Document: 464 U.S. 89 104 S.Ct. 439 78 L.Ed.2d 195 BUREAU OF ALCOHOL, TOBACCO AND FIREARMS, Petitionerv.FEDERAL LABOR RELATIONS AUTHORITY et al. No. 82-799. Argued Oct. 11, 1983. Decided Nov. 29, Syllabus The Civil Service Reform Act of 1978 (Act) in 5 U.S.C. § 7131(a) requires federal agencies to grant employees representing their union collective bargaining with the "official time . during employee otherwise would be a duty status." This allows negotiators paid as if they were at work, whenever bargain hours on duty. Federal Labor Relations Authority (FLRA) an "Interpretation and Guidance" general applicability construed 7131(a)'s official also entitling per diem allowance reimbursement for travel expenses incurred connection bargaining. In this case, Court Appeals enforced FLRA order requiring petitioner agency pay representative addition his salary, finding FLRA's interpretation statute "reasonably defensible." Held: constitutes "unauthorized assumption by [the] [a] major policy decisio[n] properly made Congress," American Ship Building Co. v. NLRB, 380 300, 318, 85 955, 967, 13 855. Pp. 96-108. (a) While reviewing courts should uphold agency's reasonable defensible constructions its enabling statute, must not "rubberstamp administrative decisions that deem inconsistent statutory mandate or frustrate congressional underlying statute," NLRB Brown, 278, 291-292, 980, 988-989, 839. 96-98. (b) Here, there are no indications legislative history Congress intended allowed theory engaged Government business. Act's declaration contributes efficient government therefore serves public interest does reflect dramatic departure from principles which applied prior passage pursuant program established Executive Order under had been regarded working Government. Nor do specific provisions aimed equalizing positions management labor suggest treated though "on job" all purposes. qualifying language right salary is conferred only when "the status" strongly suggests negotiator considered status while thereby entitled normal forms compensation. 106-107. (c) supported Travel Expense Act, 5702, authorizes "travelling business away designated post duty." Neither Congress' nor use term time" warrants conclusion business" 672 F.2d 732 (9th Cir.1982), reversed. Carolyn Corwin, Washington, D.C., petitioner. Ruth E. Peters, respondents. Justice BRENNAN delivered opinion Court. 1 Title VII ("Act"), Pub.L. 95-454, 92 Stat. 1111, 7131(a), agencies. ("FLRA" "Authority") concluded entitles representatives 2 F.L.R.A. 265 (1979). Ninth Circuit diem, Authority's (1982). Three other Courts have rejected construction Act.1 We granted certiorari resolve conflict, 459 ----, 103 784, 74 992 (1983), now reverse. * A. 3 part comprehensive revision laws governing rights obligations civil servants, contains first scheme relations between employees. Prior enactment VII, labor-management sector governed 1962 Order.2 regime, limited engage concerted activity, was most recently administered Council, body composed three Branch officials whose subject judicial review.3 4 new declaring "labor organizations service interest," 7101(a), significantly strengthened position unions carefully preserving ability managers maintain "an effective Government," 7101(b).4 expressly protects "to form, join, assist any organization, refrain such activity," 7102, imposes collectively good faith, 7116(a)(5) (b)(5). excludes certain prerogatives scope negotiations, although over procedures these exercised. See 7106. general, negotiate terms conditions employment, unless proposal existing law, rule, regulation. §§ 7103(a), 7114, 7116, 7117(a). Strikes activities illegal constitute unfair practices 7116(b)(7)(A). replaced management-controlled Council FLRA, three-member independent bipartisan within responsibility supervising collective-bargaining process administering aspects VII. 7104. Authority, role analogous National Board private sector, see H.R.Rep. 95-1403, p. 41 (1978), adjudicates negotiability disputes, practice complaints, unit issues, arbitration exceptions, conflicts conduct representational elections. 7105(a)(2)(A)-(I). adjudicatory functions, may formal rulemaking, 7134, specifically required "provide leadership establishing policies guidance relating matters" arising 7105(a)(1). seek enforcement orders United States Appeals, 7123(b), persons, including agencies, aggrieved final decision review those courts, 7123(a). B 6 Petitioner, Bureau Alcohol, Tobacco Firearms ("BATF" "Bureau"), Department Treasury, maintained regional office Lodi, California. Respondent, Treasury Employees Union ("NTEU" "Union") exclusive BATF stationed Lodi office. November 1978, notified NTEU it move Sacramento establish reduced location Lodi. informed wished move's impact unit. As agent Donald Pruett, steward who lived Madera, California Fresno. agreed meet Pruett offices discuss planned move. asked participation discussions classified so he could receive regular attending meetings. denied request directed take either annual leave without day meeting. 7 On February 23, 1979, met proposed inspected physical amenities, restrooms, dining facilities, parking areas. then drove where conducted similar inspection post. Finally, group repaired discussed After expressed satisfaction negotiated about matters arrangements, assignments, possibility excusing tardiness week operations Once parties reached agreement move, back home Madera. 8 spent 11 one half travelling meetings, driven more than 300 miles own car. When renewed meetings time, him did reimburse negotiations quarterly sessions mid-term like involved here. June filed charge claiming improperly compelled 23 sessions. 9 pending, issued salaries, expenses, allowances agencies.5 Interpretation relied provides "[a]ny negotiation shall authorized ." employee's entitlement provision extends "all agency, regardless whether pertain renegotiation basic agreement." F.L.R.A., 268. further determined negotiations. Id., 270. 10 Based NTEU's pending against Bureau, General Counsel complaint notice hearing, alleging committed refusing meetings.6 During course subsequent hearing before Administrative Law Judge, amended add claim that, paying Pruett's allowance. Following ALJ fact taken place Bound follow recent Guidance, failing comply 7131. Accordingly, ordered question, well costs stating same future exceptions which, September 1980, affirmed ALJ, adopting findings, conclusions, recommended relief. 40 (1980). sought Circuit, intervened party appeal. challenged both applies determination section payment deciding deference "reasoned supportable," 735-736, issues. 737, 738. Court, holding respect Only aspect Appeals' regarding issue II 12 case was, noted, premised earlier Guidance. Although we previously occasion consider often described appropriate standard contexts.7 Like Board, see, e.g., Erie Resistor Corp., 373 221, 236, 83 1139, 1149, 308 (1963), develop specialized expertise field give content goals set forth Act. 7105; (1978). Consequently, considerable exercises "special function applying complexities" relations. Cf., supra, S.Ct., 1149. Ford Motor 441 488, 496, 99 1842, 1848, 60 420 (1979); Iron Workers, 434 335, 350, 98 651, 660, 54 586 (1978); Truck Drivers, 353 87, 96, 77 643, 647, 676 (1957). hand, "deference owed expert tribunal cannot slip into inertia results unauthorized Congress." (1965). U.S., "rubber-stamp statute." 839 Allied Chemical & Alkali Workers Pittsburgh Plate Glass Co., 404 157, 166, 383, 390, 30 341 (1971).8 Guided principles, turn consideration 7131(a). III 14 Section full: 15 "Any chapter purposes, attendance impasse proceeding, status. number whom subsection exceed individuals purposes." 16 According House Committee reported bill containing 7131, used mean "paid time." 58 light clear expression intent, agree usual occur "otherwise Both 269, F.2d, recognized corresponding expression, extensive history, intent well. 17 Despite silence, respondents advance several reasons why payments consistent Each arguments proceeds providing bargaining, model shaped practice. place, according respondents, substituted vision negotiators, representatives, customary compensation, allowances.9 evaluate claim, necessary briefly compensation adoption 18 Under program, left discretion employing agency,10 apparently ground some control management, length impose too great burden Report President's Task Force Employee-Management Service, reprinted Legislative History Labor-Management Statute, 1177, 1203 (Comm.Print 1979) (hereinafter "Legis.Hist."). early scheme, view engaged, government, but rather "primarily organization." 44 Comp.Gen. 617, 618 (1965).11 19 11491, became 1970, cut previous even agencies' discretion. CFR 861-862, 873-874 (1966-1970 Comp.). Again, prohibition based work union, negotiating employers. Legis.Hist. 1167. 1971, however, recommendation amending obtain up maximum hours, 50% total Exec. 11616, 605 (1971-1975 authorization, self-support incentive economical businesslike practices," 1169, permit "overtime, premium pay, expenditures." 1264. 20 Senate version retained last Order's restrictions authorization time. S.Rep. 95-969, 112 U.S.Code Cong. Admin.News 2723. instead adopted present concluding, words congressman, "should carry out just uses responsibilities." 124 Cong.Rec. 29,188 (1978) (remarks Rep. Clay). H.R.Conf.Rep. 95-1717, 111 21 Respondents rejecting limitations repudiated government. postulated servants sides table compensated equally. Because views allowances, support view, rely "in interest" "contributes business," equalize labor. For instance, deduct dues employees' paychecks transfer funds cost, 7115(a);12 addition, furnish variety data useful process, 7114(b)(4). contend employed 7131 indicate 22 certainly advanced find so. regime To contrary, strong endorsement since creation 1962. See, 10988, 521 (1959-1963 Comp.) ("participation formulation implementation personnel affecting them business"); 861 ("public modern progressive facilitate improved performance efficiency" "benefited opportunity participate employment"). 29182 Udall) ("What really codify action President Kennedy setting framework employees").13 Indeed, subsidies supports precisely opposite conclusion. noted above, ultimately approach prevailed regime. 12. contrast, reference despite kinds received attention n. 11. There is, course, nothing negotiators. might penalized loss need subsidized allowances. collection dues, 7115, contemplated ordinarily expenses. 24 understanding Congress's phrase indicates treat "as doing government's purposes," attributes employment," Brief 24-28. They "leave pay," has statutes. 6321 (absence veterans attend funeral services), 6322(a) (jury witness duty), 6323 (military reserve duty). capacity" "duty liabilities privileges employment. 5751, 6322(b) (employee summoned testify expenses).14 25 difficulty respondents' argument provide acting capacity," job," Instead, obtains (Emphasis supplied). time," borrowed practice, meaning capacity."15 generally 10-12. Moreover, examples demonstrate, mere word "official" intends allow diems. Even explicit payments. 5751(b), 6322(b). itself, provided members Impasses Panel allowance, salary. 5703, 7119(c)(4).16 26 Perhaps recognizing authority found four corners alternatively allowance." Comptroller authorize "sufficiently business." 188, 189 (1964). upon certification served convenience agency. supra. 27 269. reasoning, notes 5702 broadly "quasi-official" activities, hearings privately-sponsored conferences. States, Management Operation Programs 1, App. I (Rpt. FPCD-77-11, Mar. 17, 1977); 31 346 (1952). each instances, question presumably clearly constituted explained, neither art government.17 IV 28 passing unquestionably strengthen make instrument 2-3. evidence, departed "proceed contrary extent antagonistic viewpoints concepts self-interest." Insurance Agents, 361 477, 80 419, 426, 454 (1960), quoted Contractors Association, Inc. Pennsylvania, 458 375, 394, 102 3141, 3152, 73 835 confer unconstrained economic management. 316-318, 966-967. conclude, therefore, decision[ ] 967. judgment 29 Reversed. Florida Guard 699 1082 (CA11 1983), cert. 82-1970; Agriculture 691 1242 (CA8 1982), 82-979; Division Military Naval Affairs 683 45 (CA2 82-1021. revised continued Comp.), Orders Nos. 11636, 11838, 605, 634 957 11491 1970. Certain employees, military Foreign Investigation Central Intelligence Agency, excluded coverage 7102(a)(2) (3). invited interested persons express Interpretation, Notice Relating Official Time, Fed.Reg. 42,788 (July 20, 1979), power promulgate regulations, 7105(a)(1), Respondent 10. 7118 part: "(a)(1) If organization charged having engaging investigate cause complaint. 7116 "(a) purposes chapter, agency— "(1) interfere with, restrain, coerce exercise chapter; "(8) fail refuse chapter." accordance Procedure (APA), 706. 7123(c). APA court "decide relevant questions interpret constitutional provisions, determine action." aside actions conclusions "arbitrary, capricious, abuse discretion, law" excess jurisdiction, authority, limitations, short right." 706(2)(A) (C). Petitioner accord little two reasons. First, contends largely reading administer. understand decision, derived primarily infra, 106. Second, argues Guidance less weight "interpretative rule" "administrative regulation." 5, did, afford broad 7105 attended least procedural characteristics rulemaking. 553. Compare FEC Democratic Senatorial Campaign Committee, 27, 37, 38, 45, 70 (1981), Electric Gilbert, 429 125, 141-142, 97 401, 410-411, 50 343 (1976). event, unnecessary rest our precise classification action. explain text, choices provided, conform applicable requirements law," 706(2)(A). Batterton Francis, 432 416, 424-426, 2399, 2404-2406, 53 448 (1977); FCC Pottsville Broadcasting 309 134, 137-138, 437, 438-439, 84 L.Ed. 656 (1940). engages quintessential what means. interpretation, particularly rests factual premises expertise, influential, bind court. supra; Zuber Allen, 396 168, 192-193, 90 314, 327-328, 345 (1969); Skidmore Swift 323 140, 65 161, 164, (1944). below, conclude 7131(c), appearing require 44771 30, 1979). interpreted consistently not, demonstrate correct. We, different considerations uniquely proceedings justify 7131(c). 10988 encouraged consultations free "during non-duty negotiations." 521, 524-525 contained available 1965 General, 617 (1965), concerning disbursements. 3529. following year, modified approved guidelines Commission. 46 21, 21-22 (1966). head certified representatives' "primary government." Ibid. An when, example, convenient particular site cost site. exception terms, General's act principally States. deductions fee service. Information Announcement, F.L.R.C. 676, 677 (1973). read Representative Udall's remark bound explicitly encourages field, undoubtedly areas enjoys freedom apply problems, remains faithful fundamental Congress. 7-8 8. 7135(b) (decisions remain effect superseded regulations thereunder). seemed distinction "leave" stated "is her Similarly, statement Clay responsibilities," 29188 "at work" benefits Employees' Compensation 8101 seq., create liability Tort Claims 136(b). statutes, enacting Our preclude making serve primary Furthermore, sector. Midstate Tel. Corp. 706 405 1983); Axelson, 599 91, 93-95 (CA5 many presently agreements. Letter 9, J.P. Stevens 239 738, 739 (employer remedy faith).

Category: 6