Legal Document

512 U.S. 267114 S.Ct. 2251129 L.Ed.2d 221 DIRECTOR, OFFICE OF WORKERS' COMPENSATION PROGRAMS, DEPARTMENT LABOR, Petitionerv.GREENWICH COLLIERIES. Petitioner v. MAHER TERMINALS, INC., et al. No. 93-744. Supreme Court of the United States Argued April 25, 1994. Decided June 20, 1994.* Syllabus ** In adjudicating separate benefits claims under Black Lung Benefits Act (BLBA) and Longshore Harbor Workers' Compensation (LHWCA), Department Labor Administrative Law Judges (ALJs) both applied Department's "true doubt" rule. This rule essentially shifts burden persuasion to party opposing claim so that when, as here, evidence is evenly balanced, claimant wins. cases, Review Board affirmed ALJ's decision award benefits. However, Appeals vacated Board's in BLBA case, holding true doubt inconsistent with own regulations, well Mullins Coal Co. Director, Office Programs, 484 135, 108 427, 98 450. And, LHWCA court reversed on ground violates § 7(c) Procedure (APA), which states "[e]xcept otherwise provided by statute, proponent a or order has proof." Held: 1. Section 7(c)'s proof provision applies adjudications BLBA, each contains section incorporating APA. Neither 33 U.S.C. 923(a), relieves certain evidentiary procedural requirements investigations hearings, nor an ambiguous regulation providing claimants be given benefit all reasonable doubt, sufficient overcome presumption are subject See Brownell Tom We Shung, 352 180, 185, 77 252, 255-256, 1 225. Pp. ____. 2. The not consistent 7(c). 2255-2259. (a) An examination Hill Smith, 260 592, 594, 43 219, 219-220, 67 L.Ed. 419, other relevant contemporary treatises, demonstrates that, 1946, year APA was enacted, ordinary meaning "burden proof" phrase (i.e., obligation persuade trier fact truth proposition), simply production come forward support claim). presumes Congress intended have generally accepted legal community at time enactment. See, e.g., Holmes Securities Investor Protection Corp., 503 ----, 112 1311, 1318, 117 532. Because places award, it requirement rest seeking award. (b) light foregoing, cursory conclusion set forth NLRB Transportation Management 462 393, 404, n. 7, 103 2469, 2475-2476, 76 667 — stated determines only going forward, cannot withstand scrutiny. (c) reliance imprecise marginally passages from APA's legislative history unavailing. (d) runs afoul goal greater uniformity procedure standardization administrative practice among diverse federal agencies, for reading agency would free decide who bears persuasion. P. 3. these cases decided basis 7(c), this need address Appeals' conflicts regulations Coal. 990 F.2d 730 (CA3 1993) (first case) 992 1277 (second case), affirmed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., SCALIA, KENNEDY, THOMAS, GINSBURG, JJ., joined. SOUTER, filed dissenting opinion, BLACKMUN STEVENS, Edward C. DuMont, New York City, petitioner. Mark E. Solomons, Washington, DC, respondents. Justice O'CONNOR Court. (BLBA), 83 Stat. 792, amended, 30 901 seq. (1988 ed. Supp. IV), 44 1424, seq., what calls when case presents question whether 5 556(d). 2 * review two decisions Third Circuit. one, Andrew Ondecko disability after working coal miner 31 years. Judge determined had pneumoconiosis (or black lung disease), he totally disabled disease, disease resulted mine employment. resolving first issues, relied third, she rebuttable worked mines least 10 years developed because his 20 CFR 718.203(b) (1993). affirmed, concluding considered evidence, found side's equally probative, properly resolved dispute Ondecko's favor decision, 718.403, 450 (1987). 1993). 3 Michael Santoro suffered work-related back neck injury while employed respondent Maher Terminals. Within few months diagnosed nerve cancer, died shortly thereafter. His widow alleging work rendered her husband caused death. After reviewing sides, probative and, relying rule, awarded claimant. finding no error Judge's analysis application reversed, holding, expressly disagreed Freeman Mining 988 706 (CA7 granted certiorari resolve conflict. 510 114 751, 127 69 (1994). II 4 As threshold matter, we must BLBA. statute," argues statutes issue here make clear does apply. disagree. points out conducting hearings pursuant LHWCA, "Board shall bound common law statutory rules technical formal procedure, except chapter." 923(a). But assignment substantive law, American Dredging Miller, 981, 988, 285 (1994), unclear exception even applies. More importantly, 923 its terms "except chapter," chapter provides indeed apply LHWCA. 919(d) ("[n]otwithstanding any provisions chapter, hearing held conducted accordance [the APA]"); 554(c)(2). do lightly presume exemptions APA, 256, 225 (1956), think exempts 6 argument fares better. also incorporates (by parts LHWCA), but . Secretary." 932(a). following provides: "In enacting BLBA], existence total partial death due pneumoconiosis." 718.3(c) can fairly read authorizing rejecting provision. Not fail mention concept shifting burdens proof. Accordingly assuming arguendo authority displace through III 7 turn now used Respondents contend correct include disagrees, contending imposes evidence). turns dispute, if respondents correct, fall: violate A. 8 term nowhere defined our task construe accord natural meaning. Smith States, 508 113 2050, 2055, 124 138 It easier state than accomplish it, words may change over time, many several meanings fixed point time. Victor Nebraska, 511 1239, 583 (1994); see Cunningham, Levi, Green & Kaplan, Plain Meaning Hard Cases, Yale L.J. 1561 Here seek ascertain enacted. 9 For ambiguous, describe distinct concepts. Burden frequently refer call notion lose. party's claim. J. Thayer, Evidence Common 355-384 (1898) (detailing various uses 19th-century English courts). Judicial Massachusetts leading view should limited became oft-cited Chief Lemuel Shaw attempted distinguish producing evidence. Powers Russell, Mass. (1833). According court, "the whose requires [a] fact, along Id., 76. Though proving remains where started, once establishes prima facie "produce evidence" shifts. Ibid. opposed produce might shift affirmative defenses. 77. century Powers, continued carefully between production. Hill, 232 188, 122 N.E. 310 (1919). 11 Despite efforts dual use throughout late 19th early 20th centuries. Wigmore, 2486-2487, pp. 3524-3529 (1905); supra, 355; W. Elliott, 129, 184-185 (1904); Chamberlayne, Modern 936, 1096-1098 (1911). ambiguity confounded treatise writers, despaired "lamentable confusion terminology long suffered." 3521-3522. writers praised "clear-thinking" courts like Massachusetts, 1097, 3, agreed profession endeavor clarify one most basic terms. "[i]t seems impossible approve continuance present things, such different ideas, great practical importance frequent application, indicated single expression." 384-385; 1098. To remedy problem, suggested persuasion, some proceeding 936; clarification, however, dwindling number obscure distinction. Annot., A.L.R. 1672 (1919) (noting still "between duty evidence"). 12 tried eliminate adopted approach. 419 (1923). wrote unanimous "it will necessary repeat distinction, familiar since Shaw, [Powers, supra], elaborated below, necessity meet already produced. distinction very accepted, although often blurred careless speech." 219. 13 decades opinions consistently distinguished proof, alternative concept, increasingly referred Brosnan Brosnan, 263 345, 349, 117, 118, 68 332 (1923) (imposition establishing case); Radio Corp. America Engineering Laboratories, Inc., 293 1, 7-8, 55 928, 930-931, 79 163 (1934) (party "bears heavy persuasion"); Commercial Molasses Tank Barge 314 104, 111, 62 156, 161, 86 89 (1941) persuasion," though bear "go evidence"); Webre Steib Commissioner, 324 164, 171, 65 578, 582, 819 (1945) (claimant proof") (emphasis added). During period Courts explicitly production.*** 14 emerging consensus definition reflected treatises 1930's 1940's. "The rests parties action facts, jury, proposition affirmatively asserted pleadings." Richardson, 143 (6th 1944); B. Jones, Civil Cases (4th 1938) ("The modern authorities substantially strict primary sense, 'burden proof' signifies establishing, mind conviction ultimate issue"); McKelvey, 64 1932) ("[T]he proper [burden proof]" person prove it," rather introduce 15 interpret Congress' history, 532 (1992); Miles Apex Marine 498 19, 32, 111 317, 325, 275 (1990); Cannon University Chicago, 441 677, 696-698, 99 1957-1958, 60 560 (1979). These principles lead us conclude drafters mean explained, been largely eliminated twentieth century. commentators almost unanimously settled. And shared settled understanding, Communications 1934, 47 §§ 309(e) 312(d) (a introduction proof"). Accordingly, 1946 understand unadorned reference B 16 recognize previously contrary (1983), reviewed National Relations (NLRB) employer discharged employee employee's protected union activity. formula typical motive cases: persuading antiunion animus contributed employer's firing decision; then shifted establish defense fired permissible reasons involved 401-402, S.Ct., 2474. claimed NLRB's (NLRA), upheld construction NLRA. 402-403, 2474-2475. 17 argued approach violated provision, imposing employee. footnote, summarily rejected argument, "[§ ] Environmental Defense Fund, Inc. EPA, [548 998, 1004, 1013-1015 (CADC 1976) ]." U.S., 2475, 7. discussion Part A above, footnote withstands central amici treated afterthought, devoting sentences question. None briefs explain term. Management's answer ancillary unbriefed warrant same level deference typically give precedents. 18 Moreover, reached without referring Steadman SEC, 91, 101 999, (1981), principal interpreting standard required, preponderance convincing did order, reasoning strongly implied so. assumed meant said degree adduced carry proceeding." 95, 1004 important, makes sense means 19 slight adhering precedent, particularly involving interpretation. precedents tension, more footnote. reject intact. required sentiment decision. Only place defense. C addition relies Senate House Judiciary Committee Reports Fund 548 F.2d, 1014-1015 (accepting argument), cited Management, find Report follows: 21 "That initiating general coming parties, proponents result, purpose maintain. Similarly sanction imposed issued upon kind specified denial relief sustain example, credible credited submitted applicant license ignored requisite quality No authorized stand mute arbitrarily disbelieve Except applicants privilege showing, entitled conduct status enterprise unlawful improper." S.Rep. 752, 79th Cong., 1st Sess., 22 (1945). identical language, following: 23 words, every thereof therefor; determining applications licenses conduct, shown rebutted impeached duly facts officially noticed stated." H.R.Rep. 1980, 2d 36 (1946), U.S.Code Cong.Serv. 1195. 24 indicates congressional intent impose proponent. so, concerned That intend 25 interpretation compatible order. define allocate quoted primarily placed opponent ("other maintain"), government. appeared those "proponent" seeks government, want allow "to evidence." licensee government rebut it. perfectly placing applicant, supported "credible evidence," either true. 26 relevant. chose text substantial day. D 27 part Congress's recognition difficult prove, presumptions easing their burden. 920; 921(c); Del Vecchio Bowers, 296 280, 286, 56 190, 193, 80 229 (1935). Similarly, solicitude adopting additional presumptions. 718.301-718.306 (1993); Coal, 158, 439. attempts go step further. doing, statute designed agencies customs departed widely other." Wong Yang Sung McGrath, 339 33, 41, 70 445, 450, 94 616 (1950). concern directly implicated manner IV 28 Under balanced hold 29 Greenwich Collieries 718.403 Affirmed. whom STEVENS join, dissenting. 32 50 years, equal weight, thus risk nonpersuasion Today, strikes down conflicting 556(d), passed 1946. I respectfully dissent. So far relevant, 34 Any oral documentary received, matter policy provide exclusion irrelevant, immaterial, unduly repetitious consideration whole record reliable, 35 majority's sentence persuasion" surely carries force preferred today's usage, Court's demonstrates. commonly today, understood about preference constant, silent, impression ways, (the nonpersuasion), 2486 (J. Chadbourn rev. 1981) (Wigmore), (of evidence), id., 2487. latter arose keep jury within bounds action," bearing put enough get jury. At century, Thayer noted "going speech [and] usage. ." Preliminary Treatise 385-386 (1898). described Shaw's unsuccessful restrict (burden persuasion) phrase, 355-357, 385-387, "widest usage" discourse" production, Proof, Harv.L.Rev. 45, (1890). 37 Although works hard show acquired there good were using way followed Thayer. Indeed, just nine (1923), firmed up reverted instead.1 Heiner Donnan, 312, 329, 52 358, 362, 772 (1932) ("A [prima facie] clearly effect (citing Mobile, K.C.R. Turnipseed, 219 35, 43, 136, 138, 78 (1910) (stating "[t]he [presumption] cast [defendant] contrary")). usage appears line Hawes Georgia, 258 42 204, 66 431 (1922) (upholding casting defendant criminal Tot 319 463, 470-471, 63 1241, 1246, 87 1519 (1943) (describing permissibly "shift[ed] made prosecution). three before passage sometimes Northwestern Elec. Federal Power Comm'n, 134 740, 743 (CA9 1943) (interpreting Act, 825(a)), aff'd, 321 119, 451, 88 596 (1944). 38 Contrary disappeared thought unsettled phrase. commentator (relied majority here) explained 1938, "strict signifies" "[i]n secondary expression stage eminent holds is, be, sense." 176, p. Thayer). He noted, unvarying application. On contrary, used, times indiscriminately, signify ideas. striven variable bring clarity subject, noticeable success." 309 (footnote omitted). commentary retained description later, thereafter, Evidence, Criminal, 361-363 (5th 1958); S. Gard, Jones 5:1, 519-520 1972). Other persistent 172 1944) (" misused courts"); Maguire, Sense 175 (1947) ("Under express expected led jumble"). Further, passage, Institute, Model Code (1942) meanings, 2485, 284, comments. Thus, note enactment senses create lamentable suffered," Wigmore 2485. 39 choice production." extensive reports pending legislation, 7(c): 40 (1945), reprinted Legislative History S.Doc. 248, 208 (1946) (hereinafter Leg.Hist.); Sess. 36-37 Leg.Hist. 270-271. 41 added therefor. second therefore having prevail unless discredited rebutted." 36-37, 270-271.2 45 means" forward," further could shouldered opponents strong probability simultaneously parties. generally, 2489. agree. suggests denote forward.' " Koch, Practice, 6.42, 486 (1985); A.P.A. has, minimum, agency." Stein, G. Mitchell, Mezines, 24.02, 24-25 accord, K. Davis, 16.9, 257-258 (2d 1980) lower court's "analysis Attorney General's Manual"). 46 lament commentators, criticized (already current formulation unhelpful: confusing, best unimportant. called determine granted, 'proponent' 'order' seem granting denying bill." State Bar Assn. Association City York, Joint Proposed (Dec. 26, 1945). 48 certainly understanding established uniform persuasion.3 49 Until consonant understanding. position takes. (Board), General Counsel fire employee, involvement activities. Confronting barred ever employer, "determines (Leventhal, J.)). Today's abandonment mistake, puts odds fundamental principle precedent "[c]onsiderations stare decisis special area interpretation, alter done." Patterson McLean Credit Union, 491 172-173, 109 2363, 2370, 105 132 (1989); Square Niagara Frontier Tariff Bureau, 476 409, 424, 106 1922, 1930, 90 413 (1986); Illinois Brick Illinois, 720, 736, 97 2061, 2069, 707 (1977).4 Even assumption debatable decided, undoubtedly (as above) seen fit disturb amending Compare, Johnson Agency, Santa Clara County, 480 616, 629-630, 107 1442, 1450, 615 (1987), Califano Sanders, 430 99, 105-107, 980, 984-985, 51 192 (1977). stand. tries avoid implying inessential allowed met elements unfair labor practice. 1277, 1281-1284 1993); cf. ante, ____ ("the intact"). problem said, said. chosen justify impediment explaining, District Columbia Circuit "proof" synonymous "production" examination. supra. abandoned announced Terms prior Management. other. neither itself saw questions presented Steadman, mutual funds manager disciplinary securities laws, Exchange Commission clear-and-convincing third "supported evidence"), standard, satisfy preponderance, purport uncontested Government proceeding. hand, left open silent. 53 worth remarking came surprise anticipated 1013 [§ casts Old Ben Interior Bd. Mine Operations Appeals, Dept. Interior, 523 1975) ("burden putting case"); Maine Labor, 669 827, 829 (CA1 1982) "of Kerner Flemming, 283 916, 921-922, (CA2 1960) (assuming persuasion). (except below firmly predecessor Circuit, Fund. Min. 706, 711 [in ]. 'Burden Hazardous Waste Treatment Council 886 355, 366 1989) (per curiam) ("initial case"), cert. denied, 849, 139, Merritt 960 15, 1992) ("refers Bosma Agriculture, 754 804, 810 1984) Alameda Cty. Training Employment Bd./Associated Community Action Program Donovan, 1267, 1269 ("merely [proponent], Dazzio FDIC, 970 71, (CA5 Skukan Consolidation Co., 993 1228, 1236-1238 (CA6 production"). courts' views commentators. 257 forward" supra); Practice 245 (1994 Supplement) 556(d) context persuasion") omitted); 24-21, (1994) (§ "only directs [proponent] production"); Edles Nelson, Regulatory Process 6.7, 151-152 refers evidence") (each citing 403, 7). 54 Nor vitality gone last indeed, repudiates, course explaining ourselves Title VII suits persuasion: "[T]o extent speak respect legitimate business justification they Cf., [103 7] (1983)." Ward's Cove Packing Atonio, 490 642, 660, 2115, 2126, 104 733 (1989). If rely innumerable disparate-impact (and courts) production" much weight 1923. 57 repudiate regrettable adherence aware role litigation, presupposed upholding Secretary Labor's interim invoking eligibility, operation parties' introduced dropped case. 144, 12, 432, (true "ensures win, invocation rebuttal, stronger claimant's"). acknowledged Secretary's "embodies claimant, [which] plays important determinations .," 29, 439, (quoting Fed.Reg. 36826 (1978)), "has exists, claimant," (internal quotation marks citation 58 Had we, otherwise, bucking tide applying form judicial agency's Friend Britton, 220 820, 821 1955) ("Doubts, including factual, dependent family"); Bath Iron Works White, 584 569, 574 1978) [is] 'all doubtful injured employee' possible better able it"); Volpe Northeast Terminals, 671 697, 701 ("all [are to] employee");5 Adkins 958 49, 52, (CA4 ("Equally creates 'true doubt,' miner"); Greer 940 88, 91 1991) ("We doubt. [claimant] doubt"); Army Air Force Serv. Greenwood, 585 791, 794 doubts 1239 (CA6) ("true utilized weighed claimant"); (CA7) (applying "judicial employer"); 977 1106, 1109 i.e., employers); Ware 814 514, 517 (CA8 1987) ("any Parsons Cal. 619 38, ("statutory employee"); Hansen 984 364, 369 (CA10 doubt' contradictory medical documentation exists"); Bosco Twin Pines 892 1473, 1476 ("doubts Stomps 816 1533, 1534 (CA11 (same); sampling pre-APA see, F.H. McGraw Co Lowe, 145 886, 887, 2, 888 "doubtful incapable scientific resolution workman" LHWCA); Southern S.S. Norton, 825, 827 1939) [claimant's] favor" Pac. Sheppeard, 147, 148 1940) ("where family" LHWCA). 59 silent job bounded discretion review, organic statutes, customary text, intent, experience, policy, probabilities. 1980).6 expected, raises traditional "question fairness based experience situations." Keyes School Dist. Denver, Colo., 189, 209, 93 2686, 2698, (1973) 2486, (3d 1940)); Strong, McCormick 337, 427 1992), readily lumped formalities procedure. While procedures adjudications, unremarkable stopped short making Nor, apart choices vulnerable "those 888, comporting remedial nature Terminal Caputo, 432 249, 268, 2348, 2359, 320 (1977), dangerous longshore work, 92-1125, (1972), Cong. Admin.News 1972, 4698. consistency recitation regulation, (1993), "Congress [BLBA] "is law. absence definitive conclusions survivors." 92-743, 2305, 2315. Study Occupational Disease (1976), Reform 1976: Hearings H.R. 10760 3183 Subcommittee Public Welfare, 94th 459, 488-489 (1976) ("conflicts adjudicator Provance Steel Rep. 1-483, 485-486 (Ben.Rev.Bd.1978), fully comports "expectation promulgate standards miner." 95-209, (1977); (1978). 61 deny harmony instead subchapter, alleged connection allegation." proving," cognate, proof," susceptible "substantial deference" regulations' purpose, Martin Safety Health 499 150-151, 1171, 1175-1176, (1991); Bowles Seminole Rock Sand 325 410, 414, 1215, 1217, 1700 assign harms workers mining industries, conflict accordingly offer respectful Together al., court. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Lumber 200 321, 282, 287, 499. *** Lee Bank Trust 1930); Knoles, 75 557, 561 1935); Water Los Angeles Anderson, 95 577, 1938); Rossman Blunt, 877, 880 1939); Cory 126 689, 694 1942); Commissioner Bain Peanut 853, 860, 1943); Life Ins. Taylor, 147 297, 301 One hardly blame justice, bench beginning year. noting "[t]here indication introductory clause statement repeal specific which, presumptions, forward'." Manual Congressional confirmed originally House, provide." 1203, 6, (introduced Jan. 1945), 158; 11, 300. side-by-side comparisons bill amended into enacted form, gave language sentence. Text Revised Text, (Comm.Print, Cong.Serv.1946, 228. regard none overruling Management; amicus Insurance so; pass Rather, argue bar Bonessa 884 726, (1989) ALJ x-ray proper, [claimant]"). 401-403, 2474-2475, (1983); Curtin Matheson Scientific, 494 775, 786-796, 110 1542, 1549-1554, 801 Bowen Yuckert, 482 137, 146-147, 5, 2287, 2294, 96 119 (1987); Garrett Moore-McCormack 317 239, 246-249, 246, 251-253, 239 (1942); Concrete Pipe Products Cal., Construction Laborers Pension So. ---- - 2264, 539 3.102 (1993) (doubts veteran's claimant); 5107 ed., IV) (same).

Classification Label: 7