Document: 501 U.S. 680 111 S.Ct. 2524 115 L.Ed.2d 604 Harriet PAULEY, Survivor of John C. Pauley, Petitioner,v.BETHENERGY MINES, INC., et al. CLINCHFIELD COAL COMPANY, Petitioner, v. DIRECTOR, OFFICE OF WORKERS' COMPENSATION PROGRAMS, UNITED STATES DEPARTMENT LABOR, CONSOLIDATION Nos. 89-1714, 90-113 and 90-114. Argued Feb. 20, 1991. Decided June 24, Syllabus Congress created the black lung benefits program to provide compensation for disability miners due, at least in part, pneumoconiosis arising out coal mine employment. The was first administered by Social Security Administration (SSA) under auspices then-existent Department Health, Education, Welfare (HEW), later Labor (DOL). authorized these Departments, during their respective tenures, adopt interim regulations governing claims adjudications, but constrained Secretary providing that DOL "shall not be more restrictive than" HEW's. As here relevant, HEW permit invocation a rebuttable statutory presumption eligibility upon introduction claimant specified medical evidence, 20 CFR § 410.490(b)(1), demonstration "impairment [thus] established . arose employment (see §§ 410.416 410.456)," 410.490(b)(2). referred-to sections presume, "in absence persuasive evidence contrary," such Once invokes presumption, 410.490(c) permits SSA rebut two methods. In contrast, comparable set forth four rebuttal provisions. provisions mimic those regulations. third provision showing miner's did arise whole or part employment, fourth authorizes with demonstrating miner does have pneumoconiosis. No. Court Appeals concluded were "more virtue DOL's provision, therefore reversed an administrative award found qualify regulations, 90-114, struck down as being HEW's, reversing denial claimants whose deemed rebutted provision. Held: do render Pp. 695-706. (a) Labor's determination her are than HEW's warrants deference from this Court. Deference agency's interpretation ambiguous statutes it is implement appropriate when has delegated policy-making authority agency. See, e.g., Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 866, 104 2778, 2793, 81 694. Here, since relevant legislation produced complex highly technical regulatory program, requiring significant expertise identification classification criteria, entailing exercise judgment grounded policy concerns, must intended, respect "not phrase, delegation broad discretion Labor. This evident text declined require verbatim, statute's legislative history, which demonstrates made intention evolve technological matured. Thus, Secretary's necessarily entails interpret promulgate based on reasonable thereof. 696-699. (b) position satisfies 's reasonableness requirement. See U.S., 845, S.Ct., 2783. Based premise adopted ensure only who disabled due would receive benefits, interprets 410.490(b)(2) requirement demonstrate impairment "arose employment" views subsection (b)(2)'s incorporation reference 410.456 doing work method, light definition "a disease employment." harmonizes statute. Moreover, reasoned claimants, assert contain no either subsection, directs factual inquiry into issue causation existence claimants' contention 410.490(b)(1) creates "conclusive" entitlement without regard competent questions deficient respects. First, inconsistent text, expressly provides presumptions question will rebuttable, requires consider all evidence. Second, although (c)'s delineation methods may support inference drafter intended exclude other methods, guidance where its application regulation purpose language. fact SSA, appeared files contained scant forgo inquiries existence. argument omitted criteria "cost/benefit" conclusion engender inordinate delays yet generate little probative finds contemporaneous analyses awards; disregards entirely subsequent advances technology could ignore; unacceptable consistent 2535-2539. 890 F.2d 1295 (CA3 1989), affirmed; 90-113, 895 178 (CA4 1990), 173 remanded. BLACKMUN, J., delivered opinion Court, REHNQUIST, C.J., WHITE, MARSHALL, STEVENS, O'CONNOR, SOUTER, JJ., joined. SCALIA, filed dissenting opinion. KENNEDY, took consideration decision cases. Mark E. Solomons, Bethenergy Mines, Christopher J. Wright, Director, Office Workers' Compensation Programs, Dept. Julian N. Henriques, Jr., Justice BLACKMUN 1 Congress, adjudication litigation calls us determine whether complied constraint. 2 * A. 3 enacted originally Title IV Federal Coal Mine Health Safety Act 1969 (FCMHSA), 83 Stat. 792, 30 U.S.C. 901 seq., totally dependents survivors miners. Pittston Group Sebben, 488 105, 108, 109 414, 417, 102 408 (1988); Mullins Co. OWCP, 484 135, 138, 108 427, 429, 98 450 (1987). 4 Through FCMHSA, bifurcated system compensating pneumoconiosis.1 Part B thereof temporary Welfare. processing before December 31, 1972. Benefits awarded paid Government. For after 1972, C permanent Labor, coordinated federally approved state workmen's programs. mining employers. 5 Under regarding claims. 921(b). limited, however, three defining program. 921(c). suffering establish 10 years there his 921(c)(1). Similarly, "died respirable shall death pneumoconiosis." 921(c)(2). Finally, irrebuttable presenting complicated result condition. 921(c)(3). Consistent presumptions, promulgated prescribing standards establishing B. 410.401 410.476 (1990). 6 Dissatisfied increasing backlog unadjudicated relatively high rate claim denials resulting 1972 amended FCMSHA redesignated Black Lung 86 150. S.Rep. 92-743 (1972), U.S.Code Cong. & Admin.News p. 2305. also Comptroller General United States, Accounting Office, Report Congress: Achievements, Administrative Problems, Costs Paying Miners Their Widows 16-18 (September 5, 1972) (nationally, 1971, 347,716, processed 322,582, 50.5 percent). addition extending coverage living prior July 1, 1973, January 1974, amendments liberalized several ways procedures applicable added total unable produce X-ray disease. applied 15 presented disabling respiratory pulmonary impairment. limited mine. 921(c)(4). redefined "total disability" perform duties work—as opposed he any job, see 902(f) prohibited denying solely basis negative X ray. 923(b). Third, easier deceased had been died cause unrelated benefits. 901. clear "[i]n determining validity [part B], considered." 7 response amendments, "designed 'permit prompt vigorous large claims' developed early phases administering B." 109, quoting 410.490(a) (1973).2 These adjudicatory rules factors, opportunity Administration, presumption. 8 Specifically, invoke "totally pneumoconiosis" one ways. can introduce ray, biopsy, autopsy indicating 410.490(b)(1)(i) ventilatory studies presence chronic 410.490(b)(1)(ii). case, order accordance paragraph (b)(1) section 410.456)." 9 410.490(b), usual gainful work, capable work. 410.490(c). changes resulted surge approvals Lopatto, Program: A 1983 Primer, 85 W.Va.L.Rev. 677, 686 (1983) (demonstrating overall approval substantially increased 1974). Because expired adjudicate claims, i.e., 30, miners, survivors, stringent 110, 418. Neither nor content unwieldy Letter, dated Sept. 13, William Kilberg, Solicitor Rhinelander, Counsel, HEW, appearing H.R.Rep. 94-770, 14 (1975). Not process slowly, significantly below SSA. supra, 691. Accordingly, turned attention once again 11 Reform 1977 (BLBRA), 92 95, effective Mar. 1978, further expanded include "sequelae" disease, including impairments 902(b). BLBRA required accept board-certified board-eligible radiologist's submitted rays if films met minimal quality standards, thereby prohibiting secondary assessment provided Government-funded radiologist. fifth otherwise altered structure make long-term obtain 921(c)(5) 902(f). 12 liberalizing prerequisites benefit entitlement, own March 1980. so doing, "[c]riteria 1973." 902(f)(2). 13 pursuant authorization, differ 727.203 similar Compare 727.203(a)(1) (2) (ii). To provisions, need prove employment," addition, add invoking included submitting blood gas transfer oxygen alveoli blood; impairment; or, case whom available, survivor's affidavit disability. 727.203(a)(3), (4), (5). rebutting 727.203. Two permitting performing able 727.203(b)(1) (2). "[t]he establishes not, 727.203(b)(3) (4). II 16 cases present authority. Pauley BethEnergy Third Circuit restrictive. (1989). now-deceased husband petitioner April 21, worked underground mines Pennsylvania. stopped working soon At formal hearing November 1987, Law Judge (ALJ) begun experience shortness breath, coughing, fatigue symptoms gradually worsened, causing him leave job mines. ALJ arthritis medications daily, suffered stroke smoked cigarettes 34 until 1974. 17 respondent contest workers' pneumoconiosis, invoked 727.203(a)(1). Turning judge engaged returning then weighed 727.203(b)(3), determined sustained burden contributing factor Pauley's and, accordingly, "arise 727.203(b)(3). Carozza States Steel Corp., 727 74 1984). 18 Having entitled felt precedent apply claim. He BethEnergy's concession sufficient 410.490(b). demonstrated inability interpreted precluding "showing claimant's carry rebuttal, 19 After denied motion reconsideration, appealed unsuccessfully Review Board. It sought review Circuit. That court reversed. pointed decisions Board "two disturbing circumstances." F.2d, 1299. "surely extraordinary," ibid., causes preclude considered "outcome determinative" arises unchallenged findings even 1299-1300. "perfectly [the Act] statutorily barred recovery nevertheless recover." Id., 1300. Asserting Court's controlling because concerned Congress' mandate used disabled," rebuttal. claim, subsections (c)(1) 410.412(a), refers According Circuit, reason "unless 1302. 21 now us, Clinchfield Consolidation Fourth Taylor, 1976, having almost loader roof bolter Taylor properly qualifying arterial lungs blood. proceeded weigh consisting nonqualifying study scores, reports respectively employer, Company. neither disabled. Rather, bronchitis caused cigarette smoking obesity. affirmed, concluding ALJ's supported substantial 22 Co., dismissed cannot studies, method available use benchmark. 182. "matter indifference" how eligibility, rejected evaluated corresponding "It establishment substance consequence number establishment." Ibid. 23 Focusing isolation, "permit elements regulations," "solely through attacks element disability," while "allow disputing both connection between 410.490, violated 902(f).3 24 One dissented. Noting panel's conflict Sixth Youghiogheny Ohio Milliken, 866 195 (1989), "do less violence congressional intent, avoid upsetting scheme." 184. 25 Albert Dayton, 1979, years. Dayton test scores Company successfully 727.203(b)(2) (4) event, Dayton's disabling. condition dust exposure, instead "other ailments," correctly 727.203(b)(4).4 26 Relying held adjudicated "under 410.490." 175. Concluding stated finding "is superfluous bearing case." 176, n. *. 27 view among Courts Appeals, we granted certiorari consolidated them resolve construction. --- ----, 340, 112 304 (1990).5 III 28 We turn applicable" 113, 419. pneumoconiosis.6 29 BLBRA, specifically directive dissent urge restriction unambiguous, alternative, argue regardless clear, given HEW. our view, misunderstands principles underlying judicial agency interpretations, well scope BLBRA. Judicial reflects sensitivity proper roles political branches. 694 (1984) ("[F]ederal judges—who constituency—have duty legitimate choices do"); Silberman, Chevron—The Intersection Policy, 58 Geo.Wash.L.Rev. 821, 822-24 itself illustrates, resolution ambiguity often law. Sunstein, Chevron, 90 Colum.L.Rev. 2071, 2085-2088 When express interpretive gap structure, agency, extent determinations limited. Cf. Adams Fruit Barrett, 110 1384, 1390, 585 (1990) ("A precondition authority"); 864-866, 2792-2793. 31 precisely recognition informs here. expertise, entail concerns. circumstances, courts appropriately defer entrusted determinations. Martin OSHRC, 1171, 1177, 113 117 (1991); Aluminum America Central Lincoln Peoples' Utility District, 380, 390, 2472, 2479, 301 (1984). 32 term "criteria" 902(f)(2), evidentiary intent manifest. 113-114, 116, 419-420, 421. With phrase than," similarly clear: read except 33 delegate promulgation statute history verbatim. Further, Senate Committee Human stated: Committee's belief should criteria. every effort incorporate within feasible science diagnosis treatment criteria." 95-209, (1977). 35 Conference indicated task simply ministerial informed "such [new] regulations], H.R.Conf.Rep. 95-864, (1977), 1977, pp. 237, 309 (emphasis added). then, From derives deference. 36 generally deference, instance changed explanation throughout persuaded. general matter, course, compelling positions previously views. Bowen Georgetown University Hospital, 204, 212-213, 468, 473-474, 493 (1988). However, unswervingly obviously comments suggesting proposed might violate 902(f)(2) they replied "the explicit, limit presumption." 43 Fed.Reg. 36,826 (1978). faithfully advanced each promulgated. 119, 423. defense 37 decide reasonable. resolved comparing straightforward; reasons mere renders unreasonable. Tr. Oral Arg. 22-24. plainly reading manner seen 38 scheme, straightforward be. noted Byzantine character 418 (the second "drafted most confusing manner"); id., 129, 428 (dissenting opinion) (assuming drafters "promulgated scrivener's error"). presents additional coherence 39 disserves allow arise, agree. Usery Turner Elkhorn Mining 22, 96 2882, 2896, 49 752 (1976) ("[A]n operator liable mine"); 158, 439, (1987) ("[I]f actually type ailment concerned, justification presuming benefits"). 40 nonfederal petitioners contend adjudications permitted Secretary, (b)(2) incorporated Subsection Section 410.416(a) provides: "If employed 41 Nation's mines, presumed, contrary, 42 410.456. show "did emphasizes defines she acknowledgment presumed shown suffer presumption.7 44 Petitioners Circuit's reasoning Pauley. relied 410.412(a)(1), indicate [of HEW] 45 respond natural (b)(2). satisfy requirements automatically confers, inherent Act. point 410.412(a)(1) best "comparable work," 410.412(a). While possible parsing impenetrable accepted canons construction, axiomatic grammatical standards. EEOC Commercial Products 486 107, 115, 1666, 1671, 100 warrant Ibid.; Mullins, 159, 440. 46 assertion contrary plain language ultimately rests (b)(1)(i) (ii) create authorizing statute, 921(c)(1), (2), adjudicating 923(b).8 47 terms conclusively entitlement. setting (c), exclusive fact, admit "conclusively presume" "coined" purposes argument. 34. Although specified, Colum.L.Rev., 2109, 182 (recognizing principle expressio unius est exclusio alterius questionable dubious reliability inferring specific silence"); cf. 120, 1674 (plurality (rejecting lead "absurd futile results variance whole") (internal quotations omitted). 48 asserting untenable, essentially justified interpreting conformance officials charged drafting believed virtually impossible medically Faced uncertainty, instructed "prompt claims," (1990), delay evidence.9 view. Post, 716-719. recognize eligibility. Examination Allegations Concerning Program 6-10, Hearings H.R. 10760 S. 3183 Subcommittee Public Welfare, 94th Cong., 2d Sess., 440-444 (1976). persuaded circumstance initial causation. many allegedly insufficient involved disability, causes. ibid.; also, Pay Survivors—Improvements Are Needed, 45-47 (1977); 95-151, 73-74 (1977) (Minority Views Separate Views). ignores occurred ignore 50 implicit argument: prevail unless comports above, long An presumptively reasonable, unfounded case. 51 conclude acted unreasonably, inconsistently 402(f)(2) Act, promulgating affirm 89-1714. judgments 90-114 reversed, remanded proceedings No costs allowed 52 ordered. 53 KENNEDY litigation. 54 dissenting. 55 I respectfully dissent. disputed complex, ambiguous, think (1984), strained implausible construction my 56 57 misconstrues jurisprudence. organic ambiguous. contends ("shall than") (1988) (explaining particular phrase). serious surrounds then-extant (HEW) refers. agree perhaps "Byzantine," ante, 699—but alone language, carefully considered, yield interpretation, discerning taxing inquiry. ambiguities agencies implementing them, declaration that, becomes difficult, throw up hands let us. referred susceptible meaning, intricate meaning immediately accessible. But follow Nothing jurisprudence another proposition 499 (1991), holding Occupational Commission rebuff OSHRC's incursions there, seems bit greedy launch Department's cross-border attack drafted them. 59 is, much difficult suggests. states: "Criteria [to 1980] [i.e., favorable claimants] follows: 60 "§ Interim Presumption. 61 "(a) Establishing following met: 62 "(1) chest roentgenogram (X-ray), 410.428 title); 63 "(2) Ventilatory 64 "(3) Blood 65 "(4) Other 66 67 "(b) Rebuttal subpart, considered. if: individual 68 69 70 employment; 71 72 part: 73 1973 75 "(i) 410.428); 76 "(ii) 77 410.456). 78 79 "(c) There 80 410.412(a)(1)), physical performance tests 410.412(a)(1))." 82 relationship apparent Both presentation certain types four). specify rebutted. (both relating disability), authorize expressed plus more: (1) pneumoconiosis). Obviously, opportunities claimants. quite do. illustrative. Claimant BethEnergy, arguing Had same, 410.490(b)(1)(i), counterpart 727.203(a)(1).1 things different: contemplated disabled—but concededly was. appears, therefore, challenged causal link thus defense. 84 self-evidently correct, obscured complexity actual simple. assume "x," "x" "a" "b." likewise "b" "c" "d." defies common sense identical, defeated "b," worse off latter regime. Yet accepts. nothing remarkable about regulations' severely limiting "In enacting generated earlier law await facilities development presently evaluate handled circumstances resources techniques. expectancy evaluation ." 410.490(a). 87 context, limitation makes perfect sense. Litigation over circumscribed: introduced supporting portion established—thus avoiding time-consuming exchange conflicting which, scientific knowledge likely inconclusive event. disability—which poses questions—was eliminated disabled, On hand, full area equal (and courts) typically themselves assessments.2 88 apparently time thought Literally thousands decided 1970s; Government employers cited single indeed advanced, comment claimant, commentator available. find extraordinary. unsurprising otherwise. Indeed, Coal. describing sets 89 "[T]he permi[t] grounds (§ 410.490(c)), 'the employment' pneumoconiosis.' 727.203(b)(1)-(4)." 111, 419 (albeit complex) face, arguments why opportunities. 91 new DOL. principal centers states 410.490(6)(2) requirement, insists, employer correct "impairment" meant same "disability" not. (b)(1); discusses proof "impairment," itself. open show, example, everyone agrees did—the diverges impairment—i.e., pneumoconiosis—arose presume equates allows ground Government's partially correct—but partially. notes, involves elements: says point, (by raising presumption). (to irrelevant). wish former, latter; bars argument, via offers thus, impermissibly, recourse employer. 93 offer contortion effect. "evidence reads 94 95 His prevents engaging immediate residence skills abilities some regularity period time. begins references believe construe plausible 410.412(a)(1). logical cross-referencing explicit complete "gainful work" affords. done so, explicitly parallel rather backhandedly, reference. 97 concedes companies' cross-reference concludes deference." Ante, 702. foregoing (nor 707-708), note herself advance it. Certainly private parties' speculation what line potential force, willing depart import adhering unauthorized unconstitutional. important outset, heavy regard. owed (of HEW). depends showing, produces unreasonable one. 99 argues, accepts, "it Congressional 700, say so. unlikely. Any trade-off speed accuracy adjudication. discussed avowedly designed enhance expense accuracy, 410.490(a), pending reliable procedures. preclusion issues left possibility world, entitled. necessary attempting possibly indeterminate minimum delay. striking balance taken perception moving too slowly. next argued according 923(b)." 702-703. 921, contradicts 921(c)(1) ten irrelevant purport 101 Slightly 921(c)(2), foreclosing years' service. service additional, 921(c)(4) (A) (Emphasis true tracks permissive. attempts involve justify, declining option. 103 colorable 923(b), argues force precludes unanswerable offered reasonably maintainable, against adopted, employers, adopting sustain position. were, effect, waiver—which considerations efficiency. elect Since owe HEW) construing (as regulations) permissible interpretation. final specified. for, foreclosed; availability, exist. implication, suggested hoary canon alterius. rule followed exceptions rule, assume—absent evidence—that intended. absolute, "would statute." 703. assuredly true; indications meaning. Burns 2182, ---- (1991) (invocation inappropriate absurd arguably unconstitutional results). strong indication, problem others. thinking listed exclusive. 105 sum, impermissibly exceed respects: challenge coal-related, exists. Coal, 418, reconsider.3 divergence conclusive, far concerned. (I address constitutional challenges passed below.) employer's foreclosed Thus reverse ventilation resembling wishes pneumoconiosis-like (depending effect here) record advocating, remand relief. test, 727.203(a)(3). complain treated allowing rebutted, place. 90-113. 106 reasons, Pneumoconiosis identified Surgeon accumulation fine particles human lung." What described simple seldom impairment, reduce ability Complicated patient "incurs progressive massive fibrosis reaction factors." stage, "usually marked considerable disability." direct strongly worded invitation 92-743, 2322 ("Accordingly, expects amendments"). 183. issue. appears retreated considers Robinette 902 1566 1990) (judgment entry), cert. pending, 90-172. conclusion, unnecessary Seventh Patrich Old Ben 926 1482, 1488 (1991). refused invalidate regulation, continues 410.490 195, 202 experience. Sebben us: foreclose was, nonetheless, "substantive requirement." "there meaningful difference procedure denies place offered." Patrich, 1488. conclusive remaining 921(c)(3), Perhaps telling 921(c)(4), addressed section, reveal provided: "The (B) of, with, mine." Written indicates understanding Miner's Manual (1979), represents regulation. Claimants "nowhere suggests" Manual, understood facts best, document IB6(e) (stating "may (3) Biopsy clearly exists"). revealing outlining "[t]o submit mines." IB1. separate presumably 727.203(b)(4), defined contested mine—only it, ailments, Significantly, outlined extensive contesting disabilities. 410.426. suggests there—and conforms serve blunt instrument developed. Even party

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