Document: 526 U.S. 86119 S.Ct. 1003143 L.Ed.2d 171 132 F.3d 157, vacated and remanded. SUPREME COURT OF THE UNITED STATESFEDERAL EMPLOYEESv.DEPARTMENT INTERIOR Nos. 97-1184 97-1243 ON WRITS CERTIORARI TO STATES APPEALS FOR FOURTH CIRCUIT [March 3, 1999] Justice Breyer delivered the opinion of Court. 1 The Federal Service Labor-Management Relations Statute requires federal agencies unions that represent their employees to "meet negotiate in good faith for purposes arriving at a collective bargaining agreement." 5 C. §7114(a)(4). We here consider whether duty bargain extends clause proposed by union would bind parties midterm-that is, while basic comprehensive labor contract is effect-about subjects not included contract. reverse lower court holding statutory does encompass midterm (or about bargaining). conclude delegates Labor Authority legal power determine must engage matter). remand these cases so may exercise power. 2 * Congress enacted (Statute or FSLMRS) 1978. See U.S.C. § 7101 et seq. Declaring "labor organizations civil service are public interest," §7101(a), grants agency right organize, provides bargaining, defines various unfair practices. §§7114(a)(1), 7116. It creates Authority, which it makes responsible implementing through broad adjudicatory, policymaking, rulemaking powers. §§7104, 7105. And establishes within Impasses Panel, resolve negotiation impasses compulsory arbitration, §7119, hence without strikes law forbids employees, §7116(b)(7). 3 Of particular relevance here, employer "meet" with employees' collective-bargaining representative "negotiate Courts Appeals disagree whether, extent which, this good-faith-bargaining requirement bargaining. Suppose, example, 5-year In third year matter arises address. If seeks negotiations matter, require then there, can wait renewal negotiations? Does itself contains "zipper clause" expressly forbidding such bargaining? permitting Can insist upon endterm (that , during over adopting renewing contract) include one other clauses itself? 1985 began answer some questions. considered union's effort force did address, held bargain. Internal Revenue Service, 17 F. L. R. A. 731 (1985) (IRS I). 4 Court District Columbia Circuit, however, set aside Authority's ruling. light intent purpose Statute, be read inasmuch as create any distinction between end contract's term term. National Treasury Employees Union v. FLRA, 810 F.2d 295 (1987) (NTEU). On reversed its earlier position. 29 162, 166 II). Accepting D. Circuit's analysis, held: "[T]he imposed an agreement on negotiable union-initiated proposals concerning matters addressed [basic] were clearly unmistakably waived Id., 167. 6 Fourth Circuit has taken different view matter. "union-initiated required statute undermine congressional policies underlying statute." Social Security Administration 956 1280, 1281 (1992) (SSA). Nor, view, impose parties. Department Energy 106 1158, 1163 (1997) (holding unlawful Panel had parties' contract). 7 present suit, Federation Employees, Local 1309 (Union), representing United States Geological Survey, subagency Interior (Agency), including provision said, "The request Employer will obliged [midterm] covered provisions Interior, 52 475, 476 (1996). 8 Agency, relying prohibits provision, refused accept, about, clause. reiterating own (and Circuit's) contrary Agency's refusal amounted practice. 479-481. itself, said imposes obligation bargaining-an only reiterates. 479-480. even if exist under added, proposal contractual fit subject negotiation. 480-481. Consequently, ordered Agency 9 order. 157 (1997). reiterated duty. 161-162. That being so, concluded, should midterm. reasoned once began, have no choice but accept Were do (by impasse clause), inevitably insert employer's objection, (like Circuit) believes merely reiterate imposes. Ibid. 10 granted certiorari conflicting views Circuits. II 11 shall focus primarily question divided Circuits: existing contract? thought was sufficiently clear warrant judicial rejection charged Statute's administration. SSA, supra, 1284 (stating " 'Congress directly spoken precise issue,' quoting Chevron Inc. Natural Resources Defense Council, Inc., 467 837, 842 (1984)). agree we find language ambiguous open point deference reasonable interpretation elaboration execution. Chevron, 842-845; Fort Stewart Schools 495 641, 644-645 (1990). 12 all address NTEU, F.2d, 298; 1284; Brief Petitioner FLRA No. 97-1243, p. 18. relevant simply says "shall meet 7114(a)(4). key "collective agreement" "agreement entered into result bargaining." §7103(a)(8). goes define bargaining" involving meeting employee representatives "at times" "consult" "bargain good-faith reach respect conditions employment," incorporating "any reached" "a written document." §7103(a)(12 ). This language, literally, collectively 13 represented Solicitor General, argues context, exclude explain why each arguments. 14 First, variety linguistic As initial emphasizes words "arriving at" general statement "for tends contends, because at, supplementing, basic, words, appropriate destination might "arriv[e]." adds art, always refers contracts, agreements. 15 Further, acknowledges there private sector, see NLRB Jacobs Manufacturing Co., 196 680 (CA2 1952), private-sector based Act (NLRA) significant respects from here. explains NLRA (1) "with wages, hours, terms employment, [(2)] agreement, arising thereunder." 158(d) (emphasis added). "or," indicates employers collectively" part "the leading "written contract." 16 our arguments, logical, make too much little. One easily reached conclusion particularly more than circular way-as "an 7103(a)(8). Nor found statute, opinion, document, treatise art necessarily Finally, differences FSLMRS tell us little, given fact two statutes, like otherwise identical sectors. For reasons, ambiguity, certainty. Second, Agency-like Circuit-contends demand reading definition availability argues, lead withhold certain ordinary raise them term, favorable conditions. A conclude, likely get what wants presenting (when issues table compromise less likely) negotiating impasse, thus leaving resolve. also points out public-sector differ respect. Private-sector enforce strikes, they hesitate strike midterm, incentive But unio ns strikes. Hence, argument goes, unique piecemeal basis, thereby threatening process. See, e.g., 1288-1289. 18 Other policy concerns, argue Statute. Without prove possible solution workplace problem, say health safety hazard, first appeared midterm? emphasis "contribut[ing] effective conduct business," 7101(a)(1)(B), suggests favor joint, unilateral, solutions problems. 19 seem better suited workplace-related empirical judgments help properly balance these, other, policy-related considerations. indicate decided specific judgments. Hence arguments illustrate need refinement obligation; appropriateness matter; and, most importantly, narrow scope consistent interpretations. 20 Third, history prior administrative practice support grew Executive Order previously governed federal-sector relations. Exec. 11491, CFR 861 (1966-1970 Comp.), amended 11616, 11636, 11838, 605, 634, 957 (1971-1975 Comp.). support, cites case Assistant Secretary Labor, applying Order, dismissed complaint ground, among others, proposals. Army Air Force Exchange Serv., Capital Region Headquarters, Case 22-6657(CA), Rulings Requests Review 561-562 (1976) (not reviewed predecessor Authority); IRS I, A., 736-737, n. (finding, decision, Order). single alternative however-in single, unreviewed decision before enacted-does demonstrate kind historical assume reflected when least suggested time relations contrary. H. Robinson, Negotiability Sector 10-11, (1981) both continuing 21 Senate Report speaks "mutual bargain" "changes established personnel management," (2) "negotiable initiated either [the union] . context S. Rep. 95-969, 104 (1978) Report, concerns bill similar law. According least, indicated passage "did survive Senate's restrictive rights importance 298. event, Report's list occasions purport exclusive list; tha t understood bargaining; implication distant control 22 Fourth, contend "management rights" 7106 authorize limited issue), negative denies permission others. ("The inclusion effects inadvisability statute"). Our examination finds little strong implication. Subsection (a) management withdraws reserves exclusively management. specifies, official[s]" retain authority hire, fire, promote, assign work, agency's "mission, budget, organization, number internal security prac tices." §7106(a). 23 (b), permits amount very subsection withdrew. (b) states: 24 "Nothing section preclude organization negotiating- 25 "(1) election agency, numbers, types, grades positions assigned organizational subdivision, work project, tour duty, technology, methods, means performing work; 26 "(2) procedures officials observe exercising section; 27 "(3) arrangements adversely affected officials." §7106(b) 28 subsections together, Agency. While contemplates impact implementation changes take place contract, actually italicized clause, "[n]othing preclude," delegation (e.g., promotions) related promotion procedures). By terms, then, nothing exception (a), preserving committed discretion Because chiefly addresses timing, could reasonably circumstances specified, th e source elsewhere seems hurt, help, argument. upshot analysis where denial obligation, ambiguity created use might, not, forms inconsistent absolute similarly absolute, opposite, reading. Compare 1284, 301 (rejecting position ground "contrary legislature guiding Indeed, implicitly concedes distinctions, assumes extend id., 296. 30 perfectly consistent, delegated determine-within bounds, see, 706 (Administrative Procedure Act); 837 (1984)-whether, when, where, sort required. rulemaking, policymaking powers supports conclusion. §7105(a)(1) ("Authority provide leadership establishing guidance"); §7105(a)(2)(E) (Authority "resolves relating faith"); §7117(c) resolves disputes matter); accord American Govt. 2986, AFL-CIO 775 1022, 1027 (CA9 1985); AFL-CIO, Council Soc. Sec Dist. Office Locals, San Francisco 716 47, 50 (CADC 1983). supported precedent recognizing similarity Board's roles. recognized, function "to develop specialized expertise field give content principles goals forth Act," "is entitled considerable exercises 'special complexities' relations." Bureau Alcohol, Tobacco Firearms 464 89, 97 (1983) (quoting Erie Resistor Corp., 373 221, 236 (1963)). 31 "left" resolved administration everyday realities." 865-866. III 32 true leeway (within limits) answering well. 33 determined, judgment, provision. determinations, leads judgment occasioned Merit Systems Protection Bd. Professional Assn., 852, 859-860 (1988) (midterm "reiterates Statute"); 479 (in instant restating same conclusion). below agreed outcome litigation different, 'has upheld negotiability despite absence question.' 80 Energy, 51 124, 127 (1995), enf. denied, 1158 (CA4 1997)). explanation, respond to, distinguish, authority, rather independently complex policies. Regardless, linked understanding requirements. 34 determination nor believe opportunity questions aware permits, compel, conclusions reached. 35 vacated, remanded further proceedings opinion. 36 ordered. O'Connor, J., dissenting 37 38 39 whom Chief joins, Scalia Thomas join Part dissenting. 40 today ignores plain meaning (Federal Statute) erroneously concludes responds abandoning forum defer revised position, evaluate renders, fact, plausible statute. I respectfully dissent. 41 plainly 1992) Whether determined "by reference used, broader whole." Robinson Shell Oil 519 337, 341 42 Here, well contexts demonstrates unambiguous. specifies few instances required, 7106(b), agreement. Rather, defined agreement," §7114(a)(4) supplied), obligated sincere §7114(b)(1) supplied); also, §7114(b)(5) (requiring steps necessary implement agreement"). "arrive" commonly mean destination" gain achieve end." Webster's Third New International Dictionary 121 (1976). Thus, faith" of" achieving end: §7103(a)(8) (defining bargaining); §7103(a)(12) bargaining," part, [an] employment"). 43 that, negotiation, agreements ante, 7. word "midterm" suggests, "midpoint" stand alone relate back primary appropriately regarded modification of, supplement pursuant (describing sector "modification[s]" agreement). expresses modifications supplements With supplements, specified topics. 7106(b). 44 Section 7106(b) obligates initiatives, creation "procedures authority" §7106(b)(2); §7106(b)(3) (providing "appropriate officials"); Government 2782 702 1183, 1186-1187 few, topics cannot construed generally. Such construction, indeed, renders obligations redundant. Nordic Village, 503 30, (1992). 45 reasons exceptions §7106(a), turn, managerial themselves duties outlined Moreover, section's introductory "indicates ? matters," 11, permissive obligation. follows structure text Statute." Ante, 12. 46 Court's reliance §7106(b)'s misplaced subparts exception. Specifically, although §7106(b)(1) initiate working conditions, §§7106(b)(2) (b)(3) mandatory, requiring specified. At intended Even assuming permissive, basis generalized emanates another source; emanate. Accordingly, prescribed b y 47 supplementary modifications, demonstrated comparison (NLRA), counterpart. bargain, NLRA, includes supplied). agreements, stands stark contrast "arriv[e] proviso limiting "in effect covering industry" party desires "modify" 158(d). already "contained in" coll ective noted above, lacks comparable language. Because, drafted knew Mfg. 680, 684 omission intend 48 concludes, nevertheless, irrelevant sectors, different. 7; 648 (1990) (observing pari materia). To sure, acts, render irrelevant. doubtful influenced statutes specifically related, apply persons, things, relationships." B N. Singer, Sutherland Statutory Construction §53.03, 233 (rev. 5th ed. 1992). Employing principle, compared nonanalogous aid them. Overstreet North Shore 318 125, 131-132 (1943) (using Employers' Liability Fair Standards 1938 though Acts strictly analogous). used 92-93, 96-97 (analogizing (FLRA) Board). 49 omitted Under subsidize negotiators. 7131(a). negotiators streamline avoid extended Given structure, difficult imagine obligate cause perpetual Continuous goal FLRA: promote "effective efficient" Government, stymied §7101(b). realization initially motivated reject contention contained 731, 736-737 continuous issue-by-issue basis). excluded because, no-strike regime relations, leave agency-employer disadvantage. obtain who dead against pay price costly members. hope some) requested. Demanding unreciprocated additional benefits cost-free. motivate "hold [a] off until done[,]? single-issue negotiation," results, arbitrate. Ferris, Union-Initiated Mid-Term Bargaining: Catalyst Reshaping Conflict Patterns, Negotiation J. 407, 411-412 (Oct. 1989). Again, obvious government. hold plainly, justifiably, alternative, nevertheless provisions. propose agency-employers contractually something faith. consequences: Unions binding arbitration impasse. §7119(c)(5)(B)(iii). Therefore, imposing clauses, taking reluctant hands, placing hands i nconsistent promoting efficient Government." There moreover, requirements 7117(a)(1) directs "matters rule regulation Government-wide regulation" law." interpreted employment. 37. apparent, how "matte[r ] affecting conditions." 7103(a)(14) "conditions More important, Congress, chose "inconsistent law" rejected requirement. 53 suit FLRA's Chevron. 842-843 (1984). 54 observed Good Samaritan Hospital Shalala, 508 402 (1993), alters consistently held. explained: 55 estopped changing she been grounded mistaken interpretation. disqualified mind; does, courts still sit review approach construction issue de novo regard statutes. hand, consistency factor assessing weight due. stated: 'An conflicts "entitled considerably deference" view.' INS Cardoza-Fonseca, 480 421, 446, (1987). How situation, shifts resulted intervening possibly erroneous decisions current rulings, depend facts individual cases." 417 (some citations quotation marks omitted). 56 446-447 intent, heightened time); Election Comm'n Democratic Senatorial Campaign Comm., 454 27, "thoroughness, validity, reasoning factors bear ruling," ultimately deferring position); Watt Alaska, 451 259, 272-273 amendment contemporaneous amendment's current, interpretation). 57 changed asked consider-whether Statute-and response decision. Initially, (1985), came opposite after (adopting Statute). course, offered scant explanation sudden interpretive shift. stated holdings "based court's Administrative Law Judge," impermissibly ov er proposal. 165-166, 168. apparent reason shift circumstance, deference. 417. lesser standard recognized limits U.S., 108. endeavor examine Secretary's construction. 58 currently interprets those unless pp. 18-20; Navy, Marine Corps Logistics Base 962 48, (outlining position). discussed, expressing codified whole cloth; Feder al inferior natural, plausible, Statute-that 417; 446-447, 30. dissent affirm Circuit.

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