Document: 499 U.S. 244 111 S.Ct. 1227 113 L.Ed.2d 274 EQUAL EMPLOYMENT OPPORTUNITY COMMISSION, Petitioner,v.ARABIAN AMERICAN OIL COMPANY and Aramco Services Company. Ali BOURESLAN, Petitioner, v. ARABIAN Nos. 89-1838, 89-1845. Argued Jan. 16, 1991. Decided March 26, Syllabus Petitioner Boureslan, a naturalized United States citizen born in Lebanon working Saudi Arabia, was discharged by his employer, respondent Arabian American Oil Company, Delaware corporation. After filing charge with petitioner Equal Employment Opportunity Commission (EEOC), he instituted suit the District Court, seeking relief under, inter alia, Title VII of Civil Rights Act 1964 on ground that had been discriminated against because race, religion, national origin. In dismissing this claim, court ruled it lacked subject-matter jurisdiction VII's protections do not extend to citizens employed abroad employers. The Court Appeals affirmed. Held: does apply extraterritorially regulate employment practices firms employ abroad. Petitioners' evidence, while totally lacking probative value, falls short demonstrating clearly expressed affirmative congressional intent is required overcome well-established presumption statutory extraterritoriality. Pp. 248-259. (a) Petitioners argue unpersuasively "broad jurisdictional language"—which extends Act's commerce "between State any place outside thereof"—evinces clear legislate extraterritorially. language relied ambiguous, speak directly question presented here, constitutes boilerplate found number Acts, none which have held overseas. argument also finds no support Court's decisions, repeatedly even statutes containing broad their definitions "commerce" expressly refer "foreign commerce" See, e.g., McCulloch Sociedad Nacional de Marineros Honduras, 372 10, 15, 19, 83 671, 674, 676, 9 547. Steele Bulova Watch Co., 344 280, 286, 73 252, 255, 97 L.Ed. 319, distinguished. 249-253. (b) "alien exemption" clause—which renders statute inapplicable "to an employer respect aliens State"—clearly manifests necessary cover employers If petitioners were correct, there would be basis for distinguishing between foreign Absent clearer evidence intent, unwilling ascribe Congress policy raise difficult international law issues imposing country's employment-discrimination regime upon corporations operating commerce. This conclusion fortified other factors suggesting purely domestic focus, including failure mention nations or proceedings despite provisions indicating concern sovereignty laws unduly interfered with, provide mechanisms its overseas enforcement. It reasonable conclude intended overseas, addressed subject conflicts procedures, as did amending Age Discrimination 1967 (ADEA) 253-256. (c) contention should defer EEOC's position applies rejected. interpretation fare well under deference standards set forth General Electric Co. Gilbert, 429 125, 140-146, 401, 410-413, 50 343, since has neither contemporaneous enactment nor consistent earlier, contrary enunciated EEOC closer date came into law, offers experience change, lacks statute's plain language. Although wholly discount interpretation, insufficient weight, when considered combination petitioners' arguments, extraterritorial application. 256-258. (d) Congress' awareness need make statement amply demonstrated numerous occasions legislated extraterritoriality, amendment ADEA. may similarly amend doing so will able calibrate way cannot. 258-259. 892 F.2d 1271 (CA 5 1990), REHNQUIST, C.J., delivered opinion WHITE, O'CONNOR, KENNEDY, SOUTER, JJ., joined. SCALIA, J., filed anopin ion concurring part judgment, post, p. ----. MARSHALL, dissenting opinion, BLACKMUN STEVENS, joined, Sol. Gen. Kenneth W. Starr, Washington, D.C., both cases. Paul L. Friedman, respondents. Chief Justice REHNQUIST Court. 1 These cases present issue whether who Fifth Circuit not, we agree conclusion. 2 Boureslan Lebanon. respondents are two corporations, Company (Aramco), subsidiary, Service (ASC). Aramco's principal business Dhahran, licensed Texas. ASC's Houston, 3 1979, hired ASC cost engineer Houston. A year later transferred, at request, work Arabia. remained Arabia until 1984. discrimination (EEOC Commission), Southern Texas ASC. He sought state 1964, 78 Stat. 253, amended, 42 U.S.C. §§ 2000e—2000e-17, harassed ultimately account 4 Respondents motion summary judgment over Boureslan's claim agreed dismissed claim; state-law claims lack pendent entered final favor panel vacating panel's decision rehearing case en banc, affirmed dismissal complaint. Both petitioned certiorari. We granted petitions certiorari resolve important interpretation. parties concede, they must, authority enforce beyond territorial boundaries States. Cf. Foley Bros., Inc. Filardo, 336 281, 284-285, 69 575, 577, 93 680 (1949); Benz Compania Naviera Hidalgo, S.A., 353 138, 147, 77 699, 704, 709 (1957). Whether fact exercised matter construction. our task determine 6 longstanding principle "that legislation Congress, unless appears, meant only within States." U.S., 285, S.Ct., 577. "canon construction . valid approach whereby unexpressed ascertained." Ibid. serves protect unintended clashes those could result discord. See 20-22, 677-678, 547 (1963). 7 applying rule construction, look see "language [relevant Act] gives indication purpose coverage places some measure legislative control." supra, assume legislates backdrop Therefore, "the intention expressed," Benz, must presume "is primarily concerned conditions." 8 contend evinces behalf They rely principally statute. First, terms "employer" sufficiently include Second, maintain clause, § 2000e-1, necessarily implies from consistently borders. prohibits various discriminatory based individual's color, sex, 2000e-2, 2000e-3. An if 15 more employees specified period "engaged industry affecting commerce." "any activity, business, labor dispute hinder obstruct free flow includes activity 'affecting commerce' meaning Labor-Management Reporting Disclosure 1959 [ (LMRDA) ] [29 401 et seq.]." 2000e(h). "Commerce," turn, defined "trade, traffic, commerce, transportation, transmission, communication among several States; thereof; Columbia, possession points same but through point thereof." 2000e(g). 10 language, language" reveals Congress's anywhere world affects trade More precisely, assert defines "States" States, territories, clause thereof" referring areas limit Reply Brief 3. 11 offer alternative explanations expansive "or "provide[s] nexus single state, presumably interstate "regulate conduct exclusively country." 21, n. 14. "employer," "commerce," "industry "commerce nations," cannot said argument, II governing public accommodation, specifically nations. Finally, first bill House Representatives contained deleted Senate before passed. these deletions "[are] inconsistent notion extraterritorially." 7. 12 choose competing interpretations absence application discussed above. Each plausible, persuasive than that. petitioners—and showing—is here. deduced inference can ever Consumer Product Safety Act, 2052(a)(12); Federal Food, Drug, Cosmetic 21 321(b); Transportation 1974, 49 App. 1802(1); 1959, 29 seq.; Americans Disabilities 1990, 12101 seq. 13 reliance law; contain For example, New York Central R. Chisholm, 268 29, 45 402, 828 (1925), Employers' Liability (FELA), 51 FELA provides common carriers railroad engaging "interstate territories nation nations" shall liable damages suffer injuries resulting employment. 51. Despite "contains words definitely disclose give effect," 31, therefore action suffered fatal 30 miles north border Canada. 14 Similarly, (1963), National Labor Relations (NLRA), 151-168, Even though NLRA referred 152(6), refused find specific reflecting so. McCulloch, 676. great weight assertedly similar grant Lanham Act" applied 256, 319 (1952). No. 12. Steele, designed prevent deceptive misleading use trademarks, acts consummated Mexico. "all lawfully regulated Congress." 1127. stated control making actionable marks such While recognizing appears," concluded light allegedly unlawful effects coupled grant" "sweeping reach 'all Congress,' " properly interpreted 287, 256. 16 attempt analogize unpersuasive. Constitution power "[t]o Commerce Nations, Indian Tribes." Const., Art. I, 8, cl. Since extent By contrast, limited, intent. Moreover, unlike definition derived LMRDA, held, prior VII, 674. 17 Thus petitioner's fails previous law. Many Acts body parts setting obviously one another. permit possible, involved here override application, little left presumption. 18 "alien-exemption provision," "clearly intention" alien exemption provision says "shall State." negative drawn There "[n]o plausible explanation [that] exists," argue, "[i]f believed extraterritorially, reason certain category individuals pp. 12-13. "[t]he possibly read confer States," "Congress rationally enacted foreclose all potential applications statute." Id., 13. 19 resist alien-exemption raisons d'etre included employee,* possessions "States," covered Thus, "outside State" means State, "[t]his reading supported historical development provision" inclusion direct response term "possessions" Fair Standards Vermilya-Brown Connell, 335 377, 140, 76 (1948), leased bases 27. impact excluding that" encompassed "State." 29. 20 implication, "confirm[s] 26. Espinoza Farah Mfg. 414 86, 94 334, 38 287 (1973), protected uses "individual" rather "citizen," provision. correct French France VII—a balk. assures us view "American employer," distinction normal course administration produced reasoned distinction. Without 22 elements focus. whole indicates interfere 2000h-4 (stating construed exclude operation invalidate purposes Act); 2000e-5 (requiring accord substantial findings local authorities law); 2000e-7 (providing nothing affect requires permits VII); 2000e-5(c), (d), (e) (provisions addressing deferral proceedings). speaks proceedings, proceedings. 23 failed enforcement VII. instance, venue provisions, 2000e-5(f)(3), ill-suited judicial district where matters related occurred located. And limited investigative provided EEOC, permitting subpoenas witnesses documents Territory thereof," 161 incorporated reference 2000e-9, suggests intend 24 procedures. (ADEA), 81 602, 621 abroad, providing take prohibited ADEA "where involve employee workplace country, compliance [the ADEA] cause violate country located." 623(f)(1). address 25 federal agencies primary responsibility enforcing argues "consistent" formally issued after oral Circuit's initial case, Policy Statement N-915.033, BNA Compliance Manual 605:0055 (Apr.1989), 22. Citing 1975 letter Counsel, 1983 testimony Chairman, 1985 Commission, administrative "reinforce" 26 343 (1976), proper afforded guidelines. Recognizing "Congress, enacting promulgate rules regulations," level 'will depend thoroughness evident consideration, validity reasoning, consistency earlier pronouncements, persuade, control.' 141, 142, 410, 411 (quoting Skidmore Swift & 323 134, 65 161, 164, 89 124 (1944)). 27 standards. As matter, taken "contradicts [it] date, 410. Commission's early pronouncements CFR 1606.1(c) (1971) ("Title protects individuals, noncitizens, domiciled residing origin"). intimated reflected guidelines years passage change. thus above, given 1988 guideline, value judged Skidmore. Accord, Southeastern Community College Davis, 442 397, 411-412, 99 2361, 2369-2370, 60 980 (1979); SEC Sloan, 436 103, 117-118, 98 1702, 1711-1712, 56 148 (1978); 93-94, 339. that, insufficiently weighty 28 Our today buttressed "[w]hen desires so, knows how high seas Argentine Republic Amerada Hess Shipping Corp., 488 428, 440, 109 683, 691, 102 818 (1989). Export Administration 2415(2) (defining "United person" (including permanent establishment concern) subsidiary affiliate establishment) controlled concern"); Coast Guard 89(a) (Coast searches seizures seas); (Criminal Code 1701 (Customs Comprehensive Anti-Apartheid 1986, 5001(5)(A) ed. Supp. V) (definition "national States" "a natural person ."); Logan 953 (applying "[a]ny wherever ."). Indeed, courts amended 11(f) provide: "The 'employee' individual 630(f). 4(g)(1), states: "If controls corporation whose incorporation practice section presumed employer." 623(h)(1). changes "mak[e] countries subsidiaries." S.Rep. 98-467, (1984), U.S.Code Cong. Admin.News 1984, 2974, 2975. wish sufficient Accordingly, Affirmed. 31 judgment. 32 I join except portion, ante, 256-258, asserting views Commission—not particular apparently general entitled normally accorded Chevron U.S.A., Natural Resources Defense Council, Inc., 467 837, 104 2778, 694 (1984). proposition force "power persuade" decided era disposed (as opposed "persuasive force") so-called "legislative regulations." reasoning (1976) (singled out agencies) deference, guidelines, like without explicit rulemaking power, deference. id., 33 treatment agency positions governed Chevron, vs. action" dichotomy Gilbert anachronism; description anachronism say rules) recognized three ago Commercial Office Products 486 107, 108 1666, 100 96 (1988)—which last word EEOC. said, quite familiar following ambiguous deference." 115, 1671. overruled (or mentioned) today's regarding unsettled. 34 assuming, deciding, question. But abdication, accept principles employ. Given extraterritoriality accurately describes, requirement my effect mere implications done. Sunstein, Law 90 Colum.L.Rev. 2071, 2114 (1990). 35 On points, 36 whom STEVENS join, dissenting. 37 Like turns solely majority recognizes, inquiry informed traditional teaches (1949). what majority's analysis, canon "clear statement" rule, relieves duty available indicia will. Rather, illustrates, exhausting tools "whereby When brought bear inescapable Consequently, dissent. * Because supplies driving start recasts overseas." Ante, 258 (emphasis added). So conceived, allows derive instances silence—from failure, proceedings," enforcement," ibid., "addres[s] procedures," 1234. At relies reformulation avoid "need [to] interpretations" concludes "does question" 250 view, grossly distorts conventional techniques 39 most extensive discussion Brothers, supra. Eight Hour Law—a regulating length workday perform contractual States—applied projects noting assumption conditions," "nothing itself, history, lead belief entertained case." put emphasis scheme Act," draw "distinction therein laborers 578. [such] distinction," explained, "indicates conditions probable engaged extended analyses history statute, 286-288, 578-579, pertinent interpretations, 288-290, 579-580. 40 range Brothers demonstrates rule. Clear-statement operate less reveal actual shield values strong displace them. Webster Doe, 592, 601, 603, 2047, 2052, 2053, 632 (1988); Atascadero Hospital Scanlon, 473 234, 242-243, 105 3142, 3147-3148, 87 171 (1985); Kent Dulles, 357 116, 130, 1113, 1120, 1204 (1958). apply, extrinsic guides see, Dellmuth Muth, 491 223, 230, 2397, ----, 181 (1989), compel select candidates permissible constructions, Edward J. DeBartolo Corp. Florida Gulf Building Construction Trades 485 568, 1392, 1397, 645 (1988). analysis narrowly constrained. entire sources ascertained," 577 added),1 structure, interpretations. Subsequent confirm imposed drastic clear-statement burden giving boundaries. 286-287, 255-256, (1952) (relying abroad). 41 converts selective quotation. reports declined construe Employers 'contains effect,' 251, quoting 402. omits remainder quoted sentence, states, "nor circumstances require purpose." 402 notes 'any language' expected foreign-flag ships. full sentence "But, [v. (1957) ], [petitioners] unable itself reflects intent." 676 overstates strength drawing involving independent construction: 'an act congress ought never possible remains. .' Nacional, 678, Charming Betsy, Cranch 64, 118, 208 (1804) (Marshall, C.J.); 146-147, 703-704, Management 1947 "applie[d] controversy picketing ship operated entirely seamen articles vessel temporarily port." 138-139, 700. Construing displaced regulations founded another applicable nationals. 139, 146, 700, 701-703. 248, "present expressed" infer enter "such delicate field relations." 704. focused 'the expressed,' declining vessels crews. 22, Extraterritorial violated flag ordinarily governs internal affairs ship," 677, Department, 20, 11, 677 11. 43 Far equating Foley's now reserved settings "implicat[e] sensitive Executive relations nations." NLRB Catholic Bishop Chicago, 440 490, 500, 1313, 1319, 59 533 Weinberger Rossi, 456 25, 32, 1510, 1516, 71 715 (1982) (McCulloch constructions implications"); Longshoremen Ariadne 397 195, 198-199, 872, 873-874, 218 (1970) (declining follow vessels). strictness avoid, separation-of-powers international-comity questions associated construing nation. 1319. Nothing nearly dramatic stake merely seeks nationals 285-286, 255-256; Skiriotes Florida, 313 69, 73-74, 61 924, 927-928, 85 1193 (1941).2 44 advance nationals, weak strict Mc Culloch, Y govern Under invoke exhausted subject. Once consulted believe A. "It fail refuse hire discharge individual, otherwise discriminate compensation, terms, conditions, privileges employment, origin." 2000e-2(a)(1). 46 'employer' fifteen employees," 2000e(b); 'commerce' trade, thereof. ." 47 enough encompass text protection depends location workplace; anything indicate businesses exempted occurs Nation's conceding "plausible" breadth central prohibition 250, goes considerable lengths show conception However, more—and more, additional textual intent—than expectation dispute. 48 Confirmation expect supplied states 2000e-1 added).3 State," craft exemption. exempted, remain accountable arising rebut Compare Pennsylvania Union Gas 1, 2273, Gas, clarity abrogate States' Eleventh Amendment immunity Environmental Response, Compensation, 1980. Based directed spoken clarity; absent background understanding" made amenable suit, "would [have] be[en] unnecessary." 2278. logic sharp pierce dense armor abrogation 3147; accord, then overcomes much weaker Brothers. confirms large labor" Law: "Unless forced hours Iran chanced land. attributed 52 comprising appeared introduced seven weeks H.R. 4453, 81st Cong., 1st Sess. (1949), aimed insulating prevented adopting Law. surrounding leaves doubt mind revived antidiscrimination bill: "In exception State. [this] remove might exist enterprise." H.R.Rep. 570, 88th (1963) added), reprinted Rights, Hearings 7152, Subcommittee Committee Judiciary, 2303 (Civil Hearings).4 53 867, 2d Sess., (1964) ("Exempted employing lands" added)). 54 Notwithstanding basic requiring Reiter Sonotone 330, 339, 2326, 2331, 931 (1979), advances own closest comes attempting identify endorsement "two offered 254. Neither minimally persuasive. 55 suggestion indicates, hardly makes sense whole; indeed, sense. respondents' one—neither alien—is order credit provision, attribute enact completely superfluous signaling Nation. addition being extremely improbable, subterfuge unnecessary, indicated communicated prohibiting individual." 95, 340. Respondent's second anticipation companies "possessions," outcome supposedly dictated (1948). very true, corroborates fixed legal "possession," 386, 145, possessions, nations, jurisdictions attaches. 577.5 types jurisdiction, reached about applicability former class, just latter. situation "U.S. firmly B 57 Rather reconcile contents pointing silences communicate discrimination. particular, reach, "provide[d] special investigatory powers ibid. emphasizes express 255. supposed omissions detracts 58 simply incorrect disregarded announced 4, Hearings, tailored avert type conflict gone further topic conflicts, second-guess balance struck respect. misrepresents character provisions. districts underlying discrimination, "if [employer] district, office." 2000e-5(f)(3). "Principal office" Identical Jones 688(a), appropriate occurring generally Hellenic Lines Ltd. Rhoditis, 398 306, 308-309, 1731, 1733-1734, 252 (1970).6 62 Nor scope directs investigation "[w]henever filed" 2000e-5(b); "have access to, examination, right copy investigated," 2000e-8(a). geographic limitation either powers, "exercise powers" Columbia (the site office) "at place." 2000e-4(f) 63 subpoena 2000e-9; 161(1), detract agency's powers. FTC Compagnie De Saint-Gobain-Pont-A-Mousson, 205 U.S.App.D.C. 172, 194, 636 1300, 1322 (1980) (territorial investigations). extraterritorial-subpoena 626(a); 209, 49, Securities Exchange 1934, 78u(b), 623(h)(1), 630(f),7 latter widely Turley, "When Rome": Multinational Misconduct Presumption Extraterritoriality, 84 Nw.U.L.Rev. 598, 613-617 short, correlation charged enforcing. 64 importance disclaim discussed, recognize raises considerably serious comity 927-928. typically presents foreign-policy conflicts-of-law concerns underlie Benz. different depending identity parties, 285-287, 255-256 abroad) Vanity Mills, T. Eaton 234 633, 642-643 (CA2) abroad), cert. denied, 352 871, 96, (1956). 599-601, 2051-2052, 2053-2054 (finding judicial-review meanings construction). moreover, furnishes (explaining "employment enterprise added)), 2303; (alien-exemption added)); 605:0061 (April 1989) (construing nationality "significant" VII). although loss interpretive resources narrowing III 66 288, 579. 1975, record abroad: 67 "Section [2000e-2(a)(1) individual' appears Section [2000e-1], i.e., religious educational institutions. 68 "Giving [2000e-1] Congressional employers' operations exclusions obvious; Congress. exempt Citizens all, therefore, expressing time excludes Letter Carey, Senator Frank Church (Mar. 14, 1975), 48-49. 70 reiterated decisions then. Dec. 85-16 (Sept. 1985), FEP Cases 1889, 1891-1892; 605:005 605:0057. "[I]t axiomatic responsibility, best grammatical 1671, reinforced long-standing Department Justice, secondary Sheet Metal Workers 478 421, 465-466, 106 3019, 3044-3045, 92 (1986) (plurality opinion) (deference owed Stating then-Assistant Attorney Scalia testified Congress: 72 "With private 'unlawful practices' 'engaged employees.' again [statute] contains 'with State,' world." Foreign Investment Arab Boycott Legislation, International Finance Banking, Housing Urban Affairs, 94th 165 (1975). Justice. discounts inconsistent. 1970 regulation declared "Title (1971). According majority, inconsistency pronouncement deprives force. 257. 74 misreading 1606.1(c). Obviously, recognition "both understood context thing. promulgated 1606.1 announce ban national-origin 1606.1(a)-(b), (d). emphasized "protects underscore citizenship residency status prohibition. noncitizens" effect, representing William 16. insistence contradicting due regulations. Udall Tallman, 380 16-17, 792, 801-802, 616 (1965). 75 sum, assigned IV hands transformed "valid barrier genuine intentions. "employee" as: "an elected office political subdivision qualified voters thereof, chosen officer officer's personal staff, appointee immediate adviser exercise constitutional office. preceding civil service government, governmental subdivision." 2000e(f). quotes proceeds disregard analysis. worth embodying 142-146, 701-704, concluding facts 'State' Puerto Rico, Virgin Islands, Samoa, Guam, Wake Island, Canal Zone, Outer Continental Shelf lands Lands [43 1331 2000e(i). originally 405, 2330. bill, along others, (with amendments immaterial provision) became 1964. 914, 2355 (additional Rep. Meader). Report accompanying 405 likewise committee hearings bills 7152 derived. 2300. "possessions." 379, 145; addition, suffers bring court, Yellow Freight System, Donnelly, 494 820, 110 1566, 834 (1990), Bainbridge Merchants Miners Transp. 278, 280-281, 159, 159-160, 302 (1932). reflect confined lower-court domestically. distinguished respect, analogous Cleary Lines, 728 607, 609 (CA3 1984); Pfeiffer Wm. Wrigley Jr. 755 554, 559 (CA7 1985). Sponsors explained coextensive reach. 129 Cong.Rec. 34499 (1983) (statement Sen. Grassley).

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