Legal Document

484 U.S. 439 108 S.Ct. 668 98 L.Ed.2d 830 UNITED STATES, Petitionerv.Joseph A. FAUSTO. No. 86-595. Argued Oct. 7, 1987. Decided Jan. 25, 1988. Rehearing Denied March 21, See 485 972, 1250. Syllabus In November 1980, the Department of Interior Fish and Wildlife Service (FWS) advised respondent, a nonpreference eligible employee in excepted service, that it intended to dismiss him for number reasons, including unauthorized use Government vehicle. After he was discharged without being informed grievance rights granted by FWS regulations, respondent sought review Merit Systems Protection Board (MSPB), which dismissed his appeal on ground under Civil Reform Act 1978 (CSRA) service has no right MSPB. 1982, reconsidered matter, concluded only 30-day suspension misuse vehicle warranted, offered backpay from date would have ended until program hired closed. On respondent's appeal, Secretary upheld decision, rejecting claims unwarranted entitled additional 30 days period beyond close program. Respondent then filed this action Back Pay Claims Court, CSRA exclusively applicable did not provide judicial situation. The Court Appeals reversed remanded, holding could seek traditionally available Tucker based Act, wrongful, suspension. Held: CSRA, affords eligibles administrative or adverse personnel type involved here, precludes those employees Act. designed replace haphazard arrangements had built up over almost century with one integrated system action. Act's comprehensive nature, its attention throughout employees, structure combine establish failure include these provisions here represents congressional judgment is available. Interpreting foreclose case contrary established principle statutory construction Congress will be presumed agency unless there "persuasive reason" believe otherwise. Here, view scheme, ample basis applying exception contained principle. Moreover, disfavoring repeals implication regard CSRA's effect Rather, classic task reconciling laws involved. Pp. 443-455. 783 F.2d 1020 791 1554, reversed. SCALIA, J., delivered opinion REHNQUIST, C.J., WHITE, BLACKMUN, O'CONNOR, JJ., joined. concurring opinion, post, ----. STEVENS, dissenting BRENNAN MARSHALL, joined, Christopher J. Wright, petitioner. John M. Nannes, Washington D.C., as amicus curiae support below. Justice SCALIA Court. 1 Joseph Fausto, an (FWS), suspended job because United States Federal Circuit held maintain suit alleging violation regulations. We certiorari decide whether (CSRA Act), Pub.L. 95-454, 92 Stat. 1111 et seq. (codified, amended, various sections 5 U.S.C. (1982 ed. Supp. IV)), situation agency's such suit. 2 * January 1978, officer Young Adult Conservation Corps camp Virginia Beach, Virginia. His position service,1 last duration at but September 30, 1982. 3 replied charges, received memorandum informing removed effective 16, 1981. That advise included formal hearing conducted examiner. Personnel Manual—231, pt. 370 DM, ch. 771, subch. 3, 3.22A (May 4, 1981).2 4 removal August 1981, Fausto v. Interior, PH 075281102271 (M.S.P.B. Aug. 27, 1981), aff'd, 738 454 (CA Fed.1984) (judgment order). 18, permanently closed Beach. response inquiry initiated behalf admitted been rights, opportunity challenge removal. grievance, June concluded, file hearing, should removed. found most charges against were de minimis warranted penalty, imposed 31 § 638a(c)(2) (1976 ed.) (now codified 1349(b)). February 15, ended, through claiming covered well FWS's decision. 6 1983, present 5596, dismissed, comprised exclusive catalog remedies civil servants affected 7 Cl.Ct. 459, 461 (1985). (1986), although afford MSPB, preclude them seeking 28 1491, F.2d, 1022-1023. merits Fausto's wrongful awarded Id., 1023-1024. denied Government's petition rehearing en banc, issued second panel reaffirming 1554 (1986). petitioned question nonveteran member may obtain, does review. II 8 recognized "comprehensively overhauled system," Lindahl OPM, 470 768, 773, 105 1620, 1624, 84 674 (1985), creating elaborate "new framework evaluating actions [federal employees]," id., 774, S.Ct., 1624. It prescribes great detail protections action, availability No provision gives members misconduct. we face withholding remedy meant rather merely leave free pursue before enactment CSRA. answer examining purpose entirety text, establishes. Lindahl, supra, 779, 1627; Block Community Nutrition Institute, 467 340, 345, 104 2450, 2453-54, 81 270 (1984). 9 A leading part "outdated patchwork statutes rules century" system, S.Rep. 95-969, p. (1978), U.S.Code Cong. & Admin.News 2723. Under pre-existing veterans enjoyed Commission (CSC), predecessor 7701 ed.). Other afforded Executive Order. Exec. Order 11491, 22, CFR 874 (1966-1970 Comp.), note following 7301 (extending CSC competitive employees). Still others, like classification, As courts: Since special proceeding relevant see 703, decisions CSC, decision unreviewed district courts forms used so-called nonstatutory suits mandamus, see, e.g., Taylor Comm'n, 374 466 (CA9 1967), injunction, Hargett Summerfield, 100 U.S.App.D.C. 85, 243 29 (1957), declaratory judgment, Camero McNamara, 222 F.Supp. 742 (ED Pa.1963). generally R. Vaughn, Principles Law 5.4, 5-21, nn. 13-17 (1976) (collecting cases). For certain kinds decisions, federal sort seeks here. See, Ainsworth States, 185 Ct.Cl. 110, 399 176 (1968). 10 Criticism "system" widespread. general perception "appeals processes [were] so lengthy complicated managers [in service] often avoid[ed] taking disciplinary action" even when clearly warranted. 9, 2731. With respect particular, dissatisfaction "wide variations . same similar matters," 63, 2785, product concurrent jurisdiction, bases all Circuits Claims. District Columbia repeatedly noted, beginning process court level, repetition essentially appeals, wasteful irrational. Polcover Treasury, 155 338, 341-342, 477 1223, 1226-1228 (1973). 11 responded enacting replaced scheme review, balance legitimate interests categories needs sound efficient administration. 4. Three main govern taken service. each sections, deals explicitly granting limited, some cases conditional, rights. 12 Chapter 43 governs unacceptable performance. applies both 4301. provides can reduced grade performance procedural must afforded, days' advance written notice proposed represented attorney other representative, reasonable time respond specifying instances 4303(b)(1). Although extended either final preference MSPB Circuit. 4303(e). 13 23 establishes principles merit employment, 2301, forbids engage "prohibited practices," unlawful discrimination, coercion political activity, nepotism, reprisal whistleblowers. 2302. Nonpreference who are positions confidential policymaking nature protected chapter, 2302(a)(2)(B), given practices" Office Special Counsel whose responsibility investigate and, where appropriate, remedial 1206. 14 75 "efficiency service," includes Subchapter I minor (suspension less), §§ 7501-7504, major (removal, more than days, reduction pay, furlough 7511-7514. subchapter, 43, 7503(b), 7513(b), accorded followed 7513(d), 7703. definition "employee[s]" (major action) specifically 7511(a)(1)(B), Management is, however, authority extend coverage status they excluded OPM regulation. 7511(c). 15 viewed exclusion definitional silence issue what receive come within II. therefore whatever quite differently. context entire think displays clear intent deny 75—including review—for chapter. 16 U.S., 345-348, 2453-2455, observed that, Agricultural Marketing Agreement 1937, omission procedures consumers milk market orders, coupled handlers affected, strong evidence obtaining Similarly, Erika, Inc., 456 201, 102 1650, 72 (1982), "precisely drawn provisions" Medicare statute, awards made Part B, "provides persuasive deliberately further claims." 208, 1654 (citations omitted). analysis fact 75, able demand Their scope hardly explained theory simply mind, since, noted earlier, provided optional inclusion (at election OPM) (Respondent, incidentally, falls category inclusion, ibid.; 213.3102(hh) chosen invoke.) seems us evident absence obtain uninformative consequence limited manifestation considered entitlement governed 75. 17 This conclusion emerges language, also elsewhere indicator nonreviewability, scheme. 2453-54; Southern Co. Seaboard Allied Milling Corp., 442 444, 456-459, 99 2388, 2395-2397, 60 1017 (1979). Two structural elements important purposes CSRA: First, preferred employees—competitive "preference eligibles" (veterans). 4303(e), 7501(1), 7503, 7511(a)(1), 7513. course innovation continuation traditional feature system. Veterans' Preference 1944, 287, 14, 58 390; 10988, 527 (1959-1963 Comp.). element primacy resolution disputes 1205, IV), enables development, unitary consistent Branch matters involving avoids "unnecessary layer review" lower courts, "[e]ncourages decisions. ." 52, 2774; 797-798, 1636-1637. 18 leaving avenues turn first upside down, seriously undermine second. former: view, 10-day misconduct, though not, since makes hence unavailable suspensions less days.3 inverted shown probationary another disfavored class. 4303(f)(2) (expressly excluding 43); 7511(a)(1)(A) 75); 45, 2767 ("It inappropriate restrict separate perform acceptably during [probationary period]"). "employee" persons retain their pre-CSRA apply well. And happens, very relied upon demonstrating employee. Greenway 163 (1963).4 19 manner interpretation obvious. random legally enforceable employment entitlements exist subject unifying authority, consistency fact-finding law, Second, eliminate, persist, 1636-1637, causes commenced instance appeals. Finally, actions, regional appeals country, undermining envisioned 7703 appealable Circuit, regardless brought court, 1295(a)(2), 1295(a)(3), 1346(a)(2), 445, Circuits. When, case, particular challenged office know follow law geographical conflicting This, consequences inherently implausible.5 20 Amicus contends interpreting two well-established construction. Abbott Laboratories Gardner, 387 136, 140, 87 1507, 1510-11, 681 (1967). agree principle, find contains. elsewhere, presumption favoring applied "strict evidentiary sense," "overcom[e] whenever 'fairly discernible scheme.' " 351, 2457 (quoting Data Processing Camp, 397 150, 157, 90 827, 831-32, 25 184 (1970)). Block, Congress' intention fairly discernible, "the [has been] overcome inferences whole." 349, 2456. 21 doctrine strongly disfavored, Rodriguez 480 522, 524, 107 1391, 1392, 94 533 (1987); Regional Rail Reorganization Cases, 419 102, 133, 95 335, 353, 42 320 (1974), later statute implicitly repealed earlier repugnancy between two, Georgia Pennsylvania Co., 324 439, 456-457, 65 716, 725-726, 89 L.Ed. 1051 (1945); Wood Pet. 342, 362-363, 987 (1842). means, asserts, absent express statement contrary, cannot interpreted deprive possessed 22 Once again do Repeal text thing; address language books wishes change. Morton Mancari, 417 535, 2474, 41 290 (1974) (Equal Employment Opportunity 1972, 86 103, 2000e (1970 ed., II), negate Indians expressly Indian 1934, 48 984, seq.). But repeal legal disposition implied something else. frequently done this—whenever, fact, interpret light surrounding texts happen subsequently enacted. many enacted time, getting "make sense" combination, necessarily assumes implications altered statute. By reason adopt today, stand repealed, remains operative set protect servants. All "repealed" Act—or, if you will, implication—allowing underlying giving rise claim backpay. To explicit: pertinent part: 24 "An who, timely determination appropriate rule, regulation, collective bargaining agreement, unjustified [is back pay]." 5596(b)(1) (emphasis added). Before regulations promulgated authorized correct, direct correction of, "appropriate authority" meaning 550.803(c) (with circularity reasoning) jurisdiction award Ct.Cl., 118-119, 181. Without disagreeing 444-445, (and any relying jurisdiction) determination. mean eliminated, conditions invoking way altered. Now, previously, undergone lie. Post-CSRA, itself, entities invoke rule akin derogation common strictly construed—that change implicit decline embrace 26 reviewing employees. Its deliberate establishing prevents Accordingly, 27 Reversed. concurring. join Court's marshals proposition "replac[e] administration." Ante, 445. believe, nor read majority suggest, our aversion recognizing "implied" weaker finds source specific texts. example, long Constitution itself supports private damages official, Bivens Six Unknown Fed. Narcotics Agents, 403 388, 91 1999, 619 (1971), courts' common-law power vindicate constitutional Davis Passman, 228, 2264, 846 (1979); Carlson Green, 446 1468, 64 (1980), lightly aside. whom MARSHALL join, dissenting. employing period. undisputed arisen prior passage (CSRA), proved allegations, recovered single word legislative history purports withdraw curtail previously enjoy relatives. wrong supplement carefully crafted piece legislation unnecessary unenacted repealer. 32 explain my profound disagreement nontextual reading shall comment state how statute—whose primary focus veterans—gave new withdrawing flaws reasoning majority. 33 respects Vitarelli Seaton, 359 79 968, 1012 (1959). this, non-tenured dictated Department's own assumed sufficient grounds discharge cause. Vitarelli, petitioner person "who concededly protection relating government 'Schedule A' employee, summarily reason." 539, 972. Nevertheless, having "chosen proceed security grounds, bound himself dealing cases, summarily." 539-540, 34 former Claims1 she regulations.2 Batchelor 169 180, 184, cert. denied, 382 870, 147, 109 (1965); 72, 76 (1963); cf. Watson 142 749, 162 755 (1958). executive remove suspend Such have, now generalized violated 35 contrast variety actions.3 Indeed, concern too much protection, management adjudicatory responsibilities, among factors led recognizes, "general 'appeals action' 9." 445.4 critical importance problem solved allocating functions (CSC) (OPM) (MSPB). 36 When background, readily understood exactly says more. Generally, necessary achieve reallocation virtue n. supra. addresses limitedly, expand, contract, them. extends prohibited practices (such retaliatory discharges discrimination) connection poor areas, grants benefits enjoyed. 37 Chapters 77 describe "cause." tenure cause, perfectly obvious why chapters. did, give Again, which, exercised, personnel. 38 Not suggests employees.5 added class familiarity already them,6 intend remedy. Merrill Lynch, Pierce, Fenner Smith, Inc. Curran, 381-382, 1825, 1840-1841, 182 (1982). reinforced careful amend conform CSRA,7 limit relief provisions.8 39 Given highly improbable make significant changes plainly realistic appraisal actual lawmakers drafted Bowen Michigan Academy Family Physicians, 476 667, 670-673, 106 2133, 2135-2137, 623 III 40 faithful implying existing remedy,9 broadens eliminate regularity affect thousands workers.10 remarkable conclusion, places reliance (1984), weight bear. decision: "In Erika asserted substantive instead prohibit provisions. hold different essential proper understanding recognize authorizes workers kind resolve case. act Congress, silently acts asserts has. arguments, appearing persuasive, superficial fail directly issue. thrust Supreme circuit circuits, cause sense authorize suit; say, explains, 'precludes' therefore, concludes, bars forum. "Again, Whether for, issues cover Neither mention operates grant statute." 1557-1558 (1986).11 draws assurance "structure scheme," likewise lends majority's conclusions. surprisingly, hiring promoting merit.12 definition, ante, 441, 1, merit-based hirings promotions.13 Thus, understandable. tied initial 7703(a)(1), means avenue preclusion contexts, pose threat converse true; permitting poses harm 44 argues allowing "upside down" "seriously undermine" 449. creates thin air notion create above, treatment saw worthy affecting little protect. overlooks narrow bears repeating never had, removals 183; violates discharging Making narrowly integrity 45 advantage Quite contrary. prepared develop facts her trial. An far atmosphere, paying filing fees costs. Because proceedings formal, competently assistance attorney. Also, requires expeditiously, 7701(i)(1); anticipate shorter complaint difference burdens proof schemes favors brings prove preponderence burden proving supported preponderance evidence, 7701(c)(1)(B), substantial 7701(c)(1)(A). Most importantly, while advantages attend pursuit favored route. 46 Contrary survived impair goal "[e]ncourag[ing] review." reads into desire "encourage" uniformity command guarantee it. However, precatory words chose encourage promote uniformity, nothing originally enacted, 205 achieved eliminating limiting MSPB.14 1982 amended 7703(b)(1). Any making frustrated continuing 11, 47 essence, relies bare infer actions. surely convincing demanded finding repealed. respectfully dissent. divides three classifications described follows: "Senior Service" occupy high-level Department, appointment President confirmation Senate required. 3132(a)(2). "Competitive service" nomination required, statutorily 2102. "Excepted remainder—those neither Senior Service. 2103. Respondent's Management) (1978). Within accords preferential relatives—so-called eligibles." 2108. Respondent, eligible, referred Both parties characterized Manual assume, deciding, such. assumes, course, expand resort remedies. Cf. Pinar Dole, 747 899, 910-912 (CA4 1984), 471 1016, 2019, 85 301 (1985); Carducci Regan, 230 80, 82-84, 714 171, 173-175 (1983). Even questioned assumption. dissent attempt anomalies, except assert "create[d] notion" 466. Aside linguistic assertion—that distinctions "preference" 7511(a)(1)(B)—we reiterate judged "less employees," 466, protection. minimize impact observing "limited regulations." Ibid. sounds limitation, reality insignificant one. (which precise matter here) successful "management establish[es] efficiency service." app. A-1(H) 1981). Therefore, analysis, alleged insufficiency dismissal otherwise abolished Courts Improvement (FCIA), 97-164, 96 25. FCIA created stead inherited Claims' exercise claims. 796, 1636, 1491(a)(1), "The render founded Constitution, regulation department, contract liquidated unliquidated sounding tort." 5596(b), (including unfair labor practice grievance) resulted withdrawal allowances, differentials employee— "(A) entitled, effect—[an amount equal pay (less earned employment) fees]." Testan, 424 392, 398, 948, 953, 114 (1976), consider existed. supplies recover leads allowances. 406, 957. ed.), whereas conferred Order, Exec.Order "One central tasks reform bill simple difficult achieve: Allow fired easily, reasons." 2726. chapters instructive. Employees Title 7703(a)(1) "[a]ny applicant adversely aggrieved order decision." If, bar falling reasonably expected draft "only applicants action." actually written, jurisdiction. Nothing hints elsewhere. 525, 1393, (1987) (per curiam ) (Congress full awareness interpretations). Technical Conforming Amendments, 94-454, 703 906, 1216 1224. especially notable respects. amendment ensures proceedings, specifies items recoverable prevailing (pay, plus interest, attorney's costs), restoring annual leave, purport relief. H.R.Rep. 95-1403, pp. 60-61 (1978); 2, contains supporting exclude (repeals manifest); Randall Loftsgaarden, 478 647, 661, 3143, 3152, 525 (1986) ("[I]t cardinal favored"); Ruckelshaus Monsanto 986, 1017-1018, 2862, 2881, 815 (1984) ("repeals disfavored" "where capable co-existence, duty expressed effective"). concerned constitutionality Insecticide, Fungicide, Rodenticide (FIFRA), 136 One party submitted data Environmental Agency registering lose compensation public failed participate reach agreement due comply terms agreement. 136a(c)(1)(D)(ii). Rejecting allegation evidenced ordinarily just compensation, reiterated reasserted statues duty, "absent effective." Monsanto, 1018, 2881. reached imply requirement FIFRA exhausted reconcile statutes. force co-exist easily. Allowing interferes operation judicially exhaustion gap-filling measure harmonious St. Martin Evangelical Lutheran Church South Dakota, 451 772, 788, 101 2142, 2151, 68 612 (1981) (the permissible justification irreconcilable). There unacknowledged danger accord previous jurisprudence least 1842. (1842) (repeal "positive repugnancy" old new); Daviess Fairbairn, How. 636, 648 (1845) ("Virtual favoured courts"); Tynen, Wall. 88, 92, 153 (1871) familiar favored"). firmly entrenched landscape works. presume certainty aware longstanding drafting legislation. Necessarily, assurances Changing alters landscape. If construe environment operated significantly increase risk erroneous interpretation. enhances need consistently possible differences enactments irreconcilable. sufficiently rebutted "clear evidence" 141, 1511-12, meet standard, 2456-57, "substantial doubt about exists, controlling." despite after destroy (1986); unique character conclusions deference 101, "defined geography." 97-275, (1981). confined defined range subjects, unusual expertise disregarded. consequence, Act/Back ultimately Circuit's area renders uniquely qualified determine works partial Board, along Counsel, responsible safeguarding practice." 6, 2728. Throughout relatives veterans, policy reasons ("[V]eterans' [are] benefit bestowed continue bestow citizens served armed services war conflict"). Section 1143, provided: "Except paragraph (2) subsection, 158, respectively, title 28." Thus heard pursuant 2342 2344. original form demonstrates expense

Classification Label: 7