Legal Document

430 U.S. 442 97 Supreme Court Reporter 1261 51 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 464 ATLAS ROOFING COMPANY, INC., Petitioner,v.OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION et al. Frank IREY, Jr., Inc., Petitioner, versus OCCUPATIONAL Nos. 75-746 and 75-748. Argued Nov. 29, 1976. Decided March 23, 1977. Syllabus Upon finding that the existing state statutory remedies common-law actions for negligence wrongful death were inadequate to protect employees from injury due unsafe working conditions, Congress enacted Occupational Safety Health Act of 1970 (OSHA), under which a new duty was imposed on employers avoid maintaining conditions. Two provided by permitting Federal Government, proceeding before an administrative agency, (1) obtain abatement orders requiring correct (2) impose civil penalties any employer condition. If contests penalty or order, evidentiary hearing is then held law judge Review Commission (Commission), who empowered affirm, modify, vacate proposed order penalty. The judge's decision becomes Commission's final, appealable subject review full Commission. such granted, subsequent directing payment final unless petitions judicial in appropriate court appeals, but findings fact, if supported substantial evidence, are conclusive. fails pay assessed penalty, Secretary Labor may commence collection action federal district neither fact violation nor propriety be retried. In instant cases separate issued against petitioners violations safety standards promulgated OSHA. After hearings Administrative Law Judges when each contested penalties, judges later had affirmed sought Courts Appeals, challenging both factual occurred constitutionality OSHA's enforcement procedures. Each Appeals over petitioner's contention failure afford jury trial question whether it violated OSHA contravened Seventh Amendment, provides '(i)n Suits at common law, where value controversy shall exceed twenty dollars, right preserved.' Held: Amendment does not prevent assigning agency task adjudicating When creates 'public rights,' assign their adjudication with would incompatible, without violating Amendment's injunction 'preserved' 'suits law.' That never intended establish as exclusive mechanism factfinding cases, took legal found it, hence there little no basis now interpreting providing impenetrable barrier otherwise valid regulatory statutes. did render powerless concluded available courts cope problem within its power regulate so create public rights statute commit enforcement, chose, tribunal other than (such agency) facts juries. Pp. 1266-1272. Number 75-746, 518 Reporter, 2nd 990, 75-748, 519 1200, affirmed. McNeill Stokes, Atlanta, Ga., petitioners. Robert Haw. Hawai‘i KFH45 A2 Bork, Sol. Gen., Washington, D. C., respondents. Mr. Justice WHITE delivered opinion Court. 1 issue these whether, consistent cause Government enforceable trial. 2 * extensive investigation, concluded, 1970, work-related deaths injuries become 'drastic' national problem.1 Finding well employee population (OSHA Act), 84 Statutes-at-Large 1590, 29 Code KF62 § 651 seq. created unhealthy empowers promulgate health standards.2 conditions remedy exists actually injured killed result condition, actual remain unaffected. 3 Under Act, inspectors, representing Labor, authorized conduct reasonable inspections. 657(a). discovered, inspector, behalf Secretary, issues citation fixing time and, his discretion, proposing §§ 658, 659. Such range nothing de minimis nonserious violations, more $1,000 serious maximum $10,000 willful repeated 658(a), 659(a), 666(a)-(c) (j). 4 wishes contest he do notifying 15 days, event automatically stayed. (b), 666(d). An consists three members, appointed six-year terms, whom qualified 'by reason training, education experience' adjudicate citations assess penalties. 651(b)(3), 659(c), 661, 666(i). At this burden elements alleged penalty; all items, giving consideration assessment 'the size business . ., gravity violation, good faith employer, history previous violations.' 30 days Commissioner directs reviewed Commission.3 661(i); see Regulations 2200.90, 2200.91 (1976). 5 timely appeals. 660(a). similarly seek orders, 660(b), but, either case, '(t)he respect questions evidence record considered whole, conclusive.' 666(k). Thus, collected employer's ever being entitled determination constituting violation. II 6 Petitioners separately cited ordered immediately abate pertinent hazards after inspections respective worksites conducted 1972 revealed assertedly mandatory occupational standard 5(a)(2) 654(a)(2). case employee's resulted. Petitioner Irey 1926.652(b) Table P-1 (1976) sides trenches 'unstable soft material' 'shored, sloped, means sufficient strength them.' $7,500 hazard abated immediately. 7 Atlas CFR(b)(1) (f)(5) (ii) (1976), require roof opening covers 'so installed accidental displacement.' $600 8 afforded judges, Commission, accompanying requirements petitioner reduced $5,000 proposed. respectively thereupon Third Fifth Circuits, Act's 9 A panel Circuit dissenter's Constitution most suits law. 1200. On rehearing en banc, Circuit, four dissents, adhered original panel's decision. Id., 1215. It Court's rulings date 'leave doubt applicable, least context one, free provide scheme intervention stage.' 1218. 10 also similar claim Amendment. 990. stated: 11 'Where adjudicative responsibility rests only administering 'jury trials incompatible whole concept substantially interfere (agency's) role scheme."4 1011. 12 We granted writs certiorari limited important prevents circumstances OSHA.5 424 964, 96 1458, 47 731. III 13 preserved ..' phrase 'Suits law' has been construed refer tried prior adoption customary distinguished equity admiralty not. Parsons Bedford, Pet. 433, L.Ed. 732 (1830). suit money judgment classically Whitehead Shattuck, 138 146, 151, 276, 34 873 (1891); defendant therefore Hepner States, 213 103, 115, 474, 479, 53 720 (1909) (dictum); Regan, 232 37, 47, 213, 216, 494 (1914) (dictum).6 permit function Government's different forum deprive right. disagree. rights' litigated e. g., sues sovereign capacity enforce statutes enact prohibit initial incompatible.7 14 often obligations, committed exclusively deciding occurred. These schemes have sustained Court, albeit express reference Thus taxes constitutionally together relevant some instances adjudicated agency. Phillips Commissioner, 283 589, 599-600, 608, 612, 75 1289 (1931); Murray's Lessee Hoboken Land Co., 18 How. 272, 284, 372 (1856).8 Neither expressly discussed taxation However, Helvering Mitchell, 303 391, 58 630, 82 917 (1938), said, rejecting Sixth tax could made jury, upon liability based instead jury,' id., 402, 635. Similarly, entrusted customs immigration laws assessing thereon. Lloyd Sabaudo Societa Elting, 287 329, 335, 167, 170, 77 341 (1932) ('(D)ue process courts, rather officers, charged determining imposition (fines) depends'); Oceanic Nav. company Stranahan, 214 320, 671, 1013 (1909).9 See Ex parte Bakelite Corp., 279 438, 451, 458, 49 411, 416, 73 789 (1929). Block Hirsh, 256 135, 41 65 865 (1921), Congress' pass statute, applicable District Columbia, temporarily suspending landlords' ejectment relegating them fair rents tenants hold despite expiration leases. squarely rejected challenge stating: 16 'The objected further ground landlords deprived possession land. established relation established, we think is, what objection amounts little. To decide affecting hardly separable.' 158, S.Ct., 460. (Emphasis added.) 17 Crowell Benson, 285 22, 52 285, 76 598 (1932), apparently referring above-cited line authority, '(T)he distinction once apparent between private those arise persons authority connection performance constitutional functions executive legislative departments. (T)he Congress, exercising powers confided 'legislative' serve special tribunals 'to examine determine various matters, arising government others, nature yet susceptible it.' But mode matters class completely congressional control. reserve itself decide, delegate tribunals.' Familiar illustrations exercise interstate foreign commerce, taxation, immigration, lands, health, facilities post office, pensions, payments veterans.' 50-51, 292. NLRB Jones & Laughlin Steel 301 1, 57 615, 81 893 (1937), addressed involved commits tribunal. National Relations Board, brought litigating arm, unfair labor practice ordering backpay appropriate. 19 suit. one unknown proceeding. Reinstatement lost (administratively) enforcement. merit.' 48-49, 629. added.)10 20 This passage recently explained Curtis Loether, 415 189, 94 1005, 39 260 (1974), damages housing discrimination provisions Civil Rights 1968. argument inapplicable statutorily even customarily utilizes arm. Instead, upheld 21 'congressional entrust specialized equity11 strictures Amendment.' U.S., 194-195, 1009. 22 Finally, Pernell Southall Realty, 416 363, 1723, 40 198 (1974),12 discussing Laughlin, 23 'Block Hirsh merely stands principle generally proceedings, adjudication. assume bar effort landlordtenant disputes, including possession, seen fit so, however, 16-1501 ordinary Columbia's general jurisdiction. Where done involves recognized must preserve parties trial.' 383, 1733. 24 sum, above stand clearly proposition law.'13 required choke already crowded types litigation prevented committing agencies competence field. assigned nevertheless us disregard interpretation espoused Loether reading holding solely entire really equitable nature; they entirely supra. They dictum congressionally agencies, holdings (1932); (1909); (1856); (1938). 25 None grounds tendered reinterpreting convincing. suggested Oceanic, Lessee, Phillips, Helvering, put issue. clear enough involved, requirement first instance. difficult believe dicta subsume required. Furthermore, remaining observed factfindings. Block, Pernell, Curtis. 26 Second, argued force deal inherently domain critical very existence importation goods, theory exercises regard less fundamental, exclusive, vital Nation, commerce among several latter enacting here. difficulty appear confine manner. referred 'matters, involving (that) congress bring cognizance deem proper.' How., 284. fine aliens, said ruling accordance 'settled construction' 'not tariff internal revenue, subjects' 'impose sanction officers necessity invoking power.' 339, 676. spoke broadly 'in departments,' supra, 452, gave 'familiar illustrations' permissible use 'interstate commerce.' 51, 402-403, 635, relying stated simply jury.' amenable limitations 27 assertion depend identity chosen submit dispute; otherwise, utterly destroy always resolution vast courts. put, overstates our unpersuasive. Our support situations creating rights. Wholly tort, contract, property implicated. 28 More point, factfinding, essential Colgrove Battin, 413 149, 157, 93 2448, 2452, 37 522 (1973), province English American systems Amendment; turned considerable degree litigant himself. Critical performed juries equity, admiralty, L. Ed. (1830); military justice system. so: Condemnation commonlaw Kohl 91 367, 375-376, 449 (1876); Bauman Ross, 167 548, 593, 42 270 (1897); Reynolds, 397 14, 18, 90 803, 806, (1970). '(M)any criminal proceedings 376, 449. particular found. Factfinding matter equity. Rather, rule, supplied adequate litigant.14 did, jury. Otherwise sitting breach example, making contract decided jury; specific unavailable relief ascertained court. declaratory 'preserved.' thus purport none before. Moreover, change freeze jurisdiction existed 1789, preventing developing inadequate. Ross Bernhard, 396 531, 733, 729 (1970), instructive respect. stockholder derivative where, corporation sued, corporation. apparent, 1938 Rules Procedure merging Bernhard because underlying presented plaintiff denied standing sue enabled proper circumstances, starting early part 19th century, company. point cases. concluding should interpreted cannot conclude rendered Indeed, contrary 'from beginning.' indicated, (1909), fines judiciary, required, (1914), validly opt trials. 634-635, 292.15 31 turns resolved resolved.16 work resulting Nation's men women. action, therefor, placed supplying speedy expert resolutions involved. creation outside regular 32 judgments below 33 ordered. BLACKMUN Senate Report assuring safe healthful workplaces women ranks importance engages attention today. 14,500 annually industrial accidents; accordingly, during past years Americans Vietnam war. By lowest count, 2.2 million disabled job year, loss 250 man many times through strikes. 'In addition individual human tragedies economic impact disability staggering. Over $1.5 billion wasted wages, annual Gross Product estimated $8 billion. Vast resources productive siphoned off workmen's compensation benefits medical expenses. 'This 'grim current scene' represents worsening trend, number disabling per hours worked today 20% higher 1958.' S.Rep.No.91-1282, Page Leg.Hist. 142, U.S.Code Cong. Admin.News Pages 5177, 5178. H.R.Rep.No.91-1291, 14-15 (1970); 844-845 ('The woman crucial environmental worst confronting workers'). House debates reprinted, along House, Senate, Conference Reports, one-volume Committee Print Legislative History Subcommittee Public Welfare, 92d Cong., 1st Sess. (June 1971) (cited supra hereafter Leg.Hist.). 5(a), 654(a), employer: '(1) furnish employment place causing likely physical harm employees; '(2) comply Act.' make absence fact. passed uniformly (and dissent) agreed results. Mohawk Excavating, Incorporated Rev. Comm'n, 549 859 (CA2 1977); Beall Constr. 507 1041 (CA8 1974); Brennan Winters Battery Mfg. 531 317 (CA6 1975); Clarkson 451 (CA10 1976). Underhill Corporation 526 53, n. 1975). violates arguing 'penal' nature. asked petition writ unfavorable light disposition decline respondents' invitation correctly divines intent respondents argue, application leaves interposing exact fine. Muniz Hoffman, 422 454, 95 2178, 45 1319 (1975). involve purely 'private rights.' accepted adjunct Article court, analogizing master perform master. 51-65, 292-298, (1932). said: 'On side aid deemed itself.' '(T)here rights, form capable acting them, determination, accord settled construction legislation beginning, tariff, subjects, proceeded conception competency legislating control, 'recovery incident (nonlegal) though might recovered law,' 629, since historically monetary relief. reinstatement dismissed employee, analogous injunctive obtainable consequently alternative Laughlin. insufficient NLRB's another, sought. Radio Officers NLRB, 347 17, 54, 74 323, 343, 98 455 (1954); Garment 166 233 1948); Brookside Industries, 308 224 (CA4 1962); Bon Hennings Logging 548 (CA9 West Coast Casket 205 902 1953); Reliance 125 311 (CA7 1941); Carpenters, 238 832 (CA5 1956); Indianapolis Power Light 122 757 1941). Katchen Landy, 382 86 467, 391 (1966), bankruptcy summary voidable preferences. jurisdiction, constituted out go far dismantle scheme. applies disputes 'legal' regarding real employs note appeals substantial-evidence test. present sort stage proceedings. Judiciary 82, provided: 'Sec. 16. And enacted, plain, complete noted that, fines, terms. govern 319 odd jury-trial labeling control jury-right picking issues. incorrect. depriving utilizing

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