Legal Document

535 U.S. 81 RAGSDALE et al.v.WOLVERINE WORLD WIDE, INC. No. 00-6029. Supreme Court of the United States. Argued January 7, 2002. Decided March 19, CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR EIGHTH CIRCUIT The Family and Medical Leave Act 1993 (FMLA or Act) guarantees qualifying employees 12 weeks unpaid leave each year encourages businesses to adopt more generous policies. Respondent Wolverine World Wide, Inc., granted petitioner Ragsdale 30 medical under its policy in 1996. It refused her request for additional permission work part time terminated when she did not return work. She filed suit, alleging that 29 CFR § 825.700(a), a Labor Department regulation, required grant because it had informed 30-week absence would count against FMLA entitlement. District summary judgment, finding regulation was conflict with statute invalid than FMLA-compliant one year. Eighth Circuit agreed. Held: Section 825.700(a) is contrary beyond Secretary Labor's authority. Pp. 86-96. (a) To determine whether valid exercise Secretary's authority issue regulations necessary carry out FMLA, see U. S. C. 2654, this must consult Act, viewing as "symmetrical coherent regulatory scheme," Gustafson v. Alloyd Co., 513 561, 569. Among other things, subjects an employer interferes with, restrains, denies employee's rights, 2615(a)(1), consequential damages equitable relief, 2617(a)(1); requires post notice rights on premises, 2619(a). require, addition, give written will be considered leave. 825.208. Even assuming requirement valid, categorical penalty breach Act. punishes employer's failure provide timely designation by denying any credit before notice, unconnected prejudice employee might have suffered from lapse. entitled even if he acted same manner been given can sue 86-89. (b) This incompatible FMLA's remedial mechanism. prevail 2617, prove violated 2615 interfering restraining, rights. then, 2617 provides no relief unless has prejudiced violation. In contrast, establishes irrebuttable presumption restrained. There empirical logical basis presumption, facts case demonstrate. shown taken less, intermittent, received notice. fact physician clear until long after period ended. Blind reality entire complied regulations, company rendered liable denied her. fundamentally alters cause action relieving burden proving real impairment their resulting prejudice. Government claims rule easier administer fact-specific inquiry, but Congress chose remedy requiring retrospective, case-by-case examination now seeks eliminate. instructs courts ignore 2617's command statutory harm. Agencies are authorized contravene Congress' manner. Cf. Mourning Publications Service, 411 356. 89-92. (c) unreasonable choice were circumvent provisions sake administrative convenience. Categorical rules reflect broad generalizations holding true so many cases inquiry into they apply at hand needless wasteful. However, fail hold run cases, here, justification disappears. See, e.g., State Oil Co. Khan, 522 3, 8-22. 92-93. (d) Inasmuch substantial relation harm also amends fundamental guarantee entitlement "total" 12-month period, compromise between employers who wanted fewer more. Courts agencies respect effect such compromises. subverts balance entitling certain mandate. 93-94. (e) That disproportionate inconsistent intent evident 2619, which assesses $100 fine willful general much heavier sanction violation supplemental requirement. P. 95. (f) considerable tension statute's admonition nothing should discourage adopting well aware employers, discouraged technical burdensome requirements, pushed down Act's minimum standard, yet 825.700(a)'s severe, across-the-board directed employers. 95-96. (g) bounds discretion exceeded does decide requirements themselves remedies consistent statute. 96. 218 F. 3d 933, affirmed. KENNEDY, J., delivered opinion Court, REHNQUIST, STEVENS, SCALIA, THOMAS, JJ., joined. O'CONNOR, dissenting opinion, SOUTER, GINSBURG, BREYER, joined, post, p. L. Oneal Sutter argued petitioners. With him briefs Eric Schnapper. Malcolm Stewart States amicus curiae urging reversal. brief Solicitor General Olson, Deputy Kneedler, Howard M. Radzely, Allen H. Feldman, Nathaniel I. Spiller, Ellen Beard. Richard D. Bennett respondent. James Francis Barna.* JUSTICE KENNEDY Court. 1 Qualifying guaranteed Act), 107 Stat. 6, amended, 2601 seq. (1994 ed. Supp. V). policies, done so. example, Tracy cancer kept nevertheless brought suit FMLA. alleged 2 One these (2001), support Ragsdale's claim. We leave, judgment. 3 * began working factory 1995, following diagnosed Hodgkin's disease. Her prescribed treatment involved surgery months radiation therapy. Though unable during time, eligible seven sick Wolverine's plan. requested 1-month February 21, 1996, asked 30-day extension end followed. first six requests, missed consecutive position held open throughout, maintained health benefits paid premiums absence. notify her, however, 4 September, sought seventh extension, advised exhausted condition persisted, part-time basis. come back 5 Eastern Arkansas. claim relied takes "and designate entitlement." (2001). made, "not [her] Ibid. followed weeks, weeks. reinstatement, backpay, relief. 6 When parties cross-motions conceded specific maintained, granting — twice what required. judgment Wolverine. court's view because, effect, Appeals 933 (2000). 7 certiorari, 533 928 affirm. II 8 challenge concentrates validity single sentence 825.700(a). provision small structure devised pursuant directive "necessary out" 2654 ed.). particular fits within constraint weight. See O'Hagan, 521 642, 673 (1997) (citing Batterton Francis, 432 416, 424-426 (1977)). Our deference Secretary, important limits: A cannot stand "`arbitrary, capricious, manifestly statute.'" supra, (quoting Chevron A. Inc. Natural Resources Defense Council, 467 837, 844 (1984)). authority, we scheme." 569 (1995). 9 central 1-year events: disabling problem; family member's serious illness; arrival new son daughter. 2612(a)(1). During mandatory maintain group coverage. 2614(c)(1). granted, "medically necessary," intermittent 2612(b)(1). Upon return, reinstate his former equivalent. 2614(a)(1). makes unlawful "interfere restrain, deny of" violators subject appropriate 2617(a)(1). 10 number adopted policies terms far requires. encouraged much, mandating penultimate "[n]othing ... shall construed retaining comply Act." 2653. Some like Wolverine, allow 12-week annual minimum; others offer Dept. Labor, Cantor al., Balancing Needs Families Employers: Surveys 5-10, 5-12 (2001) (22.9% FMLA-covered establishments per year; 62.7% disability leave). As meet may counted toward 60 Fed. Reg. 2230 (1995) ("[E]mployers offset maximum entitlements policies"). 11 place, issued inform workers about relationship plans. make responsibility tell 825.208(a) Employers designation, along detailed information concerning responsibilities "within reasonable need two business days feasible." 825.301(c). addition explicitly set 2619(a) "keep posted, conspicuous places ..., notice... setting forth excerpts from, summaries of, pertinent subchapter pertaining filing charge." According comprehensive individualized ensure take 2220 today conclusion accords text instead "spoken precise question" Chevron, 842, foreclosed regulations. imposes design. 13 separate 825.700, "What FMLA?" relies: 14 "If 15 If undesignated more, always gives right is, view, irrelevant. Indeed, understand position, added full knowledge expected An deemed 2617. 16 prove, threshold matter, violation: only compensation lost "by reason violation," 2617(a)(1)(A)(i)(I), monetary losses sustained "as direct result 2617(a)(1)(A)(i)(II), "appropriate" including employment, promotion, 2617(a)(1)(B). tailored suffered. EEOC Waffle House, 534 279, 292-293 (2002) (provisions Title VII stating plaintiffs "may recover" "refer trial judge's order reinstatement award amount warranted case"). 17 contends, reflects understanding sometimes basic 2615. Consider, instance, 2612(b)(1) medically necessary. undergoes treatments every week over course want off earning paycheck saving later. qualifies know all FMLA-guaranteed consecutively remaining some future emergency. circumstances these, argues, could said "deny," "restrain," with" 18 reasonable, extreme embodied not. say situations violate entitle Rather, impaired deserves less noted dispute petition certiorari "Ragsdale's substantially longer twelve-week period." 3d, 940. December, still reality, 19 challenged way: relieves hand, permitted bring despite inability show actions restrained transformed company's refusal actionable sleight though By results absent showing harm, worked around limitations scheme. 20 defense notes involving steps "Regardless how problem agency address, `in enacted law.'" FDA Brown & Williamson Tobacco Corp., 529 120, 125 (2000) ETSI Pipeline Project Missouri, 484 495, 517 (1988)). nature, created purpose permit court inquire matters exercised actions. judge jury ask different considering, returned taking enact purporting kinds determinations courts, effect. 21 For reason, Government's reliance upon 356 (1973), misplaced. Just itself require 88, Truth Lending lenders disclosures mandated Mourning. sustaining observed disclosure Federal Reserve Board's rulemaking broader here. S., 361-362 1604 (1970 ed.) (empowering Board "to purposes [the statute]," proper prevent circumvention evasion [of statute], facilitate compliance therewith")). crucial distinction, although referred "remedial measure," 371, enforced through pre-existing scheme it. simply assessed applicable failed disclosures. id., 376. enforces way contradicts undermines preexisting While says command. previous decisions, included, do authorize 22 Furthermore, reconfigure convenience, choice. contexts, se antitrust illegality Continental T. V., GTE Sylvania 433 36, 50, n. (1977); Eastman Kodak Image Technical Services, 504 451, 486-487 (1992) (SCALIA, dissenting). when, restraint trade usually present pronounced risk injury competition 8-22 (rejecting ban vertical price fixing). said, generalization made redress holds few cases. anyway, course, leave; chosen say, week, 89-90 taken. sure, make-whole given. "fair assumption," 676, pattern occur most exceptional 23 extent substantive "a total workweeks Like key term piece legislation, figure groups marked divergent interests contested provision. weeks; R. Rep. 102-135, pt. 1, 37 (1991). resolved choosing middle ground, enough serve "the needs families" upset legitimate employers." 2601(b). 24 sorts Mohasco Corp. Silver, 447 807, 818-819 (1980). careful balance, period. often enjoy Under moreover, periods. 825.208(c) (an "is protections Act" preceding [FMLA] designation"). Here, least absence; not, sued. provision, turn, passed. merely authorizes extended liability answer does, argument carried day, 48 permissible. those mandate, 25 sole itself. above, 2619 directs informing 88. sets own noncompliance: "Any willfully violates section civil exceed offense." 2619(b). believed fine, violations specified sanction, employees, both inadvertent 26 intended pull up danger push time. knew, impose unforeseen liabilities varied federal requirements. 27 Although "provid[ing] FMLA," severe discontinue voluntary programs. Compliance easy companies meeting requirements: All designation. Matters quite diverse expansive options employees. allowing year, non-FMLA reasons, designated ("Leave reasons FMLA-qualifying [the] entitlement"). Those decide, almost soon requested, obvious, decision investigation. high good-faith erroneous characterization conclude simpler, route preferable one. 28 These considerations persuade us effects impermissible alteration framework power 2654. means enforcing them Whatever 42 ordered. Notes: Briefs ofamici reversal American Federation Industrial Organizations al. Jonathan Hiatt, B. Coppess, Judith Lichtman, Laurence Gold; National Employment Lawyers Association Ronald Schwartz Paula Brantner. Ann Elizabeth Reesman, Daniel V. Yager, Stephen Bokat, Robin Conrad, Heather MacDougall Equal Advisory Council amici affirmance. Jack Whitacre Human Resource Management curiae. 31 whom BREYER join, dissenting. 32 V), clearly precludes obligation. Because I believe justified think constrains ability secure refusing obligation, respectfully dissent. 33 begin question aside, ante, all. comment "prescribe light explicit congressional delegation uphold "arbitrary, statute." (1984). 34 reasonably determined implement provisions. fulfill purposes, ("The insure receive enable leave"). 2619(a), assurance Individualized reminds existence very moment become relevant. 825.301(b)(1) (notice include various obligations). 35 Perhaps importantly, indicates applies specifically. trigger employers' obligations, assert Act; seeking 825.208(a)(2). They protected therefore opportunity learn assists helps advantage (such 2612(b)(1), substitute accrued 2612(b)(2)), facilitates enforcement obligations obligation continue insurance coverage 2614(c)(1), restore 2614(a)). 36 informs plans employer-sponsored concurrently. planning, organize ultimately provided. Given arbitrary capricious. disagree, arguing that, §§ 2612(e)(1), 2613, respondent argues 38 indication exclusive. Nor sense Different functions. triggered allows use certification mechanisms provided 2613. advance foreseeable, planning. further objectives permissibly tool ends. 39 seem similar, requirement, serves significantly particularly useful otherwise never approach request, while targeted Moreover, identical, providing sort objectives, preclude bolstering accomplishing goals 40 Also fulfills concludes securing attempt exercise, subchapter." appears conflict. At times, seems suggest insofar enforce reinstated period), restricts bringing 91 (The "transformed 2615"). section, bear violation, recovery limited whatever 41 Court's effectively eviscerate scheme, feel refrain violating seriously impede goals. fear litigation go deterring failing discontinuing More potential goals, making range available them. Without option requesting asking vacation 2612(b)(2). knows restrict based denials statutorily thus equivalent justified, create way, rejected. suggests allowed lie 2615, notify. (suggesting "involving notice"). Appeals, "employer's interfere[s] [denies] rights." 939 (CA8 2000). 43 But there charged includes craft violations. where empowered 1604, deferred remedies, asserting "[w]e consistently minds differ several measures chosen, defer experience delegated authority." 371-372. 44 sorts, tie hands others. something maxim expressio unius est exclusio alterius intend statutes silent, 843, ought somewhat reduced force context. Texas Rural Legal Aid, Servs. 940 2d 685, 694 (CADC 1991). Mourning, agency's rejecting remedy, lacked penalty. equal statute, went related lender's finance charge. 92. holding, stated: 45 "[T]he objective delegating relieve impossible drafting code covering conceivable problem. then tailor deal precisely step thereafter finds necessary." 46 fall outside confirms exclusive implementing oral individual establishment goes Tr. Oral Arg. 28. treble damages, cease desist orders punishable contempt, or, case, leave? 47 unreasonable. reasonableness necessarily loss litigant. 377 (approving "prophylactic" rules). assertion too harsh. great punishment actually 93. bound, likely harms lack reasonable. is. variety served facilitating enabling denial difficult quantify retrospectively knowing given, plan compromised. (unaware qualifying) doubt 49 ways. First, 2612(a)(1) (d)(1). avoid regulation. extends obligations. Nor, notes, aspect 94. lengthier inappropriate, unreasonable, allotment. 50 onerous. situations, already knows: qualifying. eventually recordkeeping 2616(b). most, moves unsure begins qualifies, interim later confirmation. 825.208(e)(2) hardly "high price" complains. 51 Second, voluntarily requires, [more generous] policies," interpretive principle, removing discouraging matter important. ease minimal. 52 reverse remand proceedings.

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