March 27, 2002 8:00 a.m.
Right to Die
More ADA nonsense.
f
there's a good chance that your job will kill you, does the Americans
with Disabilities Act give you a legal right to the job? The Supreme
Court is deciding that question this term, in the case of Chevron
v. Echazabal. If the Supreme Court follows Justice Scalia's
preferred approach to statutory interpretation, employees are going to
have a right to speak literally when they say "This job is killing
me." If you don't like the result, blame Congress, not the courts.
The case begins
in 1972, when Mario Echazabal went to work at a coker unit at a
Chevron oil refinery. The coker unit burns petroleum coke (a variety
of coal) in the process of making gasoline. In 1992, Echazabel applied
to work for Chevron itself, rather than as a contractor. Chevron
offered to hire him if he passed a physical exam. The medical exam
showed that Echazabal's liver produced unusually high levels of
enzymes. Chevron withdrew the job offer, because his liver was
especially vulnerable to damage from the solvents and chemicals in the
coker unit. Further examinations revealed that the liver enyzmes were
symptoms of chronic Hepatitis C.
According to the
Centers for Disease Control and Preventation, Hepatatis C (HCV)
"Occurs when blood or body fluids from an infected person enters the
body of a person who is not infected." The disease "is spread through
sharing needles or 'works' when 'shooting' drugs, through needlesticks
or sharps exposures on the job, or from an infected mother to her baby
during birth." HCV frequently causes chronic liver disease. According
to the CDC, "Most infections are due to illegal injection drug use,"
although there were cases of transmission due to tainted blood
donations in previous decades. About 2.7 million Americans have
chronic HCV.
Chevron did not stop Echazabal from continuing to work for the
contractor in the coker unit.
In 1995, Echazabal applied for the same job again, again received a
contingent job offer, and again failed the medical exam. Chevron then
told the contractor to take Echazabal away from the refinery, and to
give him a job where he would not be exposed to solvents and
chemicals.
Mr. Echazabal did not, however, thank Chevron for getting him
transferred to a safer job. He filed a lawsuit, claiming he had been
discriminated against in violation of the Americans with Disabilities
Act.
In a split decision, a panel of the
Ninth Circuit
Court of Appeals upheld Mr. Echazabal's claim, setting the stage
for the Supreme Court case.
Under the ADA, a company may not deny a job because of a person's
disability. The definition of disability is quite broad, and
encompasses harms that are self-inflicted as a result of lifestyle
choices — such as contracting HCV by using dirty needles.
A company may discriminate though, under certain limited
circumstances. For example, if the disability seriously interferes
with an "essential function" of the job in question. In Echazabal's
case, he worked in the coker unit for 20 years, so he obviously can
perform the job itself.
Suppose a person can actually perform the job, but because of the
disability, the job performance would be dangerous? According to the
ADA: "The term 'qualification standards' may include a requirement
that an individual shall not pose a direct threat to the health or
safety of other individuals in the workplace." (ADA section 12113(b).)
Here is the crux of the case: The ADA statute speaks only about "a
direct threat to the health or safety of other individuals." Mr.
Echazabal is no threat to anyone but himself. The chemicals in the
coker unit may kill him, but his bad liver won't endanger anyone else.
Despite the clear language of the statute, the Equal Employment
Opportunities Commission wrote a regulation stating that a threat to
oneself would be reason for disqualifying someone from a job. By the
EEOC regulation, Chevron had a right to refuse to hire Echazabal for a
job that could kill him. (There are factual disputes about just how
dangerous the job would be for Mr. Echazabal, but
at oral argument, Echazabal's lawyer conceded that the legal
theory would not change even if there were a 99 percent chance that a
job would kill someone within two weeks.)
What about the legal risks that Chevron would assume by hiring
Echazabal? To begin with, state criminal laws, such as California's,
often impose criminal penalties on companies which fail to provide a
safe workplace. For example, the California Labor Code forbids any
workplace that "is not safe and healthful," and states that the
employer must not "permit" an employee to work in such a place. A
"serious" violation, defined as one which involves risk to life
(certainly present in Echazabal's case), is a crime. (Cal. Labor Code,
sections
6402, 6403, and
6423).
In addition, a wide variety of tort laws allow suits growing out of
workplace injuries or deaths. Even if Mr. Echazabal is held to have
"assumed the risk," one of his relatives might be allowed to sue
Chevron, if Echazabal dies. Further, once Echazabal starts suffering
serious illness from his job in the coker unit, he will be entitled to
workman's compensation. This will raise Chevron's workman's
compensation premiums.
The people who argue that the ADA gives Echazabal a right to the job
also argue that criminal and civil liability may be preempted by the
Americans with Disabilities Act. Yet the ADA does not explicitly
preempt such liability. Perhaps a court might find preemption by
implication, but the truth is that no one knows what a court would do.
Thus, employers are faced with a dilemma: Don't let workers destroy
themselves, and get sued under the ADA. Or do let workers kill
themselves, and get criminally prosecuted and civilly sued, and hope
that an appellate court eventually rules in your favor.
Under Justice Scalia's leadership, the Supreme Court has increasingly
taken the position that when statutes are clear, administrative
agencies (such as the EEOC) should not have the authority to invent
conflicting interpretations. If this view prevails in the Chevron
case, it's hard to see how Mr. Echazabal can be denied his "right" to
a job that may kill him. As demonstrated by skeptical questions by the
Justices during
oral argument, the arguments in Chevron's favor depend on a
strained reading of general language in the ADA ("business necessity")
as somehow trumping plain and specific language ("direct threat to the
health or safety of other individuals"). The legal maxim is "Expresso
unius est exclusio alterius." Or, the expression of one thing (threats
to others) is the exclusion of another (threat to oneself).
As Mr. Echazabal's allies point out, the stated objective of the
Americans with Disabilities Act was to outlaw "paternalism" in dealing
with disabled people. Yet the ADA itself is a monster of paternalism,
imposing minute, ridiculous controls on employers throughout the
nation. Walter Olson's superb Overlawyered.com website keeps track of
the
many abuses which the ADA has spawned.
When the ADA was being debated in Congress, many Americans thought
that the Act involved things like making buildings accessible to
wheelchairs, putting Braille on signs in public places, and similar
measures. But these measures to address genuine disabilities are only
a small part of the ADA's reach. The preposterously overbroad
definition of "disability" includes diseases contracted through
voluntary drug abuse with dirty needles. The problem here isn't
"pointy-headed bureaucrats" who interpret the law. Nor are courts the
problem; their job is to enforce the statute that Congress wrote.
Rather, the problem is Congress and the first President Bush, who
together created the most intrusive anti-employer, anti-safety,
anti-common sense federal labor law ever. It is neither compassionate
nor conservative for Mr. Echazabal to be given a federal right to a
job that may kill him. If you want to blame the courts, then blame the
Supreme Court during FDR's second term, which adopted the rule that
the congressional power "To regulate Commerce…among the several
States" meant that Congress could impose a labor code on manufacturing
which takes place entirely within the boundaries of a single state.
"Commerce" is buying and selling; manufacturing is not commerce, but
takes place prior to commerce. An activity within a single state is
not "among the several states." Through the California Labor Code, the
California government has already balanced worker safety versus worker
desire for high-paying but dangerous jobs. Like most of the rest of
federal laws about noncommercial, intrastate employment, the Americans
with Disabilities Act is a usurpation of power which the Constitution
never really granted to Congress.
If you want to complain about cases like Chevron, don't blame
the courts for following the statute which Congress created. Blame the
courts for ignoring the Constitution and allowing Congress to write
the statute in the first place.
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