Document: 535 U.S. 137 HOFFMAN PLASTIC COMPOUNDS, INC.v.NATIONAL LABOR RELATIONS BOARD. No. 00-1595. Supreme Court of the United States. Argued January 15, 2002. Decided March 27, CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR DISTRICT COLUMBIA CIRCUIT Petitioner hired Jose Castro on basis documents appearing to verify his authorization work in States, but laid him and others off after they supported a union-organizing campaign at petitioner's plant. Respondent National Labor Relations Board (Board) found that layoffs violated Act (NLRA) ordered backpay other relief. At compliance hearing before an Administrative Law Judge (ALJ) determine amount backpay, testified, inter alia, he was born Mexico, had never been legally admitted to, or authorized in, this country, gained employment with petitioner only tendering birth certificate belonging friend Texas. Based testimony, ALJ precluded from awarding relief by Sure-Tan, Inc. v. NLRB, 467 U. S. 883, Immigration Reform Control 1986 (IRCA), which makes it unlawful for employers knowingly hire undocumented workers employees use fraudulent establish eligibility. The reversed respect citing its precedent holding most effective way further immigration policies embodied IRCA is provide NLRA's protections remedies same manner as employees. Appeals denied review enforced Board's order. Held: Federal policy, expressed Congress IRCA, foreclosed alien who has Pp. 142-152. (a) This consistently set aside awards guilty serious illegal conduct connection their employment. See, e. g., Southern Co. 316 31, 40-47. Since Co., deferred remedial preferences where such potentially trench upon federal statutes unrelated NLRA. supra, award reinstatement were not reenter country following voluntary departure when unlawfully reported them Naturalization Service retaliation union activity. Among things, there authority selection limited policy Nationality (INA), held that, order avoid potential conflict INA must be deemed "unavailable" (and accrual therefore tolled) during any period "lawfully entitled present employed States." S., 903. case controlled Steamship line cases. ABF Freight System, 510 317, 325, distinguished. 142-146. (b) As matter plain language, Sure-Tan's express limitation documented forecloses Castro, lawfully But need resolve whether, read context, applies aliens left States thus cannot claim without lawful reentry. question presented here better analyzed through wider lens, focusing legal landscape now significantly changed. cases established chosen remedy trenches statute outside competence administer, may have yield. Whether situation time precisely today. Two years enacted comprehensive scheme made combating central law. INS Center Immigrants' Rights, Inc., 502 183, 194, n. 8. extensive "employment verification system," 8 C. § 1324a(a)(1), designed deny are 1324a(h)(3). It also crime unauthorized subvert employer system documents, 1324c(a), offense committed obtaining petitioner. Thus, allowing would unduly explicit statutory prohibitions critical policy. encourage successful evasion apprehension authorities, condone prior violations laws, future violations. However broad discretion fashion dealing NLRA, so unbounded authorize sort award. Lack does mean gets scot-free. already imposed significant sanctions against petitioner, including orders cease desist NLRA conspicuously post notice detailing employees' rights unfair practices, sufficient effectuate national labor regardless whether accompanies them, 904, 13. 146-152. 237 F. 3d 639, reversed. REHNQUIST, J., delivered opinion Court, O'CONNOR, SCALIA, KENNEDY, THOMAS, JJ., joined. BREYER, filed dissenting opinion, STEVENS, SOUTER, GINSBURG, joined, post, p. 153. Ryan D. McCortney argued cause With briefs Maurice Baskin. Paul R. Q. Wolfson respondent. brief Solicitor General Olson, Deputy Wallace, Arthur Rosenfeld, John H. Ferguson, Norton J. Come, Emad Arbab.* CHIEF JUSTICE REHNQUIST Court. 1 awarded We hold (IRCA). 2 Hoffman Plastic Compounds, (petitioner Hoffman), custom-formulates chemical compounds businesses manufacture pharmaceutical, construction, household products. In May 1988, operate various blending machines "mix cook" particular formulas per customer Before being position, appeared December Rubber, Cork, Linoleum, Workers America, AFL-CIO, began production several organizing distributed cards co-workers. 1989, engaged these activities. 3 Three later, 1992, respondent selected four employees, layoff "in rid itself known supporters" violation 8(a)(3) (NLRA).1 306 N. L. B. 100. To violation, (1) (2) detailed regarding order, (3) offer affected Id., 107-108. entered into stipulation Counsel agreed abide 4 June 1993, parties proceeded owed each discriminatee. On final day hearing, testified Mexico 314 683, 685 (1994). He gaining Ibid. used fraudulently obtain California driver's license Social Security card, Hoffman. Neither nor offered evidence applied intended apply contrary 883 (1984), B., 685-686. 5 September 1998, ALJ's decision, nine fired, backpay. 326 1060. Citing earlier decision A. P. Fuel Oil Buyers Group, 320 408 (1995), determined "the accommodate [IRCA] [NLRA] employees." $66,951 plus interest. 1062. calculated date Castro's termination first learned status, 4½ years. 1061. A member affirmed all 1062 (opinion Hurtgen). 6 petition Appeals. panel review. 208 229 (CADC 2000). After rehearing en banc, court again 639 (2001). granted certiorari, 533 976 (2001), reverse.2 7 exemplifies principle select though generally broad, see, NLRB Seven-Up Bottling Miami, 344 344, 346-347 (1953), unlimited, Fansteel Metallurgical Corp., 240, 257-258 (1939); 46-47 (1942); Bildisco & Bildisco, 465 513, 532-534 (1984); 902-904. inception, we Fansteel, "sit down strike" led confrontation local law enforcement officials. award, saying: "We unable conclude compel retain persons employ conduct, — invest those go strike immunity discharge acts trespass violence employer's property, enjoyed remained work." 255. 9 Though no themselves criminal acts. five whose shipboard amounted mutiny 10 "It observe commissioned single-mindedly wholly ignore equally important [c]ongressional objectives." 47. 11 Although did fact violate statute, rejected view, finding interpretation far removed expertise merited deference 40-46. accordingly enforcing Bankruptcy Code, see 527-534, 529, ("While should given some deference, proposition likewise novel"), claims antitrust defer Connell Constr. Plumbers, 421 616, 626 (1975), selecting pursuant own Interstate Commerce Act, Carpenters 357 93, 108-110 (1958). 12 Our Sure-Tan followed closely analogous challenged here. There confronted between then 66 Stat. 163, amended, 1101 et seq. companies alien-employees (INS) Rather than face sanction, voluntarily departed Mexico. investigated acted §§ 8(a)(1) ensuing directed reinstate pay six months' 13 determination workers, reasoning laws "as presently written" "`peripheral concern'" aliens. 892 (quoting De Canas Bica, 424 351, 360 (1976)). "For whatever reason," "made separate offense" alien, "to accept entering illegally." 892-893. Therefore, "no reason application practices affecting necessarily terms INA." 893. 14 remedies, however, See id., 903 ("In devising obliged take account another `equally Congressional objective'" 47)). For example, prohibited effectively rewarding reinstating "a INA," conditioned proof reentry." "Similarly," stated: "[T]he `unavailable' "[I]n light practical workings laws," limitations appropriate even if "[t]he probable unavailability [NLRA's] more remedies." 904. 15 cites our 317 (1994), laws. Freight, employee's false testimony proceeding require narrow one," 322, "adopt rigid rule" testify falsely under oath automatically forfeit 325. differences this. First, expressly address could employee "serious misconduct" internal proceedings, 7, threatening kill supervisor, ibid. (citing Precision Window Mfg. 963 2d 1105, 1110 (CA8 1992)), stealing employer, Commonwealth Foods, 506 1065, 1068 (CA4 1974)). Second, implicate administered agencies, "most delicate area" "particularly careful choice remedy." Burlington Truck Lines, 371 156, 172 (1962). Third, misconduct issue, serious, renders underlying relationship provisions 3d, 657, (Sentelle, dissenting) ("The perjury provides sanctions; forbid perjurer job" (distinguishing Freight)). reasons, believe cases, rather Freight. 16 decisional background turn lower courts focus much attention particularly All agree Castro. thus, language right takes Brief 17-24. view. 642-646. Another Appeals, agrees Hoffman, concludes simply meant what said, i. e., "not States" Del Rey Tortilleria, 1115, 1118-1121 (CA7 1992); 7-20. controversy. isolated sentences definitively control, count merely persuasive dicta support think focused 17 required 1986, two prohibiting 101(a)(1), 100 3360, 1324a. previously noted, "forcefully" law." (1991). establishing 1324a(h)(3).3 regime. enforce it, mandates identity eligibility new hires examining specified begin work. 1324a(b). If applicant documentation, hired. 1324a(a)(1). 18 Similarly, unknowingly becomes while employed, compelled worker discovery worker's status. 1324a(a)(2). Employers punished civil fines, 1324a(e)(4)(A), subject prosecution, 1324a(f)(1). documents. 1324c(a). prohibits using attempting "any forged, counterfeit, altered, document" document issued person possessor" purposes 1324c(a)(1)-(3). Aliens attempt fines prosecution. 1546(b). dispute provisions. 19 Under regime, impossible party directly contravening congressional policies. Either tenders identification, subverts cornerstone IRCA's mechanism, direct contradiction obligations. asks overlook allow performed, wages earned, job obtained instance fraud. find, runs counter administer. like circumstances, lies beyond bounds discretion. 20 contends "reasonably accommodates" because, "inconsistent" IRCA. 29-42. argues because closed violating 37. criminalized misuse "it make violators ineligible back compensation flowing secured documents." 38. latter statement, course, proves little: understandably silent things What matters here, sinks both claims, criminally punishable nonetheless permit alien-employee illegally, continued successfully evading authorities.4 Far "accommodating" recognizing discounting it. 21 Indeed, trivializes condones encourages admits detained obeyed lost 7-8 416). Cf. 196, ("[U]ndocumented taken custody work") (construing CFR 103.6(a) (1991)). qualifies remaining inside illegally. 134 62, (Jacobs, concurring part part) ("Considering proceedings can span whole decade, small inducement prolong presence country"). mitigate damages, duty require, 901 Bottling, 346; Phelps Dodge Corp. 313 177, 198 (1941)), triggering violations, either willing workers. failed consider tension. 1063, (finding adequately mitigated damages interim mention findings documents).5 22 23 challenge. 140. These include setting forth practices. 100-101. will contempt fail comply orders. Warren 350 107, 112-113 (1955) (Congress gave power orders). "traditional remedies" "spur catalyst" them. ("This threat ... deterrent [NLRA]"). concluded "perceived deficienc[y] existing arsenal" "addressed action," courts. statement truer today.6 24 judgment 25 ordered. Notes: * Ann Elizabeth Reesman Daniel V. Yager Equal Employment Advisory Council al. amici curiae urging reversal. Briefs affirmance State New York Eliot Spitzer, Attorney York, Caitlin Halligan, General, Smirlock, M. Patricia Smith Seth Kupperberg, Assistant Attorneys respective jurisdictions follows: Janet Napolitano Arizona, Bill Lockyer California, Earl I. Anzai Hawaii, Thomas Reilly Massachusetts, Darrell McGraw, Jr., West Virginia, Anabelle Rodriguez Puerto Rico; American Civil Liberties Union Foundation Craig Goldblatt Lucas Guttentag; Federation Industrial Organizations Jonathan Hiatt, James Coppess, Michael Rubin; Employer David Schulz, Jeffrey Drichta, Wishnie; Project Rebecca Smith, Reif, Williams. Section discrimination regard tenure term condition discourage membership organization." 49 452, added, 61 140, 29 158(a)(3) Courts divided CompareNLRB 50, 56 (CA2 1997) (holding collect NLRA), Local 512, Warehouse Office Workers' 795 705, 719-720 (CA9 1986) (same), 1121-1122 1992) NLRA). checkered career Board, well. Compare Felbro, 274 1268, 1269 (1985) (illegal (1984)), 408, 415 (1995) notwithstanding Sure-Tan); Memorandum GC 87-8 Counsel, Impact Remedies Undocumented Discriminatees, 1987 WL 109409 (Oct. 1988) (stating IRCA), 98-15 Reinstatement Backpay Discriminatees Who Be Light Recent Precedent, 1998 1806350 (Dec. 4, 1998) IRCA). "authorized" she possess valid social security number card," 1324a(b)(C)(i), "other documentation evidencing finds, regulation, acceptable section," 1324a(b)(C)(ii). 1324a(h)(3)(B) (defining "unauthorized alien" "[not] chapter General"). Regulations implementing 274a (2001) Justice Breyer otherwise, pointing single Committee Report one House politically Congress,post, 157 (dissenting opinion) Rep. 99-682, pt. (1986)), slender reed, Bank One Chicago, Midwest Trust 516 264, 279 (1996) (SCALIA, judgment). Even assuming shed cited says nothing about initially stating Congress' view foreclosed. 88-9 Are "Undocumented Aliens," 1988 236182, *3 (Sept. 1, ("[T]he relevant committee report points out [that] powers NLRB. Clearly, intend overrule Sure-Tan"). Other observed "merely endorses within meaning NLRA." 2d, 1121 (citation omitted). issue bear scope When questioned oral argument tension affirmative mitigation duties Government candidly board examined detail." Tr. Oral Arg. 32. Government's entirely consistent IRCAPost, 161 opinion). 40-46 (1942), told us maritime 529-532 892-894, 902-905, INA. (1958) (rejecting position Act). less doing since unlike statutes, speaks criminalizes case. Because imposing punitive remedies,Republic Steel 311 9-12 (1940), open aliens, entitlement all, might constitute employer. 1119 discharged harmed sense "`award remedial, punitive, nature, individuals suffered harm'") 725 (Beezer, part)). find grounds, do "`punitive' hence Board." 905, 14. whom GINSBURG join, dissenting. I "runs to," "trenches upon," Ante, 147, 149 (IRCA)). agencies (including Department Justice) us, interfere implementation Rather, reasonably helps deter activity seek prevent. Consequently, lawful. ante, 142 (recognizing "broad" authority). dismissed trying organize crude obvious (1994 ed.); Transportation Management 462 393, 398 (1983). And especially choosing addressing Gissel Packing 395 575, 612, 32 (1969) (Board "draws fund knowledge own, special reviewing courts"). Nor circumstances serve critically purposes. Rutter-Rex 396 258, 263 (1969). Those involve victim compensation; deterrence, discouraging Nation's 152 (NLRA)); (1984) (same). Without possibility deterrence provides, impose future-oriented obligations law-violating weapons arsenal. 152. absence weapon, least once impunity. 415, 38 (without show interest "secure knowledge" penalties requirements notice"); cf. Golden 414 168, 185 (1973); EEOC Waffle House, 534 279, 296, (2002) (backpay incentive conduct); Albemarle Paper Moody, 422 405, 417-418 (1975) ("It certain prospect award" leads "shun dubious legality"). Hence necessary; credible; clear pay. Where "policy" warrant taking power? Certainly language. say submit documentation. 1324a(b); 1546(b)(1). They specific penalties, Ibid.; 1324a(e)(4), statutes' explicitly state how effect happen, hires, works, provisions? Must earned? laws? More point, impunity, secure assess monetary penalty? say. comfortably rest conclusion laws' thing, general purpose statute's prohibition diminish attractive force employment, "magnet" pulls immigrants toward 45 (1986). increase strength magnetic force, speculative realistically influence individual's migrate 410-415 (no factor); Patel Quality Inn South, 846 700, 704 (CA11 (aliens enter hope getting job," protection laws"); Peterson Neme, 222 Va. 477, 482, 281 E. 869, 872 (1981) (same); Arteaga Literski, 83 Wis. 128, 132, 265 W. 148, 150 (1978) very well force. That denial lowers cost initial (provided, victims aliens). thereby increases illegal-alien Were forbidden knowing circumstance today, 648 2001) perverse economic incentive, basic objective, serious. know prove for, Court's rule offers borderline encouraging risks, wink nod (given views) ultimately costs 30-32; 41, 47; Accounting Office, Garment Industry: Efforts Address Prevalence Conditions Sweatshops (GAO/ HEHS-95-29, Nov. 1994) (noting higher incidence areas large populations recognized considerations ensure "there advantage preferring aliens" "fewer incentives enter." 893-894. today accomplishes precise opposite. law's labor-law-related favor preservation, elimination, powers. (immigration seeks combat problem aliens' willingness "work substandard conditions starvation wages"); 893 ("[E]nforcement compatible policies" just mentioned held, foresees protect "workers immigrants." 891-893; 58. applying encompass effectively. Otherwise, KENNEDY put matter, "we leave helpless exploitative practices." Apollo Tire 604 1180, 1184 1979) (concurring presumably why wrote stated unequivocally authority. 58 (IRCA "undermine law, limit relations boards employees"). help upheld crime, namely, proceedings. 323. 326-331 stressing seriousness misconduct). unanimously retained "broad discretion" leaving ordinary perjury-related penalties. 325; 1621 (criminal perjury). distinguish "whether `serious misconduct' proceedings." 146. explain (assuming equivalent seriousness) lack matters, 1060, 1060-1062 (1998) (thoroughly discussing relevance policies); 412-414 adds "did agencies." when, administers supports "statute by" "agenc[y]." 329 (Scalia, judgment) officials' responsibility prosecuting "though illegal." rests implicit assumption ban assumption, tried explain, justified. 155-157. time, relies, 240 (1939), 47 little conclusion. correctly characterizes ones (more specifically, reinstatement). 142-144. different independent practice creating company union, 250, refusing recognize elected representative, 32-36, 48-49. responded sit-in mutiny. 252; 48. provided "good cause" discharge, severing otherwise justified 254-259; 47-49. By contrast, concerns cause." sever practice. inappropriate former (involving justifiable discharge) tells next appropriateness unjustifiable discharge), refers 903, "employees rely determining 146-147. so. Reiter Sonotone 442 330, 341 (1979) ("[L]anguage opinion" "read context" "parsed" statute). involved (with backpay) returned 888-889. leading Nothing suggests reach engage behavior. Finally, award's negative features together. summarizes "asks [1] [2] [3] fraud." 148-149. facts ordinarily work, able tailor alien's inability elsewhere. 901-902, (basing "representative employee"); Fuel, 416 (providing reasonable period); (cutting status). earned fraud determinative, tell portion story. compensates describes requires meaningful payment. Considered perspective, believed worked organizing. ignoring undermines public underlie Of believes necessary vindicate sees conflicting explained conflict. wrong, conclusion, substitute Board. reached carefully considering 1060-1062; 412-414. "with discriminating awareness consequences action" 174 charged enforcement, right. 1324a(e) (Immigration placed Justice, enforcement); Mead 218, 258-259, (Solicitor General's statements represent agency's position); Jean Nelson, 472 846, 856, (agency's regulation litigation "arrives authority"). is, least, one. Chevron Natural Resources Defense Council, 837, 842-843 (requiring uphold agency position). respectfully dissent.

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