Document: 527 U.S. 212119 S.Ct. 1906144 L.Ed.2d 196 137 F.3d 992, vacated and remanded. SUPREME COURT OF THE UNITED STATES No. 98 238 TOGO D. WEST, Jr., SECRETARY VETERANS AFFAIRS, PETITIONERv.MICHAEL GIBSON ON WRIT CERTIORARI TO APPEALS FOR SEVENTH CIRCUIT [June 14, 1999] Justice Breyer delivered the opinion of Court. 1 The question in this case is whether Equal Employment Opportunity Commission (EEOC) possesses legal authority to require federal agencies pay compensatory damages when they discriminate employment violation Title VII Civil Rights Act 1964, 84 Stat. 121, 42 U.S.C. § 2000e et seq. We conclude that EEOC does have authority. 2 * A 3 1964 forbids discrimination. In 1972 Congress extended so it applies not only private sector, but Federal Government as well. See 1972, 86 111, 16. This extension, found §717 VII, has three relevant subsections. 4 first subsection, §717(a), sets forth basic anti-discrimination standard. It says 5 "[a]ll personnel actions affecting employees or applicants for [of specified departments] shall be made free from any discrimination based on race, color, religion, sex, national origin." 16(a). 6 second §717(b), provides with power enforce (among other things) 7 "the provisions subsection (a) . through appropriate remedies, including reinstatement hiring without back pay, will effectuate policies section ." 16(b) (emphasis added). 8 third §717(c), concerns a court's that, after an agency takes final action complaint (or fails take within certain time), 9 "an employee applicant [who still] aggrieved may file civil provided [706, dealing by employers] , which head department, agency, unit, appropriate, defendant." 16(c). 10 1991 again amended VII. amendment here permits victims intentional (whether sector Government) recover damages. 1991, 105 1072, 1981a(a)(1). portion amendment, we call Compensatory Damages Amendment (CDA), says: 11 "In brought complaining party under 706 [dealing 717 Government] against respondent who engaged unlawful 12 CDA also conditions exceptions. imposes, example, cap (of up $300,000 large employers, §1981a(b)(3)(D)). And adds: "If seeks demand trial jury §1981a(c). Once became law, began grant awards cases. Compare 29 CFR pt. 1613, App. (1990) (no reference preamendment list remedies), with, e.g., Jackson v. Runyon, Appeal 01923399, p. (Nov. 12, 1992) ("[T]he makes available complainants administrative process"). B 13 Respondent, Michael Gibson, filed Department Veterans Affairs charging had discriminated him denying promotion basis his gender. Gibson. EEOC, however, subsequently Gibson's favor awarded plus backpay. Three months later Gibson District Court, asking court order comply immediately EEOC's Complaint ¶17 (App. 28). then voluntarily complied order, continued oppose claim 14 Eventually, Court dismissed claim. On appeal, supported Court's dismissal argument failed exhaust remedies respect claim; hence, he could bring court. Brown, 994 (CA7 1998). Seventh Circuit, reversed dismissal. rejected Department's because, its view, lacked award damages; consequently there was no remedy exhaust. Id., at 995 998. 15 Because circuits disagreed about damages, compare Fitzgerald Secretary, Dept. Affairs, 121 203, 207 (CA5 1997) (EEOC damages), Crawford Babbitt, 148 1318, 1326 (CA11 1998) cannot F.3d, 996 998 (same), granted certiorari decide question. II 16 language, purposes, history extension convince us authorized Read literally, language statutes consistent namely, "shall authority" §717(a) "through pay." 16(b). After enactment CDA, "remedy" "appropriate." 17 recognize 717(b) explicitly mentions equitable reinstatement, hiring, refer But preceding word "including" clear authorization limited mentioned; extension's choice examples surprising, (and until 1991) itself remedies. 78 261, 5(g)) (private discrimination); (federal discrimination). 18 Section 717's freeze scope "appropriate" 1972. Words can enlarge contract their changes, law world, application new instances make old applications anachronistic. See, Browder United States, 312 335, 339 340 (1941) (new, unforeseen "use" passport); see States Southwestern Cable Co., 392 157, 172 173 (1968) (cable television "communications"); Fortnightly Corp. Artists Television, Inc., 390, 395 396 (old statutory read reflect technological change). 19 meaning expand include were before light change are now. "appropriate remedies" follow word. Phelps Dodge NLRB, 313 177, 189 (1941). context most naturally refers forms relief authorizes least where kind typically provide. Thus, Congress' decision permit "complaining party" "recover damages" 717," adding VII's arsenal form §717(b) 20 An examination purposes shows permissible reading correct reading. general purpose employment. part creating dispute resolution system requires pursue prior action, thereby encouraging quicker, less formal, expensive disputes outside 16(c) (court permitted complainant disagrees disposition or, if pursued discretionary appeal disposition; either delayed); Brown GSA, 425 820, 833 (1976) (discussing §717's "rigorous exhaustion requirements"); 1614.105(a) (1998) (requiring initially notify effort resolve matter informally); §1614.106(d)(2) investigation consideration). 21 To deny is, statutorily speaking, would undermine remedial scheme. force into matters might otherwise resolved. preventing earlier dispute, increase burdens both time expense accompany efforts hundreds, thousands, such each year. Commission, Sector Report EEO Complaints Processing Appeals Agencies Fiscal Year 1997, pp. 19, 61 (28,947 claims 1997; 7,112 appealed EEOC); Reply Brief Petitioner 13, n. (estimating "hundreds" cases year involve damages). 22 reinforces point. CDA's sponsors supporters spoke frequently need create "help whole." H. R. Rep. 102 40, 1, 64 65 (1991); §2, 1071, 1981 note (congressional finding "additional needed deter workplace"); id., §3 (one "to provide Cong. Rec. 28636 28638, 28663 28667, 28676 28680 (1991) (introduction discussion Danforth/Kennedy 1274, permitting recovery damages); 28880 28881 (statements Sen. Warner Kennedy) (clarifying covers suggesting effect). said nothing limiting ability use desirable distinguish respect. total silence surprising. What reason Congress, anxious consider preliminary every possible remedy, want similarly well? 23 Respondent important arguments more interpretation deprive First, points out proceedings, rather states "in 717." 1981a(a)(1) "action" often judicial cases, "proceedings." New York Gaslight Club, Inc. Carey, 447 54, 60 62 (1980) (distinguishing "actions" "proceedings"). 24 Had thought limit easily cross-referenced itself, than cross-referencing whole §717, includes remedies." Regardless, question, it, whether, using "action," intended terms §717(b). previous discussion, supra, 7, do believe simple cross-reference indicates intent 25 Second, explain why wanted impose special EEOC-related limitation jury." 1981a(c) notes jury. proceed §717(c) because party, agency. §2000e concludes must implicitly forbid award, place §1981a(c) guarantees. 26 argument, draws too much little. One provision simply guaranteeing proceeds §717(c). words "under section" support interpretation, "this section," §1981a, primarily proceedings. more. suggests saw benefit parties, Government. Rec., 29051 29052 (statement Leahy) (for time, women disabled trials discrimination"); 30668 Ford) (provision "provid[e] all right jury"); also, 29053 29054 Wallop) "economically devastating lawsuits"); 29041 Bumpers) (relating fears "runaway jur[ies]"). fact court, challenge adverse inordinately unusually concerned invoking safeguards protect 27 Finally, argues insofar waives Government's sovereign immunity, construe waiver narrowly. Lane Pena, 518 187, 192 (1996); Lehman Nakshian, 453 156, 160 161 (1981). There immunity Whether, waiver, same phase distinct concerning how waived administered. relationship goals doctrine unclear, ordinary presumptions apply. view here, consideration, lowering costs resolving disputes, threaten, helps protect, public fisc. apply specially strict standard case, decide, met here. taken together history, absence convincing power, produce evidence satisfies stricter 28 For these reasons, III asks affirm alternative grounds Circuit's judgment Circuit considered "asked damages." 994. added "he did, government's failure-to-exhaust obviously non-starter." Ibid. concluded did "put notice seeking satisfy law's requirements, even give sought He (1) requirement weak (2) request "monetary cash award," (3) circumstances estop asserting "no exhaustion" case. 30 These fall presented petition certiorari. Roberts Galen Va., 525 ___, ___ (1999) (per curiam). remand determine questions been properly raised and, so, them. 31 32 vacated, remanded further proceedings opinion. 33 ordered. Kennedy, J., dissenting 34 whom Chief Justice, Scalia, Thomas join, dissenting. 35 rules governing well established, majority's unsettling today. Relief unless immunity. Army Blue Fox, (1999). expressed unequivocal text implied. (Slip op., 4); (1996). Even "strictly construed, scope, sovereign," 5); accord, Lane, 192, " 'this long decided limitations upon consents sued strictly observed exceptions thereto implied,' (1981), quoting Soriano 352 270, 276 (1957). Not reserve over fisc branch Constitution placed background settled principles relied enacting various authorizing suits Tucker Act, 1491; §10(a) Administrative Procedure 702; Tort Claims 2671 waivers authorize States' unambiguous terms. 36 16(b), compliance pay," effects some purposes. Unlike similar statutes, mention 1311(b)(1)(B), 1405(g) (1994 ed., Supp. III). types statement required establish awards. Nordic Village, 503 30, (1992) ("Though [11 106(c)], too, unambiguously extends monetary claims"); 192. 37 Nor include, necessary implication, phrase intended, majority maintains, incorporate violations provisions, obvious phrase's "expand" adopted. Ante, 5. 38 far clear, moreover, all. subsections §717(d) (incorporating relating actions), explicit provisions. addition, specific given statute backpay nature. Burke, 504 229, (1992). interpretive canons noscitur sociis ejusdem generis suggest nature i.e., remedies," furthermore, connotes discretion hallmark equity. plausible, perhaps best, then, grants traditional Whether better reading, should suffice beyond express As consequence, 39 1981a States. Although courts §1981a empower money one forum effect forums. McElrath 426, 440 (1880) ("[The declare what sued, prescribe pleading practice suits"); Great Northern Life Ins. Co. Read, 322 47, (1944) ("The consent suit more, field state court"); Case Terrell, Wall. 199, 201 (1871) (The extend courts). 40 attempt persuasive. provides: 41 punitive allowed (b) section, addition 706(g) §717; used (1980). "civil action[s]" natural, therefore, understand 717" proceeding §1981a(a)(1), 1964." "court" provision, incorporated §717(d), actions" §717(c); 1981a(a)(1)'s §706(g) confirms actions. 43 Other "[i]f jury; inform [on awards] described (b)(3) section." disputed contemplates overseen With due majority, guarantee "if §717(c)," ante, 9; obtain damages," 44 While falling short embracing own, flirts contention allowing juries lowers protects me protective group deem themselves empowered funds fellow employees. When advantages insisting expertise experience awarding additional high visibility, chooses ask appellate review. factors disregarded seems instead convenience necessity financial advantage 45 events, speculation overcome rule 46 express. extent relies textual analysis, establishes (if all) awards, read. legislative extratextual sources, contradicts our precedents course, today "[a] statute's supply appear clearly text." U.S., 192; 'unequivocal expression' elimination insist expression text. If clarity exist there, supplied committee report"). respect, I dissent.

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