Document: 527 U.S. 229119 S.Ct. 1979144 L.Ed.2d 258 120 F.3d 1208. affirmed. SUPREME COURT OF THE UNITED STATES No. 98 369 NATIONAL AERONAUTICS AND SPACE ADMINISTRATION, etc., et al., PETITIONERSv.FEDERAL LABOR RELATIONS AUTHORITY al. ON WRIT CERTIORARI TO APPEALSFOR ELEVENTH CIRCUIT [June 17, 1999] Justice Stevens delivered the opinion of Court. 1 On October 12, 1978, Congress enacted Inspector General Act (IGA), 5 U.S.C. App. §1 seq., p. 1381, which created an Office (OIG) in each several federal agencies, including National Aeronautics and Space Administration (NASA). The following day, Federal Service Labor-Management Relations Statute (FSLMRS), § 7101 provides certain protections, union representation, to a variety employees. question presented by this case is whether investigator employed NASA's (NASA OIG) can be considered "representative" NASA when examining employee, such that right representation FSLMRS may invoked. §7114(a)(2)(B). Although arguments policy support negative answer question, plain text two statutes, buttressed administrative deference Congress' countervailing concerns, dictates affirmative answer. 2 * In January 1993, response information supplied Bureau Investigation (FBI), OIG conducted investigation threatening activities employee George C. Marshall Flight Center Huntsville, Alabama, also component NASA. A contacted arrange for interview and, employee's request, agreed both lawyer representative could attend. conduct gave rise complaint had improperly limited his participation. filed charge with Labor Authority (Authority) alleging its committed unfair labor practice. See 7116(a)(1), (8). 3 Administrative Law Judge (ALJ) ruled respect against OIG. Pet. Cert. 71a. ALJ concluded was within meaning §7114(a)(2)(B), aspects investigator's behavior violated under section. Id., at 64a 65a, 69a 70a. review, prevented from actively participating examination (1) ordered cease desist (a) requiring bargaining unit employees participate interviews §7114(a)(2)(B) without allowing active participation representative, (b) likewise interfering with, coercing, or restraining exercising their rights statute; (2) directed order comply post appropriate notices Huntsville facility. NASA, 50 F. L. R. A. 601, 602, 609, 622 623 (1995). 4 petitioned asking it proper grant relief as well Court Appeals upheld Authority's rulings on questions granted application enforcement order. 1208, 1215 1217 (CA11 1997). Because disagreement among Circuit Courts over applicability circumstances, see FLRA v. United States Dept. Justice, 137 683 (CA2 1997); FLRA, 39 361 (CADC 1994); Defense Criminal Investigative Serv. 855 F.2d 93 (CA3 1988), we certiorari. 525 __ (1998). II provides, relevant part, 6 "(2) An exclusive agency shall given opportunity represented 7 . 8 "(B) any connection if 9 "(i) reasonably believes result disciplinary action employee; 10 "(ii) requests representation." 7114(a). 11 undisputed believed discipline him, he requested "agency," that, provision applies, violation occurred. contested issue conducting covered 12 argue read context compared similar protected private sector Act, term refers only management "i.e., entity has collective relationship union." Brief Petitioners 13. Neither nor facility, 7112(b)(7) (excluding investigators auditors "appropriate" units), so not have been "entity." 13 By terms, investigations "entit[ies]" question. It simply representatives "the agency," which, all agree, means Cf. §7114(a)(2) (referring "in unit" "of agency"). Thus, relying prior rulings, found no basis legislative history reading advocated reasoned adopting proposal might erode encouraging use investigative conduits outside unit, would otherwise frustrate apparent protecting they are examined justifiably fear action. A., 615, n. 12. That is, risk necessarily related conducts examination. 65a (information obtained referred officials action). 14 resolving issue, interpreting statute implement administer. 7105. conclusion certainly consistent extent congressional intent unclear, rely reasonable judgment. Employees Department Interior, 526 __, (1999) (slip op., 5); Fort Stewart Schools 495 641, 644 645 (1990). 15 Despite views, advance three reasons narrow reading. First, language contained larger section addressing duties bargaining; indeed, 7114 entitled "Representation duties." other subsections define union's §7114(a)(1); grievance proceedings, §7114(a)(2)(A); duty engage good-faith agency, §§7114(a)(4), (b). helps explain why situations "reasonably action" condition restricting presence investigatory examinations do threaten witness' employment. We find nothing context, however, suggesting obviously presents nevertheless coverage because housed one office rather than another. point, internal organization irrelevant. 16 Second, phrase "representative agency" used places where refer acting capacity actual prospective parties agreement. One reference pertains grievances, §7114(a)(2)(A), process itself, §7103(a)(12) (defining "collective bargaining"). submit should ordinarily retain same wherever statute, agree. But even accepting OIG's characterization §§7114(a)(2)(A) 7103(a)(12), fact some "representative[s] perform functions relating grievances does mean personnel who fairly characterized "representative[s]." As organization, must carry out though different capacities, for, behalf of, agency. 17 Third, assert construction supported purpose evident statements author provision1 NLRB J. Weingarten, Inc., 420 251 (1975), patterned after decision. Board's employer's denial request present interview, action, 252 253, 256. position §7 (NLRA) concerted activities. 260. Given history, contend comparable part responsibility collectively union. 18 This argument ignores important difference between NLRA FSLMRS. general protection afforded provided sufficient recognition novel sector, id., 260 262, 266 267, justify expressly grants public narrowly construed cover some, but all, potential. specific endorsement government incorporating gives foundation were merely product agency's attempt elaborate more light broad statutory purposes.2 cannot compel uncodified limitation proposed 19 Employing ordinary tools construction, combination matter, difficulty concluding representing "entity" bargains III 20 Much involves interplay Act. view, understanding IGA precludes treating "representative[s]" agencies duty-bound audit investigate. They add mandate expertise IGA, thus owe score. unnecessary us defer, careful review provisions plainly favors position. 21 Section explains establishes "an General" list identified thereby consolidating responsibilities into component. provides: 22 "In create independent objective units 23 "(1) supervise audits programs operations establishments listed 11(2); 24 provide leadership coordination recommend policies designed (A) promote economy, efficiency, effectiveness administration (B) prevent detect fraud abuse in, operations; 25 "(3) keeping head establishment fully currently informed about problems deficiencies necessity progress corrective action; 26 "there hereby established General." §2. 27 "establishments" now §11(2).3 28 offices §2 headed appointed President, confirmed Senate, "without regard political affiliation solely integrity demonstrated ability accounting, auditing, financial analysis, law, administration, investigations." §3(a). Each these Inspectors "shall report supervision involved or, authority delegated, officer next rank below head," subject lesser officer. Ibid. Moreover, General's seniors "prevent prohibit" initiating investigation. Ibid.; §6(a)(2). President retains power remove office. §3(b). 29 contains detailed description "within established." §4(a). Those include investigations, recommending new policies, reviewing legislation, "fully informed" through detailed, semiannual reports. §§4(a)(1) (5). Pursuant §5, those reports furnished who, turn, forward them committee subcommittee comment deems appropriate. §5(b)(1); §5(d). areas facilitate mission offices. Accordingly, possess discretion "relating applicable" §6(a)(2); assistance §6(a)(3); access §6(a)(6); hire employees, enter contracts, spend congressionally appropriated funds, §§6(a)(7), (9); §3(d). Finally, §9(a)(1)(P) transfer previously performed " 'Management Audit Office' 'Office Inspections Security' 30 central supervise, direct, coordinate work OIGs respective staffs. Other committees (which recipients prepared General) (who General), supervising except part. There "OIG OIG." example, maintains Washington, then Administrator, §11(1); 602.4 work, intended various enjoy great deal autonomy. unlike jurisdiction many law office, contemplated to, particular stationed. §§2, 4(a), 6(a)(2). common parlance, unquestionably "representatives" scope 31 Minimizing significance plan, emphasize potentially divergent interests parent agencies. To sure, maintain initiate interference And proceed consent higher-ups vital effectuating maintaining inquiries bureaucratic waste, fraud, abuse, mismanagement.5 characteristics make less investigates employee. based views best own, oppose tell during course duties. far concerned, by, act operate benefit 32 Furthermore, overstate inherent conflict initiated FBI, indicates Administrator obligation pursue §§4(a)(1), (d), 7; S. Rep. 95 1071, (1978). suggest determine engaged source prompting Therefore, assignment Such management-prompted rare.6 33 will implicate interest rest agency; cases expect honest cooperation management-level personnel. becomes obvious practical operation considered. subpoena documents information, witnesses. §6(a)(4). Nor allow incentives formal sanctions refusing pursued alone. limitations enhance likelihood importance generally §§6(a)(3), (b)(1) (addressing others respond); §§4(a)(5), (d); 616; (noting sharing officials). told face dismissal refused questions, F.3d, 1210, 2, invoked authority, own.7 34 Considering statutorily defined role conclude requires nullification examinations. IV 35 neither broader ultimately unpersuasive defeat investigations. 36 enforcing undermine confidentiality particularly jointly §§5(e)(1)(C), (restricting disclosure ongoing criminal investigation). doubt correct increase contents disclosed third parties. possibility always present: identify legal discuss matter others. demand attendance involve potential Interviewing maladministration, himself suspicion, trigger representation. concerns heightened all. Though legitimate, weighty enough non-textual rejected Authority. 37 instances, broadly impair responsibilities. responds sensitive agencies' needs cases, unrelated independence interference. Whatever propriety elected challenge examiner's limit constituted resolve case, need agree disagree regarding consider outer limits interpretation obstruct performance confined context.8 38 event, vindicates policies. procedural safeguard mere existence strengthen morale workforce. fair treatment equally strong being questioned And, indicated equivalent obstruction. U.S., 262 264. factfinding resolution least thought so. Whenever plays meaningful investigation, impose burden managers pursuing mission. presume, took account sides balance decided enact heels FSLMRS.9 V 40 argues error OIG, party manner However, our purposes makes acts, ensuring compliance supervisory §3(a), remedy imposed require interfere unduly prerogatives. offer convincing reason believe inappropriate view ineffective secured 706 7123(c). judgment 41 Affirmed. Notes 42 1. Congressman Udall, whose substitute explained "provisions concerning reflect holding in" Weingarten. 124 Cong. Rec. 29184 (1978); Legislative History Statute, Title VII Civil Reform 1978 (Committee Print compiled House Subcommittee Postal Personnel Modernization Committee Post Service), Comm. 96 7, 926 (1979) (hereinafter Leg. Hist.); 606 43 2. 608, (Congress recognized evolve differently sectors); H. Conf. 1717, 156 (1978), Hist. 824; cf. Karahalios Employees, 489 527, 534 (1989) (the "is carbon copy NLRA"). 44 3. described "agencies" 101 105, 7103(a)(3). Note subsequent amendments structured OIGs, NASA's, discussed text. See, e.g., §§8, 8E, 8G. 45 4. At oral argument, Administrator's includes inter alia, equal employment regulations. Tr. Oral Arg. 5. 46 §2; pp. 1, 584, (1977). 47 6. INS, 1226 1231 (1993), denied sub nom. American Federation Govt. 1184 1526, 1549 Defense, Serv., 1145, 1157 1159 (1987), enf'd 1988); Martin States, Cl. Ct. 738, 740 741 48 7. fact, seems likely occur concert. Under FSLMRS, valid commit practice halting examination, offering choice proceeding discontinuing altogether. Prisons, 874, 879 880 (1987); 251, (1975). Disciplining her discontinue presumably violate responses IGA. 49 8. said reach become unions, hinder joint FBI Nuclear Regulatory Comm'n 229 (CA4 1994) (adopting bargain procedures interviews); 616, (distinguishing investigations). properly determined, charge, distinct before us. 9. dissent dispute much analysis; "ar[m]" "work[ing] overall concerns." Post, 15. dissent's premise determined [management]," uncontested. 14, 17. 6, Putting aside however interprets very dispute, Respondent Government AFL CIO, 32; 25, 31, rule litigants bind erroneous Roberts Galen Va., 249, 253 (1999), ignored rationale decision Focusing reasoning, turning "management" involved. emphasized depend organizational whom person reports"; discussing repeatedly headquarters together components whole. 615 621 "represents" own interests, "but [headquarters] subcomponent offices"). Nowhere did assertion "agency management's agent," coined dissent. Thomas, J., dissenting 51 ADMINIS- TRATION, PETITIONERS FEDERAL 52 APPEALS FOR 53 54 Chief O'Connor, Scalia join, dissenting. 55 guaranteed represent typical case. concluding, did, 7114(a)(2)(B). I respectfully 56 headquartered D. Among subcomponents (MSFC), located General, C., subcomponents, Center. received Center, record "P," suspected spying upon coworkers. directly stationed assigned He P, interviewed long attorney present; accepted P's conditions. 61a. ground rules, provided, 'not interrupt process.' Ibid.1 claiming accordance requirements 7114(a)(2)(B), interpreted provision. Counsel issued effect, practices. Eleventh 1208 (1997). 57 correctly recognizes, ante, 4, points stage litigation. P taken him developed never 606, petitioners Authority, Circuit, conceded way comport what requires. 1211. "agency" point disputed management, just sense suggests, 11. 614 (" '[R]epresentative agency' 7114(a)(2)(B) exclude agency"); 'We unit' ") (quoting 93, 99 1988)); ("The 'representative personnel, 21; Reply ("[A] management"). 58 Since stated summarize detail actually began stating conclusion: 59 "We determination that: determinative rights; (3) IG irreconcilable." 614. 60 discussion first "Section Covers Actions Management Employed Subcomponents Agency." 615. statement appears itself management. remainder theory serves agent inspectors ibid. (OIG's investigator, "although separate MSFC, NASA"), sometimes results ("OIG offices"); 616 "[t]he released actions employees").2 IG, "a degree freedom agency." thought, autonomy "becomes nonexistent" IG's allegations misconduct possibly shared further explained: performs specifically [the Center]." (emphasis added). reasoned, "plays integral assisting meeting objectives." 617. this, concluded: 61 "Plainly, represents safeguards entire support, threaten, participant, components, obligations, relations obligations Statute." 62 protections triggered hardly surprising. ("section agency") added); word 'representative,' agency,' 'agency' entirely [Federal Statute]" added)). think sense. clear, qualify surprising that.3 governs labor-management sector. captioned "[r]epresentation duties," every therein flows collective-bargaining relationship.4 note, instances labor. §§7103(a)(12), 7114(a)(2)(A), 7114(a)(2)(B).5 63 Investigators "representatives ways. suppose But, meant hold there conclusion. persons similarly direct Office. moreover, punish take programs, reforms own. Conduct Investigations, Op. Off. Legal 54, (1989); Congressional Research Service, Report Congress, Statutory Offices General: 20th Anniversary Review (Nov. 1998). charged investigating making recommendations obliged accept), §4(a)(3), (4), bars functions, §9(a). permitted relationship. (prohibiting "any primarily functions" unit). 64 "represent" acted essentially, somehow derived something akin primary textual §7114(a)(2)(B)'s "representative," "standing place another: another others: constituting esp[ecially] delegated authority," "one agent, deputy, substitute, delegate usu[ally] invested principal." Webster's Third New International Dictionary 1926 1927 (1976); 2114 (2d ed. 1957) ("[b]eing, as, another, esp. authority"). notion, though, counterintuitive, majority acknowledges, 9, establish "independent units" 65 "general supervision," administrator (or "officer below" ibid.).6 Fourth observed, hard how supervision" amounts "nominal" supervision. NRC 229, 235 (1994). approval obtain keep job. Only doing §3(b).7 addition, control works General. appoint Assistant Auditing §§3(d)(1), (2), "select, appoint, employ officers necessary," §6(a)(7), authorized experts consultants contracts audits, studies necessary services, §§6(a)(8), P. Light, Monitoring Government: Search Accountability 175 185 (1993) (describing "unprecedented freedom" organizing IGs enhanced fullest). 66 derive investigate affairs §2(1). official, prohibit initiating, carrying out, completing issuing investigation." undertake investigation; commits operations. counsel argued contrary, single example instance manner. 40, (counsel respondent (AFGE) unable direction heads laws 43. 67 furthermore, range powers "all records, reports, reviews, documents, papers, recommendations, material" §6(a)(1). subpoenas necessary, enforceable district court. §6(a)(4).8 "administer oath, affirmation, affidavit, whenever necessary." §6(a)(5). interview. refuses attend voluntarily, assistance, §6(a)(3), furnish assistance," §6(b)(1). 68 does, claimed, Administrator. §§2(3), 4(a)(5). she reporting well. prepare "summarizing Office." §5. head, §5(b), comments report, §5(b)(1), going change report. notify Attorney directly, notice officials, discovery "reasonable grounds law." §4(d). 69 understood Members Executive Branch alike. display recent hearing occasion Act's anniversary. For Senator Thompson, Chairman Senate Affairs Committee, overarching explore providing attention adequate ensure effectiveness." Hearings "The Act: Years Later" Governmental Affairs, 105th Cong., 2d Sess., paid give [Congress] version [of] events." Glenn, ranking minority member, opined continues program fiscal integrity; 'tools' management." 70 hearings, testimony June Gibbs Brown, Health Human Services, praised Secretary Shalala "never, once, [seeking] encroach [her] independence." written testimony, offered: "A key communication staff Congress. Frankly, suspect relishes have, oversight Committees. Information go Hill, clearance." 45. Susan Gaffney, Housing Urban Development, revealed know too management: 71 "[I]t me somewhat jolting, maybe shocking, current HUD exhibited extremely hostile attitude toward my has, let hostility lead series attacks dirty tricks 72 Ms. Gaffney while "[i]deally, mutual respect, commitment mission, thorough acceptance vastly roles Secretary, "uncomfortable concept dual responsibility." 49. 73 essentially four case: Administrator; subcomponents; purposes; objectives. (an provide) insufficient decide whether, when, §§3(a), 6(a).9 74 forms unimpressive. suggests happens, "concert." Ante, 13, truth receipt §9(a) (Inspector functions). so, apparently, Drug Enforcement Agency (DEA), local police departments. Fed. Reg. 8682 (1998) (FBI's policy); 36572 (1997) ((Immigration Naturalization (INS) Alien File Central Index System); 26555 (INS Support Database); 54219 (1996) (DEA); 56648 (1995) (Secret Alcohol, Tobacco, Firearms, Treasury components); 18853 (United Marshals (USMS)); 42060 (FBI, USMS, systems); CFR 1.36 (listing routine uses exemptions records). Surely Merely provider. 75 Similarly, objectives acts agent. 11, 4(a). arms other's representative. concerns. function aware developments, substantial function. 76 mentions, lacks witnesses appear Perhaps imputed derives proposition dubious best. effectuate through, requesting §6(a)(3). "insofar practicable contravention" law. Perhaps, then, directs 77 especially interviewed. reveal compelled threatened put him. threat, assuming indeed made, little notes, giving (continued) attendance. Along lines, AFGE contends delegates, 302(b)(1); 2472(a), 16. If mention discipline, either clearly ultra vires. invocation vest exercise authority. record. important, turn after-the-fact assessment interviewees' subjective perceptions, beliefs. 78 79 commonly reality not, usual course, exceptional where, unusual facts, 683, 690 691 1997) ("So questioning bona fide [Inspector Act] accommodating interrogation sort traditionally responsibilities, 'representative' 7114(a)(2)(B)"), cert. pending, 667. facts. foregoing reasons, 80 inspector 81 relied here. asserted "no representational §7114] dependent reports." elaborated, footnote, "[i]f abridge evade thwart utilizing (such employees." 82 significant recognizes here asserts, 16, conceded. Rather, appears, meaning. 83 7114(a)(1) details "[a] accorded recognition" do; discussions management; §7114(a)(3) annually inform §7114(a)(2)(B); §7114(a)(4) obligates good faith arriving agreement; §7114(a)(5) seek counsel; §7114(b) speaks §7114(a)(4); §7114(c) approve collective- agreements. 84 petitioners' simple truly later substantially Center's clear reply brief, arguing opposed employee." precedent, see, Air Force Logistics Command, 1184, 1186 (1993); 298, 311 312 (1991), qualifies union, subordinate 85 by," 86 Court, 10, full story Order 12993, 171 (1996), followed conflict. 52. Complaints body known "Integrity Committee," composed members": official Chair Integrity Committee; Special Counsel; Director Ethics; President's Council Efficiency Efficiency. Public Division designee, advisor Order. 87 §§6(a)(4), 6(b)(1). 88 posits, "nothing shocked "even 7114(a)(2)(B)." quite simple. So reveals, DEA also, told, appearance 6), fail although

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