Document: 480 U.S. 678 107 S.Ct. 1476 94 L.Ed.2d 661 ALASKA AIRLINES, INC., et al., Petitioners,v.William E. BROCK, Secretary of Labor, al. No. 85-920. Argued Dec. 1, 1986. Decided March 25, 1987. Syllabus To assist airline employees dislocated as a result the deregulation commercial air carriers pursuant to Airline Deregulation Act 1978 (Act), Congress enacted an Employee Protection Program (EPP) § 43 Act. The EPP imposes on covered airlines "duty hire" protected employees, who have "first right in their occupational specialities with any that is hiring additional employees. Section authorizes Labor issue regulations for administration EPP, but 43(f)(3) contains legislative-veto provision stating final regulation shall become effective after 60 legislative days following its submission Congress, unless during period either House adopts resolution disapproving it. Petitioners, subject Act's duty-to-hire provisions, filed suit Federal District Court, which granted summary judgment them, holding 43(f)(3)'s unconstitutional under INS v. Chadha, 462 919, 103 2764, 77 317, and striking down entire ground veto was nonseverable. On appeal from finding nonseverability, Court Appeals reversed. Held: severable remainder program. Pp. 684-697. (a) standard determining severability federal statute it evident would not those provisions are within power, independently not, invalid part may be dropped if what left fully operative law. relevant inquiry evaluating whether will function manner consistent Congress' intent. In considering this question context veto, must recognized absence necessarily alters balance powers between Legislative Executive Branches Government. Thus, only appropriate evaluate importance original bargain, also consider nature delegated authority made veto. 684-687. (b) Severability here supported by language structure. intent EPP's first-hire should survive suggested strongly detailed affirmative duty places directly carriers. scarcely need adoption Secretary, thus leave little substance ancillary Secretary's obligations implement further evidence limited substantive discretion Secretary. 678-691. (c) history supports conclusion even without revealing regarded labor protection important feature Act, while paid scant attention provision. emphasis deliberations placed overwhelmingly statute. 691-696. 247 U.S.App.D.C. 132, 766 F.2d 1550 (1985), affirmed. BLACKMUN, J., delivered opinion unanimous Court. William T. Coleman, Jr., Washington, D.C., petitioners. Louis R. Cohen, respondents. Justice BLACKMUN 1 317 (1983), held congressional-veto 244(c)(2) Immigration Nationality 66 Stat. 216, amended, 8 U.S.C. 1254(c)(2), found 14 airlines, present case contend protecting 92 1705 (codified at various sections Title 49 U.S.C.App.), ineffective because 1752, U.S.C.App. 1552(f)(3), similarly subjects implementing issued Department (DOL). We certiorari, 475 1044, 106 1259, 89 569 (1986), 2 * After 40 years extensive commercial-airline industry Civil Aeronautics Board (CAB), decided make "a major change fundamental redirection interstate overseas transportation so place primary competition." S.Rep. 95-631, p. 52 (1978). abandoned industrywide fare structure gradually, 37(a), 1482(d); altered procedures could enter new markets, §§ 7 8, 1371(c) (d); phased out regulatory power CAB, eliminating agency altogether 1984, 40(a), 1551(a)(1)(A) (a)(3). 3 sought ensure benefits public flowing "paid for" had relied heavily regulated deciding accept retain positions order deregulation, 1552. provides benefits, event work force reductions, "protected employees," defined been employed certified carrier least four October 24, 1978, date became effective. 43(d) (h)(1). 4 first establishes monthly compensation If forced severe reductions or bankruptcy furloughed terminated eligible employees" entitled federally provided assistance payments. 43(a)-(c), (e).1 directed promulgate guidelines used amount 43(b)(1). assistance, however, expressly "subject such amounts appropriation Acts." 43(a)(1). No funds ever appropriated program has never operative. It except insofar providing 5 second portion prior system employee "furloughed otherwise terminated," other than cause, 10 enactment statute, hire, regardless age, his specialty" carrier, section, "hiring employees." A permitted, recall own previously 43(d)(1). responsibility employment empowers require file information necessary provide assistance. 43(d)(2). 6 "may issue, amend, repeal rules [the EPP]." 43(f)(1). rule containing payments "any deems carry section promulgated six months 1978." 43(f)(2). included "report wait" provision, specifying no until 30 submitted Senate Committee Commerce, Science, Transportation Public Works Transportation. 43(f)(3). Finally, gave rise litigation. declares days, 60-day rule. 43(f)(3).2 II Petitioners Secretary.3 They challenged United States Columbia, contending invalidated nonseverable rest EPP. Respondent unions intervened behalf petitioners, leaving intact. Alaska Airlines, Inc. Donovan, 594 F.Supp. (1984). ruled severed Respondents appealed nonseverability. Columbia Circuit reversed, clause program.4 (1985). agree affirm Appeals.5 III "[A] court refrain invalidating more necessary. . '[W]henever act unobjectionable separable unconstitutional, declare, maintain far valid.' " Regan Time, Inc., 468 641, 652, 104 3262, 3268, 82 487 (1984) (plurality opinion), quoting El Paso & Northeastern Co. Gutierrez, 215 87, 96, 21, 54 L.Ed. (1909). well established: 'Unless Legislature law.' Buckley Valeo, 424 108, 96 612, 677, 46 659 (1976) (per curiam ), Champlin Refining Corporation Comm'n Oklahoma, 286 210, 234, 559, 564, 76 1062 (1932). Accord: U.S., 653, S.Ct., 3269; 931-932, 2773-2774; Jackson, 390 570, 585, 88 1209, 1218, 20 138 (1968). 9 intended constitutionally flawed legislation incapable functioning independently. See, e.g., Hill Wallace, 259 44, 70-72, 42 453, 458-459, 822 (1922) (Future Trading valid intertwined rewrite law allow stand). This concern, when very separate operation Indeed, contemplated activity take long refrained exercising power.6 independent said indicate about regarding Congress. recognize Some delegations controversial broad unwilling delegation strong oversight mechanism. test, vetos traditional one: created enacted.7 11 eased explicitly severance including inclusion creates presumption did intend validity depend offensive See 932, 2774; 235, 565. case, there otherwise, objectionable can excised clause, silence just silence—and does raise against severability. Tilton Richardson, 403 672, 684, 91 2091, 2098, 29 790 (1971) opinion); n. 27, 27. 12 parties disagree applicable EPP.8 resolve question, resort find case. There abundant indication clear congressional both history. IV A. 13 detail obligation hire needs leaves 43(d), 1552(d), designates recipients hire," namely, "protected," terminated, deregulation. specifies class obligated extent obligation. Carriers CAB before they person, although preference individual's specialty applies regard age. these sufficiently unambiguous notify responsibilities action Secretary.9 direct certain actions provisions: he establish periodically publish list available jobs, "make every effort" employment, encourage negotiations rehiring seniority. He data fulfill duties. 43(d)(2) (3). These obviously designed merely facilitate imposed upon carriers, With subsidiary role allotted affect relatively insignificant might connection program.10 reason believe possibility vetoing one infer satisfied preserving opportunity DOL's regulations. 15 Moreover, link specifically issuance While promulgate, rule, authorized 43(b)(1),11 similar command provisions. simply "may" dependent unlikely 16 eventually DOL, CFR 220.01 seq. support itself elaborated most details reiterate statutory requirements administrative ascertaining eligibility dispute, 220.26, silent mechanism enforcing hire. focus mechanical details—notices sent, published, followed. 220.23, 220.25, 220.27. Most importantly, themselves DOL acknowledges proviso "nothing preclude exercise rights duties Act], regulations." 220.01(g). 17 Not do stand own, regulations, but, object issued, retains expression disapproval reduces disruption caused requires forward Committees Chambers wait issuing them interval gives review attempt influence agency's decision, enact preventing taking effect.12 18 arguing nonseverable, petitioners great significance fact delegate misplaced. aspect concerned naturally involve DOL. unremarkable given Although remove completely regulation,13 primarily "deregulatory" statute14 and, aside create programs requiring oversight. indicates nothing essential 43. B 19 bill passed contained protections later heart Act—monetary lost wages relocation expenses, industry. sponsors bill, S. 689, introduced session 95th were optimistic lead increase number jobs,15 contain protections. But response union testimony existing inadequate,16 labor-protection expressed witnesses,17 added 22 2493, session. viewed "strik[ing] proper legitimate demands industry, consumers, labor, management." 124 Cong.Rec. 10654 (1978) (remarks Sen. Percy). Report reasons individual follows: 21 "[A]n able adjust Many working lives too much invested now. many cases, job shift costly Older looking encounter difficulties Since ab[l]e sense employers can, believes reasonable transition provided. ". Because benefit reform willing assume reasonably close full cost reform, American people, insure decision alter substantially minority—the families system." 114 23 contrast discussion protection, When show concern retaining control over form take, program, hire: 24 "Eligible jobs maximum reemployed, whichever occurred first. payment equal percentage former wages, determined Labor. re- view. committee considered setting figures dollar amounts, concluded consultation Transportation, better position determine amounts. intends percentages chosen less employees' after-tax income preserve incentives secure comparable work." Id., 116-117 (emphasis added).18 25 introducing 2493 floor, Senator Cannon discussed mention note 10647-10649 printed record omitted 10649. extensively floor debate requirement repeatedly voiced.19 Several amendments modifying restrict liberalize payments, offered,20 dramatic endorsement whole came amendment offered Hatch eliminated completely. resoundingly rejected lopsided vote 85-7. 10679, 10682. aspects neither supporters nor opponents mentioned Senate. 26 H.R. 12611, lacked encompassing displaced 32, workers identical rail stipulated exercised protected.21 adopted apparent controversy despite 30661-30708 27 emerged Conference version "basically same bill." H.R.Conf.Rep. 95-1779, 105 (1978), U.S.Code Cong. Admin.News pp. 3737, 3813 (listing differences). again illustrates relative unimportance legislation. reflected wholesale approval Members stressing provisions,22 regrets stronger.23 One comment alone—in fact, deliberation Act—concerned veto.24 Representative Levitas, best understood general rather particularly EPP.25 V 28 uncontradicted view leads concerns related principally financial-assistance Even minimal. almost total contrary refrain, we cannot conclude failed included. Accordingly, Appeals. ordered. "eligible" deprived adversely affected respect "qualifying dislocation." Any cause ineligible. 43(a). dislocation" "major contraction" occurring complete calendar 43(h)(2). contraction reduction 71/2% 12-month period. 43(h)(4). Houses adopt period, becomes immediately. 1978. 1979, proposed 44 Fed.Reg. 19146. Revised relating published September 1982. 47 41304. November 1983, 48 52854, litigation remanded consideration petitioners' remaining challenges here. 137, 1550, 1565 sustained all 632 178 (1986). "for explanation" 220.21(a)(1) dealing initial age flight officers pilots, light carriers' safety. F.Supp., 184. reversed part. 258 89, 809 930 (1987) (Table). unpublished memorandum remand inappropriate "Congress absolutely clear," 43(d)(1), apply "regardless age." clarification different issue: scope exception equal-opportunity agreement established 220.29 220.01(j) now force. jurisdiction "an unconstitutional," therefore 1252. hand, constitutionality properly taken 1291. EEOC Allstate Insurance Co., 467 1232, 3499, 810 (1984); Heckler Edwards, 465 870, 885, 1532, 1540, 79 878 Hearings Supreme Decision Chadha Its Implications Congressional Oversight Agency Rulemaking, Subcommittee Administrative Law Governmental Relations Judiciary, 98th Cong., 1st Sess., (1983) Rep. Berman) ("[I]t's hard me envision probably couldn't operative, though struck down. kind contemplated"). argue formulated argument court's statement unless, "as Temporary Emergency put it," proved "that preferred sans provision." 246 U.S.App.D.C., 143, F.2d, 1561. Gulf Oil Corp. Dyke, 734 797, 804 (Temp. Emerg. Ct. App.), cert. denied, 469 852, 173, 83 108 interpret signal asked some currently inquiry, course, tautological, existence Appeals' standard. doubts, analysis entirety, plain correct applied amends Aviation 1958, 72 731, clause. 1504, 811; see 1301 (Separability Provisions). applicability doubt, because, unlike amend pre-existing instead 1552 (Codification: "Section [43] 1958 comprises chapter"). reached McDonald Piedmont Aviation, 625 762, (SDNY 1986), private brought pilot claiming defendant wrongfully denied him stands responsible making individuals obtains months, 43(e), delegates task each craft reimburse "reasonable moving expenses" losses resulting sale principal residence price below fair market value. 43(c). controlled through appropriations, 43(a)(1), diminishes means effect. addition, establishing sole 43(f)(2), "carry out" frequently incorporated into statutes. For compilation these, Research Service, C. Norton, 1976-1977 Acts Authorizing Prior Review, Approval Disapproval Proposed Actions, 78-117 G, 19-26 (1978); 79-46 16-41 (1979). Sibbach Wilson 312 61 422, 85 479 (1941), approved Rule 35 then newly Rules Procedure, stipulating "shall effect reported Attorney General beginning regular thereof session." June 19, 1934, ch. 651, 2, 1064. stated approvingly: "The value reservation examine rules, laws frequently, here, sure squares purpose." 15, 427. notification delay resemble absent one-House invalid. 935, 9, 2776, 9. 33(a), 1732 (CAB's ensuring adequate service small communities); 12, 1716 automatic entry program); 1709 1738 (Secretary Transportation's FAA Administrator's aircraft safety standards). As acknowledge, purpose placing "maximum reliance competitive forces." 3(a)(4), 1706, 1302(a)(4). Brief 29-30. 292 Regulatory Reform Air pt. 110 (1977) (Senate Hearings) Kennedy); id., 4, 1844 Cannon). During Kennedy "the indicators positive, continue respond changes opportunities brought." 37419 10677 (statement merger cases. typical formula supplemental whose lower salary, dismissal allowance up five losing depending length service, integration seniority lists. United-Capital Merger Case, 33 C.A.B. 307, 342-347 (1961); Allegheny-Mohawk 59 22, 31-40 (1972). Union leaders urged needed bankruptcies route discontinuations, afforded railroad Interstate Commerce 11347 (railroad arrangement" protect worse years); Rail Passenger Service 45 565(a) (similar discontinuations). Hearings, 717 Frank Fitzsimmons, President, International Brotherhood Teamsters); 3, 1320 G. Mahoney, counsel several unions). Charles L. Schultze, Chairman Council Economic Advisers, voiced President Carter's concern: "In message Administration recognizes interests 279; 1369-1370 Brock Adams, Transportation). assuming, arguendo, crucial passage presently uncontroversial. two portions tightly linked, implying one, both. components predicted "decrease cash required program," 116, conditions receipt cooperation seeking line attack, alone. illustrated current inactive status capable serving protection. 10674-10675 (Sen. Zorinsky's proposal delete "liberal[ize]" expanding definitions qualifying dislocation); Cannon's good concept "would people work, another carrier"); 10695 Muskie). Both weakening strengthening defeated. 10674-10683 financial component intact); 10680-10681 Danforth's extend 3-year limit prerequisite 15% reduction). approved. 10683 deleting guarantee full-salary highly employees). "arrangements favorable 5(2)(f) 405 Act." H.R.Rep. 95-1211, 3758. 37416 Cannon); 37421 Stevenson); 38522 (statements Anderson Snyder); 38523 Johnson). ibid. Harsha); 38524-38525 Mineta). Levitas stated: "Finally, Mr. Speaker, I let moment go observation. bills sent year signed am happy say piece unelected bureaucrat word law." 38524. earlier commented favorably (which provision) power. 73 (additional views); 29529-29530 30671 (House "far superior body respect"). ardent supporter acknowledged leader fight device. 19427 Alexander). routinely advocated wide variety 890 Veto Proposals, 97th 97 (1981); 3658, 8231, Related Bills, Review 94th 142 (1975). continued support, Court's ruling mistaken. 130 8488 28059 Brand, Post Response: Call Arms, Hofstra L.Rev. 593, 613 Actions Chad[h]a: Son Veto" Lives On, Geo.L.J. 801

Category: 12