IN THE SUPREME COURT
OF IOWA
JUNE G. PROBASCO, Petitioner
VS.
IOWA CIVIL RIGHTS COMMISSION and HY-VEE FOOD STORES, INC. Respondents.
HY-VEE FOOD STORES, INC., Appellant
VS.
IOWA CIVIL RIGHTS COMMISSION and JUNE G. PROBASCO, Appellees.
Filed March 16, 1988
Appeal from the Iowa
District Court for Polk County, Joel Novak,Judge.
Appeal from district court's
affirmance of agency determination that employer discriminated
against employee on the basis of employee's handicap. REVERSED
AND REMANDED.
James D. Meyer of Meyer
Law Firm, Chariton, and Stanley E. Craven of Spencer, Fane, Britt
& Brown, Kansas City, Missouri, for appellant.
Thomas J. Miller, Attorney
General, and Teresa Baustian, Assistant Attorney General, for
appellee Iowa Civil Rights Commission.
Gary D. Woodward and James
C. Davis of Woodward, Davis & Rossi, for appellee June C.
Probasco.
Considered by Harris, P.J., and Larson, Schultz, Lavorato, and Snell, JJ.
SNELL, J.
Petitioner June G. Probasco
is a former employee of respondent Hy-Vee Food Stores, During
her employ, she developed a chronic susceptibility to bronchitis.
As a result of this condition, Probasco's physicians advised her
and Hy-Vee that she not work in certain conditions, most notably
around intense chemical fames, dust, or poor ventilation. On April
20, 1981, Hy-Vee terminated Probasco's employment, citing their
inability to change Probasco's work environment and the unavailability
of other employment with them. Subsequent proceedings before the
Iowa Civil Rights Commission concluded that Hy-Vee had discriminated
against Probasco on the basis of her respiratory condition, which
the commission found to be a "disability" as that term
is used within the Iowa Civil Rights Act. The district court affirmed
on judicial review and this appeal followed.
Our review of the district
court's disposition of this case is clearly limited to the correction
of legal errors. See, e.g., Cerro Gordo County Care
Facility v. Iowa Civil Rights Comm'n, 401 N.W.2d 192, 196
(Iowa 1987). In deciding whether the district court correctly
applied the law, we examine the record before the agency and look
to the standards Iowa Code section 17A. 19(8) to determine whether
our conclusions are the same as those of the district court. Eg.,
Summers v. Iowa Civil Rights Comm'n, 337 N.W.2d 470, 472
(Iowa 1983).
Iowa Code section 601A.6 prohibits, as an unfair and discriminatory practice, the discharge of any employee because of the employee's disability, unless the discharge was "based upon the nature of the occupation." "Disability," for the purpose of this prohibition, is defined as "the physical. . condition of a person which condition of a person which constitutes a substantial handicap, but is unrelated to such person's ability to engage in a particular occupation." Iowa Code § 601A.2(11) (1981). Further content is given to this definition by the following administrative rules:
(1) The term "substantially handicapped person" shall mean any person who has a physical or mental impairment which substantially limits one or more major life activities, has a record of such an impairment, or is regarded as having such an impairment.(2) The term "physical or mental impairment"means:
a. Any physiological disorder
or condition, cosmetic disfigurement, or anatomical loss affecting
one or more to the following body systems: Neurological; musculoskeletal;
special sense organs; respiratory, including speech organs; cardiovascular;
reproductive; digestive; genitourinary; hemic and lymphatic; skin;
and endocrine; or ....
(3) The term "major life activities" means functions such as caring for one's self, performing manual tasks, walking, seeing, hearing, speaking, breathing, learning, and working.
240 Iowa Admin. Code 6.1(1)
- (3) (1980) (now located at 161 Iowa Admin. Code 8.26 (1) - (3)
(1987)).
Hy-Vee presents a narrow
issue for our review: Did the district court err in affirming
the Civil Rights Commission's conclusion that Probasco was a "substantially
handicapped" individual as that status is defined by the
above-noted statute and rules. Hy-Vee concedes that Probasco's
condition constitutes an impairment within these rules; it argues,
however, that the impairment does not 'substantially limit"
any of Probasco's major life activities within any meaning of
that phrase consistent with the statute. Hy-Vee contends, therefore,
that Probasco does not belong to a group protected by the statute
and accordingly, may not obtain relief provided therein. See Brown
v. Hy-Vee Food Stores, Inc. 407 N.W.2d 598, 599 (Iowa 1987).
If such is the case, the commission would have no jurisdiction
over Probasco's complaint, see Sommers, 337 N.W.2d at 472;
240 Iowa Admin. Code 1. 1 (6) (e) (1980) (now located at 161 Iowa
Admin. Code 2.1 (6) (b) (1987)), and the district court would
be in error for not reversing the commission's order and dismissing
the complaint.
In determining the reach
of the Iowa Civil Rights Act, we are guided by familiar principles.
In cases of statutory construction, the judicial task is to interpret
words of the relevant statute in light of the purposes the legislative
branch sought to serve by its enactment. Dickerson v. New Banner
Institute, Inc., 460 U.S. 103, 118, 103 S. Ct. 986, 995, 74
L. Ed. 2d 845, 858, reh'g denied, 461 U.S. 911,
103 S. Ct, 1887, 76 L. Ed. 2d 815 (1983); In re Estate of Keeg,
369 N.W.2d 447, 450 (Iowa 1985). To ascertain the legislative
intent in construing a statute, a court may properly consider
not only the language of the statute, but also its subject matter,
object sought to be accomplished, purpose to be served, underlying
policies, remedies provided, and consequences of various interpretation.
Kifer v. Liberty Mut. Ins. Co.. 777 F.2d 1325, 1332 (8th
Cir. 1985);
see Emmetsburg Ready Mix Co. v. Norris, 362 N.W.2d 498,
499 (Iowa 1985). In order to determine and effectuate legislative
intent, a statute must be considered in its entirety. Kifer, 777
F.2d at 1332; State v. Whetstine, 315 N.W.2d 758, 760 (Iowa
1982). Remedial legislation should be construed liberally consistent
with its statutory purpose. International Nutrition Inc. v.
U.S. Dept. of Health and Human Servs., 676 F.2d 338, 341 (8th
Cir. 1982); State ex rel. Turner v. Koscot Interplanetary Inc.,
191 N.W.2d 624, 629 (Iowa 1971). This mandate for a liberal construction
is written directly into the Civil Rights Act. Iowa Code section
601A.18 (1981). In addition, we note that although we generally
give weight to an administrative agency's rules, we do not give
weight to an agency's interpretation of those rides if that interpretation
is inconsistent with the enabling statute. Eg., Means v. Iowa
Dep't of Social Servs., 366 N.W.2d 555, 558 (Iowa 1985).
On several occasions, our
courts have looked to the federal system for guidance in construing
our similar civil rights legislation. See King v. Iowa Civil
Rights Comm'n, 334 N.W.2d 598, 601 (Iowa 1983); Iowa Beer
& Liquor Control Store 1023 v. Iowa Civil Rights Comm'n,
337 N.W.2d 896, 897 (Iowa App. 1983). We employ this approach
again today because, as demonstrated below, the civil rights legislation
and implementing rules involving in this case mirror those adopted
on the federal level.
The Iowa statute involved
here prohibits employment-related discrimination on the basis
of an individual's "disability". Iowa Code § 601A.
6(l) (1981). The term "disability" is statutorily defined
in terms of a condition "which constitutes a substantial
handicap. . . .- Iowa Code § 601A.2(11) (1981). As is done
on the federal level, we too may assume for the purposes of our
statute that a person with a "substantial handicap"
is a "handicap individual.' See 45 C.F.R. § 84.3
(e) (1987) ("Handicap" means any condition or characteristic
that renders a person a handicapped person as defined in [45 C.F.
R § 84.3 This latter phrase-"handicapped individual"-
is the subject of additional clarification on the federal level,
and we believe that today this clarification should be incorporated
into our construction of the pertinent sections of the Iowa Civil
Rights Act.
The analogous federal law
governs the employment of handicapped persons under federal contracts,
see 29 U. S. C. § 793 (1981), and prohibits discrimination
against handicapped individuals in federally funded programs and
activities, see 29 U.S.C. § 794 (1981). The statutory definition
of *handicapped individual" applicable to these provisions
is, disregarding an exclusion for substance abusers not pertinent
to this case, identical to that of "substantially handicapped
person" contained in our above-mentioned administrative rules.
Compare 29 U.S.C. § 706(7)(b)(1981) with 240
Iowa Admin. Code 6.1(1) (1980) (now located at 161 Iowa Admin.
Code 8.26(l) (1987)).
The federal administrative
rules which attempt to clarify the phrase "handicapped individual"
include a definition of major life activities' substantially identical
to Iowa's administrative definition. Compare 240 Iowa Admin.
Code 6.1(3)(1980)(now located at 161 Iowa Admin. Code
8.26(3)(1987)) with 45 C.F.R.
§ 84.30)(2)(ii)(1987),
29 C.F.R. § 32.2 (1987) and 41 C.F.R. § 60-741 Appendix
A (1987). Each of these federal administrative interpretations,
like Iowa's, endorses a broad understanding of the phrase.
The federal rules, however,
proceed a step further than Iowa's and adopt definitions of the
phrase "substantially limits," which, as is also the
case in the Iowa act, is used in delimiting the protection afforded
by the enabling legislation. Those definitions reflect an administrative
construction cognizant of the legislation's overriding concern
with discrimination in the employment context:
The phrase 'substantially limits' means the degree that the impairment affects employability. A handicapped individual who is likely to experience difficulty in securing, retaining or advancing in employment would be considered substantially limited.
41 C.F.R. § 60-741 Appendix A (1987)
"Substantially limits" means the degree that the impairment affects . . . an individual's employability. A handicapped individual who is likely to experience difficulty in ... securing, or retaining, or advancing in employment would be considered substantially limited.
29 C.F.R. §32.3 (1987).
Accordingly, although the
federal rules, like Iowa's, employ a broad definition of "major
life activities," the overriding purpose of the enabling
legislation--the protection of employment opportunities, see
29 U.S.C. §§ 793 ("Employment under Federal contracts.');
794 ("Nondiscrimination under Federal grants and programs.
. . .") - is reflected in the construction given to the phrase
"substantially limits." Similarly here, the statute
under which the instant matters proceeded reflects in its title
the statute's overriding concern: "Unfair employment practices".
Iowa Code § 601A.6 (1981). In order that the statute's construction
be consistent with this purpose, we think the phrase "substantially
limits" must be interpreted to mean the degree to which the
impairment affects an individual's employability. Cf. 29
C.F.R. § 32.3 (1987(; 41 C.F. R. § 60741 Appendix A.
(1987). We recognize this holding is in ostensible tension with
a literal reading of that part of the statutory definition which
requires the individual's handicap to be "unrelated to such
person's ability to engage in a particular occupation* in order
to qualify as a protected "disability". Iowa Code §
601A.2(11) (1981). We have rejected such a literal reading, however
and have held, consistent with our decision today, that the statute
protects those with "substantial physical impairment[s] affecting
[their] ability to perform on the job". Halsey v. Coca-Cola
Bottling Co., 410 N.W.2d 250, 252 (Iowa 1987).
Forsi v. Bower, 794 F.2d 931, 934 (4th Cir. 1986),
contains a discussion of the purpose of disability discrimination
legislation which we think is consistent with both our statute
and our holding today. Such legislation, said the court assures
that truly disabled, but genuinely capable, individuals will not
face discrimination in employment because of stereotypes about
the insurmountability of their handicaps. It would debase this
high purpose if the statutory protections available to those truly
handicapped could be claimed by anyone whose disability was minor
and whose relative severity of impairment was widely shared. Indeed,
the very concept of an impairment implies a characteristic that
is not commonplace and that poses for the particular individual
a more general disadvantage in his or her search for satisfactory
employment.
The degree to which an impairment
substantially limits an individual's employment potential must
be determined with reference to a number of factors: the number
and type of jobs from which the impaired individual is disqualified,
the geographical area to which the individual has reasonable access,
and the individual's job training, experience and expectations.
E.E. Black, Ltd. v. Marshall, 497 F. Supp 1088. 11000-01
(D. Hawaii 1980); See Forrisi, 794 F.2d at 933;
Jasany v. United States Postal Serv., 755 F2d. 1244, 1249
(6th Cir. 1985). An impairment that interferes with an individual's
ability to do a particular job but does not significantly decrease
that individual's ability to obtain satisfactory employment otherwise
is not substantially limiting within our statute. See Janasy,
755 F.2d at 1248; see also Salt Lake City Corp. v. Confer
674 P.2d 632, 636- (Utah 1983) ("one particular Job for
one particular employer cannot be a 'major life activity.'").
The record discloses that
Probasco's experience and training is in the secretarial, clerical,
and personnel fields. She testified she sought work in these fields
following her termination from Hy-Vee. She testified that she
had never been denied employment on the basis of her health and,
in fact, stated that she believed those employment rejections
she had received were due to poor references from Hy-Vee. While
she claimed she forbore form applying for some jobs because of
her condition, she could only list the following examples of positions
in which she would be unable to work, in none of which she had
ever been employed: receptionist at a beauty shop, secretary in
a grain elevator, clerical work in a grain elevator, clerical
work in hospital laboratories.
We think this record show
that, as a matter of law Probasco's employability is not curtailed
to the extent which would qualify her as a "disabled person"
within the protection of the Iowa Civil Rights Act.
As in Forrisi v. Bower,
794 F.2d 931 (4th Cir. 1986), which held that an individual's
inability to work around particular employment conditions--there,
those conditions involving heights-did not so limit the individual's
employability so as to bring the individual within the protection
of similar legislation, here we think the fact Probasco's condition
renders it inadvisable that she work around a particular set of
environmental conditions is insufficient to qualify her as a disabled
person under our statute. In order to correct errors of law which
are dispositive of the case, we may remand the matter to the agency
for final appropriate disposition. E. g.. Des Moines
Indep. Community School Dist. v.
Department of Job Serv., 376 N.W.2d 605, 611 (Iowa 1985).
As the district court was in error for failing to reverse the
agency decision, we reverse and remand to the agency with directions
to dismiss Probasco's petition.
REVERSED AND REMANDED.
All justices concur except Harris, J., who concurs in the result
only.