Document: 510 U.S. 200 THUNDER BASIN COAL CO.v.REICH, SECRETARY OF LABOR, et al. No. 92-896. Supreme Court of United States. Argued October 5, 1993. Decided January 19, 1994. Petitioner mine operator's nonunion work force designated two employees the Mine Workers America (UMWA) to serve as miners' representatives under 30 U. S. C. § 813(f). Claiming that designations compromised its rights National Labor Relations Act (NLRA), petitioner refused post information about required by a regulation issued Department Labor's Safety and Health Administration (MSHA), CFR 40.4. Rather, filed suit in District obtained an injunction preventing enforcement pt. 40. In reversing, Appeals held district court jurisdiction was precluded administrative-review scheme Federal Amendments 1977, 801 seq. (Mine or Act), which challenges measures are reviewed Review Commission then appropriate appeals. The rejected petitioner's contention requiring it challenge MSHA's interpretation 813(f) 40 through statutory-review procedures would violate Due Process Clause Fifth Amendment. Held: 1. Act's precludes from exercising subject-matter over pre-enforcement Act. Pp. 207-218. (a) cases involving delayed judicial review final agency actions, this finds Congress has allocated initial administrative body where such intent is fairly discernible statutory scheme. Whether statute intended preclude determined statute's language, structure, purpose, legislative history, whether claims can be afforded meaningful review. P. 207. (b) Although facially silent claims, comprehensive structure demonstrates present one. process does not distinguish between postenforcement challenges, but applies all violations regulations. expressly authorizes only provisions, respectively empower Secretary enjoin habitual health safety standards coerce payment civil penalties. operators enjoy no corresponding right must complain 207-209. (c) history confirms foregoing demonstrating channel streamline enforcement, directing ordinary single process. Abbott Laboratories v. Gardner, 387 136, 142-144, 155-156, distinguished. 209-212. (d) Petitioner's type addressed meaningfully NLRA at root require parties' duties 40, arise fall squarely within expertise Commission, recently precise presented here. As for due claim, general rule disfavoring constitutional adjudication agencies mandatory, perhaps less consequence where, here, reviewing itself independent commission established exclusively adjudicate disputes. questions previous proceedings and, even if had not, could Appeals. 212-216. 2. need consider that, because absence declaratory relief before will subject serious irreparable harm, requires record contains evidence prehearing deprivation complies with posting designations. potential abuse representative position appears limited, failed demonstrate any remedied on individual basis Nor face refuses while challenging interpretation. penalties unquestionably may become onerous chooses comply, full available penalty paid. Under Act, neither barred practical matter access courts nor put constitutionally intolerable choice compliance potent coercive 216-218. 969 F. 2d 970, affirmed. BLACKMUN, J., delivered opinion Court, REHNQUIST, STEVENS, O'CONNOR, KENNEDY, SOUTER, GINSBURG, JJ., joined, SCALIA THOMAS, joined except Parts III-B, IV, V. SCALIA, concurring part judgment, post, p. 219. CERTIORARI TO THE UNITED STATES COURT APPEALS FOR TENTH CIRCUIT Wayne Bishop argued cause petitioner. With him briefs were Charles W. Newcom, Stewart A. Block, Thomas Linn. Deputy Solicitor General Wallace respondents. On brief Days, Acting Kneedler, William K. Kelley, Allen H. Feldman, Nathaniel I. Spiller.* JUSTICE BLACKMUN Court. 1 case, we address question 91 Stat. 1290, amended, (1988 ed. Supp. IV) prevents We hold does. 2 * adopted "to protect Nation's coal other miners." 801(g). his conduct periodic, unannounced inspections mines.1 Section provides: 3 "[A] operator authorized miners shall given opportunity accompany during physical inspection . purpose aiding participate pre- post-inspection conferences mine." 4 Regulations promulgated section define "[a]ny person organization represents more purposes Act." 40.1(b)(1) (1993). 5 addition these "walk-around" 813(f), persons obtain certain information2 promote enforcement.3 Once designate one their representatives, employer regarding designees. 6 broad authority compel immediate provisions use mandatory penalties, discretionary daily sanctions.4 Challenges §§ 815 823, Labor, States appeals, 816. II 7 Thunder Basin Coal Company operates surface Wyoming approximately 500 employees. 1990, selected (UMWA), who mine, pursuant did 40.4, complained (MSHA)5 designation (NLRA). App. 31. MSHA manager responded letter instructing Id., 49. 8 Rather than receiving letter, injunctive relief. 6. contended nonemployee UMWA "representatives" violated principles collective-bargaining representation well company's exclude union organizers property. 9-10. then, harm company irreparably "giv[ing] organizing advantages terms access, personal contact knowledge labor laws, enhanced credibility flowing appearance government imprimatur." Reply Brief 14. 9 additionally alleged Amendment, since forced choose violating incurring possible escalating penalties,6 or, hand, complying suffering harm. enjoined respondents enforcing finding raised going merits might harm.7 10 Tenth Circuit reversed, holding claims. 970 (1992). stated: 11 "[T]he gravamen Basin's case dispute anticipated citation Operators avoid simply filing actually citation, order, assessment penalty." 975. 12 To otherwise, reasoned, "would permit preemptive strikes seriously hamper effective disrupting intended." Ibid. also concluded adequately protected rights. 13 granted certiorari jurisdictional question, 507 971 (1993), resolve claimed conflict Sixth Circuit. See Southern Ohio Co. Donovan, 774 693 (1985), 781 57 (1986). III 14 review8 find "fairly scheme." Block Community Nutrition Institute, 467 340, 351 (1984), quoting Association Data Processing Service Organizations, Inc. Camp, 397 150, 157 (1970). S., 345, See, e. g., Board Governors, FRS MCorp Financial, Inc., 502 32 (1991); Whitney Nat. Bank Jefferson Parish New Orleans & Trust Co., 379 411 (1965). 15 Applying analysis us, conclude made establishes detailed "any standard, rule, promulgated" 814(a). A days after time uncontested order becomes "final" "not agency." 815(a) (d). Timely heard law judge (ALJ), 823(d)(1), review.9 Only impose proposed Secretary, 820(i), reviews de novo according six criteria.10 grant temporary pending most orders, 815(b)(2), expedite necessary, 815(d). 16 adverse decisions 816(a)(1), whose "shall exclusive judgment decree final" review, ibid. appeals uphold findings substantially supported record, ibid., determination proceedings, 816(2). 17 have respect however, Contrary suggestion, 3, actions initiated aggrieved. 815(a). 818(a) 820( j), right11 B 18 At passage, least worker killed 66 disabled every working day mines. Rep. 95-181, (1977), Legislative History 1977 (Committee Print prepared Subcommittee Senate Committee Human Resources), Ser. 95-2, 592 (1978) (Leg. Hist.). Frequent tragic mining disasters testified ineffectiveness then-existing measures.12 existing legislation,13 always too low compliance, hobbled cumbersome process.14 19 expressed particular concern contest civil-penalty assessments federal once complete, thereby "seriously hamper[ing] collection penalties."15 Concluding "rapid abatement essential protection miners," Leg. Hist. 618, accordingly improved primary goal 20 thus strengthened streamlined requirements. violators court. 627; 820(j) 818(a). Assessment mines, eliminated power Cf. Bank, 420 (that "Congress proposal decisions" supports preclusion).16 amendments persuasive direct 21 136 (1967), contrary. Food, Drug, Cosmetic 52 1040, amended Drug 1962, 76 780, 301 seq., regulations separate so holding, found presence saving clause, see 144, demonstrated "rather conclusively specific designed give additional remedy cut down traditional channels review," id., 142. It Congress' adopting supplement determinations forms inadequate. 142-144. contentions, comparable language Indeed, discussed above, text suggest precisely opposite. prospect thwart Laboratories, petitioners attempt stay challenged 155-156. C 22 turn structure. This previously upheld considered "wholly `collateral' " outside agency's expertise, Heckler Ringer, 466 602, 618 discussing Mathews Eldridge, 424 319 (1976), particularly preclusion foreclose Traynor Turnage, 485 535, 544-545 (1988) (statutory prohibition Veterans benefits otherwise unreviewable collateral claim); Bowen Michigan Academy Family Physicians, 476 667, 678-680 (1986); Johnson Robison, 415 361, 373-374 (1974); Oestereich Selective Serv. System Local Bd. 11, 393 233, 237-238 (1968); Leedom Kyne, 358 184, 190 (1958) (upholding action "no means, control enforce right"). example, 42 405(g), exhaustion remedies denial Social Security disability court, bar "entirely collateral" benefits, 330, colorable showing postdeprivation obtained, 331. 23 McNary Haitian Refugee Center, 498 479 (1991), similarly alien bring Immigration Naturalization amnesty procedures, despite Nationality provision limiting deportation exclusion proceedings. 1160(e). "pattern practice" program, 494, 497, acknowledged "if allowed pursue able 496. An analogous situation pressed below: violates collective bargaining [its] property," Lechmere, NLRB, 527, 532 (1992), depriving Commission's expertise. independent-review "develop uniform interpretation" Hearing Nomination Members Resources, 95th Cong., Sess., (1978), extensive experience interpreting walk-around rights17 here.18 construing statutes "agency [could] brought bear on" 420. 24 agree "[a]djudication constitutionality congressional enactments generally been thought beyond agencies," 368, 242 (Harlan, result); accord, Califano Sanders, 430 99, 109 (1977). Richardson, M. R. 8, 18-20 (1981). proceedings.19 Even here Appeals.20 25 combined history's clear channeling streamlining process, discernible" case. 351. "pre-enforcement" sued issued, Had persisted refusal designation, issue commence 820 IV). Nothing suggests allow evade enjoining commencing sought do Court's circumstances inimical IV 26 finally contends, alternative, with, continued violation of, deprivation. 27 us designations, limited. stated petitioner, convey "an uncontrolled property engage activity wants." Statutory occur twice annually conducted operator. Because cannot receive advance notice inspection, ability non-employee designees exercise limited speculative. Tr. Oral Arg. 31; International Union, UMWA, Amicus Curiae n. privileges, abuse, entirely hypothetical 2d, 976-977, 6; Utah Power Light 897 447, 452 (CA10 1990); Kerr-McGee Corp. 352, 361-362 (1993).21 28 Secretary's interpretation.22 payable both 820(i) request 815(d), orders 815(b)(2) 816(a)(2). Thus, confronted Ex parte Young, 209 123, 148 (1908), effect noncompliance courts. approach sufficiently presented. V 29 those consistent process.23 ordered. Notes: Timothy Biddle J. Michael Klise American Mining amici curiae urging reversal. Patrick Nakamura, George N. Davies, Robert Stropp, Jr., Mary Lu Jordan America, amicus affirmance. Underground mines inspected four times year, annually. 813(a) Miners' entitled "a copy notice, decision" operator, 819(b), copies records employee exposure toxic harmful agents, 813(c), inspections, 77.1713, plans evacuation, 77.1101, roof control, 75.220, training, 48.3 48.23 among things, inform hazards, 813(g)(2), when imminent danger exists, 813(g)(1), Representatives against 815(d) 817(e)(1), abate violation, initiate modify application standards, 44.3 recommend up $50,000 believed 814(a), 815(a), 820(a). If fails allotted, assess $5,000 per abatement. 820(b). "withdrawal order," individuals withdraw affected area, 814(b) (d), criminal 820(d) 1319, 557a relied proposition similar employee, ordered hours threatened SeeKerr-McGee 352 appeal pending, 93-1250 (CADC). complied contested citation. affirmed, NLRA. C., 362-363. eventually fined total $300 noncompliance. Pet. Cert. A-24. Before ruled preliminary injunction, trial entered permanent favor SeeThunder Co.v. Martin, 91-CV-0050-B (D. Wyo., Mar. 13, 1992). subsequently denied motion consolidate cases, conclusive lacked jurisdiction. 973, available, implicate "`the strong presumption mean prohibit review.'"Bowen 672 (1986), Dunlop Bachowski, 421 560, 567 (1975). 823(d)(2). exercises involving, others, "substantial law, policy discretion," 823(d)(2)(A)(ii)(IV), own initiative decision "contrary policy" novel presented," 823(d)(2)(B). Any ALJ "final Commission." 823(d)(1) criteria "the violations, appropriateness size business charged, negligent, continue business, gravity good faith charged attempting achieve rapid compliance." points 960, provides justice, judge, shall" interim citations timely manner agency," prohibited intended. misconstrues bars form says nothing forum challenge. failure appeals; available. light granting 820(j), argument based maximexpressio unius est exclusio alterius unpersuasive. February 1972, 125 dam broke Buffalo Creek West Virginia. 592. G. Stern, Disaster (1976). Ninety-one died carbon monoxide asphyxiation May 1972 Sunshine Silver Idaho. July nine fire Blacksville, Va., March 1976, inspectors methane gas explosions Scotia KentuckyIbid. House Reports observed accidents resulted hazards remediable many already object repeated efforts. 362, 371, 592-593, 637. disaster, occurred assessed $1.5 million cent paid." 631. Sixty-two ventilation noted years prior explosions, imposed compliance. 629-630. renamed 1969 (Coal repealed Metal Nonmetallic 1966,id., 1322. Report "unacceptable enactment laws [m]ine still cheaper pay minimal make capital investments necessary unsafe unhealthy conditions, there means chronic into 592; alsoid., 597. 633. explained: "The firmly believes effectively induce paid reasonably close proximity occurrence underlying violation. number problems current system interfere this. Final self-enforcing, seek determinations, issues Courts. encourages pre-disposed voluntarily elaborate procedure redress Since Courts reluctant schedule trials Justice courts, matters languish stage, go uncollected." 604. Report's ofBituminous Operators' Assn. Interior, 547 240 (CA4 1977) (holding support claim preserve suits. That cited unrelated constitute "settled construction" presumptively preserved. Powell, 48, 55, (1964); Keene States, 508 200, 207-209 SeeCyprus Empire (1993) (striking workers' entitlement representation); Council Mountains, Martin County Corp., 206 aff'd sub nom. FMS-HRC, 751 1418 (CADC 1985) (nonemployee monitor training courses mine); Magma Copper 1948 (1979), part, 645 694 (CA9 1981) (compensation multiple representatives). basis" "member[s] NLRA," "discrete Act... render inapplicable here," 362. preamble disapproves incorporation NLRA's majoritarian principles, 359, property-rights "Lechmere reverse walkaround developed Emery 276 (1988), rev'd 447 1990) (construing concluding nonemployee). SeeSecretary Jim Walter 1305, 1306-1307 (1987), aff'd, 920 738 (CA11 (due process); Alabama By-Products 2128, 2129-2130 (1982) (vagueness); 21-28 (1981) (equal protection). Kaiser 1165 unavailable consideration CfWeinberger Salfi, 422 749, 762 "serious question" construed claim. 681, Without addressing note misconstrueLechmere, 527 employers private emanates state common superseded NLRA, protects it. contrary, consistently maintained entitle employer's circumstances. 537; NLRB Babcock Wilcox 105, 112 (1956). Moreover, related context, interest regulating industry justify interests operators. Donovan Dewey, 594 (unannounced Fourth Amendment). disavows abstract scheme, limits allegedly relinquish right. 31, 31 resolved grounds, reach arguments concerning action, ripeness, whom THOMAS joins, judgment. I join opinion. first consists discussion 801et IV), "confir[m]," ante, 209, statute. unnecessary decision. serves maintain illusion important factor deciding opposed omnipresent makeweight arrived grounds. Wisconsin Public Intervenor Mortier, 501 597, 617, 621 (1991) (SCALIA, judgment). Part V: introduced exhaustion" reached "[b]ecause grounds." Ante, 218, 23. true enough disposed III, quite obviously grounds merits.* impediments entertaining considered. suffices say them valid. And finally, IV: holds "because deprivation." 216. presume minimis (since know doctrine lets stand unconstitutional injury short some criterion gravity). seems me, (assuming, evaluating resulting correct claims). Compliance officials enter premises (and apparent authority, that), notwithstanding common-law them, cf. 534-535 provide confidential officers union. (The UMWA's contention, relies, "speculative" walk-arounds so. He surely often so, he "be accompany" inspector. 813(f).) my view, produces harm—at summary (e. recoverable fine) provided imposed. latter condition exists court.) Were availability rather exception, later invalid almost nonrecoverable costs. imposition (1) what Government (2) risking (without court) denies line beginning 123 crucial difference. notes, 217-218, unlike plaintiff option bringing defect Young dilemma either obeying forgoing possibility "enormous" "severe" off 146-148. problem exist am aware. Bailey George, 259 16, (1922). decide second (Part simple request, presanction not. understand dealing adjudged constitutional. though, determined, suit, retains federal-question jurisdiction, 1331, determining preclusionitself hence ineffective. Ng Fung Ho White, 276, 282-285 (1922) (permitting habeas corpus orders); Battaglia Motors 169 254, 257 (CA2 1948).

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