Associated Indus. of NYS, Inc. v. United States Dept. of L.
Decision Date | 04 October 1973 |
Docket Number | No. 221,Docket 73-1978.,221 |
Citation | 487 F.2d 342 |
Parties | ASSOCIATED INDUSTRIES OF NEW YORK STATE, INC., Petitioner, v. The UNITED STATES DEPARTMENT OF LABOR et al., Respondents. |
Court | U.S. Court of Appeals — Second Circuit |
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Charles E. Cooney, Jr., Syracuse, N. Y. (George R. Fearon, and Costello, Cooney & Fearon, Syracuse, N. Y., of counsel), for petitioner.
Donald Etra, Dept. of Justice, Washington, D. C. (Irving Jaffe, Acting Asst. Atty. Gen., Michael A. Levin, and Marc Hillson, Dept. of Labor, of counsel), for respondents.
John F. McElvenny, Philadelphia, Pa., for Pennsylvania Manufacturers' Assn., amicus curiae.
Leon L. Lemaire, Hartford, Conn., for Connecticut Business & Industry Assn., Inc., amicus curiae.
Before LUMBARD, FRIENDLY and FEINBERG, Circuit Judges.
This petition to review so much of an order of the Department of Labor, 38 F.R. 10930, 10933 (1973), as set minimum numbers of lavatories in industrial establishments is an early illustration of the new tasks imposed on the federal courts of appeals by legislation enacted during the past decade which subjects to their review a wide variety of determinations, by agencies within the executive branch or newly created commissions,1 many of which are legislative in character and result from informal rulemaking. The difficulty of discharging the responsibilities Congress has created for us is exacerbated by the absence of statutory harmony with respect to the nature and scope of review.2
After the end of this stop-gap period, standards were to be promulgated, modified or revoked by a rulemaking procedure specified in 29 U.S.C. § 655(b). Petitioner does not dispute that, broadly speaking, this is to be "notice and comment" rulemaking of the sort provided in § 4 of the APA, now 5 U.S.C. § 553. The proposed standard is to be published in the Federal Register, and interested persons are to be given thirty days to submit written data or comments. During the same period any interested person may file written objections and request a public hearing thereon. Within another thirty days the Secretary shall publish in the Federal Register a notice specifying the standard to which objections have been filed and setting a hearing. Within sixty days after the period for filing comments or, if objection and request for hearing have been timely filed, within sixty days after the hearing, the Secretary shall take action. Any standard, accompanied by a statement of the reasons for it, shall be published in the Federal Register, 29 U.S.C. § 655(e). The Secretary has fleshed out this provision by a regulation, 29 C.F.R. § 1911.18(b), as amended, 37 F.R. 8665 (1972):
Any rule or standard adopted under paragraph (a) of this section shall incorporate a concise general statement of its basis and purpose. The statement is not required to include specific and detailed findings and conclusions of the kind customarily associated with formal proceedings. However, the statement will show the significant issues which have been faced, and will articulate the rationale for their solution.
The judicial review provision, 29 U.S.C. § 655(f), is as follows:
Any person who may be adversely affected by a standard issued under this section may at any time prior to the sixtieth day after such standard is promulgated file a petition challenging the validity of such standard with the United States court of appeals for the circuit wherein such person resides or has his principal place of business, for a judicial review of such standard. A copy of the petition shall be forthwith transmitted by the clerk of the court to the Secretary. The filing of such petition shall not, unless otherwise ordered by the court, operate as a stay of the standard. The determinations of the Secretary shall be conclusive if supported by substantial evidence in the record considered as a whole.
Although petitioner now questions whether the ANSI standard met the statutory requirement for a national consensus standard, neither it nor, so far as appears, anyone else challenged this within the 60 days allowed by § 655(f).
On July 15, 1972, the Secretary issued, under § 655(b), a notice of rulemaking, 37 F.R. 13996, which proposed a substantial revision of the standards previously adopted. With respect to lavatories it was proposed to reduce the requirements for "offices" in a manner not here material but to retain those previously provided for "all other". Id. at 13998. The reason for the change was explained as follows:
Not all office workers need or do wash at the end of the working day. The number of lavatories required in the present standard and ANSI Z4.1 is based more on industrial occupancies, where the load on washing facilities is likely to be heavier, and concentrated at specific periods of the working day.
Id. at 13996. Comments and requests for a hearing having been received, the Secretary published a notice of informal hearing, 37 F.R. 20571. Such a hearing, the bulk of which was devoted to proposals other than that here at issue,3 was held on November 8-10, 1972.
Thereafter the Secretary promulgated, 38 F.R. 10930, 10933 (1973), a revision of 29 C.F.R. § 1910.141. This set up the following requirements for lavatories:
TABLE J-2
--------------------------------------------------------------------- Number of Minimum number Type of employment employees of lavatories --------------------------------------------------------------------- Nonindustrial—office buildings, 1-15____ 1 public buildings, and 16-35____ 2 similar establishments. 36-60____ 3 61-90____ 4 91-125___ 5 Over 125_ 1 additional fixture for each additional 45 employees. Industrial&factories, warehouses, 1-100____ 1 fixture for each loft buildings, and 10 employees. similar establishments. Over 100_ 1 fixture for each additional 15 employees.
No mention was made of the objections that had been proffered to the minima-proposed for industrial establishments or of the reasons for rejecting them.
This petition for review of the portion of the standard concerning lavatories in industrial establishments followed. Another panel stayed enforcement of the standard pending argument of an expedited appeal; we continued the stay.
The respondents ask us to apply a standard of review less severe than the substantial evidence test. They point to what they consider an anomaly in subjecting notice and comment rulemaking, which has here produced a regulation essentially legislative in nature, to the substantial evidence test, which under the APA, 5 U.S.C. § 706(2)(E), applies only to determinations resulting from adjudication, 5 U.S.C. § 554, and rules "required by statute to be determined on the record after opportunity for an agency hearing," 5 U.S.C. § 553(c). It is argued in support of this that the final sentence of § 655(f) says only that the Secretary's "determinations" must be supported by substantial evidence, not that the regulation as a whole must be so supported; respondents' clear implication is that § 655(f) imposes the substantial evidence test only upon such findings of fact as the Secretary announces when promulgating a rule.
Admittedly, the...
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