Document: 478 U.S. 310 106 S.Ct. 2957 92 L.Ed.2d 250 LIBRARY OF CONGRESS, et al., Petitionersv.Tommy SHAW. No. 85-54. Argued Feb. 24, 1986. Decided July 1, Syllabus After petitioner Library of Congress had rejected respondent black employee's complaints alleging job-related racial discrimination, respondent's counsel pursued administrative relief and settlement negotiations, eventually reached a with the Library. The latter agreed to promote retroactively backpay if Comptroller General determined that was authorized do so in absence specific finding discrimination. ruled Library, under Back Pay Act, lacked such authority. Respondent then filed suit Federal District Court, Title VII Civil Rights Act 1964 relief. court agreed, therefore backpay, pay reasonable attorney's fee costs pursuant § 706(k) which provides any action may allow prevailing party "reasonable as part costs" "the United States shall be liable for same private person." In calculating fee, Court increased lodestar amount by 30 percent compensate delay receiving payment his services. Appeals affirmed, holding although no-interest rule—under no recovery can against Government interest an express waiver sovereign immunity from award interest—applied since compensation is functionally equivalent interest, waived Government's making it Held: rule applies here preclude Pp. 314-323. (a) Section 706(k)'s provision person" waives fees, but not interest. statute, well its history, contains reference thus precludes reading requisite 318-320. (b) Nor found requirement awarding "reasonable" fees. There basis term embodiment congressional choice include component And policy permitting matter how compelling, insufficient, standing alone, waive 320-321. (c) "costs," including does provide clear affirmative intent Prejudgment considered damages, "costs." P. 321. (d) cannot avoided characterizing what delay. Both factor are designed belated receipt money. 321-323. 241 U.S.App.D.C. 355, 747 F.2d 1469, reversed remanded. BLACKMUN, J., delivered opinion BURGER, C.J., WHITE, POWELL, REHNQUIST, O'CONNOR, JJ., joined. BRENNAN, dissenting opinion, MARSHALL STEVENS, joined, post, p. 323. Charles A. Rothfeld, Washington, D.C., petitioners. Stephen Ralston, New York City, respondent. Justice BLACKMUN Court. 1 effect recovered this case, fees on those were awarded plaintiff who prevailed brought 1964, 78 Stat. 253, amended, 42 U.S.C. 2000e seq. We must decide whether Congress, enacting VII, expressly 2 * Tommy Shaw employee Congress. He black. During 1976 1977, he three Library's Equal Employment Office Following investigation, officials complaints. Thereafter, provided first authority 5 §§ 5595, 5596, power; did address VII. 3 Columbia, contending accord specified agreement. On cross-motions summary judgment, power settle claim him retroactive promotion without formal 479 F.Supp. 945 (1979). 2000e-5(k). F.Supp., at 949-950. 4 separate began $8,435,1 based 99 hours work $85 per hour. App. Pet. Cert. 57a, 62a-66a. reduced 20 reflect quality counsel's representation. Id., 66a-67a. Finally, significantly present purposes, adjusted legal services rendered. 68a. relying Copeland v. Marshall, 205 390, 403, 641 880, 893 (1980) (en banc), indicated increasing appropriate because hourly rates used represent rate clients typically their bills promptly, whereas court-awarded normally received long after An increase attorney money could have earned been paid earlier invested funds. concluded period ran time case should ended, viewed 1978, until just judgment. Columbia Circuit affirmed. 1469 (1984). that, even though adjustment termed rather than applied two adjustments equivalent. went examine 2000e-5(k), relevant part: 6 "In or proceeding subchapter court, discretion, party, other [EEOC] States, costs, (Emphasis added.) 7 noted employer, recovered. U.S.App.D.C., 361, F.2d, 1475. See, e.g., Chrapliwy Uniroyal, Inc., 670 760 (CA7 1982), cert. denied, 461 956, 103 2428, 77 1315 (1983). Therefore, reasoned, person," States' alternative, held "same waiver, Court's proper; when statute measures liability person, "traditional rigor sovereign-immunity doctrine" relaxed. 365, 1479. 8 Judge Ginsburg dissented. 371, 741 1485. She declined join she judicial termination rule. manner timing computation. indicated, however, use current historical order delay, expected see Murray Weinberger, 239 264, 1423 (1984), would run afoul 9 granted certiorari question Appeals' decision conflicts repeated holdings statutory contractual consent. 474 815, 88 354 (1985). II 10 consent general suit, immune award. This reflects view element damages substantive claim. C. McCormick, Law Damages 50, (1935). Because generally presumed within contemplation parties, common-law courts England allowed way only founded upon agreement parties.2 See De Havilland Bowerbank, Camp. 51, 170 Eng.Rep. 872, 873 (N.P.1807); Calton Bragg, 15 East. 223, 226-227, 104 828, 830 (K.B.1812); H. McGregor, Mayne McGregor 281 (1961). turn, agreement-basis adopted American courts. Reid Rensselaer Glass Factory, Cow. 393 (N.Y.1824) (reviewing treatment state courts); 208 Gradually, suits between necessity faded. id., 210. 11 assumed special force claims States. As sovereign, consent, suit. Sherwood, 312 584, 61 767, 85 L.Ed. 1058 (1941). basic immunity, conjunction gave rise unless affirmatively separately contemplated ex rel. Angarica Bayard, 127 251, 260, 1156, 1161, 32 159 (1888) ("The therefore, falls well-settled principle, them, effect"). purpose permit "occupy apparently favored position," Verdier, 164 213, 219, 17 42, 44, 41 407 (1896), protecting prevail parties. Op.Atty.Gen. 136, 137 (1842). 12 For over century, executive agencies, itself consistently recognized federal statutes read mandates result. described early 1819, letter Attorney William Wirt Secretary Treasury.3 enacted reimburse citizen unspecified injuries. When sought addition stated there "no reason . depart usual practice Treasury Department" denying directed seek 268.4 13 creating Claims, retained awards where contract statute. Claims 7, 766 (current version 28 2516(a)). Although terms, addresses cases repeatedly has made merely codifies traditional regarding Tillson Otto 43, 47, 100 25 543 (1879); N.Y. Rayon Importing Co., 329 654, 658, 67 601, 603, 91 577 (1947); Tillamooks, 341 48, 49, 71 552, 553, 95 738 (1951). reaffirmed notion: "Apart constitutional requirements, 'express Congress,' States." Louisiana, 446 264-265, 1618, 1626, 64 196 (1980), quoting Smyth 302 329, 353, 58 248, 252, 82 294 (1937).5 Sioux Nation Indians, 448 387, n. 17, 2716, 2727, 65 844 (1980). III 14 acknowledges longstanding rule, argues 706(k), "a fee." analyzing we construe waivers strictly favor McMahon 342 25, 27, 72 19, 96 26 (1951), enlarge " 'beyond language requires,' Ruckelshaus Sierra Club, 463 680, 685-686, 3274, 3278, 938 (1983), Eastern Transportation Co. 272 675, 686, 47 289, 291, 472 (1927). added gloss strictness these rules. 16 "[T]here implication ambiguous language. framers suffice translated into terms. necessary express, construed." U.S., 659, S.Ct., 604. intended respect done expressly;6 thus, backdrop Yet contends equating agree. Boston Sand & Gravel 278 41, 49 52, 73 (1928). 18 VII's legislative silence us 19 rendered subject certain defendants. Christiansburg Garment EEOC, 434 412, 98 694, 54 648 (1978). At inception, most very limited establishing defendants circumstances plaintiffs. It 1972 defendant, affording employees right discriminatory acts employer. 717, 2000e-16(d). That already contained person rule; also 5, supra. Other placing position narrowly preserve immunities enjoyed historically. Laird Nelms, 406 797, 1899, 499 (1972), example, Tort "negligent wrongful act omission ., claimant," 1346(b), nonetheless entire range conduct classified tortious law. Cf. Lehman Nakshian, 453 156, 101 2698, 69 548 (1981) (jury trials available private, Government, Age Discrimination Act). B 21 find particularly history silent. refused impute particular word phrase unavailable contracts directing "amount equitably due." Otto, 46, 46. requiring "just compensation," 552; Goltra, 203, 487, 776 (1941), understood required Constitution Just Compensation Clause. Seaboard Air Line R. 261 299, 43 354, 664 (1923). 22 argues, reasons motivated require But policy, immunity: 23 "[T]he arguments nature. Courts lack they think sound policy." 663, 606. C 24 note makes includes "costs" fee. Wright, Miller, M. Kane, Practice Procedure 2664, pp. 159-160 (2d ed. 1983); Sedgwick G. Van Nest, 157-158 (7th 1880). Indeed, never component. 1920; supra, 2666 2670. A allowing category, sovereign's immunity. IV prohibit simply devising new name old institution: character nature 'interest' changed calling 'damages,' 'loss,' 'earned increment,' 'just compensation,' 'discount,' 'offset,' 'penalty,' term, still it." Mescalero Apache Tribe, 207 Ct.Cl. 369, 389, 518 1309, 1322 (1975), 425 911, 1506, 761 (1976). 27 claims, more mere semantic variations. Interest factor, according respondent, distinct purposes: former compensates loss money, while value Tr. Oral Arg. 30. persuaded. share identical function. They prevent parties grounded funds, characterized Sherman, 565, 568, 235 (1879). Thus, compensated stems opportunity cost effects inflation, prohibited rule.7 Saunders Clayton, 629 596, 598 (CA9 1980) ("In essence, inflation disguised award."), 450 980, 1515, 815 (1981); Blake Califano, 200 31, 9, 626 891, 895, (as economic theory, distinction both rule); D. Dobbs, Remedies 3.5, 174 (1973) (prejudgment represents damages). 29 supported decisions concerning employers. Private-sector decisions, adjust payment, grant both. Brown Gillette 536 113 (Mass.1982); Black Gold, Ltd. Rockwool Industries, 529 (Colo.1981); Kennelly Lemoi, 140 (RI 1981). V defendant effected Accordingly, judgment reversed, remanded further proceedings consistent opinion. 31 ordered. whom STEVENS join, dissenting. 33 today rules construing wooden archaic fashion conclude awards. result frustrates intention I respectfully dissent. 34 so-called "no-interest rule" is, suggests, one considerable antiquity.1 Ante, 316-317. corollary ancient principle And, doctrine, logically governed canons construction employ interpret damages. Terms ago, explained "waiver accomplished 'a ritualistic formula;' rather, scope ascertained underlying Franchise Tax Board California Postal Service, 467 512, 521, 2549, 2554, 81 (1984) (internal citation omitted). Applying standard here, hold prejudgment all situations individual 35 begin 2000e-5(k): By language, indisputably losing Since, circumstances, permits (or adjustment) Government,2 terms authorizes like constitutes 36 "underlying policy," Board, supports conclusion. Senate Report 1972—the legislation amended inter alia, protect employment discrimination—indicates enjoy access remedies S.Rep. 92-415 (1971). states: 37 committee aggrieved many cases, overcome defense failure exhaust remedies. Moreover, remedial doubt. provisions will enable Commission full employees, applicants. Aggrieved applicants rights individuals sector title VII." (emphasis added). 38 Chandler Roudebush, 840, 841, 1949, 1950, 48 416 39 amendments demonstrates litigants. follows litigants recover awards, employees.3 40 true, points out, seems devoid explicit availability Government. But, highly formalistic, "ritualistic," canon ignores unmistakable requires adhere talismanic formula words "interest fees" Committee Reports limit themselves bar Such antiquated unacceptable, unnecessary consented sector. my view, correctly stating extent thereon.4 dissent affirm below. product number reasonably expended litigation multiplied rate." Hensley Eckerhart, 424, 433, 1933, 1939, 76 institution originated Roman law penalty due debtor delayed defaulted repayment loan. Leadam, Usury, Palgrave's Dictionary Political Economy 432 (H. Higgs 1925). measure default id quod interest—that between—the difference creditor's loan timely fully repaid. W. Ashley, Introduction English Economic History Theory (1966); 207-208 conceived penalty, Prior creation citizen's means obtaining recompense requesting individually tailored through Acts responsibility hearing assigned Department. Cowen, Nichols Bennett, Part II, earliest statements appear letters Attorneys response questions posed Department mention Wiecek, Origin Admin.L.Rev. 387 (1967). Subsequent reiterated 392 (1830) ("[C]laims government payable demanded—and interest"); 635, 639 (1841) ("It confidently believed, numerous liquidation government, instance ever allowed, except allowance"); 14, 15-16 (1842) ("I objection admit, individuals, equitable one. nothing better established [in form interest] cases: stern everywhere government"); 286, (1843) ("[U]nder usage Department, again sanctioned opinions officers [interest]"). "constitutional requirement" arises taking Fifth Amendment. To satisfy mandate, compensation" 353-354, 252-253; Albrecht 599, 605, 606, 609-610, 532 (1947). similarly inapplicable cast off cloak sovereignty status commercial enterprise. Standard Oil 267 76, 79, 45 211, 212, 519 (1925). 2411 (expressly authorizing postjudgment tax-refund cases); 1304 (appropriating funds district judgments); 7426(g) (providing levy Internal Revenue Service). statutes, absent waiver. 2516(a) (interest providing thereof). 2674 Act. unusual exclusion necessitated Act's decision, make turn awarded, computed multiplying real capital, rate. Posner, Analysis 180 (3d 1986). adjustment. While one, always treated absolute prohibition (1925) (Holmes, J.), Thekla, 266 328, 112, 313 (1924) little explanation analysis. Johnson University College Alabama, 706 1205 (CA11) (holding take account interest), 464 994, 489, 684 (1983); Louisville Police Officers Org., Inc. Louisville, 700 268 (CA6 1983) (declining attorneys adequately compensated, recognizing 1982) (upholding adjustment), Laffey Northwest Airlines, 572 (DC (awarding aff'd grounds, 11, 746 1021, 105 3488, 87 622 (1985); Gillette, (Mass.1982) adjustment); Lockheed Minority Solidarity Coalition Missiles Space 828 (ND Cal.1976) adjustment). Gates Collier, 616 1268, 1278-1279 (CA5 1980); Summer, 488 83, 85-88 Miss.1980) (both supporting Attorney's Fees Awards 1976, 1988). fact "does rule," ante, ----, drafted case. observes construed historic enjoyed. ignores, relevance clear, amendments, waiving broad distinguishes cited dismissing argument cites (1928), elaboration explanation. ----. concerned "private Act" empowered hear arising collision warship craft, 'the sustained said admiralty parties.' 53. There, placed respects footing noting similar suggesting might passed mind. sharp contrast Sand, know precisely Consequently, inapposite instant

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