Legal Document

494 U.S. 26 110 S.Ct. 929 108 L.Ed.2d 23 Elizabeth DOLE, Secretary of Labor, et al., Petitioners,v.UNITED STEELWORKERS OF AMERICA al. No. 88-1434. Argued Nov. 6, 1989. Decided Feb. 21, 1990. Syllabus Pursuant to the Occupational Safety and Health Act 1970, Department Labor (DOL) promulgated a hazard communication standard, which imposed disclosure requirements on manufacturers aimed at ensuring that their employees were informed potential hazards posed by chemicals in workplace. Among other things, standard required label hazardous chemical containers, conduct training chemicals' dangers, make available safety data sheets chemicals. Respondents others challenged Court Appeals. The court held Administration (OSHA) had not adequately explained why was limited manufacturing sector twice directed OSHA either apply it workplaces sectors economy or state such application would be infeasible. Ultimately, DOL issued revised applied worksites all submitted Office Management Budget (OMB) for review under Paperwork Reduction 1980 (Act). That sets forth comprehensive scheme reduce federal paperwork burden public requiring, inter alia, an agency submit any instrument "collection information"—termed "information collection request"—to OMB approval before may collect information. disapproved three standard's provisions ground necessary protect employees, published notice withdrawing provisions. sought further relief from Appeals, ordered reinstate reasoned represented good-faith compliance with court's prior orders, lacked authority disapprove provisions, that, therefore, no legitimate basis them. Held: does authorize countermand regulations mandating regulated entities directly third parties. Pp. 32-43. (a) Act's language indicates terms request" information"—which is defined as "the obtaining soliciting facts through . reporting recordkeeping requirements"—refer solely information by, use of, agency, rather than rules, do result being made use. Petitioners' interpretation above definition—that "soliciting facts" when requires someone communicate specified party rules requiring labeling, employee training, keeping accessible are "reporting requirements"—is precluded language, purpose, structure whole. 34-35. (b) Under traditional canon construction words grouped list given related meaning, phrase requirements" comprise only sent since examples listed forms communicating requesting P. 36. (c) Moreover, present none problems Congress solve, enumerated purposes served subjecting 36-38. (d) did intend encompass revealed import internal preliminary steps must take adopting request affect agencies they gather own relate rules. Likewise, governing OMB's proposed requests focus agency's ability information, particularly its process it. determine usefulness agency-adopted warning those warned. Furthermore, enforcement mechanism clear legislative history shows intended provision collections subject Act. 40-41. (e) support petitioners' contention information" include This need defer contrary where Congress' intent clear. 855 F.2d (CA 3 1988), affirmed. BRENNAN, J., delivered opinion Court, MARSHALL, BLACKMUN, STEVENS, O'CONNOR, SCALIA, KENNEDY, JJ., joined. WHITE, filed dissenting opinion, REHNQUIST, C.J., joined, post, p. 43. Jeffrey Minear, Washington, D.C., petitioners. Laurence Gold, respondents. Justice BRENNAN Court. 1 regulatory tools Government charged protecting health require disclose consumers, others. Disclosure providing access about what dangers exist how these can avoided. Today we decide whether has 1980, 44 U.S.C. § 3501 seq. (1982 ed. Supp. V), regulations. 2 * In 1983, pursuant 1970 (OSH Act), 84 Stat. 1590, 29 651 ed.), authorizes set standards workplaces, standard. CFR 1910.1200 (1984). various found Specifically, containers appropriate warnings. "Downstream" manufacturers—commercial purchasers who used plants obliged keep original labels intact else transfer onto substitute containers. also provide "material sheets" downstream manufacturers. physical characteristics each chemical, symptoms caused overexposure pre-existing medical conditions aggravated exposure. addition, recommend precautions first aid emergency procedures case overexposure, source additional Both particular Respondent United Steelworkers America, among others, Appeals Third Circuit. regulation sector, view OSH directive extent feasible, ensure suffers material impairment toxic harmful agents. reasons feasible. America v. Auchter, 763 728, 739 (1985). 4 When responded initiating entirely new rulemaking proceeding, union copetitioners earlier order. Circuit DOL, threat contempt, publish Federal Register within 60 days applicable workers covered statement existing record, category excluded workers. Pendergrass, 819 1263, 1270 (1987). 5 complied issuing work sites economy. See 52 Fed.Reg. 31852 At same time, requirements. After holding hearing, approved but rejected requirement multiemployer (such sites) provided describing substances likely exposed, activities companies working site. permitted employers exchange them home offices maintain relevant central location 1910.1200(e)(2) (1988). exempting consumer products workplace manner, resulting frequency duration exposure, normal 1910.1200(b)(6)(vii). Finally, vetoed exemption drugs sold solid, final form direct administration patients. 1910.1200(b)(6)(viii). 46076 6 based determination employees.1 objection exemptions too narrow, situations benefit employees.2 Id., 46077-46078. disagreed assessment, withdrawn. added believing necessary, retained, invited comment. 53 29822 7 filing motion OMB-disapproved (CA3 1988). 8 Petitioners this We granted certiorari answer important question 490 1064, 109 2061, 104 627 (1989). hold give authority, therefore affirm. II 9 enacted response one less auspicious aspects enormous growth our bureaucracy: seemingly insatiable appetite data. Outcries small businesses, individuals, local governments, buried demands paperwork, led institute controls.3 designated overseer respect designed burden. charges developing uniform policies efficient processing, storage, transmittal systems, both agencies. percentages, establish Information Locator System, develop implement guarding privacy confidential §§ 3504, 3505, 3511 V). 10 prohibits impose unless another Government, formulate plan tabulating useful manner. Agencies minimize practicable. 3507(a)(1) institutes second layer satisfied itself collecting information—termed request"—is needed, approval. 3507(a)(2) ed., V.). If disapproves request, 3507(a)(3) ed.). 11 Typical tax forms, Medicare financial loan applications, job questionnaires, reports, business records. S.Rep., 3-4. These share least characteristic: requested indirectly.4 private parties order generate pursuing some purpose. For instance, gathering background expertise devise fine-tune regulations, amassing diffuse processing into statistical form, monitoring records reports signs proof nonfeasance initiate measures. 12 By contrast, personnel promulgation rule action represents substantive choice. An variety weapons choose: It ban altogether; mandate measures, gloves goggles; warnings alerting users recommended precautions. chooses because believes intrusive measure will sufficiently public, means acquiring performing function. 13 No expressly declares well information-gathering applies requests" 14 "a written report schedule, questionnaire, requirement, similar method calling information." 3502(11) 15 "Collection information," turn, 16 opinions schedules, requirements, methods either— 17 "(A) answers identical questions to, on, ten more persons, agencies, instrumentalities, States; 18 "(B) States general purposes." 3502(4) ed.) 19 urge us read "obtaining encompassing They contend meaning employer employees. labeling containing "recordkeeping requirement." believe, however, structure, purpose reveal position untenable third-party 20 "On pure statutory construction, try congressional intent, using construction." NLRB Food Commercial Workers, 484 112, 123, 413, 421, 98 429 Our "starting point statute," Schreiber Burlington Northern, Inc., 472 1, 5, 105 2458, 2461, 86 (1985), " 'in expounding statute, guided single sentence member sentence, look whole law, object policy.' Massachusetts Morash, 107, 115, 1668, 1673, (1989), quoting Pilot Life Ins. Co. Dedeaux, 481 41, 51, 107 1549, 1555, 95 39 K mart Corp. Cartier, 486 281, 291, 1811, 1818, 100 313 (1988) (same). 21 most natural reading language. commonsense agency" refers efforts word "solicit" addition "obtain" cover rely voluntary cooperation suppliers mandatory. Similarly, consisting advisory fall "records," Government-imposed customarily altogether. 22 derives surrounding noscitur sociis, dictates 'words should meaning.' supra, U.S., 114-115, S.Ct., Schreiber, 8, 2462. definitions understood analogous it, conclusion produced consideration Offshore Logistics, Inc. Tallentire, 477 207, 220-221, 106 2485, 2493, 91 174 (1986) (concluding clarified whole). Particularly detailing enacting statute. are: 24 "(1) State persons; 25 "(2) cost collecting, maintaining, using, disseminating information; "(3) maximize collected, maintained, disseminated Government; "(4) coordinate, integrate and, practicable appropriate, practices; 27 "(5) automatic telecommunications, technologies acquired manner improves service delivery program management, increases productivity, quality decisionmaking, reduces waste fraud, wherever persons 28 "(6) collection, maintenance, dissemination consistent laws relating confidentiality, including Privacy Act." V) (emphasis added). solve Act, statute makes purpose—avoiding governments—refers avoiding effort, resources expended agency." 3502(3) (defining "burden") Because expressed concern party, aim. 30 purpose—minimizing Government's handling information—also advanced costs Government. "requested" nor intermediary dissemination, serve third, fourth, fifth, sixth purposes. Thus, nothing itemized exhaustive textual description have screen find strong evidence 31 buttressed every request. 32 eliminate, System means, seek obtain 33 agency; 34 "(C) plans enhance public." 35 directs ask acquire agency.5 consider places agency. encourages obtained well. Significantly, relates example, effective disproportionate afforded party. 36 Also instructive cast examination "determining proper performance functions practical utility 3504(c)(2) "Practical utility" collects, capability timely fashion." 3502(16) 37 However, reviewing issue case, unable planned regarding sites, recipient Nothing process—in fashion otherwise. instead mandated disclosures little protect. But there indication authorized To contrary, focused exclusively And criteria quickly pursuit mandate. 38 Yet reinforcing statute's assuring terms. approves issues control number placed forms. receive approval, prohibited 3504(c)(3)(A), 3507(f) if nevertheless promulgates members ignore without risk penalty. 3512 ed.).6 protection Section provides "no person shall penalty failing involved display current assigned [OMB]. ." Ibid. While grammar text faulted, clear: protected dictate very terms, Thus only, exempt mechanism. latter counterintuitive history,7 III 40 foregoing reasons, request," considered light whole, refer cannot reasonably interpreted unpersuasive claims "clearly intention [to the] contrary," see INS Cardoza-Fonseca, 480 432, n. 12, 1207, 1213, 94 434 41 statements stages rules.8 show merely reach compilations collected law possible (i.e., dissemination). sheds Court: Whether reaches committee reinforce respondents' position.9 42 clearly expresses intention, decline interpretation.10 Board Governors Reserve Dimension Financial Corp., 474 361, 368, 681, 686, 88 691 ("The deference courts pay alter Congress"); Chevron U.S.A. Natural Resources Defense Council, 467 837, 842-843, 2778, 2781-2782, 81 694 (1984) ("If clear, end matter"). affirm judgment insofar parties.11 43 so ordered. whom THE CHIEF JUSTICE joins, dissenting. 45 Court's today pages, numerous history, conclude (PRA Act) unambiguous directives disseminate On questionable conclusion, refuses Budget's (OMB's) longstanding consistently scope. my regard due (1984), I respectfully dissent. 46 Chevron, principles cases one: 47 "When reviews administers, confronted two questions. First, always, spoken precise issue. matter; court, effect unambiguously Congress. If, determines addressed issue, simply absence administrative interpretation. Rather, silent ambiguous specific permissible statute." 2781-2782 (footnotes omitted). 48 As acknowledges, administering PRA. Unless for, (MSDS's) requirement" scope, entitled deference, course 49 concedes address "whether rules." Ante, 34. Curiously, then almost immediately asserts interpreting coverage untenable. 35. plain suggests contrary. Indeed, appears acknowledge although prefers, nonetheless reasonable: "Petitioners' language." goes arrive reasonable plausible interpretations; rationally could possibly intended. neglects even mention besides now adopts.1 years been proposals routinely agencies.2 independently construing asking deferring approach Chevron. 50 propounded products, prepare MSDS's utilize products. 1910.1200(d), (f) (g) Those programs known site, 1910.1200(e); properly labeled, 1910.1200(f); collect, maintain, copies business, 1910.1200(g). 51 OMB, concluded PRA, responsible implementing minimizing maximizing instructed A records." 3502(17). 54 55 56 "Reporting specifically 57 3516, exercising Although many disseminate, itself, interpret plainly presented case.3 58 say far here, inconsistent unreasonable characterize employer's obligation making available, especially definition Nor compile requirement," dangerous 3502 Since definitional section, after concludes "or tenable 59 likewise defines begins etc. argument limits PRA hence excludes recordkeeping, inform customers, public. argument, pays attention provision. imposes requirement. Second, speaks "obtaining" "soliciting" appear mean something beside commonly perform act. construe extending reporting, itself. explain explicitly requirement[s]." (11) One might limit term prepared upon limitation unlikely imply limitation. certainly "use" analyzing periodically auditing hardly said carry out safe 61 common reported distributed authority. understand mere fact kept physically bar jurisdiction, long much, noting indirectly hand, PRA's scope documents "possible part review." 33, 4. 62 actually transmitted points indicating concerned 'the Government,' reducing burdens 'for Government.' 36-37 deleted), ignores, intends "minimize persons." 3501(1) Reading discussion think forced massive amounts Common sense belie conclusion.4 Complaints bureaucratic red tape predate enactment 63 curious reliance "for Government." 3501(5) Aside reiterating just recognized sometimes duties. surely "for" different "to" includes 64 Contrary assertions, "filed dissemination)." 42. true, permit bypass parties? From policy perspective, sector's difference collects disseminates possession fact, option generally greater parties, choice results imposing major sector. not. distinction flawed promotes secondary objective ignores primary 65 relies unconvincing. Like never addresses Of course, cite allegedly supports easily supporting alternative ante, 41-42, nn. 9.5 66 unambiguous, muddy best, believe agree outcome reaches. hand majority, follows acting disapproving case. 67 accepting moment notable fails multi-employer file offices, (1988), Granted, opportunity learn associated materials site; nonetheless, Rather quantities offices. looks like plainest term. check 1910.1200(e)(4) (g)(11), factor emphasizes portion review. 68 jurisdiction accepted SCALIA pointed his lucid concurrence Mississippi Power & Light ex rel. Moore, 487 354, 377, 2428, 2442, 101 322 good accept repeat here. note, several decided deferred agencies' determinations matters jurisdiction.6 See, e.g., 116-118, 1673-1675, (1989); 292-293, (1988); EEOC Products Co., 114-116, 1666, 1671-1672, 96 123-128, 420-424, (1987); Japan Whaling Assn. American Cetacean Society, 478 221, 233, 2860, 2867, 92 166 (1986); Commodity Futures Trading Comm'n Schor, 833, 845, 3245, 3253, 675 Chemical Manufacturers 470 116, 125-126, 1102, 1107-1108, 90 avoided basis. 69 manufacturers' intact, supplied site taught worked recognize introduced employers. 46077 exempted, otherwise food Food, Drug, Cosmetic 1040, amended, 301 product Consumer Product 2051 seq., Hazardous Substances 74 372, 1261 Acts Commission. 1910.1200(b)(5)(ii), 1910.1200(b)(5)(iv) wanted exempt, packaged concentration product, Drug handled nonmanufacturing 46078 drew 311(e)(3) Superfund Amendments Reauthorization 1986, 1615, 9601 informing cause during situation. S.Rep. 96-930, pp. 3-4, (1980) (S.Rep.); H.R.Rep. 96-835, 3, (H.R.Rep.), U.S.Code Cong. Admin.News 6241. Tax cases, H.R.Rep., (the "is eliminate sources Government"). id., (The "allow[s] refusing [information requests], help 'outlaw forms' "). 52-53, 6292 claim section 3512, chapter exempted 3518 [certain national security exceptions]"). 30. Report Commission Paperwork, Reports Clearance Process (Sept. 9, 1977) (explaining Trade 1942, predecessor Securities Exchange SEC public); Redtape 1979: Hearing S. 1411 Subcommittee Spending Practices Open Senate Committee Governmental Affairs, 96th Cong., 1st Sess., 87 (1979) (testimony Commissioner Evans purposes; testimony Senator Chiles trying cripple mission "trying put governor thirst information"); 39-40, 6279 SEC's attempt purposes, extended SEC, public). resulted growing way uses, improved") added); "practical tendency "collect reams store unused" thereby "an unnecessary individuals organizations asked it"); 11, 6251 ("[T]he essential legislation [is] ") 46, 6286 ("A 'sponsor' uses procurement contract contractor agency"); Hearings, 40-41 Wayne G. Granquist, Assoc. Dir., OMB) ("No basic government plan, decisions, operate evaluate programs, research. much essential"). assumption 1320.7(c)(2) ("Requirements large, posting, notification, constitute 'collection information' whenever 1320.7(q) agency"). interpretation, foreclosed finding intent. legitimately 1910.1200(e) (requiring request); 1910.1200(g)(11) request). Only today. Action Alliance Senior Citizens Philadelphia Bowen, 269 U.S.App.D.C. 463, 846 1449 (1976 predecessor, self-evaluations stated: "The pettifoggery. Appellants seriously primarily parties' mailing Washington; data-gathering Bureau Budget, nearly half century '[a]ny establishment maintenance information.' Regulation A, Reporting Services, Plans Forms, Title I(1)(e) (February 13, 1943). Even owe U.S.A., Council [, 842-845, 2781-2783, ], doubt uphold notion Happily confront oddity." U.S.App.D.C., 467-468, F.2d, 1453-1454 original). Notably, expand 24-60, 119-125 (hereinafter Hearings) (comments Comptroller General cure deficiencies Act); (1980). reviewed Environmental Protection Agency community right-to-know requests, 38344, 38364 (1987), textile fiber identification fair packaging 5986, 5987 nutrition labels. 28607 agreed 12092, 12111 (1982); 53280 (1983); 31852, 31870 29822, 29826, 29849-29850 Courts reluctant intervene executive able cooperate effectively. Relevant following 1320.7 (1989): "(c) 'Collection questions, mandatory, voluntary, benefit. definition, 'obtaining obtain, retain, report, publicly requirement' type 'information request.' part, act and/or these, appropriate. methods. Similar [and] requirements..... Requirements originally included definition. "(p) 'Recordkeeping maintained retained necessarily "(q) 'Reporting implicitly requirements." (Emphasis added.) vein, setting clearance "setting goals reduction requests." 3504(c)(5) 3505(1), 3507(a)(1)'s proposal submitting OMB. particular, 61-87; 18-23 (1980); 39-40 event, independent 3507(c) follows: "Any disapproval Director, voided, majority vote overrides Director's exercise certify override Where concerns Director delay assign valid period years."

Classification Label: 8