Document: 499 U.S. 144 111 S.Ct. 1171 113 L.Ed.2d 117 Lynn MARTIN, Secretary of Labor, Petitionerv.OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION et al. No. 89-1541. Argued Nov. 27, 1990. Decided March 20, 1991. Syllabus The Occupational Safety and Health Act 1970 assigns distinct regulatory tasks to two independent administrative actors: petitioner Labor is charged with setting enforcing workplace health safety standards, respondent Review Commission responsible for carrying out adjudicatory functions. also requires a court appeals reviewing order treat as "conclusive" findings fact that are "supported by substantial evidence." In this case, having found CF & I Steel Corporation had equipped some its employees loose-fitting respirators exposed them impermissible coke-oven emission levels, the issued citation assessed monetary penalty against it violating regulation promulgated requiring an employer institute respiratory protection program. vacated citation, ruling facts did not establish violation regulation, which was sole asserted basis liability, since expressly only train in proper use respirators, whereas another states employer's obligation assure fit. Court Appeals affirmed, holding where, here, relevant regulations ambiguous, must defer Commission's reasonable interpretation rather than Secretary's interpretation, Congress intended delegate normal complement adjudicative powers possessed traditional agencies, including power " 'declare' law." Concluding one, assess reasonableness competing view. Held: A should when furnish but conflicting interpretations ambiguous under Act. Pp. 150-159. (a) It be inferred from Act's unusual "split enforcement" structure legislative history render authoritative necessary adjunct rulemaking enforcement powers. Secretary, promulgator better position reconstruct purpose particular regulations. Moreover, enforcer, comes into contact much greater number problems does Commission, more likely develop expertise assessing effect interpretation. Furthermore, dividing make enforce standards law interpreting would actors ultimately implementing policy objectives, outcome inconsistent Congress' intent combining Secretary. concluded intend endow traditional, unitary agency. Such agency permissibly uses adjudication engage lawmaking policymaking because has been delegated through necessarily interprets promulgated. plausible inference meant have type nonpolicymaking typically exercised agency-review context, such authorized review consistency language possesses no apply those making decision. Although established response concerns rulemaking, enforcement, leave employers unprotected prosecutorial bias, dispelled vesting factfinding body wholly enforcer; regulated parties protected biased reasonableness. Nor furnished course adjudication, mere "litigating position" undeserving judicial deference Court's precedents. Since action, post hoc rationalization it, assumes form provided embodied litigating before exercise promulgation standards. 150-157. (b) if reasonable. That subject same Administrative Procedure standard substantive applies any other power. decision initial means announcing may bear on adequacy notice parties, quality elaboration pertinent considerations, factors address Court, do so first instance remand. 157-159. 891 F.2d 1495 (CA10 1989), reversed remanded. MARSHALL, J., delivered opinion unanimous Court. Clifford M. Sloan, Washington, D.C., petitioner. John D. Faught, Denver, Colo., respondents. Justice MARSHALL 1 we consider question whom 1970, 84 Stat. 1590, amended, 29 U.S.C. § 651 seq. circumstances. We reverse. 2 * A. 3 (OSH or Act) establishes comprehensive scheme designed "to far possible . safe healthful working conditions" "every man woman Nation." 651(b). See generally Atlas Roofing Co. v. Comm'n, 430 442, 444-445, 97 1261, 1263-1264, 51 464 (1977). To achieve objective, different (Secretary); (Commission), three-member board appointed President advice consent Senate. §§ 651(b)(3), 661. 4 charges responsibility Cuyahoga Valley R. United Transportation Union, 474 3, 6-7, 106 286, 287-288, 88 (1985) (per curiam ). these 665. If (or designate) determines upon investigation failing comply standard, issue penalty. 658-659, 666.1 5 assigned "carr[y] functions" 651(b)(3). wishes contest afford evidentiary hearing "thereafter order, based fact, affirming, modifying, vacating proposed penalty." 659(c). Initial decisions made judge (ALJ), whose becomes unless grants discretionary review. 661(j). Both right seek adverse appeals, 660(a)-(b). B 6 This case arises effort compliance OSH relating emissions. Promulgated pursuant powers, maximum permissible emissions levels require employee certain CFR 1910.1029 (1990). An one officers revealed (CF I) 28 failed "atmospheric test" determine whether respirator provides sufficiently tight fit protect wearer carcinogenic As result being were exceeding limit. Based findings, officer $10,000 1910.1029(g)(3) (1990), "institute program accordance 1910.134." contested citation. 7 ALJ sided full subsequently granted I, 12 OSHC 2067 (1986). view, "respiratory program" referred respirators;2 individual employee's respirator, noted, stated namely, 1910.1029(g)(4)(i).3 OSHC, at 2077-2078. Reasoning, inter alia, 1910.1029(g)(4) superfluous, alleged 1910.1029(g)(3). 2078-2079. Because id., 2079. 8 petitioned Tenth Circuit, affirmed order. Dole (1989). respirator. thus framed regulations, Commission's, merited court's deference. 1497. held Commission'sinterpreta tion entitled circumstances, reasoning "the agencies" "[s]uch function encompasses Id., 1498. determined "certainly [be] reach alternate language," nonetheless one. 1500. therefore deferred without ibid. 9 thereafter writ certiorari. petition resolve conflict among Circuits Act.4 497 1002, 110 3235, 747 II 10 well "that agency's construction own deference." Lyng Payne, 476 926, 939, 2333, 2341, 90 921 (1986); accord, Udall Tallman, 380 1, 16-17, 85 792, 801-802, 13 616 (1965). situations meaning [regulatory] free doubt," give long "reasonable," Ehlert States, 402 99, 105, 91 1319, 1323, 625 (1971), is, "sensibly conforms wording regulations," Northern Indiana Pub. Serv. Porter County Chapter Izaak Walton League America, Inc., 423 12, 15, 96 172, 173, 46 156 (1975). applying complex changing circumstances calls unique prerogatives, presume authoritatively interpret component Ford Motor Credit Milhollin, 444 555, 566, 568, 100 790, 797, 798, 63 22 (1980). us actor—the Commission—did "interpretive" Act.5 11 put perspective, take account Under most schemes, combined single authority. See, e.g., 15 41 (Federal Trade Commission); 77s-77u (Securities Exchange 47 151 Communications Commission). Act, however, separated assigning respective functions authorities. separation exists within "unitary" agency, (APA) divide between separate personnel, see 554(d). Johnson, Split-Enforcement Model: Some Conclusions OSHA MSHA Experiences, 39 Admin.L.Rev. 315, 317-319 (1987). time called "jurisdictional" dispute Commission. U.S., S.Ct., 286. At could conduct notwithstanding motion vacate noted "enforcement Secretary," "[a] authority withdraw enter settlement discussions employer." 287-288. role "neutral arbiter," explained, "plainly extend overturning citation." 7, 288. issue, now infer statute, "necessary adjunct" promulgate national enjoys readily identifiable structural advantages over rendering promulgates question. virtue statutory encounters episodes resulting citations. Cf. Note, Employee Participation Proceedings, Colum.L.Rev. 1317, 1331, n. (reporting small percentage citations 1979 1985). Consequently, historical familiarity presumption delegates interpretive court, see, Mullins Coal Director, Office Workers' Compensation Programs, 484 135, 159, 108 427, 440, 98 450 (1987); supra, 797; INS Stanisic, 395 62, 72, 89 1519, 1525, 23 101 (1969), here invest actor best attributes. 14 supports conclusion. version originally passed House Representatives vested board, leaving 116 Cong.Rec. 38716 (1970), reprinted Legislative History (S. 2193, Pub.L. 91-596) (Committee Print prepared Subcommittee Senate Committee Public Welfare), pp. 1094-1096 (1971) (Legislative History). dispensed division responsibilities survives enacted legislation. Report explained "a sounder both "formulat[ing] rules seeing they workable effective their day-to-day application," allow hold politically "accountable overall implementation program." S.Rep. 91-1282, p. U.S.Code Cong. Admin.News 5175, 5184, 5185, 148. conclude expect possess For reason, reject Appeals' agencies." F.2d, 1498 (emphasis added). Within agencies—that agencies possessing structure—adjudication operates appropriate mechanism factfinding, NLRB Bell Aerospace Co., 416 267, 292-294, 94 1757, 1770-1772, 40 134 (1974); SEC Chenery Corp., 332 194, 201-203, 67 1575, 1579-1580, L.Ed. 1995 (1947). But cases, mode law-making rulemaking. Aerospace, 1770-1772; 202-203, 1580-1581. Shapiro, Choice Rulemaking Adjudication Development Policy, 78 Harv.L.Rev. Insofar means, cannot expected play role. This, too, said adjudicate. 16 think context. conception addition, course, 660(a) (Commission's factual "shall conclusive" evidence"). need viewed perform arbiter." Valley, 17 draws conclusion Congress, notes, bias. Construing consistent purpose, argues, protects Indeed, actions, according positions," our e. g., Bowen Georgetown Univ. Hospital, 488 204, 212, 109 468, 473, 102 493 (1988). 18 find important, overstated. clear adopted split-enforcement conventional 56, 5220, 195 (individual views Sen. Javits) (noting panel goes beyond APA defending "more closely [in] accor[d] notions due process"). understood begs just how depart model. Sponsors purported responding objection head's participation supervision investigations results officer, internal separations K. Davis, Law Treatise 18.8, 369-370 (2d ed. 1980). Vesting ALJ-review dispels concern. 19 harbor doubt objective achieved otherwise Giving substitute might slightly increase parties' overzealous interpretations. clearly frustrate implementation" objectives 8, 20 likewise unpersuaded contention will appear forms Our indicate positions" merely appellate counsel's "post rationalizations" advanced court. 473; Burlington Truck Lines, Inc. 371 156, 168, 83 239, 245, 207 (1962). occur after proceedings terminated, constitute it. Congress. 658. standard. 21 regularly employs less formal prior issuing These include rules, Marshall W 604 1322, 1325-1326 1979); cf. Whirlpool Corp. Marshall, 445 11, 883, 890, 154 (1980), publication guidelines, States Department Field Operations Manual (3d 1989). S. Bokat H. Thompson, 658-660 norms derive informal still weight Batterton Francis, 432 416, 425-426, 9, 2399, 2405-2406, 53 448 (1977); Skidmore Swift 323 134, 140, 65 161, 164, 124 (1944); Whirlpool, 890. certainly consult consistently applied factor bearing position. 1323. III emphasize narrowness holding. deal available indicia sever them. Subject constitutional limits, free, chooses, schemes conform structure. anything say today divisions comport 554(d) APA. although prefer 706(2)(A); 426, 2406. indicated, advances adjudication. counsel conceded oral argument, Tr. Oral Arg. 18-19, 20-21, 295, 1772; 220, (Scalia, concurring), Vehicle Mfrs. Assn. State Farm Mut. Automobile Ins. 463 29, 43, 103 2856, 2866, 77 443 (1983), 24 urges unreasonably interpreted (1990) case. However, occasion Rather ourselves, resolution 25 judgment reversed, remanded further opinion. 26 ordered. Assistant Health, who heads Administration. Labor's Order 12-71, 36 Fed.Reg. 8754 (1971); 8-76, 25059 (1976); 9-83, 48 35736 (1983). "For essential user properly instructed selection, use, maintenance. supervisors workers shall competent persons. Training provide men opportunity handle fitted properly, test face-piece-to-face seal, wear air period, and, finally, atmosphere." 1910.134(e)(5) part: "Respirator usage. (i) exhibits minimum facepiece leakage properly." 1910.1029. According "acknowledged [§ 1910.1029(g)(4)(i) ] applied," he cited wrong standard." 2067, 2078 Compare Brock Williams Enterprises Georgia, 832 567, 569-570 (CA11 1987) (deference Secretary); Steelworkers America Schuylkill Metals 828 314, 319 (CA5 (same); Donovan Amorello Sons, 761 61, 65-66 (CA1 1985) (same), Cardinal Industries, 373, 376, (CA6 Bechtel Power 803 999, 1000-1001 (CA9 1986) Western Electric, 565 240, 244 (CA2 1977) (same). challenge ambiguous. assume correct purposes analysis.

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