Sketoe v. Exxon Company, USA

188 F.3d 596, 1999 U.S. App. LEXIS 22511, 1999 WL 710534
CourtCourt of Appeals for the Fifth Circuit
DecidedSeptember 13, 1999
Docket98-60103
StatusPublished
Cited by9 cases

This text of 188 F.3d 596 (Sketoe v. Exxon Company, USA) is published on Counsel Stack Legal Research, covering Court of Appeals for the Fifth Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Sketoe v. Exxon Company, USA, 188 F.3d 596, 1999 U.S. App. LEXIS 22511, 1999 WL 710534 (5th Cir. 1999).

Opinions

REAVLEY, Circuit Judge:

This case presents the question of the back-up responsibility of a mineral lessee for longshoremen’s compensation for the employee of a drilling contractor. Donald Sketoe and the Office of Workers’ Compensation Programs (the Director) appeal an adverse decision of the Benefits Review Board (BRB), holding that Exxon was not obligated to pay Sketoe’s compensation benefits. Because of the difference between the contractual obligation of Ske-toe’s employer to Exxon and Exxon’s obligation to its lessor, we affirm.

I. Background

The United States Government executed an oil and gas lease of a tract off the Louisiana coast to Exxon. Exxon subsequently contracted with Dolphin Titan (DT) to drill on the tract. Sketoe was an employee of DT who worked on the Exxon-tract operation. In the course and scope of his employment, Sketoe injured his hand. DT’s compensation carrier, Northumberland Insurance Co., paid Ske-toe’s compensation benefits until it became insolvent. Following Northumberland’s bankruptcy, DT assumed payment of the benefits. Approximately one year later, DT also became insolvent. Sketoe then filed a claim against Exxon for payment of the benefits, alleging that section 904(a) of the Longshore and Harbor Workers’ Compensation Act (LHWCA),1 required Exxon to cover for its “subcontractor,” DT.

The first administrative law judge (ALJ) to hear the case ruled that Exxon was liable under section 904(a) and the analysis found in Director v. National Van Lines, Inc,2 On appeal, the BRB reversed, holding that Chavers v. Exxon Corp.3 better conformed to the particular facts of the dispute. On remand, a different ALJ found that the evidence did not support Exxon’s liability under the test in Chavers. Following another appeal, the BRB held that substantial evidence supported the second ALJ’s conclusion, and it affirmed.

II. Discussion

We review an appeal from the BRB de novo and will affirm if the judgment of the ALJ is “supported by substantial evidence and consistent with the law.”4 The Director urges that its construction of the LHWCA is entitled to deference. Both this court and the agency must give effect to the unambiguous language of the statute.5 Furthermore, we afford no special deference to agency litigation positions that are “ ‘unsupported by regulations, rulings, or administrative practice.’ ”6 Because we have been presented with no administrative regulation, ruling, or other indication that the Director’s position in this case is the product of agency deliberation and judgment, we reject the Director’s contention.

A. Construction of Section 904(a)

LHWCA section 904(a) governs Exxon’s potential liability for payment of Sketoe’s compensation benefits. It states:

[598]*598Every employer shall be liable for and shall secure the payment to his employees of the compensation payable under sections 907, 908, and 909 of this title. In the case of an employer who is a subcontractor, only if such subcontractor fails to secure the payment of compensation shall the contractor be liable for and be required to secure the payment of compensation. ... 7

The injured employee claiming the benefits of section 904(a) against a “contractor” must have been employed by a “subcontractor.” The only difficulty is understanding what Congress intended by its use of the word “contractor.” We apply the term’s ordinary meaning, informed by the intent of the legislature as it may be divined from the design of the Act.8 The term “contractor”

is strictly applicable to any person who enters into a contract, but is commonly reserved to designate one who, for a fixed price, undertakes to procure the performance of works or services on a large scale, or the furnishing of goods in large quantities, whether for the public or a company or individual. Such are generally classified as general contractors (responsible for entire job) and subcontractors (responsible for only portion of job; e.g., plumber, carpenter).9

In light of Congress’s choice of the coordinate term, “subcontractor,” construing the statute to require a “general contractor” accords with the common understanding of “contractor.” It also conforms to the purposes of the provision, which is aimed at deterring “unscrupulous employers from dividing their work among a number of smaller, uninsured entities” and which encourages general employers to contract with adequately insured subcontractors.10 At the same time, it preserves the distinction between “contractors” and owners of property.11 We hold therefore that section 904(a) premises liability on a finding that the principal is subject to some contractual obligation, which it, in turn, passed in whole or in part to the subcontractor. To attach liability to Exxon for compensation benefits via the statute, therefore, Exxon must have been subject to the same contractual obligation that DT contracted with Exxon to perform. For convenience, this may be referred to as a “two contract” requirement.

The District of Columbia Circuit has considered the application of section 904(a).12 That court’s interpretation of the statutory language supports our own. It formulated the required relationship between the parties as such:

A general employer will be held secondarily liable for workmen’s compensation when the injured employee was engaged in work either that is a subcontracted fraction of a larger project or that is normally conducted by the general employer’s own employees rather than by independent contractors.13

The essential feature is that the injured claimant must have worked pursuant to a double set of contractual obligations.14 As support, National Van Lines cited an Alaska state decision under a statute substantially identical to section 904(a), which [599]*599also required a two contract relationship. That case provided that the relationship is satisfied only when there is “(1) the existence of a contractual obligation on the part of a person held to be a contractor, and (2) a subletting of a part of that obligation to the person held to be a subcontractor.” 15 Importantly, National Van Lines also acknowledged that, if the principal employer owes no contractual duty related to the services of the subcontractor, liability for benefits does not attach. In a footnote, the opinion described the paradigmatic case as one where “a property owner contracts with a contractor for services to the property.” 16 The National-Eureka contract was not an “owner” case because National had contracted with third-party clients and delegated its duty to perform those services to Eureka.

The BRB has long been cognizant of the distinction between owners and general contractors for purposes of section 904(a) coverage. In Dailey v. Troth,17

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Sketoe v. Exxon Company, USA
188 F.3d 596 (Fifth Circuit, 1999)

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Bluebook (online)
188 F.3d 596, 1999 U.S. App. LEXIS 22511, 1999 WL 710534, Counsel Stack Legal Research, https://law.counselstack.com/opinion/sketoe-v-exxon-company-usa-ca5-1999.