Opinion ID: 452961
Heading Depth: 2
Heading Rank: 1

Heading: The Agency's Regulations

Text: 18 Even if the action of the agency is discretionary by statute, the agency's own regulations must be complied with by the agency after they are issued. 33 Appellants contend that the DOL violated its own regulations (1) by not using the best data available as to the farmworker population as required by 20 C.F.R. Sec. 633.105(b)(1) (1983); (2) by not distributing the funds in an equitable manner as required by the same regulation, id.; and (3) by not relying in the formula upon industrial classifications, instead of occupational classifications, which are referred to in the definition of farmwork in id. Sec. 633.104.
19 The best data available requirement is difficult to analyze in this instance. 34 Unfortunately, no one knows the exact extent or location of eligible seasonal and migrant farmworkers. Neither the Social Security nor the Census data provide a direct answer--approximations must be deduced from sets of classifications or codes. While Census data do not include those who fail to respond to the Census questionaires, Social Security data do not include those whose Social Security taxes are not accounted for. 20 Even the different kinds of classifications or codes within these data bases result in either under- or over-inclusiveness. The appellants point out that because the DOL used Standard Occupational Classification (SOC) codes, the data are overinclusive. Occupational codes include self-employed individuals who are not wage-earners, contrary to eligibility requirements. On the other hand, industrial codes are also overinclusive by counting non-farmworkers such as clerical, administrative, and technical employees of agricultural firms. 35 The DOL, furthermore, explained that because the allocation data base specifies only poverty-level agricultural workers, the resulting approximation using occupational classifications would include poverty-level tenant farmers and share-croppers who supplement their marginal farming receipts with farm wages. 36 These poor have been traditionally served by the program. Given the uncertainty surrounding these statistics, as well as the promised on-going review of the data base by the DOL, we cannot find the Department's actions unreasonable.
21 Appellants raise similar issues with regard to the equitable distribution requirement. 37 They contend that it was inequitable for the DOL not to include in the data base specific eligibility requirements: wage earners, SIC codes, public assistance participants, lower living standard income level, or dependents. Aside from the above-mentioned uncertainty in the accuracy of available data and the provision for on-going review procedures, we note that the DOL invoked the hold-harmless provision that cushioned the impact of the congressionally-mandated shift in data-base. 38 Hence, the Department did consider the past expectations of parties and the unfairness of abruptly shifting policies. The DOL continued, in an equitable fashion, to use an allocation formula that was applied uniformly among states, proportionate to the farmworker tally in each state. 22 With respect to the DOL's failure to include all eligibility factors, the DOL has never used a data-base that precisely identified the groups of persons eligible to receive services. As a practical matter, this is an impossible task. The Census Bureau does not maintain data on the number of seasonal and migrant farmworkers. The 1980 Census household data does not indicate whether income is earned on a seasonal basis rather than a year-round basis, and does not show if reported earnings were actually received from working in the reported occupation. 39 23 The DOL's continued use of a poverty level factor of $3000 was reasonable. Given the time constraints, the DOL chose to use this factor as an appropriate approximation of eligible beneficiaries--those below 70 percent of the lower living standard income level or on public assistance. The district court noted that the DOL was following precedent that previously had not been challenged. 40 24 Similarly, regarding dependents of eligible farmworkers, the district court correctly concluded that the DOL's decision to use the number of farmworkers as an approximation for the proportional number of dependents was reasonable. Dependents could qualify for only 15 percent of grant funds for non-training supportive services. 41 The district court found that there is no basis for assuming that dependents would be more concentrated in particular geographical areas. 42 25
26 Section 633.104 includes the following definition: 27 Farmwork shall mean, for eligibility purposes, work performed for wages in agricultural production or agricultural services as defined in the most recent edition of the Standard Industrial Classification (SIC) Code definitions.... 43 28 This definition apparently had been carried over from the previous CETA allocation regulations under which the DOL had relied upon industrial classifications when the agency used the Social Security data base. Because this definition is expressly applicable only for eligibility purposes, the DOL is not required under its own rules to use industrial classifications for allocation purposes.