Document: 432 U.S. 355 97 S.Ct. 2447 53 L.Ed.2d 402 OCCIDENTAL LIFE INSURANCE COMPANY OF CALIFORNIA, Petitioner,v.EQUAL EMPLOYMENT OPPORTUNITY COMMISSION. No. 76-99. Argued April 20, 1977. Decided June Syllabus About three years after an employee of petitioner company had first complained to the Equal Employment Opportunity Commission under Title VII Civil Rights Act 1964 that discriminated against her because sex, and five months conciliation efforts by EEOC failed, brought this enforcement action in District Court for Central California. The court granted petitioner's motion summary judgment on ground was time barred § 706(f) (1) Act, since not been within 180 days either formal filing charge with or effective date 1972. Alternatively, held subject California one-year statute limitations. Appeals reversed. Section 706(f)(1) provides relevant part: "If a filed . is dismissed Commission, one hundred eighty from such expiration any period reference (from state agency), whichever later, has civil section ., entered into agreement which person aggrieved party, shall so notify ninety giving notice may be respondent named (A) claiming (B) if member whom alleges alleged unlawful employment practice." Held: 1. imposes no limitation upon EEOC's power file suit federal court. provision's language legislative history show it intended enable unwilling await conclusion extended proceedings institute private lawsuit filed. Pp. 358-366. 2. actions are statutes 366-372. (a) Though congressional intent apply local limitations inferred instances where creating cause fails specify period, periods will borrowed their application would comport statute's underlying policies. P. 367. (b) Under procedural structure created amendments 1972, when given powers lieu previous voluntary-compliance scheme, does function as vehicle conducting litigation behalf parties but charged investigating discrimination claims settling them informal possible, required refrain suing until discharged its administrative responsibilities. Application State's thus further policy, bar applied could some circumstances conflict policy. 367-369. (c) Congress well aware enormous backlog cases concern expressed fair operation focused initial rather than later sue. 369-372. 3. courts do lack discretionary remedial if, despite protections accorded defendant delay bringing suit, have significantly handicaps defense. See Albemarle Paper Co. v. Moody, 422 405, 424-425, 95 2362, 2374-2375, 45 280. 372-373. 535 F.2d 533, affirmed. Dennis H. Vaughn, Los Angeles, Cal., petitioner. Thomas S. Martin, Washington, D. C., respondent. Mr. Justice STEWART delivered opinion Court. 1 In 1972 amended empower bring district employer violated Act. sole question presented case what limitation, any, imposed suit. 2 * On December 27, 1970, Occidental Life Insurance sex.1 After fruitless referral appropriate agency, formally March 9, 1971,2 subsequently served company. investigation, proposed findings fact February 25, due course exceptions. Conciliation discussions between began summer These continued sporadically 1973, September 13 year determined failed notified original complainant. latter requested referred General Counsel action. 22, 1974, approximately two complainant communicated Federal 3 company's law requires EEOC.3 most therefore provision Cal.Code Civ.Proc.Ann. 340(3) (West Supp. 1977).4 Ninth Circuit reversed, holding impose 180-day authority sue governed 533. 4 We certiorari, 429 1022, 638, 50 623, consider important recurring regarding VII. II 5 As enacted 1964, limited investigation charges methods persuasion.5 failure terminated involvement EEOC. Enforcement then achieved, at all, only charging other allegedly practice, initiated 30 notification successful.6 6 19727 established integrated, multistep procedure culminating That begins alleging engaged practice. A must occurrence directed serve 10 filing.8 investigate determine whether there reasonable believe true. This determination made "as promptly possible and, far practicable, twenty charge."9 If finds "shall endeavor eliminate practice conference, conciliation, persuasion."10 When "the (is) unable secure acceptable government, governmental political subdivision charge."11 7 expressly temporal restriction embark final stage court: 706(f)(1), invoke judicial compel compliance least But neither nor explicitly conclude maximum time. 8 relied finding bars more timely found 42 U.S.C. 2000e-5(f)(1) (1970 ed., V), 9 face, little support argument Rather limiting EEOC, seems clearly addressed alternative procedure: dissatisfied progress making his discrimination, he she elect circumvent procedures seek relief through right arise Nothing indicates cease decides leave hands pursue 11 short, literal simply cannot suits. contrary, natural reading can lead whose settled litigated himself lawsuit, wait before doing so. waiting 90 continue ultimate resolution 12 Only provided firm evidence subsection mean say justification construing way. found. dominant battle 92d over kind additional should Proponents increased constituted substantial majority both Houses Congress, they were divided those Members who favored issue cease-and-desist orders advocated authorizing suits courts. 14 supporters won victory Committees favorably reported bills providing technique. bill House Committee contained entitled "Civil Actions Persons Aggrieved," embodying provisions eventually became part present case.12 15 Report explained purpose afford option withdrawing rate being processed: 16 "In burgeoning workload, accompanied insufficient funds shortage staff, has, many instances, forced party instituted. situation leads committee action, bill, means able escape quagmire occasionally surrounds caught overloaded process."13 17 Opponents carried floor House, Congressmen Erlenborn Mazzoli introduced substitute authorized federal-court conduct own hearings orders. Erlenborn-Mazzoli substantially same bill.14 There suggestion debates differed way Report. adopted House. 18 Senate essentially parallel beginning introduction power, ending substitution instead complainants pace individual lawsuits days.15 And, necessary heavy caseload result delays unacceptable persons: 19 "As indicated testimony, (the EEOC's) surpasses projections. increasing backlogs determinations, possibility occasional hasty decisions, press time, unfairly prejudiced complaints. Accordingly, complaint satisfactory speed, enters opportunity remedy, even though originally submitted Commission."16 20 noted "primary protect person's prompt remedy," preserve person."17 21 Senator Dominick led opposition Senate. His did give also almost identical bill. ensued month-long debate, During debate few isolated ambiguous references delay.18 sec tion-by-section analysis available vote provision: 22 provision, (not) endure lengthy agency act diligence speed. allow remedy prove satisfactory."19 23 sent Conference Committee. An conclusive confirmation meaning 706(f)(1): 24 "The retention amended, designed make sure title inaction, dalliance dismissal charge, unsatisfactory resolution. 25 "It hoped recourse exception rule, vast complaints handled offices However, individual's rights redress paramount all avenues left open quick relief."20 26 demonstrates exactly say: court.21 III 27 (2) argues contains during brought, analogous applied.22 Relying long line applicable statutes, contends lawsuit. 28 specified asserted, frequently apply. E. g., Runyon McCrary, 427 160, 179-182, 96 2586, 2598-2600, 49 415 (Civil 1866); Auto Workers Hoosier Cardinal Corp., 383 696, 86 1107, 192 (§ 301 Labor Management Relations Act); O'Sullivan Felix, 233 318, 34 596, 58 L.Ed. 960 1871); Chattanooga Foundry & Pipe Works Atlanta, 203 390, 65, 51 241 (Sherman Antitrust Campbell Haverhill, 155 610, 217, 39 280 (Patent Act). "implied absorption State interstices enactments phase fashioning details spoken matters determination." Holmberg Armbrecht, 327 392, 395, 66 582, 584, 743. 29 (3) mechanically absent statute. legislatures devise national interests mind, duty assure importation frustrate interfere implementation "Although our primary guide area, not, sure, exclusive guide." Johnson Railway Express Agency, 421 454, 465, 1716, 1722, 44 295. inconsistent policies Ibid.; supra, 701, S.Ct., 1110-1111; Board County Commissioners United States, 308 343, 352, 60 285, 289, 84 313. With these considerations we turn case. (4) selected "(c)ooperation voluntary preferred achieving" goal equality opportunities. Alexander Gardner Denver Co., 36, 44, 94 1011, 1017, 147. To end, whereby "would settle disputes persuasion permitted lawsuit." Ibid. Although instituting courts, preserved functions 706 Thus, amendments, parties; responsibility disputes, informal, noncoercive fashion. Unlike typical litigant might appropriately run, commencing duties. 31 view policy requiring investigated whenever administratively resolved court, hardly rely "State's wisdom setting limit prosecution .." U.S., 464, 1722. For wisdom" establishing general taken account decision while performs Order Railroad Telegraphers 321 342, 348, 64 586, 88 788; Cope Anderson, 331 461, 67 ,S.Ct. 1340, 1341-1342, 91 1602; Rawlings Ray, 312 96, 98, 61 473, 474, 85 605. Indeed, directly timetable Act.23 32 involving inevitable direct express enactment amendments. Throughout demonstrated acute awareness EEOC24 consequence encountered persons awaiting complaints.25 Nevertheless, workload extending coverage employers, employers employees, nonreligious educational institutions;26 transferring pattern-or-practice Attorney Commission;27 courts.28 It suppose severe problems already facing grant responsibilities consign vagaries diverse short year. 33 (5) need entirely thereafter violator. passed employer.29 And reports evident problem perceived terms provisions, sue.30 perception reflected version violation VII, violator "of (including date, place practice) ten days" thereafter.31 preceding wholly consistent Act's overall sequential series steps Within framework, benchmark, purposes limitations, last multistage commencement proceeding body. IV 35 (6) absence inflexible asserts, deprive defendants fundamental fairness surprise prejudice stale claims. learn him service complaint, alerted serves, intended, gather anticipation 36 Moreover, pendency proceedings, potential kept informed Regulations promulgated require made,32 CFR 1601.19b(b) (1976), conciliate dispute, §§ 1601.23, 1601.25. 37 is, course, still handicapped defense inordinate exhausting efforts. provide relief. said plaintiff's unexcused particular case, trial restrict deny backpay "to locate 'a just result' light peculiar case," ibid., exercised plaintiff. 38 ordered. 40 REHNQUIST, THE CHIEF JUSTICE joins, dissenting part. 41 While I agree Part Court's opinion, bound all. actions, reasons assigns them, suggest concerned limitlessly expanding statutory traditionally dealt judges. Since opinions that, apply, ignored process unwarranted legislation, reverse inquiry applies. Unless States sovereign capacity, matter treat below, answer derived today 140 surely "yes." See, e. McCluny Silliman, Pet. 270, 277, 676 (1830); (1895); McClaine Rankin, 197 154, 410, 702 (1905); (1906); 980 (1914); (1966); 295 (1975); (1976). 43 Court, however, relies basically interrelated refusing California's First, postulates statute." Ante, Second, "State policies." Both assertions out whole cloth; contrary tenor, statement draws sustenance whatsoever. Rather, anything superficial examination precedent reveals decisions followed rule unless "in liability, fixing enforce it, applicable." 158, 411. 463, 1341, 1602 (1947). nature described 703-704, 1112: early 1830, govern timeliness causes specifically otherwise. 676. 1895, re-examined another context, remained firm. repeatedly supplied legislation silent question. Yet disagreed interpretation silence, overturn enacting uniform Against background, take omission license judicially suits." (Citations omitted.) 46 recently reaffirmed respect 1981, see 462, 1721; 180, 2599. 1988 suggest" "anything justify special reluctance applying law." point which, silent, disregarded favor judge-made or, here, proposition federally impliedly without Chief Marshall, writing 1805, observed utterly repugnant genius laws." Adams Woods, Cranch 336, 297 (1805). Yet, today, acknowledging radical act, creates precisely situation.1 47 second point, readily concede Legislature begs rejected considered stated, Pet., 277-278, 676: 48 contended construed interpose sought officer performance duty; contemplated legislature. probable legislature Ohio, passage statute, misconduct States. Nor seem intention lie. "Where restricted technical denomination, barred, every prosecuted Similar arguments 701-704, 1110-1113. followed, hesitation, 1981 magnitude comparable account. 52 apparently rests opinions: 313 (1939). None applicable. state, hint, "(s)tate concluding applied, turned, separate tolling, "(A)lthough guide," heavily Court: pointing longstanding constant speak, applies, uniformity stating "there drastic sort urged us," 703, 1111. cases, Commissioners, irrelevant. involved clear 351, 288. points to, id., 351-352, 288-289, context discussion substantive liabilities, decisively different. Workers, 703 n. 4, 1112; 1110-1111. premises majority, then, supported, slender reed, reed Perhaps apparent fear anomaly running 369 23. notes, ante, 368: "Unlike duties." motivating reason behind unusual misunderstanding 54 V); 360. appear law, accrues becomes 1341-1342; McAllister Magnolia Petroleum 357 221, 78 1201, 1272 (1958). year, measured Cal. Code Civ. Proc. Ann. 1977).2 fears grounded. true chose goals, Gardner-Denver 147 (1974), ignore period. noted, response similar arguments, "plaintiff ask stay completed." plus period; fact, attempt achieve goals me sound basis ignoring periods. constraints, itself acknowledges. 706(f)(1).3 Given am utilization year," 371, trenches severely warrant departure precedent.4 55 Tamar Edelson Fair Practices accordance 2000e-5(c). took 1971. compliance. "make (formal) charge," 2000e-5(b) ample ensure perceives including settlement negotiations, unduly denigrated.5 charge. outside hold now turn. 56 Insofar seeks recover individuals, stands shoes represents individuals otherwise bring, V). Not vindicating vindicate right. Cf. 45, 1018. exempt statutes. scope formed Beebe, 127 338, 344, 1083, 1086, 121 (1888): 57 principle laches officers, however gross, Government public right, assert interest, past controversy doubt. Nashville, etc., Company, 118 120, 125, 1006 (30 81), cited. different footing, presents Are defences Government, although nominal real interest litigation, allowed name used therein benefit person?" interpreted, decisive excepts applicability "its rights." Summerlin, 310 414, 416, 1019, 1020, 1283 (1940) (emphasis added); C. St. L. R. 1006, 1008, 81 (1886); Des Moines Navigation 142 510, 538-539, 308, 315-316, 1099 (1892); Bell Telephone 167 224, 264-265, 809, 819-820, 144 (1897); French Republic Saratoga Vichy Spring 191 427, 438, 145, 147, 247 (1903). Beebe itself, acknowledged "(t)he domain) trespass appropriation ." 1085. Moran Horsky, 178 205, 213, 856, 859, 1038 (1900). "interest" sufficient sovereign, unbounded interested vindication enunciated cf. Franks Bowman Transportation 424 747, 778 40, 1251, 1271, 444 (1976) as, presumably, fact. "interest," here impossible think capacity 346, 1087-1088. conduit recovery sums citizen treasury. 59 injunctive remains same: "its" injury, rather, seeking complaining seek. "broad based," nonetheless individuals. gains nothing tangible does, enjoin practices proscribed but, bears repeating, presumably vindicates sues. That, test, exalt form (who brings suit) substance (whom benefits). reasons, promotes prayer relief, "seeks belonging sovereign," 537. adequately distinguish individuals.6 1977), respectfully dissent. recent October 1, 1970. 706(b), (d), Stat. 259, 2000e-5(b), (d); Love Pullman 404 522, 92 616, 679. "with pending enactment." 14, 113. suits, one, based 24, FEP Cases 1298. 706(a), 2000e-5(a). 706(e), 2000e-5(e). 103, 2000e et seq. amending 253. All subsequent citations amended. 2000e-5(e) initially 300 occurred proceeding, earlier. subdivision, required, refer provided, determines dismisses jurisdiction (i) issued (ii) (iii) sixty Upon application, may, discretion, permit intervene certifies importance. divested thereof (sic) H.R.1746, Cong., 1st Sess., 8(j) (1971) reprinted H.R.Rep.No. 92-238, pp. 54-55 (1971). Id., 12. H.R.9247, 3(c) S.2515, 4(a) (1971); S.2617, S.Rep.No. 92-415, p. 40. At Javits, sponsor amend clarify relationship lawsuits, "if thirty objected word "shall" "may" suggested flexibility Commission's schedule, working something compliance, better put 'may.' " exchange Senators manifested understanding amendment Cong.Rec. 1068-1069 (1972). Javits agreed use "may," responded follows: "I change very meritorious, pointed my statement. mandated trying work best conciliation." 1069. 4942. 7168; 7565. addition six Courts reached conclusion. I. du Pont de Nemours 516 1297 (CA3); Cleveland Mills 502 153 (CA4); Louisville Nashville 505 610 (CA5); Kimberly-Clark 511 1352 (CA6); Meyer Bros. Drug 521 1364 (CA8); Duval 528 945 (CA10). differing conclusions. 1359-1360 (state applicable); Griffin Wheel 456 (CA5) only). 1410-1433 1971), act. 8, supra. 706(b) 120 cause. 420-day expire begin efforts, let alone testimony Committee, William Brown III, Chairman stated 1971, 25,195 charges. Opportunities Procedures, Hearings H.R.1746 Subcommittee Education Labor, By testified nearly 32,000 increases expected. Public Welfare, 71 117 31959 (remarks Rep. Martin); 31972 Erlenborn); 594-595 (1972) Sen. Dominick); 699-700 Fannin); 944 Sens. Talmadge Chiles); 2386 Allen); 3136-3137 Gurney 3969-3973 Cooper, Dominick, Williams, Allen). numerous demonstrate adopting plan Nearly references, accomplished expeditiously concern, therefore, suffer task issuing Congressional continuing withdraw II, 701(a), (b), 702, 2000e(a), 2000e-1 number employees estimated million. 31961 Perkins); 699 Fannin). elimination exemption institutions added 4.3 million employees. 4931 Cranston). 707(c), 2000e-6(c) days; days. included party's 92-681, 16-17 Because specific dissenters days, Congressman "giving (so) sustain instituted." requirement quickly received proponents 31783-31784 Dent); Perkins). 10-day-notice order fully filed." (e), (e) Prompt reasonable-cause serves cure deficiencies 10-day claimed investigation. Electric 532 359, 366 Huttig Sash Door 453, 455 F.2d, 1363. NLRB Fant Milling 360 301, 79 1179, 1243; National Licorice NLRB, 309 350, 367-369, 569, 578, 580, 799. 615-616, 219, (1895), follow "passed manifest hostility jurisdiction" gave unreasonably "be competency declare unconstitutional void." narrowly delimited exceptions approach takes looking "will (Emphasis added.) open-ended standard render superfluous narrow discussed Campbell. gives disrupt ostensible "window" 270 agency)." speed." 4942 (1972); 7168. this, odd compliance" invested overpowering importance precedents prior today. establish Whatever validity administrative-procedure have, greatly weakened (1975), Electrical Radio Machine Robbins Myers, Inc., 229, 1723, 193 based, part, contentions plaintiffs treated deference interests. adopts, sub silentio, previously "Title VII-is-different" approaching notable expanses silence. read V) existence significance. perceive reason, none, why cut off given, suggests wrong asserting limitations" "commencement body." 372. normal presumption operate 704, 1112-1113, (1966). affirmatively rebuts doctrine silence interpreted adopt limitations." 743 (1946). it. Normally, "Individual grievants usually initiate investigatory conciliatory procedures." members charges, method initiating Alexander, involve deal members.

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