Source: https://law.justia.com/cases/federal/appellate-courts/F3/133/816/590396/
Timestamp: 2020-06-03 07:41:35
Document Index: 700991424

Matched Legal Cases: ['§ 12101', '§ 12101', '§ 12101', '§ 12101', '§ 12132', '§ 12131', '§ 12132', 'art 41', '§ 12101', '§ 35', '§ 1384']

Mark Bledsoe, Plaintiff-appellant, v. Palm Beach County Soil and Water Conservation District,defendant-appellee,board of County Commissioners for Palm Beach County, Defendant, 133 F.3d 816 (11th Cir. 1998) :: Justia
Justia › US Law › Case Law › Federal Courts › Courts of Appeals › Eleventh Circuit › 1998 › Mark Bledsoe, Plaintiff-appellant, v. Palm Beach County Soil and Water Conservation District,defenda...
Mark Bledsoe, Plaintiff-appellant, v. Palm Beach County Soil and Water Conservation District,defendant-appellee,board of County Commissioners for Palm Beach County, Defendant, 133 F.3d 816 (11th Cir. 1998)
U.S. Court of Appeals for the Eleventh Circuit - 133 F.3d 816 (11th Cir. 1998) Jan. 22, 1998. Rehearing and Suggestion for Rehearing En Banc Denied March 25, 1998
Bledsoe raises two issues for our review: (1) whether the district court properly concluded that the workers' compensation release bars Bledsoe's federal claims of employment discrimination; and (2) whether the district court properly determined that Title II of the ADA does not apply to discrimination in employment. We review the district court's order granting summary judgment de novo. Parks v. City of Warner Robins, Ga., 43 F.3d 609, 612 (11th Cir. 1995). After conducting our review, we conclude that the district court improperly found that the workers' compensation release barred Bledsoe's federal claims of employment discrimination and that Title II does not encompass employment discrimination.
In its determination that the workers' compensation release barred Bledsoe's ADA and Rehabilitation Act claims, the district court relied on F.M. v. Palm Beach County, 912 F. Supp. 514 (S.D. Fla. 1995), aff'd F.M. v. County Comm'rs, 84 F.3d 438 (11th Cir. 1996) (Table). On appeal, Bledsoe contends that the district court erred in relying on F.M. v. Palm Beach County. He argues that the issue should have been analyzed under this circuit's decision in Puentes v. United Parcel Service, Inc., 86 F.3d 196 (11th Cir. 1996). Bledsoe is correct.
The Supreme Court has stated that an employee can waive his "cause of action under Title VII as part of a voluntary settlement agreement" if "the employee's consent to the settlement was voluntary and knowing." Alexander v. Gardner-Denver Co., 415 U.S. 36, 52 n. 15, 94 S. Ct. 1011, 1022 n. 15, 39 L. Ed. 2d 147 (1974). The same principles should be equally applicable to waiver of rights under Title II of the ADA. See Rivera-Flores v. Bristol-Myers Squibb Caribbean, 112 F.3d 9 (1st Cir. 1997). The waiver of such remedial rights, however, "must be closely scrutinized," and a court must look to the totality of the circumstances to determine whether the release is knowing and voluntary. Puentes v. United Parcel Service, 86 F.3d at 198.
86 F.3d at 198 (quoting Beadle v. City of Tampa, 42 F.3d 633, 635 (11th Cir.), cert. denied, 515 U.S. 1152, 115 S. Ct. 2600, 132 L. Ed. 2d 846 (1995)). When reviewing these factors in Puentes, the court determined that the plaintiffs did not have sufficient time to consider their release agreements and neither plaintiff had consulted with an attorney. The court also noted that neither plaintiff had any role in deciding the terms of the agreement; the plaintiffs were simply handed printed forms. 86 F.3d at 199. These factors raised a genuine issue of material fact as to whether plaintiffs voluntarily and knowingly executed the release agreements. Accordingly, the issue could not be resolved by summary judgment.
The district court held that Title II of the ADA does not encompass employment discrimination. Bledsoe3 urges this court to reverse and join several other courts which have held that Title II does encompass employment discrimination.4 Our circuit has not squarely addressed the issue, but two of our recent decisions have assumed or implied that Title II creates a cause of action for employment discrimination. See Holbrook v. City of Alpharetta, Ga., 112 F.3d 1522, 1528-29 (11th Cir. 1997); McNely v. Ocala Star-Banner Corp., 99 F.3d 1068, 1073 (11th Cir. 1996), cert. denied, 520 U.S. 1228, 117 S. Ct. 1819, 137 L. Ed. 2d 1028 (1997). Our review of the statutory language of Title II, the Department of Justice's ("DOJ") regulations, our circuit's reference to the issue, and other courts' resolution of the issue, persuade us that Title II of the ADA does encompass public employment discrimination.
The ADA was implemented "to provide a clear and comprehensive national mandate for the elimination of discrimination against individuals with disabilities." 42 U.S.C. § 12101(b) (1). In passing the ADA, Congress recognized that "society has tended to isolate and segregate individuals with disabilities, and, despite some improvements, such forms of discrimination against individuals with disabilities continue to be a serious and pervasive social problem." 42 U.S.C. § 12101(a) (2). Congress further recognized that disabled individuals face extraordinary barriers and discrimination by outright intentional segregation and often have "no legal recourse to redress such discrimination." 42 U.S.C. § 12101(a) (4) and (5). Moreover, in enacting the ADA, Congress hoped to increase employment opportunities for disabled people through prevention of employment discrimination. 42 U.S.C. § 12101(a) (3), (8), and (9).
42 U.S.C. § 12132. "Public entity" is defined to include "(A) any State or local government; [and] (B) any department, agency, special purpose district, or other instrumentality of a State or States or local government;...." 42 U.S.C. § 12131(1) (A) & (B).
The statutory language used by Congress in the creation of Title II is brief. Extensive legislative commentary regarding the applicability of Title II to employment discrimination, however, is so pervasive as to belie any contention that Title II does not apply to employment actions. The Report of the United States House of Representatives Judiciary Committee stated, " [i]n the area of employment, title II incorporates the duty set forth in the regulations for Sections 501, 503 and 504 of the Rehabilitation Act to provide a 'reasonable accommodation' that does not constitute an 'undue hardship.' " See H.R.Rep. No. 101-485(III), at 50 (1990), reprinted in 1990 U.S.C.C.A.N. 445, 473. In explaining the forms of discrimination prohibited by Title II, the Report noted that:
It is significant that Congress intended Title II to work in the same manner as Section 504 of the Rehabilitation Act, because Section 504 was so focused on employment discrimination that Congress enacted subsequent legislation to clarify that Section 504 applied to other forms of discrimination in addition to employment discrimination. The first Supreme Court case to consider Section 504, Consolidated Rail v. Darrone, 465 U.S. 624, 104 S. Ct. 1248, 79 L. Ed. 2d 568 (1984), was an employment discrimination case. The Court stated:
Id. at 626-632, 104 S. Ct. at 1250-53 (emphasis in original).
Part of the language of Title II prohibits public entities from excluding disabled individuals from "services, programs, or activities" or denying them the benefits of those services, programs, or activities. The district court in this case focused on the meaning of the words "services, programs, or activities." Bledsoe v. Palm Beach Soil and Water Conservation Dist., 942 F. Supp. 1439, 1443 (S.D. Fla. 1996). The district court found that these words, "understood as a whole, focus [ ] on a public [ ] entity's outputs rather than its imputs [sic]." Id. The court characterized public employment as "an imput [sic]" that enables a public entity "to produce desired outputs, such as parks and schools." Id. at 1444. The court's analysis ignored the prohibition in the final clause of the section, which protects qualified individuals with a disability from being "subjected to discrimination by any such entity," and is not tied directly to the "services, programs, or activities" of the public entity. 42 U.S.C. § 12132. As the Second Circuit found in Innovative Health Systems, Inc. v. City of White Plains, 117 F.3d 37, 44-45 (2d Cir. 1997), "the language of Title II's antidiscrimination provision does not limit the ADA's coverage to conduct that occurs in the 'programs, services, or activities' of [a public entity]. Rather, it is a catch-all phrase that prohibits all discrimination by a public entity, regardless of the context,...." Accordingly, employment coverage is clear from the language and structure of Title II.
(b) (1) For purposes of this part, the requirements of title I of the Act ... apply to employment in any service, program, or activity conducted by a public entity if that public entity is also subject to the jurisdiction of title I [i.e. employs fifteen or more employees].
(b) (2) For the purposes of this part, the requirements of section 504 of the Rehabilitation Act of 1973, as established by the regulations of the Department of Justice in 28 CFR part 41, as those requirements pertain to employment, apply to employment in any service, program, or activity conducted by a public entity if that public entity is not also subject to the jurisdiction of title I.
There has been no modification to the regulations promulgated by the Attorney General. Rather, in 1997, the United States Senate unanimously gave its consent to the printing in the Congressional Record of the Board of Directors, Office of Compliance regulation adopting the Attorney General's interpretation of Title II. See 143 Cong. Rec. S30-31 (January 7, 1997).6 Also, as this court has stated, " [C]ongress is deemed to know the executive and judicial gloss given to certain language and thus adopts the existing interpretation unless it affirmatively acts to change the meaning." Florida National Guard v. Federal Labor Relations Authority, 699 F.2d 1082, 1087 (11th Cir. 1983).
Under Chevron, U.S.A., Inc. v. Natural Resources Defense Council, Inc., 467 U.S. 837, 844, 104 S. Ct. 2778, 2782, 81 L. Ed. 2d 694 (1984), "considerable weight should be accorded to an executive department's construction of a statutory scheme," unless the regulations are "arbitrary, capricious, or manifestly contrary to the statute." The DOJ regulations provide clearly that Title II encompasses employment actions against public entities. The regulations are neither "arbitrary, capricious, [n]or manifestly contrary to the statute." Id. at 844, 104 S. Ct. at 2782. Thus, we cannot ignore the DOJ's reasonable construction of statutory language.
In McNely v. Ocala Star-Banner Corp., 99 F.3d 1068 (11th Cir. 1996), cert. denied, 520 U.S. 1228, 117 S. Ct. 1819, 137 L. Ed. 2d 1028 (1997), our court addressed the question whether a plaintiff suing under the ADA can recover for discrimination without showing that his disability was the sole cause for the adverse employment action taken against him. We answered the question in the affirmative. In discussing the issue, we noted that " [t]he stated purpose of the ADA is 'to provide a clear and comprehensive national mandate for the elimination of discrimination against individuals with disabilities.' " 99 F.3d at 1073, quoting 42 U.S.C. § 12101(b) (1). We acknowledged that Title I of the ADA applies to the private sector and provides for the elimination of disability-based discrimination. We then stated that "Title II of the ADA, which applies to public sector employment, contains a parallel provision." Id. (emphasis added). Later, we again assumed that Title II covered employment: "Title II (the public sector title)." Id. at 1074. Thus, without directly discussing the issue with which this court is presently faced, our court has assumed that Title II covers public employment discrimination.
Additionally, in Holbrook v. City of Alpharetta, Ga., 112 F.3d 1522 (11th Cir. 1997), we addressed the question whether claims brought pursuant to Title II of the ADA involving events that occurred prior to the effective date of Title I are actionable under the ADA or the Rehabilitation Act of 1973. In discussing this issue, we noted the language of Title II, the federal regulations promulgated pursuant to the ADA, and the Equal Employment Opportunity Commission ("EEOC") guide. 112 F.3d at 1528-29. The court then determined that "Title II thus incorporates by reference the substantive, detailed regulations prohibiting discrimination against disabled individuals contained in Title I." Id. at 1529. We further noted:
Although not decisions of our court, Lundstedt v. City of Miami, 1995 WL 852443, 5 A.D. Cases 568 (S.D. Fla. Oct. 11, 1995), and Ethridge v. State of Alabama, 847 F. Supp. 903 (M.D. Ala. 1993), two district court decisions from within our circuit, held that Title II clearly encompasses employment discrimination by public entities. 1995 WL 852443, 5 A.D. Cases at 572-74, 847 F. Supp. at 906. The district court in Ethridge found that although a plain reading of Title II does not reveal whether it covers employment discrimination, the legislative history of and regulations promulgated under Title II make clear that the section prohibits employment discrimination by public entities on the basis of disability. The court noted that the primary purpose of Title II was to extend the reach of Section 504 of the Rehabilitation Act and that Section 504 "clearly applies to employment discrimination." 847 F. Supp. at 906, citing Consolidated Rail Corp. v. Darrone, 465 U.S. 624, 104 S. Ct. 1248, 79 L. Ed. 2d 568 (1984). The Ethridge court also discussed the House Report addressing Title II and the regulations implementing Title II to find that Title II covers employment discrimination.
Additionally, the Ethridge court noted the difference in the application of the exhaustion requirement which is mandatory in Title I but not in Title II of the ADA.7 The court found that although Title I requires exhaustion, Title II does not because it "incorporates the enforcement procedures of the Rehabilitation Act, ... which do not require exhaustion of administrative remedies for non-federal employees." 847 F. Supp. at 907. "An analysis of Title II regulations further makes clear that, while resort to administrative remedies is optional, it is not required." Id. The court referenced the regulations, which plainly state that exhaustion is not required. See 28 C.F.R. § 35.172, Appendix A. We agree with this analysis and note that it is generally presumed that Congress acts intentionally and purposely where " 'it includes particular language in one section of a statute but omits it in another.' " See Russello v. United States, 464 U.S. 16, 23, 104 S. Ct. 296, 300, 78 L. Ed. 2d 17 (1983) (quoting United States v. Wong Kim Bo, 472 F.2d 720, 722 (5th Cir. 1972)).
The only other circuit to consider this issue did not really discuss it. The court allowed a plaintiff to proceed against the employer/hospital under both the Rehabilitation Act and Title II. See Doe v. University of Maryland Medical Sys. Corp., 50 F.3d 1261 (4th Cir. 1995). The court found that both Title II and the Rehabilitation Act "prohibit discrimination against an otherwise qualified individual with a disability." Id. at 1264. The court noted that the parties did not dispute that the Medical System was "a 'public entity' subject to the provisions of Title II of the ADA." Id. n. 8. Accordingly, Doe does not provide much guidance on the issue before us for consideration.
In Wagner v. Texas A & M University, 939 F. Supp. 1297 (S.D. Tex. 1996), the court determined that a tenured professor could bring a Title II claim against the University when he was not rehired to his same position following a medical disability leave. In so finding, the court found that Title II obtains its remedies from the Rehabilitation Act, which does not require exhaustion of administrative remedies before filing suit. The court relied upon Ethridge in making its conclusion. In its discussion, the court noted that Title II encompasses employment actions. 939 F. Supp. at 1310. The court also discussed the policy anomaly created when Title II does not require exhaustion of administrative remedies. The court stated that Title I and Title II create "separate and distinct enforceable rights." Id. "Title I addresses primarily the rights of disabled individuals in workplaces, while Title II addresses the rights of disabled citizens vis-a-vis the government." Id. The court stated that this inconsistency "is undesirable from a policy standpoint;" however, given the DOJ's regulatory posture, the court would "not fill the gaps in the ADA in an attempt to effectuate a purported Congressional intent that is not entirely evident." Id. See also Hernandez v. City of Hartford, 959 F. Supp. 125 (D. Conn. 1997); Graboski v. Guiliani, 937 F. Supp. 258 (S.D.N.Y. 1996); Silk v. City of Chicago, No. 95C0143, 1996 WL 312074 (N.D. Ill. June 7, 1996).
In Dertz v. City of Chicago, 912 F. Supp. 319 (N.D. Ill. 1995), the court discussed whether plaintiffs must exhaust administrative remedies prior to bringing a claim under Title II of the ADA. The plaintiffs in Dertz were former police officers for the City of Chicago who had been placed on medical leave and were not allowed to return to their former positions. The plaintiffs filed suit under the Rehabilitation Act and Titles I and II of the ADA. The court relied on the district court's decision in Petersen v. Univ. of Wisconsin Bd. of Regents, 818 F. Supp. 1276 (W.D. Wis. 1993), to find that the procedural requirements of Title I do not apply to Title II plaintiffs. Dertz, 912 F. Supp. at 324-25. Because the court found that the plaintiffs were not required to exhaust their administrative remedies under Title II, their actions were allowed to proceed. Id. at 325. See also Finley v. Giacobbe, 827 F. Supp. 215, 219 (S.D.N.Y. 1993).
The District cites other district court cases which have decided this issue as did the district court in this case. See e.g., Decker v. University of Houston, 970 F. Supp. 575 (S.D. Tex. 1997); Iskander v. Rodeo Sanitary District, No. C-94-0479-SC, 1995 WL 56578 (N.D. Cal. Feb. 7, 1995), aff'd, 121 F.3d 715 (9th Cir. 1997) (Table). However, in light of the foregoing discussion, these cases are not persuasive. Even the district judge in this case noted that he was "swimming against the current," 942 F. Supp. at 1442, in deciding that Title II does not encompass employment discrimination claims.
In Part IIA, we conclude that the meaning and consequence of an unambiguous written release are subject to dispute, variance and avoidance because we, acting in loco parentis, find the adult parties to the contract in need of our patronage. Although troublesome, we apparently have such a role. See Puentes v. United Parcel Service, Inc., 86 F.3d 196 (11th Cir. 1996).
In Part IIB, we find that Title II of the ADA (the Act) is carefully drafted to obfuscate.1 Congress could have said "discrimination in employment" if it had wanted to do so. Here, however, it merely forbids the exclusion of qualified individuals "from ... participat [ing] in or be [ing] denied the benefits of the services, programs or activities of a public entity" by reason of a disability.
The district judge concluded that the Act forbids discrimination vis-a-vis the "output of these public entities." See Bledsoe v. Palm Beach Soil and Water Conservation District, 942 F. Supp. 1439 (S.D. Fla. 1996). If a constituent is angered by the district judge's interpretation or our holding today, his or her Congressperson can say "That's not what we passed. I would never have voted for that! That's just the work of those activist judges."
See e.g., Doe v. University of Maryland Medical Sys. Corp., 50 F.3d 1261, 1264-65 (4th Cir. 1995); Dominguez v. City of Council Bluffs, Iowa, 974 F. Supp. 732, 736-37 (S.D. Iowa 1997); Hernandez v. City of Hartford, 959 F. Supp. 125, 133 (D. Conn. 1997); Davoll v. Webb, 943 F. Supp. 1289, 1297 (D. Colo. 1996); Wagner v. Texas A & M Univ., 939 F. Supp. 1297, 1309 (S.D. Tex. 1996); Graboski v. Guiliani, 937 F. Supp. 258, 267-69 (S.D.N.Y. 1996); Silk v. City of Chicago, No. 95C0143, 1996 WL 312074 (N.D. Ill. June 7, 1996); Lundstedt v. City of Miami, 1995 WL 852443, 5 A.D. Cases 568 (S.D. Fla. Oct.11, 1995); Bruton v. Southeastern Pa. Transp. Authority, Civ.A.No. 94-CV-3111, 1994 WL 470277 (E.D. Pa. Aug. 19, 1994); Ethridge v. State of Alabama, 847 F. Supp. 903, 905-06 (M.D. Ala. 1993); Eisfelder v. Michigan Dept. of Natural Resources, 847 F. Supp. 78, 83 (W.D. Mich. 1993); Finley v. Giacobbe, 827 F. Supp. 215, 219-20 (S.D.N.Y. 1993); Petersen v. University of Wis. Bd. of Regents, 818 F. Supp. 1276, 1278 (W.D. Wis. 1993); Bell v. Retirement Bd. of Firemen's Annuity & Benefit Fund, No. 92C5197, 1993 WL 398612 (N.D. Ill. Oct. 6, 1993)
The district court noted its familiarity with the principle that "considerable weight should be accorded to an executive department's construction of a statutory scheme it is entrusted to administer." Chevron, U.S.A., Inc. v. Natural Resources Defense Council, Inc., 467 U.S. 837, 844, 104 S. Ct. 2778, 2782, 81 L. Ed. 2d 694 (1984). However, the district court found that the plain language of the ADA, when read as a whole, does not support a cause of action for employment discrimination under Title II, and, therefore, Chevron deference was not applicable in this case. " [T]he Court does not believe that the conflicting legislative history sufficiently obfuscates the statute to create a vacuum of meaning for the Justice Department to fill." Bledsoe, 942 F. Supp. at 1449. The court concluded that when the language of the statute is plain, administrative interpretation of the statute is not entitled to deference. Id
We note, however, that these regulations do not become effective until they are approved by Congress and published in the Congressional Record. See 2 U.S.C.A. § 1384(d) (3)
The district court in this case expressed great concern in the inconsistency in the exhaustion requirement if the court found that Title II covered employment discrimination. "Acceptance of the 'no exhaustion rule,' when coupled with the slighting of Title II's plain meaning and the redundancy of Titles I and II, renders the entire statutory framework a monstrous distortion." 942 F. Supp. at 1445. The court further stated that: