th ed. 1990) (emphasis added). 16 assuming single-minded, compensate-the-employee posits, there nothing suggest given pursue statutes. Interior Department, charged duty "protect property National Park System," 1a-6(a), suits assault campers; (more precisely) bring suit camper declines What establish here overcome universal assumption litigated find. designated champion employees scheme. contrary, one principal roles serve broker informal settlements employers employees. 914(h). charged, moreover, providing "information assistance" program including employers. 902(1), 939(c). sure, discretion 939(c) provide "legal assistance claim" requested perhaps little consequence, attorneys' fees successful claimants, 928); authority, discretionary contingent request claimant, power, claimant satisfied award, contest award own. 17 public's supported our 820 (1912), (1976), 599 319 None apposite. pertain States' represent Indians; former holds, 437, 431, dictum, 474, n. 13, 1641, Government's guardian confers third supra, 427, 2700-2701, based explicit IX authorizing suit, 2000h-2, last, 325, 1703-1704, Opportunity 2000e-5(f)(1). Those certainly infringing Article Constitution; just opposite, describes how, prior 1972 amendment giving EEOC sue, "aggrieved person" though 'informal methods conference, conciliation, persuasion' eliminate practices, 1703-1704—an similar settlement 18 claimed rulings fulfill "important responsibilities." fails, contends, "incorrect determinations [her] administer enforce uniform manner." 18-19. impossible understand how (presumably arising prohibition arbitrary reflected 706) hinges adjudication someone else. (and think cannot) explain, affects underlying information coverage, procedures, 939(c), final 921(d), task "uniform" manner. 19 correctness adjudications assigned duties, presumably done agencies: made responsibility. taken pains realm. Amendments 1972, 86 1251, 939(a); initial ALJ's, 919(d); created consider 921. assertion proper functions quite contrary whole structure Act. implausible argument worse, lack control over adjudicative deprive ambiguities retains rulemaking 939(a), problem rule Chevron U.S.A. Natural Resources Defense Council, Inc., 467 837, 2778, 81 694 (1984), full alter rule. Estate Cowart Nicklos Drilling 505 112 2589, 2595, 120 379 (1992) [Board] deference"). Her possible complaint, then, agree outcome case. precluding "would incentive efforts authoritative, higher level appeal." 19. assumes supposed "authoritative." doubt that. facilitative—a service parties, imposition either them. opposite true, unlikely prospect much impact chooses spurn proposal roll dice Board. requirement "something more ingenious academic exercise conceivable." SCRAP, 688, 2416. derive position Congress' later enactment BLBA 1978, seems militates precisely position. "[t]he part." 932(k). explicitly BLBA, well. form reasoning with. conclusion putting side this: when, sort, wants 21 Finally, retreats last redoubt losing causes, proposition hand liberally construed purposes, Northeast Marine Terminal Caputo, 432 249, 97 2348, 2359-2360, 53 320 (1977). principle may invoked, ambiguity, find operation scheme; add features "purposes" effectively. Every proposes, ends, means—and often considerable battle ought be. withholding granting right play favorites two. Construing can be, 22 23 reasons, 24 So ordered. 26 (OWCP) lacks (LHWCA Act), Before reads amendments divesting access appellate tribunals formerly open administrator's petitions. practical Court's disparity compensatory schemes—the 83 792, seq.—measures intended essentially way. 27 Significantly, observes precedent "certainly establish[es] [OWCP] Constitution." Ante, __ retained).1 I amended write separately am convinced advert change—the withdrawal wrought amendments. Since impediment stands way, speak word determining apparent oversight. predecessors administrators officials deputy commissioners, adjudicated first instance. 923 (1970 ed.); Kalaris Donovan, 697 F.2d 376, 381-382 (CADC), cert. denied, 462 1119, 3088, 77 1349 (1983). commissioner's challenged injunctive commissioner. 921(b) Parker Motor Boat Sales, 314 244, 245, 62 221, 222, (1941). defending courts, commissioner 1291, sought appeal. Henderson Glens Falls Indemnity 134 320, 322 (CA5 1943) ("There numerous appealed sole party, never questioned.") (citing, Parker, supra ). shifted commissioners' adjudicatory judges (ALJs). Although directors—as commissioners now called2—are empowered investigate attempt party's request. 919. replaced newly Just parties Director—as delegate —is current 801.2(a)(10) Either another decision. 921(b)(3); 801.102, amendments, available entitle surely decided transfer ALJs, scant reason believe consciously strip official once amending address standard describe petitioners doubtful comprehended phrase: Not qualify but, interpreted, ordinarily disqualifies review.3 31 1978 revision (BLBA) reveals design ordered attended matter. adopted, part, keep procedural regime devised claims. prescriptions, provided Director. [of Labor] [black lung] benefits."). enacted 1969 afford coal miners survivors death disability pneumoconiosis (black lung disease). Usery Turner Elkhorn Mining 428 1, 8, 2882, 2889, 752 (1976). generally adopts 932(a). clarify continuously incorporates procedures. 7(a)(1), 92 98 (amending incorporate "as time"); S.Rep. 95-209, (1977) (BLBA "makes [LHWCA]" incorporated relating Judges adjudication"). context assuring automatic application procedures black H.R.Conf.Rep. 95-864, pp. 22-23 (1978), added Labor's "in benefits." 7(k), 99. According Report Senate Committee Human Resources: 34 "Some arisen applicable incorporating sections [LHWCA] confe[r] designee appear, evidence, respond litigation advance views formal direct financial officer carrying forth [BLBA] deemed sufficient [BLBA], actively participate Judge, appropriate Courts." 21-22 Even passage force uncommon reading words ante, __, vital sound 35 nine argued involving LHWCA.4 cases,5 petitioner string indicates, escaped attention apparently slipped grasp. 36 Acts Base 1651; District Columbia Workmen's D.C.Code Ann. 501 (1973);6 Outer Continental Shelf Lands 43 1333(b); Employees Nonappropriated syllabus part prepared Reporter Decisions convenience reader. Detroit Lumber 200 321, 337, 287, 50 499. 944 fund, relief 908(f). it. reaching took (because conceded below) answer question: (rather Board) determination. 304, 640, 13. Obviously, agency's entitlement necessarily imply appeal: Relations always 152(1), 160(f). Indeed, argued, amicus done, (as assert, 802.410 (1994)), initiating end up sides Nat. Assn. Waterfront Amici Curiae 14. Our today intimates party-respondent accorded facts APA's ("person aggrieved") "person." infra, appear suing termed escapes definitional limitation. likewise "person" agencies. 902(1). chose rely seemed likely sweep deserves separate attention. manager privately financed removes limitation, limitation qua leave resolved where relationship immediately us. Greenwich Collieries, 114 2251, 221 Bath Iron Works Corp. OWCP, 506 113 692, 121 619 (1993); (1992); Morrison-Knudsen Construction 461 624, 2045, 76 194 (1983); 297 Industries/Federal Sheet Metal, 455 608, 102 1312, 71 495 (1982); (1980); Rasmussen, 440 29, 99 903, 59 122 (1979); supra; supra. affect fund. 3. Fund Instrumentalities Statute, 8171. Claims handled actors: directors, Because programs, common arise several programs. 2265-2266, (1994) (invalidating "true doubt" burden persuasion ALJs applied adjudications). Under holding, presented Acts. concur disharmony establishes my conviction intend sync. Correcting scrivener's error competence, Bank Ore. Independent Ins. Agents America, 508 2173, 124 402 (1993), larger oversights kind petition. "applies injuries deaths events occurred July 2[4], 1982, effective [36 36-301 (1981) ]." 701.101(b) contrast, motion feared initiated "strik[e] core constitutional limitations placed th[e] 175, 180, 639-41, issue). 701.301(a)(7), law-presentation OWCP's compared advocate ministere proceedings. Glendon, Gordon, & C. Osakwe, Comparative Legal Traditions 344 (2d 1994); R. David, French (1972).

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