Document: 466 U.S. 54 104 S.Ct. 1621 80 L.Ed.2d 41 EQUAL EMPLOYMENT OPPORTUNITY COMMISSION, Petitionerv.SHELL OIL COMPANY. No. 82-825. Argued Oct. 31, 1983. Decided April 2, 1984. Syllabus Section 707(e) of Title VII the Civil Rights Act 1964 (Act) authorizes Equal Employment Opportunity Commission (EEOC) "to investigate and act on a charge" that an employer has engaged in "a pattern or practice" employment discrimination. 706(b) provides such charge "shall be writing under oath affirmation shall contain information form as requires," further requires EEOC to "serve notice (including date, place circumstances alleged unlawful practice) [the] . within ten days" filing charge. An implementing regulation discrimination must "contain [a] clear concise statement facts, including pertinent dates, constituting practices." A Commissioner issued sworn against respondent employer, alleging it had violated by discriminating Negroes women "in recruitment, hiring, selection, job assignment, training, testing, promotion, terms conditions employment." The also specified occupational categories, access which been affected copy was served 10 days after filed. Thereafter, claimed "not supportable facts," when persistently refused provide with certain requested records data, subpoena duces tecum, directing turn over information. Instead complying subpoena, filed suit Federal District Court quash enjoin EEOC's investigation, unenforceable because failed disclose facts sufficient satisfy § 706(b)'s mandate. then amended allege identified practices continuing basis from at least effective date until present. When still comply request for information, requesting enforcement this consolidated respondent's suit. denied relief enforced subpoena. Appeals reversed, holding either regulation, should inform approximate dates practices, include enough other show those have some "basis fact," "statement circumstances" violations "supported factual statistical basis." Held: All strictures embodied pertaining content systemic timing adequacy afforded were adhered case, therefore entitled its Pp. 61-82. (a) In determining authority judicial subpoenas, effect given Congress' purpose establishing linkage between investigatory power charges If able insist obey despite complainant's failure file valid charge, desire prevent exercising unconstrained investigative would thwarted. Accordingly, existence meets requirements is jurisdictional prerequisite EEOC. And, purposes assumed compliance requirement 61-67. (b) prescription applied "pattern discrimination, construed follows: Insofar he able, issuing identify groups persons reason believe discriminated against, categories positions they excluded, methods may effected, periods time suspects practiced. here, amended, plainly satisfied these standards. 67-74. (c) specific provision give fair nature allegations it, not impose substantive constraint authority. Properly construed, EEOC, reveal all included itself current version regulation. Because case provided filed, comported satisfied. 74-81. 676 F.2d 322 (8th Cir.1982), reversed remanded. Richard G. Wilkins, Washington, D.C., petitioner. Robert E. Williams, respondent. Justice MARSHALL delivered opinion Court. 1 1964, regulations promulgated thereunder govern manner notified wrongdoing contained therein. question presented how much before secure administrative compelling personnel material relevant 2 * On September 27, 1979, Eleanor Holmes Norton, Chair respondent, Shell Oil Company, "has continues violate Sections 703 707 Blacks females race sex respect App. Pet. Cert. 44a. Wood River Refinery locale statutory violations. addition, six racial seven gender discrimination.1 As originally drafted, did specify began. St. Louis Office October 16, 1979. accompanied cover letter various Refinery, later. 3 course discussions next several months, took position "the facts." 91. defense position, "multi-county area" surrounding that, view, "appropriate local labor market Refinery." 90. Respondent argued percentages so defined compared overall workforce refinery (and who recently hired, promoted, accepted into refinery's training programs), became apparent engaging 90-91.2 submitted aggregate statistics supportive arguments but data unless answered series questions regarding furnished substantiating answers. 4 more evidence, could evaluate contention proper constituted Standard Metropolitan Statistical Area but, rather, smaller area proposed 95. answer concerning numbers employed refinery, referred 16.2 Compliance Manual, sets forth standards adopted selecting employers suspected One targeted investigation consists "employers employ substantially proportion minorities and/or their higher paid than lower categories."3 thus alerted fact contentions based upon work force conclusively establish guidelines. bases, rejected suggestion withdrawn reiterated files. 5 persisted refusal 1976 accordance regulations, petitioned Director revoke modify altered one minor respect, otherwise relief. General Counsel upheld decision ordered 18, 1980. 6 complying, Eastern Missouri Commission's investigation. alleged, inter alia, mandate VII, 42 U.S.C. 2000e-5(b). Subsequently, Norton "had July 1965, present."4 requests action Southern Illinois seeking That transferred brought 7 block inquiry 523 F.Supp. 79 (ED Mo.1981). court reasoned section 706 only initiate state make out prima facie case." Id., 86. basis, argument "that Commissioner's does Ibid.5 8 panel reversed. (CA 1982). found provisions governing specificity accused own contents 325. held thereof "should practices" " 'some fact.' Ibid. (quoting v. K-Mart Corp., 526 121, 125 Mich.1981). 325-326.6 court's foregoing petition rehearing en banc denied. 689 757 Cir.1982).7 9 We granted certiorari resolve confusion notices obtain subpoena.8 --- ----, 103 1181, 75 429 (1983). now reverse. II A. amended,9 prohibits involving "race, color, religion, sex, national origin." §§ 2000e-2, 2000e-3. Primary responsibility enforcing entrusted 2000e-5(a). 11 form, "an integrated, multistep procedure" enables detect remedy instances See Occidental Life Insurance Co. 432 355, 359, 97 2447, 2450, 53 402 (1977). process begins employer10 practice. aggrieved individual member Commission. two situations. First, victim reluctant himself fear retaliation, behalf victim. Ibid.; 29 CFR 1601.7, 1601.11 Second, think discriminatory conduct, his initiative. 2000e-6(e). 12 Prior 1972, different governed individuals Commissioners. Aggrieved parties required simply oath." Pub.L. 88-352, 706(a), 78 Stat. 259. By contrast, "reasonable cause violation [Title VII] ha[d] occurred," obliged "set[ ] [the was] based." Ibid.11 part comprehensive set amendments dealing powers, Congress eliminated special applicable Commissioners' charges. present statute "[c]harges requires." 13 enacted, prescribe any period delivered. require 14 After conducts therein.12 connection inquiry, inspect "any evidence person being investigated proceeded relates covered investigation." 2000e-8(a). obtaining exercise powers conferred National Labor Relations Board 161, issue subpoenas subpoenas. 2000e-9. If, completing determines there true," "endeavor eliminate practice informal conference, conciliation, persuasion." 2000e-5(b).13 prove ineffectual, empowered bring civil employer. 2000e-5(f)(1). 15 At relationship three steps integrated procedure just described: charge; him; allegations. It structure steps—the subpoena—are closely related. indicated above, tied Commission; unlike federal agencies possess plenary demand see matters jurisdiction,14 "relevant 16 legislative history makes limitation accidental. Senators Clark Case, "bipartisan captains" responsible during Senate debate, explained Interpretative Memorandum: 17 "It important note conduct can exercised writing. significantly narrower Trade Wage Hour Administrator, are authorized investigations, records, subpenas [sic], whether complaint wrongdoing." 110 Cong.Rec. 7214 (1964) (citations omitted). 18 1972 revamped retained linking outstanding charges, nothing suggests intended expand range materials access. 19 construing we strive complainant hold 706(b), 2000e-5(b), EEOC.15 20 promptly less clear. define do mention requirement. 2000e-8; And sharpened added therewith There substantial doubt resist efforts enforce ground adequately "date, employer's done charge.16 21 For reasons, however, decline decide troublesome case. noncompliance legitimate action.17 our conclusion Part II-C, infra, renders unnecessary determine judgment withstand scrutiny if so. short, solely today, assume B 22 prescribes minimal merely However, last-mentioned clause, provides, part, "[e]ach 1601.12(a)(3) (1983).18 Until rescinded, rule binding well complainants. United States Nixon, 418 683, 695-696, 94 3090, 3100-01, 1039 (1974); Service Dulles, 354 363, 388, 77 1152, 1165, 1403 (1957). 23 no statute; Norton's made oath. validity fairly challenged concluded 1601.12(a)(3). F.2d, To assess conclusion, explicate crucial portion discrimination.19 24 Three considerations, drawn guide analysis. equivalent initiating lawsuit. function someone (either party claiming Commissioner) believes title. undertakes Only Commission, collected cause" practice, matter adversary proceeding. 25 prescribed VII. "relevant" 2000e-8. especially constraining. Since enactment courts generously term virtually might cast light employer.20 undoubtedly aware concept "relevance" implicitly endorsed leaving intact definition authority.21 hand, relevance requirement, careful construe what goes fashion nullity. 26 Third, ability impaired. "complex pervasive" problem extirpated thoroughgoing remedies; "[u]nrelenting broad-scale patterns discrimination" essential achieved.22 "[i]t most computations analyses patterns" thought best where 'pattern practice' litigation warranted" pursue it.23 707, Commissioners charges.24 Our interpretation undercut powers. 27 With considerations mind, proffered interpretations Commissioner, "pattern-or-practice" reading phrase duty injured, injuries occurred. But construction radically limit developed complex procedures identifying serious Manual (1981). staff reviews annual reports Contract Programs Department combines garnered sources employers' practices. 16.3(a), (c). resulting composite picture matches standards,25 presents report recommending 16.3(d), (e). agrees recommendation, files stage reason, manifestations net effects basis. rarely single instance gained records. Thus, how, cut short investigations. result manifestly inconsistent intent. 28 somewhat moderate discriminations founded. 325-326. This little recommend it. undergirds suspicions surely "constitute" practices; Appeals' proposal unsupported plain language More importantly, sustained none purposes. would, effect, oblige substantiate initiates true. Such obligation procedure. disclosure way access, because, statute, disgorge regardless strength evidentiary foundation allegations.26 imposition precipitated enable recalcitrant action, challenge disclosures appeal adverse ruling issue. hamper expeditiously claims Rejection proposals discussed imply permitted evident regulation—to encourage complainants precision muster complained of. render nugatory concerns sensible context pattern-and-practice cases 30 victims putative equal access.27 "recruitment, charged illegal since Act. conclude complied practices."28 C 31 sense supplement far additional principles policies. Most effectuate incorporating provision. Though sparse, principal objective seems accusations leveled them soon expect become prone postponing ready begin mandatory notification pending it.29 response complaints unfairness charge.30 indication designed ensure idea envisioned authority.31 32 absence history, infer intent use "circumstances" misconduct, contends, charge," thereby reviewing "objective verifiable method Commission] ha[s] investigate." Brief 30. Respondent's reconstruction reasoning prompted adopt same strengthened provision, committed. plausible explanation change wished footing private party: neither level objectively suspicion outset procedure.32 Rather, determination postponed completed inquiries. highly unlikely having deliberately freed sub silentio reinstated requiring practices.33 them. 33 Finally, explicating keep view general objectives whole. dominant title, course, root employment. policies, latent bear us. enacted hoped voluntarily act. hope proved overly optimistic, recalcitrance many compelled strengthen powers.34 abandon wish remedied without resort courts, evidenced retention suit, attempt disputes through conciliation. Ford Motor 458 219, 228, 102 3057, 3063, 73 721 (1982). contemplates will create retain treatment members minority groups.35 Both assist policing demonstrate dictates, documents destroyed. U.S., 372, S.Ct., 2457. 34 assessment competing possible read told specification occurred, reject analogous C.F.R. charges: drastically supra, 70-71. 35 (as it) presently 72-73. seem informing areas discriminated, inclined, undertake sort alert impending inadvertently destroyed.36 36 asks us kind described summary invitation. relied easily encompassed phrase, practice"; thus, support construction. advance provision's Disclosure clearly necessary Nor aid preserving forthcoming revelation good-faith effort past misconduct future prior relieve inquiry. Moreover, 1602.7, 1602.11; cannot plead ignorance figures Commissioner. analyzed materially staff's analysis committed rather situations serious, maintenance successful 'systemic case' significant positive impact opportunities available women." 16.1 (BNA 1981).37 37 Any marginal advantage, facilitating voluntary well-intentioned employers, entailed offset concomitant impairment potent weapon hands interest Act, instead delay long investigations always open district enforced. difficulties making responsibly appeals judgments slow obtains authorization proceed inquiries.38 38 1601.12(a)(3), III 39 find thereunder, Consequently, contrary remanded proceedings consistent opinion. 40 ordered. O'CONNOR, whom Chief BURGER, POWELL, REHNQUIST join, concurring dissenting part. I agree written. declined come grips threshold case: Is inadequate (EEOC Commission)? not, Court's concern meaningful impede wholly unfounded. inclined negative, ante, 65-66, 75-77, proceeds assumption properly briefed. addressed. 43 While Company (Shell) maintained throughout unlawful, conceded point. cited 66, n. 17, Government raised concession here Government's briefs contrary, entire thrust weighing notice. government adamantly lawful need been, quashed. government's link enforceability unquestionably crystalline. bound sound text. 44 broad flexibility precisely laid regulations. erred 45 my correctly inadequate. quite informative itself. simultaneously direct furnish adequate allegedly underlying 46 Systemic triggers four separate coordinated steps—furnishing charge—can understood three. 47 (1) Filing "alleging ." aggrieved." Alternatively, "Commissioner's decides complaint, usually identifies "systemic" comparing hiring. event, Charges generally 180 2000e-5(e). flexible: formally suggesting 48 "[a] go state: 49 "Notwithstanding paragraph section, receives written sufficiently precise parties, describe cure technical defects omissions, verify clarify amplify therein." 1601.12(b) 50 Thus both even lacks full description 51 Internal guidelines According reprinted 40a-43a, looks meet profiles: 52 "who continue policies low utilization women"; (2) skills"; (3) women" categories; 55 (4) maintain recruitment discharge justified business necessity 56 (5) utilize restrictive "are likely used models employers"; 57 (6) fail "substantial opportunities." 58 Members compile patterns. passed successive stages review finally "memorandum detailing reasons showing selection applies respondent), justification scope case."1 Each recommendation signature. 59 Notice Once serve respondent] days. ."2 same, nor purpose, Before serving 2000e-5(a) (1970), House bill preserved notice.3 Senate's prevailed. 2000e-5(b) expressly Its prospective—to bounds ultimately discover. "includ[e] practice." basic retrospective—to agency hand absent naked allegation nevertheless say more, disclosing triggered first place. tools gather needed 1601.15(b). 60 Investigation 2000e-6(e), end vested power: 61 "In 2000e-5 designated representative reasonable times to, examination, right 62 Equally important, preliminary finding existed amendments,4 1972. House's liberal prevailed reflected enacted. 63 Disposition however remain dismiss press remedy. 64 Dismissal "there true." Again, prompt required. 65 appears valid, resolution problem. "If true, endeavor 2000e-5(b).5 attempts Attorney order: 66 thirty expiration [time limits political subdivision] unable conciliation agreement acceptable action. 2000e-5(f)(1).6 67 background furnishes face, Charge contains whatsoever 62-63. Instead, refers itself, attached "place" Shell's supplies "date" violations, includes sweepingly unspecific discussion Without elaboration, alleges recruit, hire, promote, train, assign select Blacks" broadly-defined select, females" categories. good measure states "include, limited to" specified. Over year violations: "from charge." 47a. escaped day effective. 68 brief, formal, uninformative "charge," appended entirely empty "notice," comport 2000e-5(b)'s two-paragraph piece vacuous legal boilerplate completely omits serves underlie 69 matter, Court, circumscribe contours selected targets judged desirable 70 them." Ante, 74. Report accompanying Amendments "included insure fairness due scheme," "[p]rotection rights respondent."7 Experience teaches abuse; conducted reasonably, carefully, fairly, concerned causes progress. 71 conserve resources moderating confrontational posture allowing explain points 79, helps preserved. 72 perhaps central scheme encouraging quick, voluntary, complaints. "attempt conciliation." 78. Act's overriding goal promote lawyers correct quickly effectively. end, "informal strict furnishing activities investigating appear subsection objective. Adequate involve intentional knowing misconduct. See, e.g., International Brotherhood Teamsters States, 431 324, 349, 1843, 1861, 396 purposes, discloses informs permit immediate remedial measures valid. company difficulty concluding requirements. 74 amendment characterized chosen convey possible. 1970-1977, Reply 4, yet tardily informed 1965-1981. uninformative. almost impossible imagine actions initiated unrealistic large like build elaborate program around accusation select" essentially grounded needs know greatest areas, gave rise imbalances, size rectify problem, expected recruit from, on. carefully marshalled categorically Shell. suggestion, 80, "cannot Commissioner" mistaken. half figures—its statistics. half—overall draws. comparison becomes apparent. disputed extraordinary comparative works market, tailored seriousness imbalances exist outset. 76 insistence secrecy incomprehensible. Shell, subsequent "stonewalling," design prompt, correction procedural start approach. proves recalcitrant. outset, main unambiguously establishes preferred course. deficient, deficiency rectified. places gain information: "relate[ sought Norton. "relates 2000e-8(a) presupposes indisputably notwithstanding generality. noted 3, vests absolute discretion constitutes narrowed fully met. notify charges—the permissible strong avoiding "mini trial" every discovery inappropriate turn, therefore, ado. raised, inadequate, directed better event order, consider appropriate sanctions. 2000e-9; 161. order pendent doubt. jurisdiction 2000e-5(f)(3), No principle ripeness exhaustion assiduously ignore while enforces California, 449 232, 238-245, 101 488, 492-495, 416 (1980), substitute purpose—encouraging charges—will irretrievably undermined barred considering proceeding dispute resolvable later controversy, justifies resolving opportunity. Cf. id., 246, 496. apparently disagree address Opinion 17. 81 door obstruct investigation: accuracy reasonableness justiciable stage. based, erroneous, inaccurate, incomplete, misleading, false, insufficiently substantiated, outdated, unreliable, providing unambiguous: true conclusion—not outset—of facet law clarified, refuse beginning IV 82 memorandum "detailing case," feel notified—it internal preparation sign absolutely supplying concealing take 83 vacate remand instructions sections provided: "More specifically, included, to: "1. Failing refusing managerial, professional, technical, office/clerical, craft, service worker race. "2. operative, laborer sex." buttress pointing facility last years. decade dismissed." 89. 16.2(c) 1981). 1979 Manual. explaining amendment, avered original she "intended therein occurring recent Ninth Circuit Dean Witter Co., 643 1334, 1338 (CA9 1980) (holding "good faith estimate probable [involved]"), prudent "clarify" each advanced respondent—e.g., Reports 3501 et seq., unduly burdensome. F.Supp., 84-85, 87. affirmed disposition issues, 322, 326 (CA8 1982), cross-petition certiorari, opinion, her party. derived program, modified respects, detail 325, 5. correspondence officers 92, 157. Judge Lay dissented denial, arguing "is supported logic precedent, severely undermine commissioner's 2000e-5." 759. variety approaches A.E. Staley Mfg. 711 780, 786-787 (CA7 1983), cert. pending, 83-401; 694 1055, 1063-1064, 1067-1068 (CA6 1982); Bay Shipbuilding 668 304, 312-313 1981); 1337-1338 1980). title 253 92-261, 86 2000e seq. Although covers agencies, organizations, joint labor-management committees, 2000e, 2000e-3, employers. few interpreting is] based" Rogers 454 234, 239 (CA5 1971), denied, 406 957, 92 2058, 343 (1972); Graniteville (Sibley Division) 438 32, 37-38 (CA4 1971). outcome turns issue, read, "facts." Local 104, Sheet Metal Workers 439 237, 1971) (adopting latter construction). arising system paralleling opportunity matter. 2000e-5(c), (d). finds exists, (if any) aggrieved. receiving notification, 43, 46(b) (Federal Commission). reached Courts considered 1061; 1337-1338; Appalachian Power 568 354, 355 1978); 35. suggested "each deliberate scheme—charge, notice, cause, conciliation—[is] condition precedent succeeding step action." Container Corp. America, 352 262, 265 (MD Fla.1972). germane us, taken forgiving relation sequence; uniformly proof bad prejudice bar party, see, Smith American President Lines, Ltd., 571 102, 107, (CA2 1978), Burlington Northern, Inc., 644 717, 720-721 Airguide 539 1038, 1042 1976). oral argument, Solicitor [may] proceeding." Tr. Oral Arg. 46. parties' common Especially procedure, loathe analytical path unmarked litigants. identical (1979). discrimination," "[a]ll [section 706, ]2000e-5." text, delegates empowers promulgate differentiate 1601.12, kinds considerable awkwardness try fit mold primarily claims. Under circumstances, task easier saw characteristics cases. Blue Bell Boots, Inc. 358 1969); cf. 243 (information pre-1965 inquiry). Arthur Young & 1495, 1501, ---- (1984) comparably expansive IRS pursuant 7602, workpapers correctness tax return). Associated Dry Goods 590, 599-600, 817, 822-23, 762 (1981); Section-by-Section Analysis H.R. 1746, 118 7166 (1972) ("In new intention indicated, applicability VII."). H.R.Rep. 92-238, pp. 8, (1971); S.Rep. 92-415, p. (1971), U.S.Code Cong. Admin.News, 2137, 2149. 2150. indications 14189 (remarks Sen. Pastore), law, 240-241, removed themselves pertain disparities pool number comparable, nearby premise nondiscriminatory will, time, whose composition approximates force, underrepresented. Hazelwood School Dist. 433 299, 307-308, 2736, 2741, 768 Some court, deciding "well founded" "verifiable." 6, 22, 27-28, Nothing assumption. 10, 13-14, 20, too indefinite illegitimate purpose. Powell, 379 48, 57-58, 85 248, 254-55, 112 (1964); Morton Salt 338 632, 652-53, 357, 368-69, L.Ed. 401 (1950). likelihood reversible error. 1, supra. prefaced identification averment that: [respondent's] include, introductory phrases rendered meaningless lists followed. quoted acknowledgment inquire outside already ensuring authority, destroy 35, infra. contends invalid erroneous satisfies 1601.12(b), "[n]otwithstanding ., of." words, extent injunction (a)(3) gives pleading exceeding (b), precatory. rules deference. argues layman, unfamiliar deficient excuse (a)(3). another varying facilitate trying rules. 19, Chromcraft 465 745, 747-748 1972); B. Schlei P. Grossman, Discrimination Law 942-943 (2d ed. 1983). section-by-section S. 2515, derived, accord respondents them, 4941 (1972). example, 2515 "Recognizing importance plays ideal justice, committee wishes emphasize scheme. advise violation. committee, days." (1971) (emphasis added). initially 92d Cong., 1st Sess., 3(a) (1971). abandoned "oath affirmation." Sess. Conference Committee reconciled bills points. S.Conf.Rep. 92-681, motivated choices did. suggests, nevertheless, Committee's adoption "under affirmation" (in conjunction addition requirement) retain—indeed reinforce—"the 'reasonable believe' standard" implausible. bind impress taker awareness tell truth, him value. McCormick, Evidence 582 1972). indicate practice," posit connection. sum, abandoning standard, meant loosen, tighten, constraints Note "reasonable" empower undisputed hard restriction power. 3-4, 8-9 4-5, Pursuant 2000e-8(c), 1602.14, months created and, resolved. gains credence consistency usual achieved filing. 1601.14 exception "providing functions Commission," ibid., suggest ever reflects obligations, Oscar Mayer Evans, 441 750, 761, 99 2066, 2074, 609 (1979); Griggs Duke 424, 433-434, 91 849, 854-55, 158 put point differently, pinpoint aspects depart dictates locate entail large-scale statute. Affording bringing law. FTC 241-243, 493-94, (1980) (judicial early phases results "interference functioning agency" "delay[s] ultimate violated"). stymied mean falls category tactics successfully improper ends. 43a. Similarly, "[i]n [against State] shall, taking State officials. 2000e-5(d). H.R.Conf.Rep. 92-899, recited "facts" conduct. (1970). part: "Whenever aggrieved, subchapter occurred based) public Commission." grant sixty alleged." General. 2000e-6(a).

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