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- NOTICE: This opinion is subject to formal revision before publication in the
- preliminary print of the United States Reports. Readers are requested to
- notify the Reporter of Decisions, Supreme Court of the United States, Wash-
- ington, D.C. 20543, of any typographical or other formal errors, in order that
- corrections may be made before the preliminary print goes to press.
- SUPREME COURT OF THE UNITED STATES
- --------
- No. 91-871
- --------
- BATH IRON WORKS CORPORATION, et al., PETI-
- TIONERS v. DIRECTOR, OFFICE OF WORKERS'
- COMPENSATION PROGRAMS, etc., et al.
- on writ of certiorari to the united states court
- of appeals for the first circuit
- [January 12, 1993]
-
- Justice Stevens delivered the opinion of the Court.
- Respondent Ernest C. Brown, a former employee of
- petitioner Bath Iron Works Corp., learned after he retired
- that he suffered from a work-related hearing loss. The
- parties agree that under the Longshore and Harbor
- Workers' Compensation Act (LHWCA or Act), 44 Stat.
- 1424, as amended, 33 U. S. C. 901 et seq., respondent
- is entitled to disability benefits on account of his injury.
- They disagree, however, as to the proper method of
- calculating those benefits.
- There are essentially three -systems- for compensating
- partially disabled workers under the Act, two of which are
- at issue in this case. The -first- system provides for
- compensation for partially disabled claimants who have
- suffered certain statutorily -scheduled- injuries, one of
- which is hearing loss. The -third- system provides for
- compensation for retirees who suffer from occupational
- diseases that do not become disabling until after retire-
- ment. In most, but not all, cases, benefits for scheduled
- injuries are more generous than those provided retirees
- suffering from latent occupational diseases. The question
- presented in this case is whether a claimant who discov-
- ers, after retirement, that he suffers from a work-related
- hearing loss should be compensated under the first
- system, because loss of hearing is a scheduled injury, or
- under the third system, because he did not become aware
- of the disabling condition until after retirement.
-
- I
- Prior to 1984, the LHWCA provided that compensation
- for a permanent partial disability should be determined
- in one of two ways. If the injury was of a kind specifi-
- cally identified in the schedule set forth in 8(c) of the
- Act, 33 U. S. C. 908(c)(1)-(20) (1982 ed.) the injured
- employee was entitled to two-thirds of his average weekly
- wage at the time of the injury for a specific number of
- weeks, regardless of whether his earning capacity had
- actually been impaired. See Potomac Electric Power Co.
- v. Director, Office of Workers' Compensation Programs, 449
- U. S. 268, 269-270 (1980). Loss of hearing was among
- those specified injuries. In all other cases, the Act
- authorized compensation equal to two-thirds of the differ-
- ence between the employee's average weekly wage and his
- postinjury earning capacity. 33 U. S. C. 908(c)(21). In
- those cases, unlike the scheduled-injury cases in which
- disability was presumed, it was necessary for the em-
- ployee to prove that his injury had actually decreased his
- earning capacity.
- In early 1984, the Benefits Review Board was con-
- fronted with a case in which the claimant had contracted
- asbestosis, a latent occupational disease that did not
- manifest itself until after his retirement. Because the
- disease did not qualify as a scheduled benefit, the claim-
- ant was not entitled to a presumption of disability;
- moreover, because it did not affect his actual earnings, he
- could not establish -disability- as defined in 902(10).
- Therefore, the Board held, the claimant was not entitled
- to any compensation under the Act. Aduddell v. Owens-
- Corning Fiberglass, 16 BRBS 131, 134 (1984). Three
- weeks after the Aduddell decision, the Board followed its
- reasoning in a case involving a hearing loss claim filed
- after the claimant's retirement. Redick v. Bethlehem Steel
- Corp., 16 BRBS 155 (1984). Although the ALJ in Redick
- had made a finding of disability because -scheduled
- awards are conclusive presumptions of loss of wage-
- earning capacity and cannot be rebutted,- id., at 156, the
- Board vacated the award of benefits, reasoning that the
- -voluntary retirement was prior to manifestation of the
- injury, and was unrelated to his hearing loss.- Id., at
- 157.
- In 1984, Congress amended the Act by adding the
- -third- compensation system that unquestionably provides
- compensation for the type of claim rejected in Aduddell
- and the other asbestos cases. With the 1984 Amend-
- ments, Congress authorized the payment of benefits to
- retirees suffering from occupational diseases that become
- manifest only after retirement. More precisely, a new
- 10(i) addresses claims for death or disability -due to an
- occupational disease which does not immediately result in
- death or disability.- 33 U. S. C. 910(i).
- As is the case under the first two compensation systems,
- compensation under the third system turns in large part
- on the -average weekly wage- used to calculate benefits.
- When the -time of injury--defined as -the date on which
- the employee or claimant becomes aware, or . . . should
- have been aware, of the relationship between the employ-
- ment, the disease, and the death or disability,- ibid.-is
- within the first year of retirement, the claimant's average
- weekly wage is based upon the claimant's wages just prior
- to retirement. 910(d)(2)(A). When the -time of injury-
- is more than one year after retirement, the average
- weekly wage is deemed to be the national average weekly
- wage at that time. 910(d)(2)(B).
- Once the -average weekly wage- is determined, a
- claimant's benefits are calculated under 8 of the Act.
- For claims in which -the average weekly wages are deter-
- mined under section 910(d)(2),- that is, for retirees with
- claims involving -an occupational disease which does not
- immediately result in death or disability,- 33 U. S. C.
- 910(i), a new 8(c)(23) provides that compensation shall
- be two-thirds of the applicable average weekly wage
- multiplied by the percentage of permanent impairment as
- determined by particular medical guides specified in the
- statute. 33 U. S. C. 908(c)(23). The claimant is entitled
- to such benefits for the duration of the impairment. Ibid.
- The differences between the first and third compensation
- systems can result in significantly differing benefits. An
- award to a claimant under the schedule, i. e., the first
- system, is based upon the degree of loss to the scheduled
- body part, whereas an award under the third system is
- based on the extent to which the -whole body- has been
- impaired. In most cases, this difference makes recovery
- under the schedule more generous than that under the
- retiree provisions.
- II
- Respondent was exposed to loud noise during his
- employment as a riveter and chipper at petitioner's iron
- works from 1939 until 1947, and again from 1950 until
- his retirement in 1972. In 1985 he received the results
- of an audiogram indicating an 82.4 percent loss of hear-
- ing. As authorized by a provision in the 1984 Amend-
- ments that is not at issue in this case, he then filed
- a timely claim for benefits.
- The ALJ, following Board precedent, applied a hybrid
- of the first and third compensation systems to calculate
- respondent's benefits. The ALJ concluded that
- respondent's hearing loss fell within the scope of the 1984
- amendments as an occupational disease that does not
- immediately result in disability and that the relevant
- -time of injury- was the date in September 1985 when
- respondent received his audiogram and became aware of
- his hearing loss. Accordingly, the ALJ identified the
- national average weekly wage in September 1985 as the
- relevant average weekly wage. At that point, however,
- the ALJ departed from the third system; instead of
- applying the formula in 8(c)(23) applicable to claims for
- latent occupational diseases, he turned to the first system,
- the schedule in 8(c)(13), to calculate respondent's weekly
- benefit. Respondent's benefits were thus limited to a
- precise number of weeks, as opposed to continuing
- throughout the duration of his disability as would be
- required under 8(c)(23). Yet, because of the differing
- formulas used in 8(c)(23) and 8(c)(13), the amount of
- each weekly benefit was higher than it would have been
- had respondent's benefit been calculated under Section
- 8(c)(23). The Benefits Review Board affirmed on the
- same rationale.
- On appeal, petitioners (the employer and its insurance
- carrier) agreed with the ALJ and the Board that respon-
- dent suffers from a latent occupational disease within the
- meaning of 10(i), but argued that the ALJ and the Board
- erred in failing to apply the benefit formula in 8(c)(23)
- appropriate to such claims. While petitioners challenged
- the method of computing the benefit, they did not contest
- the use of 82.4% as the measure of Brown's hearing loss,
- even though the record contains persuasive evidence that
- a portion of that loss is attributable to the aging process
- after his retirement.
- The Director of the Department of Labor's Office of
- Workers' Compensation Programs challenged the ALJ's
- and the Board's reasoning on different grounds. The error
- they made, the Director argued, was in looking to the
- third compensation system at all, for hearing loss is not
- an occupational disease that -does not immediately result
- in death or disability.- 33 U. S. C. 910(i). Relying on
- undisputed scientific evidence, the Director argued that
- work-related hearing loss, unlike a disease such as
- asbestosis, does cause immediate disability:
- -[D]eafness is an injury that a worker typically suffers
- before retirement. After retirement a worker's
- workplace-noise-induced deafness will not ordinarily
- grow worse; if anything it will get better. See R.T.
- Sataloff & J. Sataloff, Occupational Hearing Loss 357
- (1987). Moreover, unlike asbestosis, the symptoms of
- deafness occur simultaneously with the `disease.' In
- other words, to say that a worker is `84.4% deaf' is
- to say that he has lost 84.4% of his hearing. If he
- does not notice his deafness, and does not file a claim
- until long after retirement, that fact does not mean
- he is not deaf; it does not mean he has no deafness
- symptom; rather, it means he may have grown accus-
- tomed to his deafness, which is quite a different
- matter.- 942 F. 2d 811, 816 (CA1 1991) (summarizing
- Director's argument).
-
- Accepting the Director's undisputed characterization of
- occupational hearing loss, the Court of Appeals held that
- respondent's disability was not -due to an occupational
- disease which does not immediately result in . . . dis-
- ability,- 33 U. S. C. 910(i), and that therefore his claim
- did not fall within the third compensation system.
- -[U]sing ordinary English,- the court noted, -one would
- normally say that deafness is a disease that causes its
- symptoms, namely loss of hearing, simultaneously with its
- occurrence. One simply cannot say that a person suffering
- from deafness is not deaf-whether or not he notices how
- deaf he is.- Id., at 817 (emphasis added). Having ruled
- out application of the third compensation system, the
- court found that respondent's claim fell squarely within
- the first system, which draws no distinction between
- retired and working claimants and expressly provides for
- compensation for work-related hearing loss. The Court
- thus affirmed the Board's result-application of the benefit
- calculation formula for scheduled injuries in 8(c)(13)-but
- rejected its reliance on the third compensation system for
- latent occupational diseases.
- The Courts of Appeals for the Fifth and Eleventh
- Circuits have reached the opposite conclusion. While both
- courts have agreed with the court below in rejecting the
- Board's -hybrid- approach, they have both held, in con-
- trast to the decision below, that a retiree's claim for
- occupational hearing loss is -a claim for compensation for
- . . . disability due to an occupational disease which does
- not immediately result in . . . disability,- 33 U. S. C.
- 910(i), and therefore should be compensated under the
- retiree provisions enacted in 1984. See Ingalls Shipbuild-
- ing v. Director, Office of Workers' Compensation Programs,
- 898 F. 2d 1088 (CA5 1990); Alabama Dry Dock and Ship-
- building Corp. v. Sowell, 933 F. 2d 1561 (CA11 1991).
- We granted certiorari to resolve the conflict. 503 U. S.
- ____ (1992). We now affirm.
-
- III
- Petitioners do not dispute the Director's or the lower
- court's characterization of occupational hearing loss, and
- we find no basis for doing so ourselves. Once we accept
- that characterization, it follows that the retiree provisions
- enacted in 1984-the so-called -third- compensation sys-
- tem-do not apply to claims for occupational hearing loss.
- Occupational hearing loss, unlike a long-latency disease
- such as asbestosis, is not an occupational disease that
- does not -immediately result in . . . disability.- 33
- U. S. C. 910(i). Whereas a worker who has been
- exposed to harmful levels of asbestos suffers no injury
- until the disease manifests itself years later, a worker
- who is exposed to excessive noise suffers the injury of loss
- of hearing, which, as a scheduled injury, is presumptively
- disabling, simultaneously with that exposure. Because
- occupational hearing loss does result in immediate dis-
- ability, the plain language of 10(i) leads to the conclusion
- that a retiree's claim for occupational hearing loss does
- not fall within the class of claims covered by the third
- compensation system.
- The Courts of Appeals for the Fifth and Eleventh
- Circuits recognized the crucial distinction between occupa-
- tional hearing loss and latent diseases such as asbestosis,
- but nonetheless concluded that Congress, in enacting the
- third compensation system, did not intend to distinguish
- between the different types of occupational diseases
- suffered by retirees. In particular, these courts were
- concerned that if a retiree's claim for occupational hearing
- loss was not deemed to be a claim with respect to -an
- occupational disease which does not immediately result in
- . . . disability,- then the Act would be silent as to the
- appropriate -time of injury- for such a claim. That is, if
- the -time of injury- for a retiree's claim of occupational
- hearing loss is not -the date on which the employee or
- claimant becomes aware, or . . . should have been aware,
- of the relationship between the employment, the disease,
- and the death or disability,- then when is it? To the
- Director's response that in the case of occupational hear-
- ing loss the time of injury is the date on which the
- disabling condition is complete, that is, the date of last
- exposure to the workplace noise, both courts found that
- the -date of last exposure- rule had been rejected by other
- courts and by Congress and therefore should not be
- resurrected absent some indication of congressional intent
- to do so. Ingalls, 898 F. 2d, at 1093-1094; Sowell, 933
- F. 2d, at 1566-1567.
- We do not find the reasoning of these courts persuasive
- for two reasons. First, the statute provides that the
- retiree provisions apply not to every occupational disease,
- but just to an occupational disease -which does not
- immediately result in . . . disability.- 33 U. S. C. 910(i)
- (emphasis added). Asbestosis is such a disease; hearing
- loss is not. In ignoring the fact that occupational hearing
- loss does immediately result in disability, the Courts of
- Appeals for the Eleventh and Fifth Circuits have essen-
- tially read that key phrase out of the statute. Congress
- certainly could have enacted a compensation system that
- treated retirees differently from current workers in all
- cases, regardless of the nature of the particular occupa-
- tional disease from which they suffered. As we read the
- statute, however, that is not the path Congress took.
- Second, while it is true that prior to the 1984 amend-
- ments some courts had rejected fixing the time of injury,
- and thus the applicable average weekly wage, as the date
- of last exposure to the harmful substance, those cases
- involved long-latency diseases such as asbestosis. See,
- e.g., Todd Shipyards Corp. v. Black, 717 F. 2d 1280 (CA9
- 1983). In such cases, using the date of last exposure as
- the relevant time of injury was deemed inappropriate
- because, according to ordinary understanding, a worker is
- not injured at that time; the injury arises years later
- when the disease manifests itself. Id., at 1290 (-The
- average person . . . would not consider himself `injured'
- merely because the [asbestos] fibers were embedded in his
- lung-). For the reasons explained above, the same cannot
- be said about occupational hearing loss. The injury, loss
- of hearing, occurs simultaneously with the exposure to
- excessive noise. Moreover, the injury is complete when
- the exposure ceases. Under those circumstances, we think
- it quite proper to say that the date of last exposure-the
- date upon which the injury is complete-is the relevant
- time of injury for calculating a retiree's benefits for
- occupational hearing loss.
- Nor are we persuaded by petitioners' arguments as to
- why retiree claims for occupational hearing loss should be
- compensated pursuant to the third compensation system.
- Petitioners correctly point out that even though the
- portion of a retiree's hearing loss that is attributable to
- his occupation may remain constant after retirement, the
- aging process may cause it to worsen during retirement.
- In our view, however, this is a matter that is relevant to
- the computation of the amount of the benefit-a matter
- that is not in dispute in this case-rather than to the
- retiree's eligibility for a scheduled benefit. To the extent
- there is any unfairness in the statutory scheme in that
- employers may be liable for hearing loss attributable to
- aging, employers can protect themselves by providing their
- employees with an audiogram at the time of retirement
- and thereby freezing the amount of compensable hearing
- loss attributable to the claimant's employment.
- Petitioners also point out, again correctly, that during
- debate on the 1984 Amendments a Senator made a
- passing reference to the Redick case and suggested that
- the House and Senate conferees disagreed with the
- Board's decision in that case. 130 Cong. Rec. 26300
- (1984) (statement of Sen. Hatch). Because that was a
- hearing loss case, they infer that the retiree provisions of
- the amendment should be construed to apply to such
- cases. In addition to the fact that the conclusion does not
- necessarily follow from the premise, we reject the argu-
- ment for two reasons, each of which is sufficient. First,
- when carefully read, we find the text of the statute
- unambiguous on the point at issue; accordingly, we give
- no weight to a single reference by a single Senator during
- floor debate in the Senate. Second, as part of the 1984
- Amendments, Congress amended 8(c)(13) to preserve the
- timeliness of hearing loss claims filed more than a year
- after the employee's last exposure. It accomplished
- that purpose not by postponing the time of injury until
- the date of awareness, but, on the contrary, by providing
- that the -time for filing a . . . claim for compensation . . .
- shall not begin to run in connection with any claim for
- loss of hearing under this section . . . until the employee
- has received an audiogram . . . .- 33 U. S. C. 908(c)
- (13)(D). Thus, Congress responded to its concern about
- latent diseases that are not scheduled and cause no loss
- of earnings by enacting the interrelated provisions consti-
- tuting the -third- compensation system, whereas it re-
- sponded to a concern about hearing loss claims by amend-
- ing 8(c)(13).
- IV
- For the reasons given, we hold, as did the court below,
- that claims for hearing loss, whether filed by current
- workers or retirees, are claims for a scheduled injury
- and must be compensated pursuant to 8(c)(13) of the
- LHWCA, not 8(c)(23).
- The judgment of the Court of Appeals, accordingly, is
- affirmed.
- It is so ordered.
-