Document: 425 U.S. 820 96 S.Ct. 1961 48 L.Ed.2d 402 Clarence BROWN, Petitioner,v.GENERAL SERVICES ADMINISTRATION et al. No. 74-768. Argued March 1, 2, 1976. Decided June Syllabus Section 717 of the Civil Rights Act 1964, as added by § 11 Equal employment Opportunity 1972, proscribes federal discrimination and establishes an administrative judicial enforcement system. The statute provides that personnel actions affecting employees or job applicants "shall be made free from any based on race, color, religion, sex, national origin," 717(a); delegates authority to Service Commission (CSC), 717(b); permits aggrieved employee file a civil action in district court for review his claim discrimination. After first seeking relief agency allegedly guilty discrimination, he may seek further CSC, or, alternatively, within 30 days receipt notice agency's final decision, suit without appealing CSC. If appeals CSC CSC's decision. In event if, after 180 filing charge appeal, has not taken action. 717(c). Petitioner, Negro, who claimed respondent (GSA) had racially discriminated against him promoting higher grade, filed complaint with GSA. adverse decision was accorded hearing complaints examiner, February 1973 found there no GSA rendered its upholding examiner. Petitioner advised procedure available him. Forty-two later brought District Court, alleging jurisdiction under Title VII 1964 "with particular reference to" 717. He also alleged general federal-question statute, Declaratory Judgment Act, 42 U.S.C. 1981. Court granted respondents' motion dismiss ground petitioner 30-day period specified 717(c), Appeals affirmed. Held: exclusive remedy cims employment, since failed timely properly dismissed complaint. Pp. 824-835. (a) legislative history indicates Congress, which persuaded were treated discriminatorily effective remedy, intended 1972 legislation create exclusive, pre-emptive scheme redress 824-829. (b) balance, completeness, structural integrity are inconsistent petitioner's contention 717(c) designed merely supplement other putative remedies. Johnson v. Railway Express Agency, 421 454, 95 1716, 44 295, distinguished. 832-834. (c) A precisely drawn, detailed pre-empts more Preiser Rodriguez, 411 475, 93 1827, 36 439. 834-835. 507 F.2d 1300, 2 Cir., Eric Schnapper, New York City, petitioner. Lawrence G. Wallace, Washington, D. C., respondents. Mr. Justice STEWART delivered opinion Court. 1 principal question presented this case is whether claims employment. petitioner, Brown, Negro been employed General Services Administration 1957.1 currently classified grade GS-7 promoted 1966. December 1970 Brown referred, along two white colleagues, promotion GS-9 supervisors. All three rated "highly qualified," given one candidates position. Employment Office racial biased selection process. That withdrawn when told positions would soon available. 3 Another position did become vacant 1971, others recommended qualified." Again applicant chosen. second Office. preparation investigative report, Regional Administrator notified evidence race played part promotion. requested hearing, held before examiner Commission. 1973, issued findings discrimination; rather, determined advanced because "Fully cooperative." 4 1973. Director informed letter conclusion considerations entered promotional Director's if chose, might carry process lodging appeal Board Review that, could court.2 5 Federal 78 Stat. 253, amended 86 103, 2000e Et seq. (1970 ed. Supp. IV), 717; 28 1331 (general jurisdiction); §§ 2201, 2202; 1866, amended, 1981.3 6 respondents moved lack subject-matter jurisdiction, required 2000e-16(c) ed., Supp.IV). motion. 7 Second Circuit affirmed judgment dismissal. 1300 (1974). It held, first, retroactively employee, such whose pending at time became 24, 1972.4 appellate second, statute. Finally, ruled pre-empt remedies, then still failure exhaust We certiorari, 987, 1989, 476 (1975), consider important issues law case. 8 primary litigation difficult state: Is 2000e-16 theexclusive individual complaining job-related discrimination? But easier state than it resolve. Congress simply explicitly describe 7's constellation antidiscrimination law. must, therefore, infer congressional intent less obvious ways. As Chief Marshall once wrote Court: "Where mind labours discover design legislature, seizes everything aid can derived . ." United States Fisher, Cranch 358, 386 (1805). 9 forbids origin. 2000e-2, 2000e-3 IV). Until however, protect employees. 2000e(b). Although clearly violated both Constitution, Bolling Sharpe, 347 497, 74 693, 98 L.Ed. 884 (1954), statutory law, 7151, passage availability either far sure. Charges handled parochially each agency. come outside agency, but conduct independent examination, conclusions nature recommendations accept reject.5 lay Commission, "skepticism" among "regarding Commission's record obtaining just resolutions adequate This has, turn, discouraged persons fear doing so will only result antagonizing their supervisors impairing future hope advancement."6 10 remedies ineffective, even problematic 1972. enjoin unconstitutional lie,7 doubtful backpay compensatory considering Act. For example, Gnotta States, 415 1271, Eighth 1969 jurisdictional basis support plaintiff's Corps Engineers refused promote Damages beyond scope Tucker 1346, express implied contract involved. F.2d, 1278. And cause Administrative Procedure 701-706, Mandamus 1361, barred sovereign immunity, necessarily involve Treasury: "A officer itself 'if decree operate against' sovereign; Hawaii Gordon, 373 57, 58, 83 1052, 1053, 191 (1963), 'the sought expend public treasury domain, interfere administration,' Land Dollar, 330 731, 738, 67 1009, 91 1209 (1947); effect 'to restrain Government acting, compel act,' Larson Domestic & Foreign Coerce Corp., 337 682, 704, 69 1457, 1468, 1628 (1949)." 1277.8 12 See Blaze Moon, 440 1348 (CA5 1971) (no over wrongful discharge Engineers).9 13 Concern evinced during hearings committees Houses apparent inability engage machinery cases See, E. g., Hearings S. 2515 Subcommittee Labor Senate Committee Public Welfare, 92d Cong., 1st Sess., 296, 301, 308, 318 (1971); H.R. 1746 House Education Labor, 320, 322, 385-386, 391-392 (1971). considerable disagreement lie ultimately concluded all available, some forms foreclosed. Thus, Report observed: "The testimony notwithstanding, committee does have access courts. many cases, must overcome U. defense immunity certainty steps Moreover, remedial courts doubt." S.Rep.No.92-415, p. 16 Similarly, stated: "There serious doubt employee. Monetary restitution back pay attainable. situations, critical area often longer available." H.R.Rep.No.92-238, 25 (1971), U.S.Code Cong. Admin.News 2160. 14 reiterated floor debate. Senator Cranston, coauthor amendment relating asserted would, "(f)or time, permit sue 118 Cong.Rec. 4929 (1972). Williams, sponsor manager bill, stated "provides, my knowledge, right take court." Id., 4922. 15 thus leaves little remedy. suggests entirely reasonable. Whether understanding ultimate sense incorrect what determining amending cover relevant inquiry correctly perceived rather perception was.10 unambiguous seems indicate cate need not, rest our upon inference alone. structure fully confirms pre-emptive. 17 system.11 717(a) origin." Sections 717(b) establish complementary mechanisms eradicate Subsection full enforce provisions subsection "through appropriate including reinstatement hiring pay," issue "rules, regulations, orders instructions deems necessary appropriate" out responsibilities equal opportunity plans annually submitted department. 18 Attached right, certain preconditions. Initially, complainant may, event, 19 706(f) through (k), 2000e-5(f) 2000e-5(k) incorporated "as applicable" 717(d), govern venue, appointment attorneys, attorneys' fees, relief. 717(e), finally, retains governmental "primary responsibility assure nondiscrimination 20 afforded His view fails, estimation, accord due weight fact unlike these supposed remedies,12 contemplate Rather, careful blend powers. Under theory, perverse operation type ofresham's 717, rigorous exhaustion requirements limitations, driven currency immediate other, demanding statutes permissible. crucial role together eradication eliminated "by simple expedient putting different label (the) pleadings." 489-490, 1836, 439, 450 (1973). require suspension disbelief ascribe allow thorough circumvented artful pleading. 21 relies 295 proposition repeal pre-existing context Private inapposite here. place, problems Second, holding rested explicit " 'manifests pursue independently rights applicable statutes.' U.S., 459, S.Ct., 1719, L.Ed.2d, quoting Alexander Gardner-Denver Co., 36, 48, 94 1011, 1019-20, 39 147, 158 clear 'that co-extensive indiv(i)dual's 1981and procedures augment mutually exclusive.' 2154. Jones Alfred H. Mayer 392 409, 415-417, 88 2186, 2190-92, 1189, 1194-95 (1968). There behind amendments. Indeed, indicated above, contrary. 22 variety contexts supra, prisoners good-time credits canceled disciplinary reasons 1871, 1983, conjunction habeas corpus acknowledging was, terms, literally applicable, we challenges duration imprisonment appropriately corpus, "more specific act." Permitting general, where required, undermine "strong policy requiring remedies" challenge length confinement. 488-490, 450. reached similar results injured proceed facially tort recovery statutes. Demko, 385 149, 87 382, 258 (1966) (18 4126; Tort Claims Act); Patterson 359 495, 79 936, 971 (1959) (Federal Employees' Compensation Act; Suits Admiralty Johansen 343 427, 72 849, 1051 (1952) Vessels Act). consistently narrowly tailored compensation Sealso Fourco Glass Co. Transmirra Products 353 222, 77 787, 786 (1957); Stonite Melvin Lloyd 315 561, 62 780, 1026 (1942) (in patent venue governed exclusively dealing specifically cases; inapplicable). 23 bar, cited established principle leads unerringly 24 hold, Accordingly, ordered. 26 Affirmed. 27 MARSHALL took consideration STEVENS, whom BRENNAN joins, dissenting. 29 Prior enactment uncertainty any, discriminatory practices private sector.1 Against background uncertainty, enacted comprehensive expressly of, supplementary to, whatever exist. employees, about Since comparable settings, pieces implement same interests, reasonable resolve exclusivity way times. 31 discussed Chandler Roudebush, 840, 1949, 416 demonstrates, sector.2 now well settled victims sector choice limited VII,3 should enjoy parallel rights. reasoning decisions Joson applies force evidence, history, construed differently basic 32 incorrectly assumed enacted4 undermines supports Court's amend laws think applicable. rejected provided employees.5 sum, discloses provide those sector, intention make rejection provided.6 33 burden persuading us interpolate provision into complex, carefully drafted heavy one. met, I read it. petition writ certiorari filed, laterally transferred another transfer affect equitable wants applied 1971. part: "Therefore, findings, am rendering follows: "That you, you receive career performance counseling your supervisor help formulate training correct deficiencies noted management. "If meet satisfaction, writing, person mail, Review, DC 20415. Board's appeal. calendar letter. choose retain board's You made." leave allege additional grounds 1343(4) 1346(a) (b), $10,000 controversy. denied motion, order denial. parties apparently acquiesced Appeals, occasion disturb Ibid.; see 2137. (1954); Youngstown Sheet Tube Sawyer, 579, 863, 1153 (1952). By parity reasoning, course, bar agencies damages 1981, grant 1331. DeLong Hampton, 422 (CA3 1970) (jurisdiction determination plaintiff dismissed). maintains despite decisions, 1981; 1361; 1346; 702, conferred cases. IV) reads full: "(a) Discriminatory prohibited; subject coverage. "All (except regard aliens limits States) military departments defined section 102 5, executive (other Accounting Office) 105 (including paid nonappropriated funds), Postal Rate units Columbia having competitive service, branches Library shall "(b) Commission; powers; issuance rules, etc.; annual approval regional plans; evaluation Of programs publication progress reports; consultations interested parties; compliance contents Librarian Congress. "Except otherwise subsection, pay, effectuate policies section, section. "(1) responsible plan department unit referred submit maintain affirmative program employment; "(2) programs, periodically publishing (on least semiannual basis) reports department, unit; "(3) consult solicit individuals, groups, organizations opportunity. head comply orders, include thereunder. include, establishment education maximum advance perform highest potential; description qualifications terms experience operating officials carrying allocation resources proposed program. "With respect authorities exercised "(c) grievances; bringing action; defendant. "Within thirty sex origin, pursuant Executive Order 11478 succeeding hundred eighty initial until unit, disposition complaint, 2000e-5 title, appropriate, "(d) (k) title actions. hereunder. "(e) official relieved "Nothing contained relieve Constitution Government." n. 10, Supra. decided 1974 1975 respectively. "In extended protection Government. goal legislation, Pub.L. 92-261, ' "entrenched service," Morton Mancari, 417 535, 547, 2474, 2481, 41 290, 299, strengthening internal safeguards according '(a) ggrieved (federal) individuals VII.' 841, 1950. 47-49, 1019, 158, Powell unanimous "(L)egislative enactments long overlapping 2000a seq., considered 'highest priority.' Newman Piggie Park Enterprises, (390 400,) 402, (964), 966 (19 1263). Consistent view, employment-discrimination several forums. 2000e-5(b) II) (EEOC); 2000e-5(c) (state local agencies); (federal courts). And, submission forum preclude another. manifests supplement, supplant, existing institutions discrimination." noted: "Despite VII's range solution problem invidious deprived possesses search particular, Later, claimant 3371-3373 (1972)." foreclosed reading purpose served discussing status alternative holding, equally pointless discuss connection, discussion Johnson, 461, 1720, 302, instructive. minority stating views report included following paragraph: "Failure Make Exclusive Remedy. Despite charges conditions prior National Relations 1866. prohibitions VII, bill consolidate consistent No interest continuing multiplicity forums deal However, attempt pattern practice suits) rejected. encourages lost relitigate statute." 66 2175. To extent multiple impose undesirable employers, me most apt redressed impartial manner assuming continue employers rules.

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