Legal Document

485 U.S. 360 108 S.Ct. 1184 99 L.Ed.2d 380 Richard A. LYNG, Secretary of Agriculture, Appellant,v.INTERNATIONAL UNION, UNITED AUTOMOBILE, AEROSPACE AND AGRICULTURAL IMPLEMENT WORKERS OF AMERICA, UAW, et al. No. 86-1471. Argued Dec. 7, 1987. Decided March 23, 1988. Syllabus Under § 109 the Omnibus Budget Reconciliation Act 1981 (OBRA), no household may become eligible to participate in food stamp program while any its members is on strike, or receive an increase allotment stamps it already receiving because income striking member has decreased. Appellee unions and union brought suit Federal District Court, contending that unconstitutional. The court granted appellees summary judgment issued a declaratory judgment, holding statute unconstitutional grounds interferes with appellees' associational rights strikers' expressive under First Amendment, violates equal protection component Due Process Clause Fifth Amendment. Agriculture appealed decision directly this Court 28 U.S.C. 1252. Held: 1. Section does not violate Pp. 364-369. (a) infringe individual right associate their families unions. It prohibit individuals from dining together associating conduct nor other way "directly substantially" interfere family living arrangements workers' ability combine assert lawful rights. Even if isolated instances can be found which have left his order for purpose, overwhelming majority cases "exceedingly unlikely" will effect at all. Cf. Lyng v. Castillo, 477 635, 106 2727, 91 527. Constitution require Government furnish funds maximize exercise association minimize resulting economic hardship. 364-368. (b) abridge express themselves about matters free coercion by Government. Rather than exacting payments individuals, coercing particular beliefs, requiring political activities support views they disagree, merely declines extend additional assistance strikers simply strike caused decline income. Abood Detroit Bd. Education, 431 209, 97 1782, 52 261, distinguished. confer entitlement such governmental as necessary realize all advantages expression. P. 369. 2. since rationally related legitimate objective avoiding undue favoritism private labor disputes. Although work least some discrimination against households, must defer Congress' view disbursement persons damages program's public integrity thus endangers goals. fact harder "voluntary quitters" render irrational, neutrality concern arise respect latter persons. considered efforts avoid are evidenced 109's provisos preserving prestrike eligibility when refused accept employment lockout. OBRA was also enacted purpose protecting Government's fiscal cutting expenditures, and, although cannot pursued discriminating groups, permit disturb Congress, body having discretion how best spend money improve general welfare, passing along preferable undertaking budget cuts program. contention irrationally "strikes striker through family" without merit, generally operates ineligible person, determines benefits "household" rather basis constitutionally significant. 370-374. 648 F.Supp. 1234, reversed. WHITE, J., delivered opinion REHNQUIST, C.J., STEVENS, O'CONNOR, SCALIA, JJ., joined. MARSHALL, filed dissenting opinion, BRENNAN BLACKMUN, joined, post, p. 374. KENNEDY, took part consideration case. Lawrence S. Robbins, New York City, appellant. Walker McHugh, Little Rock, Ark., appellees. Justice WHITE Court. 1 A amendment Food Stamp states shall during time We decide whether provision valid Amendments. 2 * In Pub.L. 97-35, 95 Stat. 357, Congress package throughout Among measures contained were more dozen specific changes program, id., §§ 101-117.1 One them issue case, OBRA, set out margin.2 Committee Reports estimated measure alone would save total $165 million years 1982, 1983, 1984. H.R.Rep., 12; S.Rep., 63. 3 1984, two several requesting injunctive relief. Plaintiffs moved preliminary injunction, dismiss complaint action well within constitutional prerogatives. After hearing, denied both motions. 1241 (DC 1986) (Appendix). 4 Both sides conducted discovery cross-motions judgment. On November 14, 1986, plaintiffs' motion 1234. Specifically, three different grounds. First, threatens Amendment plaintiffs families, unions, fellow members, reciprocal members' them. Second, Third, As conclusion claim, mentioned somewhat deficiencies amendment: betrays animus unpopular minority, treats worse who quit job, impermissibly directs onus striker's actions rest family. Id., 1239-1241. 1252, we noted probable jurisdiction. 481 1036, 107 1970, 811 (1987). now reverse. II 5 deal first Court's These claimed infringements pressed finding "fundamental importance" been burdened, examine claims heightened standard review. Zablocki Redhail, 434 374, 383, 98 673, 679, 54 618 (1978). Since conclude either appellees, reject parts analysis. 6 challenge based asserted foreclosed reasoning adopted 527 (1986). There definition Act, 7 2012(i), parents, siblings, children live together, but distant relatives unrelated do so, single purposes defining stamps. case solely grounds, obliged statutory classification should reviewed stricter mere rational-basis review " 'directly substantially' interfere[s] thereby burden[s] fundamental right." U.S., 638, S.Ct., 2729. held did not, explaining "order prevent group together. Indeed, probably exceedingly unlikely close choose apart stamps, costs separate housing almost certainly exceed incremental value stamps." Ibid.; see 643, 2732 (BRENNAN, dissenting) (stating applicable); ibid. (WHITE, (same). same rationale applies true "prevent together." stamps,3 "in [the statute] all." Ibid. "order" dine togetherS arrangements." 8 appellee recognized "one foundations our society pursuit common goal means," NAACP Claiborne Hardware Co., 458 886, 933, 102 3409, 3436, 73 1215 (1982), recognition encompasses combination workers better See, e.g., Railroad Trainmen Virginia, 377 1, 5-6, 84 1113, 1116-17, 12 89 (1964). But interfere" purpose. Lyng, supra, 2729.4 conducting "prevent" burden so significant manner. just stated individual's remain leave her household, seems continuing promote objectives. 9 Prior indicate impact various purposes. Lincoln Union Northwestern Iron & Metal 335 525, 530-531, 69 251, 254, 93 L.Ed. 212 (1949), example, where State forbids employers restrict union, enforcement state policy despite claim closed shop "is 'indispensable self-organization into unions.' Similarly, Board Directors Rotary Int'l Club, 537, 548, 1940, 1947, 474 (1987), Clubs admit women "does clubs abandon alter" basic goals therefore those upheld laws exerted much direct substantial threat freedoms here.5 10 Any results refusal wage Denying makes maintain exerts pressure union. Strikers off available, right. "We contexts [including Amendment] legislature's subsidize Regan Taxation Representation Washington, 461 540, 549, 103 1997, 2003, 76 129 (1983). Exercising inevitably risks hardship, inclined hold requires result qualifying 11 Ohio Bureau Employment Services Hodory, 471, 1898, 513 (1977), unemployment compensation thrown dispute lockout, saying involve discernible interest." 489, 1908.6 complaining worker there nonstriking employee parent company subsidiary clear enough obtained had employees applied compensation. B For reasons, agree abridges Appellees rely 261 (1977). read providing claim. Abood, challenged law required certain pay fee representative ruled violated insofar allowed used ideological disagreed objected, terms "compelled make . contributions purposes." 234, 1799. observation "at heart notion believe he will, one's beliefs shaped mind conscience coerced State." 234-235, By contrast, exaction individual; "coerce" belief; disagree. leads And explicitly even prohibits coercive interference rights, 'does freedom.' Regan, 550, quoting Harris McRae, 448 297, 318, 100 2671, 2688, 65 784 (1980).7 III 13 Because here interest "affect particularity protected class," 1908,8 confine Department Moreno, 413 528, 533, 2821, 2825, 37 782 (1973). stressed typically quite deferential; legislative classifications "presumed valid," Massachusetts Retirement Murgia, 427 307, 314, 96 2562, 2567, 49 520 (1976), largely reason "the drawing lines create distinctions peculiarly task unavoidable one." Dandridge Williams, 397 485, 90 1153, 1161-62, 25 491 (1970). 14 Appellant submits serves Most obvious, given source cut federal expenditures. limited available need likely greatest, approach thought justify strikers. Third being provide one-sided strikes; Senate Report indicated intended remove perception criticism. 62. 15 little trouble concluding one side declared: "Public demands end subsidization temporary loss strike. responsible labor-management disputes." establish serve weapon disputes; passed alleviate hunger malnutrition strengthen agricultural economy. 2011. "allowing damaged integrity" these served acted response problems. 16 difficult deny works households. duration households though occasioned qualify itself ignored. Yet position sought address problems identified. faces immediate often drop controversy pitting employer lead large number long endures. constitutes concern, dangers believed important remedy. instance "what wise social policy." Dandridge, 486, 1162. 17 scope extent ineligibility quitters."9 See F.Supp., 1253-1254 (Appendix A); compare CFR 273.1(g) (1987) 273.7(n). disputes who, another, jobs. context, "provides only 'rough justice,' treatment far irrational." 491, 1909. draw satisfaction most sharp-eyed observers meet limitations imposes setting. authorized ignore disputes, statute. proviso preserves "immediately prior strike." 2015(d)(3). second apply "to contain refuses plant site lockout." light this, maintaining 18 foregoing, determine proffered justifications suffice. relevant note programs, whole, 493, 1910. This mean pursue saving groups. draws allocations finite pool resources deferential, welfare lodged courts. Bowen Owens, 476 340, 345, 1881, 316 "Fiscal considerations compel choices afforded entire benefited class." 355, 1884-85 (STEVENS, dissenting). reduce amount deductions recipients. further areas, judged pass provisos. us 19 contend irrational "critical" "impermissibly strikes family." 1240. This, however, nothing description matter, acknowledged Whenever takes hampers requirements, quitting job failing comply work-registration suffers accordingly. never questioned constitutionality basis, recently validity Act's embodies "on 'household' basis." 636, 2728. That aspect today. 20 21 Reversed. 22 KENNEDY 23 whom BLACKMUN join, dissenting. 24 today declares "little trouble" denial objective. Ante, 371. ease reaches reflected brevity analysis: gives short shrift argument centerpiece briefs oral argument. I dismissive fail register full force canvassing many absurdities afflict amendment, fails muster deferential scrutiny. affirm below. thrust Act—§ 1981, codified 2015(d)(3)—singles special punitive reasonable justification. observes, allegedly arbitrary implicates intrusive review—the so-called "rational basis" test, 'rationally interest.' "1 370, note, review, 'is toothless one.' Mathews De Castro, 429 181, 185, 431, 434, 50 389 Lucas, 495, 510, 2755, 2764, 651 (1976). test contains substantive choice: enactments implicate goals, means chosen legislature bear rational relationship alternative formulation, explained prescription "all similarly situated treated alike." Cleburne Living Center, Inc., 473 432, 439, 105 3249, 3254, 87 313 (1985); Plyler Doe, 457 202, 216, 2382, 2394, 72 786 (1982); Reed Reed, 404 71, 76, 92 30 225 (1971). 26 recent years, struck down variety using test. cases, legitimate. Hooper Bernalillo County Assessor, 472 612, 2862, 86 487 Zobel 55, 2309, 672 (1982). employed goal. Lindsey Normet, 405 56, 862, 31 36 (1972); 76-77, 254-255. addition, occasion combined approaches, essence lack between purported suggests illegitimate. 450, 3260; 534, 2825-26. failure take seriously systematically irrationalities identify reconcile precedents. 27 asserts points denying containing contends channels needy. Finally, maintains fosters legitimate, discern amendment. arguments seeking fraught pervasive inconsistencies. Secretary's proves too much. According reasoning, exclusion benefit survive scrutiny, always decrease true, State,' ante, 373, 1910, expressly "a preservation standing hardly allocating resources." 227, 2400. insisted arbitrary. 470 254; Shapiro Thompson, 394 618, 633, 1322, 1330-31, 600 (1968). Our something invocation fisc demonstrate rationality selecting strikers, group, suffer cost-cutting legislation.2 29 Perhaps recognizing necessity, defends singling channeling 'genuinely need.' Brief 17, 119 Cong.Rec. 24929 (1973) (remarks Rep. Young). threshold presence "needy" financial stamps: former requirements 2014 (1982 ed. Supp. IV), after strike-fund counted point poignancy infants worker. Their nourishment logical diminished action. what buffer malnourishment disease justified targeting needy: record below bears witness heartbreaking fashion.3 argues, sense willingness work, strict eligibility. excludes unwilling work—and households—the argues consistent exclude well, ground "unwilling work," business, eyes, akin unemployed day work. flaw false factual premise. "remains him." Reply Memorandum 4. Many complete cessation business' operations, return unavailing. Moreover, businesses continue operate hire permanent replacements workers. situation longer option returning fact, reveals permanently replaced employers.4 jobs, "willingness work" falls glaring disparity reasons. People voluntarily jobs disqualified if, notice "good cause." 273.7(n)(1)(i), (vi) (1987).5 agency good cause, voluntary quitter period days, quitter's "head household." 273.7(n)(1)(v). opportunity cause," frequently allege unfair practices precipitated strike.6 matter minimal contribution household's been, business operations temporarily cease. 32 similar vein, distinguishes nonstrikers conditioning Unemployed refuse otherwise appropriate involved lockout still stamps—as Only "willing every salient respect, give up cross picket line.7 provides justification especially harsh C 33 Unable explain completely rationale, relies heavily yet third rationale: promotion explanation rejecting last rationalizes discrepancies quitters, line. explains it, excluding participation avoids "undue disputes" preventing 'subsidization' strikes. 371, S.Rep. 97-139, 62 (1981). notes accepted version context" 372. 34 reliance Hodory misplaced. became reasoned partially funded contributions. "[t]he employer's go laid-off qualified collect unemployment. stop rising settle Qualification acts lever increasing pressures 492, inapplicable context. Employer form benefits, instead revenues; receipt places employer. 35 More important, "neutrality" merits deceptive deeply flawed. superficial level, treat parties evenhandedly: forepersons management ceases Management's course lessened funds, whereas struggle unaided. labor's "fault," illegal management, abide collective-bargaining agreement bargain faith. deeper reflects profoundly inaccurate modern dispute. connected complex web supports incentives. hand, wide health, education, welfare-related benefits. myriad tax subsidies deductions, depreciation, credits, loans Small Business Administration (SBA). Businesses lucrative contracts invoke protections Bankruptcy creditors. None made contingent businesses' abstention cause subsidy. small troubles seek loan SBA. 661 seq. net operating presumably carry back forward five advantage. 172, 381, 382. appears credits hiring replacement Targeted Jobs Tax Credit BNA Daily Labor 68, A-6 (April 10, 1987). When viewed network withdrawal stamps—a critical continued life health family—cannot seen "neutral" act. Altering backdrop devastating amounts penalty neutrality. D (1985), concluded insubstantiality each city's ordinance suggested rested prejudice mentally retarded." 3260. successive rationales likewise enactment rests toward history precursors Beginning 1968, four regular intervals proposals identical eventually 1981. Such rejected 1971, 1972, 1973, 1974, 1977. Each proposal discussed floor House, Representatives decried "antiunion" "antistrike" motivated it.8 1977, House one, follows: 38 "The real restore government lost but, contrary, use worker—or accurately family—to help break strike..... 39 effort power over workers, collective bargaining." H.R.Rep. 95-464, 40 am mindful expressed 1977 opposed evidence statements amendment's opponents. Rather, supporters likened "hippies" "commune residents"—groups whose ago (1973).9 exhortation sponsor 1971 colleagues "say said hippies," 117 21673 (1971) Michel), strongly sort hostility informed amendments, until 1981.10 warning Moreno bare congressional desire harm politically constitute interest," 2826, seem applicable instant find heed inexplicable illconsidered. 41 "[i]t today, precisely purpose—one admittedly irreconcilable No adequately reserved enactment. invalidation dissent. Included redefining unit, reducing gross (except elderly disabled), adjusting levels 101, 104(a), 105, 106, 115. billion dollars 97-158, pp. 11-13 (1981) (hereafter H.R.Rep.); 52-70 U.S.Code Cong. Admin.News 396, 442-460 S.Rep.). "Notwithstanding law, exempt registration defined section 142(2) title 29, (other lockout) 152(9) 29: Provided, lose going immediately increased household: Provided further, 109, 361, "have told agencies learned disqualification 1237 1986). spouse couple subsequently divorced. Affidavit Mark Dyer, &Par; 4-8, App. 25-26; Deposition 82-83. abandoned membership another line membership. 1237. Some voted ratify agreements less favorable wished, wages lesser degree, previous decisions "are heavy-handed frontal attack, stifled subtle interference," Bates 361 516, 523, 80 412, 416-17, 480 (1960), abridged individuals' freely. Healy James, 408 169, 183, 2338, 2347, 266 (1972). none indicates "will affect existing 1947. found, compulsory disclosure lists organization, led harassment, physical threats, reprisals worked restraint upon petitioner's freedom association." Alabama ex rel. Patterson, 357 449, 462, 78 1163, 1171, 1488 (1958). "restricts impose liability another" lacks intent aims promoted group. 919-920, 3428-3429, facts "significant" magnitude like Patterson Hardware. Exposing civil poses greater danger organization activity undertaken organization. Equal Protection Fourteenth application raised guaranteed implicated there. Sherbert Verner, 374 398, 83 1790, 965 (1963), Free Exercise woman religious allow Saturday. decision, "was decided significantly context imposed 'governmental obligation neutrality' originating Establishment Freedom Religion Clauses Amendment." Maher Roe, 432 464, 475, n. 8, 2376, 2383 53 484 contexts, inapposite shown infringed State's man unable proposition class entitled Clause. City Charlotte Firefighters, 426 283, 286, 2036, 2038-39, 48 636 (1976); 2390. (1973), counsel otherwise. 2826 (emphasis original). statement usual test: objective, saved defense relates illegitimate interest. Accordingly, examined 2825. quits days. Thereafter, registers job. 273.7(n)(1)(v) striker, unless 273.1(g). scrutiny protect interests unconvinced well. question Statistics rarely met participated Accounting Office study periods studied, percent fifth period, included 1978 coal 64 participate. 127 12157 Sen. Levin). apparently account very percentage outlays. Statistical information collected 1975 accounted 0.2 0.3 non-public-assistance participating 128 Declaration Donald Bivens, ("My younger sick great was, part, due nourishment"); Johnie B. Blake, (finding "nearly impossible get adequate [household of] seven people" strike); Barm Combs, daughter Jennifer Ann, serious kidney problems, missing needed medical medication"); Robert J. Shorb, Jr., 47 ("[O]ur eat. Therefore, send grandparents nourishment"). Ray Westfall, 51; Supplemental 14-15; Gibson, 34; Zola Higgins, 37. "Good cause" regulations includes, inter alia, "[d]iscrimination age, race, sex, color, handicap, national origin beliefs," 273.7(n)(3)(i) "[w]ork conditions unreasonable, working paid schedule," 273.7(n)(3)(ii), degree risk safety unreasonable," 273.7(i)(2)(i), incorporated reference 273.7(n)(3)(vi). 36-37; Paul David Michel, 39-40; 51-52. registering accepting interim employment. subject acceptance applicants casts considerable doubt ensure recipients work." 2827, (existence fraud provisions "necessarily could abuses"). 116 42019 (1970) (decrying apparent anti-strike aspect" proposed amendment) Conyers); 21675 ("This come it; can. base mean-spirited, vindictive vengeful") Foley); 118 23376 (1972) ("Those hope assist breaking cruel amendment") Koch); 24931 punitive, antilabor, antiunion, unfair, discriminatory") 24934 ("I think say segment doing like") Casey); 120 20614 (1974) (noting convicted felons, alcoholics "only people") O'Hara). (We students, hippies, others—'. you poor, look your own help' ") Michel); ("[I]n early college commune residents entered minds proponents") Goodling). remarks Congresses Nonetheless, length frequent references colloquies see, 21672 Michel) (referring 1970 debate); 24933 Casey) 122-127 (1977) (canvassing 1968 1977), suggest earlier discussions decision.

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