Opinion
The Fair Employment and Housing Act (FEHA) prohibits employment discrimination based on a physical disability. (Gov. Code, § 12940, subd. (a);
1
see
Esberg v. Union Oil, Co.
(2002)
On January 1, 2001, while the case was before the Court of Appeal, the Prudence Kay Poppink Act (Poppink Act) took effect. The Poppink Act states that “under the law of this state” a person is physically disabled when he or she has a physiological condition that “limits a major life activity” (§ 12926, subd. (k)(l)(B)(i), italics added). In contrast, federal law requires that a disability “substantially limits one or more . . . major life activities” of an individual. (42 U.S.C. § 12102(2)(A), italics added; 29 C.F.R. § 1630.2(g) (2002).) The Court of Appeal refused to apply the Poppink Act to Colmenares because his termination preceded its effective date and at the *1023 time of termination, according to the Court of Appeal, the FEHA applied the federal law’s narrower definition of physical disability. Because Colmenares had conceded that his back injury did not substantially limit his ability to perform his job, the Court of Appeal concluded that he could not establish a claim for disability discrimination. The Court of Appeal affirmed the trial court’s judgment.
Two months later, another division of the same Court of Appeal decided
Wittkopf v. County of Los Angeles
(2001)
I.
We recite the facts as set out in the record before the trial court when it granted defendant’s motion for summary judgment.
(Johnson
v.
City of Loma Linda
(2000)
In December 1997, Colmenares filed an administrative complaint with the Department of Fair Employment and Housing, alleging that in 1995 Braemar began requiring him to perform “heavier work” and two years later fired him *1024 because of his bad back. Having exhausted his administrative remedies, Colmenares in March 1999 filed a complaint in superior court alleging, as here relevant, that his termination violated the FEHA because it was based on his physical disability, namely, a “chronic back injury.”
Braemar moved for summary judgment on the ground that Colmenares had no “legally cognizable disability” because his back condition did not “substantially” limit a major life activity. Braemar relied on Colmenares’s deposition testimony in which he conceded that his back condition did not substantially limit his ability to work as a foreman. Colmenares, however, argued that under the FEHA he need only establish some limitation, not the substantial limitation standard of federal law, of his ability to perform major life activities. (§ 12926, subd. (k)(l)(B); Cal. Code Regs., tit. 2, § 7293.6, subd. (c)(l)(A)(2).) The trial court disagreed, ruling that California followed federal law in requiring that a disability “substantially” limits major life activities. (42 U.S.C. § 12102(2)(A); 29 C.F.R. § 1630.2(g)(1) (2002).) Finding that Colmenares had “fail[ed] to meet his burden” to produce evidence that his back condition substantially limited his work activities, the trial court granted Braemar’s motion for summary judgment. Colmenares appealed.
The Court of Appeal affirmed. It construed the FEHA, before its amendment by the Poppink Act, as requiring the physical disability to substantially limit one or more major life activities (the test under federal law), and it held that the Poppink Act’s broader standard, requiring only that the disability “limits a major life activity,” could not be applied retrospectively to Colmenares, whose 1997 firing occurred before that act took effect on January 1, 2001. 2
II.
Since 1973 California has prohibited employment discrimination based on “physical handicap.” (Stats. 1973, ch. 1189, §6, p. 2501 [enacting Lab. Code, former § 1420]; see
Cassista v. Community Foods, Inc.
(1993)
In 1990, Congress enacted the Americans with Disabilities Act (ADA). (42 U.S.C. § 12101 et seq.) In 1992, the California Legislature significantly amended the FEHA. Among other things, it substituted the term “physical disability” for “physical handicap” (former § 12920, as amended by Stats. 1992, ch. 913, § 19, p. 4297), and it generally modeled the definition of “physical disability” (former § 12926, subd. (k), as amended by Stats. 1992, ch. 913, § 21.3, p. 4308) on that in the ADA. (See
Cassista, supra,
5 Cal.4th at pp. 1059-1060.) As relevant here, there was one notable difference between the FEHA and the ADA: While the federal act described a disabled individual as one whose disability
“substantially limits
one or more major life activities” (42 U.S.C. § 12102(2)(A), italics added), the 1992 amendment to the FEHA defined physical disability as an impairment that merely
“[l]imits
an individual’s ability to participate in major life activities.” (Stats. 1992, ch. 913, § 21.3, p. 4308, amending § 12926, subd. (k), italics added.) That definition, the Legislature stated at the time of the 1992 amendment to the FEHA, “shall have the same meaning as the term ‘physical handicap’ . . . construed in American National Ins. Co. v. Fair Employment & Housing Com. [(1982)]
When the 1992 Legislature made the just-described amendments to the FEHA, it also amended various non-FEHA statutes by defining “disability” in those statutory schemes using the more stringent federal test of “substantial limits.” Thus, it inserted the federal definition of disability, including the *1026 requirement that a disability must substantially limit a major life activity, into provisions prohibiting disability discrimination by and against holders of state-issued occupational or professional licenses (Bus. & Prof. Code, § 125.6), by business establishments providing accommodations, facilities and services and subject to the Unruh Civil Rights Act (Civ. Code, § 54), by entities employing, training or credentialling teachers (Ed. Code, § 44337), by any state-funded program (Gov. Code, § 11135), and with respect to state civil service employment (Gov. Code, § 19231). (Stats. 1992, ch. 913, §§ 2, 4, 12, 18, 28, pp. 4283, 4286, 4293, 4297, 4328.) These changes were consistent with the 1992 Legislature’s stated intent “to strengthen California law where it is weaker” than the ADA, that is, in the non-FEHA statutes, “and to retain California law when it provides more protection for individuals with disabilities than” the ADA, that is, in the FEHA. (Stats. 1992, ch. 913, § 1, p. 4282.)
Notwithstanding the Legislature’s 1992 amendment of the FEHA to specify that physical disability required only a limitation, as opposed to the federal law’s substantial limitation, of a person’s ability to participate in major life activities, the FEHC did not immediately replace its 1980 regulatory definition of physical disability modeled on the federal law’s more stringent definition. (Former Cal. Admin. Code, tit. 2, § 7293.6, subd. (j)(l), Register 80, No. 25 (June 21, 1980); former Cal. Admin. Code, tit. 2, § 7293.6, subd. (i)(l), Register 86, No. 45 (Nov. 8, 1986); former Cal. Admin. Code, tit. 2, § 7293.6, subd. (i)(l), Register 88, No. 18 (Apr. 30, 1988).) 3 Not until September 1995 did the FEHC adopt a regulation that conformed to the Legislature’s 1992 amendment of the FEHA. The 1995 regulation incorporated by reference the statutory definition of physical disability (Cal. Code Regs., tit. 2, § 7293.6, subd. (a)(1)) and defined a physically disabling disease or condition as one that “[ljimits an individual’s ability to participate in major life activities.” (Cal. Code Regs., tit. 2, § 7293.6, subd. (e)( 1 )(A)(2).) In this case, Colmenares’s dismissal occurred in 1997.
In September 2000, the Legislature enacted the Poppink Act, which took effect on January 1, 2001. As relevant here, the act amended the FEHA’s definition of physical disability. (§ 12926, subd. (k), as amended by Stats. 2000, ch. 1049, § 5.) The FEHA, in section 12926, subdivision (k), had previously provided that a “ ‘ [pjhysical disability’ includes . . . [hjaving” a “disease, disorder, condition, cosmetic disfigurement, or anatomical loss” (hereafter disease or condition) that both “[ajffects one or more” of certain *1027 enumerated “body systems” and “[l]imits an individual’s ability to participate in major life activities.” (Stats. 1992, ch. 913, § 21.3, pp. 4307-4308.) The Poppink Act changed the FEHA’s requirement that a physical disease or condition limit “major life activities” to the singular “a major life activity.” 4 The act explained that such a qualifying disease or condition “limits a major life activity if it makes the achievement” of the activity “difficult.” 5 (§ 12926, subd. (k)(l)(B)(ii).)
Of particular relevance here is that the FEHA in section 12926 used the term “limits,” not the federal law’s “substantially limits” language,
before and after
its amendment by the Poppink Act. In this regard, the act declared: “[T]he Legislature has determined that the definition!] of ‘physical disability’ . . . under the law of this state require[s] a ‘limitation’ upon a major life activity, but do[es] not require, as does the [federal ADA], a ‘substantial limitation.’ This distinction is intended to result in broader coverage under the law of this state than under that federal act.” (§ 12926.1, subd. (c).) Further, the Legislature declared that “[notwithstanding any interpretation of law in Cassista v. Community Foods[, Inc.] (1993)
Not only did the Poppink Act of 2000 leave unchanged the “limits” test in the FEHA, it also amended other, non-FEHA, statutes to delete the term “substantial” from the limitation test these statutes had used since 1992. Legislative committee analyses explained that the Poppink Act “standardizes” the definition of physical disability “in California civil rights laws, clarifying that California’s disability protections are broader than federal protections.” (Assem. Com. on Labor and Employment, Analysis of Assem. Bill No. 2222 (1999-2000 Reg. Sess.) as amended Apr. 5, 2000, italics added; accord, Assem. Com. on Appropriations, Analysis of Assem. Bill No. 2222 (1999-2000 Reg. Sess.) as amended Apr. 5, 2000.) Thus, the Poppink Act deleted from the Unruh Civil Rights Act (Civ. Code, § 54, subd. (b)) and from the state civil service scheme (Gov. Code, § 19231) the requirement that a disability must substantially limit a major life activity, thereby conforming those statutes to the “limits” test of the FEHA. (Assem. Com. on Labor and Employment, Analysis of Assem. Bill No. 2222 (1999-2000 Reg. Sess.) as amended Apr. 5, 2000; State Personnel Bd., Bill Analysis of *1028 Assem. Bill No. 2222 (1999-2000 Reg. Sess.) and related bill Sen. Bill No. 2025 (1999-2000 Reg. Sess.) Apr. 5, 2000; Civ. Code, §§ 51, subd. (e), 51.5, subd. (d), 54, subd. (b); Gov. Code, § 19231, as amended by Stats. 2000, ch. 1049, §§ 2-4 & 9.) This pattern of Legislative action compels our conclusion that in 2000 the Legislature intended not to make a retroactive change, but only to clarify the degree of limitation required for physical disability under the FEHA.
III.
Here, the Court of Appeal concluded that until January 1, 2001, when the Poppink Act took effect, California law protected as physically disabled only those “whose disabilities
substantially limited
a major life activity,” the test under federal law. It reached that conclusion in reliance on certain language in our 1993 decision in
Cassista, supra,
In
Cassista,
the plaintiff alleged that she was denied a job because of her obesity.
(Cassista, supra,
Cassista
was decided in 1993, shortly after the Legislature in 1992 had significantly amended the FEHA by replacing the phrase “physical handicap” with “physical disability” and recasting the definition of “physical disability”
(ante,
at pp. 1024-1025). In describing the continuity between the statutory schemes before and after the 1992 amendment,
Cassista
stated that the definition of physical disability as amended in 1992 and the “longstanding interpretation of ‘[physical] handicap’ ” contained in the implementing regulations were “in harmony” because “[e]ach requires an actual or
*1029
perceived physiological disorder, disease, condition, cosmetic disfigurement or anatomical loss affecting one or more the body’s major systems and
substantially limiting
one or more major life activities.”
(Cassista, supra,
The Court of Appeal here specifically relied on the italicized language from
Cassista
in holding that Colmenares was required to show that his back injury
substantially limited
his ability to work. But, as we have explained, that comment in
Cassista
was dictum: Not at issue in
Cassista
was the extent to which the plaintiff’s ability to participate in major life activities must be impaired. “ ‘Language used in any opinion is of course to be understood in the light of the facts and the issue then before the court, and an opinion is not authority for a proposition not therein considered.’ ”
(People
v.
Scheid
(1997)
A close look at Cassista reveals that in three other passages it accurately described physical disability under the FEHA as a condition that “limits,” as opposed to “substantially limits,” participation in major life activities. (Cassista, supra, 5 Cal.4th at pp. 1052, 1059, 1061.) Thus, by 1997 when Colmenares was fired, the law as described in Cassista required only that the physical condition limit, not substantially limit, participation in major life activities.
In 1995, the FEHC adopted a new regulation that tracked the language of the Legislature’s 1992 amendment to the FEHA by defining “physical disability” as a physiological disease or condition that “affects” a body system and “[ljimits an individual’s ability to participate in major life activities.” (Cal. Code Regs., tit. 2, § 7293.6, subd. (e).) An agency invested with quasi-legislative power to adopt regulations has no discretion to promulgate regulations that are inconsistent with the governing statute, in that they “ ‘alter or amend the statute or enlarge or impair its scope.’ ”
(Carmel Valley Fire Protection Dist. v. State of California
(2001)
*1030 Since adopting new regulations in 1995 that, among other things, mirrored the broad test of physical disability set forth in the Legislature’s 1992 amendment to the FEHA (requiring limitation, not substantial limitation, of major life activities), the FEHC has applied that test in two precedential decisions. (Dept. of Fair Empl. & Hous. v. Silver Arrow Express, Inc. (1997) No. 97-12, FEHC Precedential Decs. 1996-1997, CEB 2, pp. 7-8, 11 [finding employer regarded as physically disabled an employee who had heart and back conditions that prevented him from lifting, pulling or pushing loads weighing over 25 pounds and thus limited his ability to participate in major life activities]; Dept. of Fair Empl. & Hous. v. Seaway Semiconductor (2000) No. 00-03-P, FEHC Precedential Decs. 2000-2002, CEB 1, pp. 15-16 & fit 4 [finding to be physically disabled an employee who had a thyroid condition that limited her ability to participate in major life activities, which the FEHC described as a “less onerous standard than the federal definition” requiring that “an impairment ‘substantially limit’ a major life activity”].)
The FEHC, authorized by the Legislature to issue precedential opinions (§ 12935, subd. (h)), publishes those decisions, making them available to the public as notice of its interpretation of the statutory scheme. (See
American Federation of Labor v. Unemployment Ins. Appeals Bd.
(1996)
To summarize, when the Legislature in 1992 amended the FEHA, it defined physical disability as a physiological condition that “limits” major life activities. In 2000, when the Legislature passed the Poppink Act, which amended the FEHA, it retained that “limits” language. At that time, the Legislature clarified in express terms that a physical disability under the FEHA does
not
require the federal test’s
substantial limitation
of a major life activity. (§ 12926.1, subd. (c).) Thus, before and after passage of the Pop-pink Act the FEHA’s test was “limits,” not substantial limits. Moreover, the
*1031
legislative history of the Poppink Act supports the view that the Legislature merely clarified the existing “limits” test in the FEHA and, contrary to the conclusion of the Court of Appeal here, did not retrospectively change that test.
(Western Security Bank v. Superior Court, supra,
IV.
In petitioning for review, Colmenares raised a second issue: Did the trial court err in granting summary judgment in light of the evidence presented supporting Colmenares’s allegations of disability discrimination and failure to accommodate? Braemar replies that even if the summary judgment was erroneously granted under the “substantial limitation” test, it was nonetheless entitled to summary judgment on an alternative ground it raised below.
An order granting summary judgment is reviewed de novo by the Court of Appeal
(Merrill v. Navegar, Inc.
(2001)
Conclusion
We hold that in 1997, when Colmenares’s cause of action for wrongful termination arose, a plaintiff seeking to establish physical disability under the FEHA had to show: (1) a physiological disease or condition affecting a body system; and (2) the disease or condition limited (as opposed *1032 to substantially limited, as required under federal law) the plaintiffs ability to participate in major life activities.
The judgment is reversed, and the cause is remanded to the Court of Appeal for proceedings consistent with this opinion.
George, C. J., Baxter, J., Werdegar, J., Chin, J., Brown, J., and Moreno, J., concurred.
Notes
Unless otherwise indicated, further undesignated statutory references are to the Government Code.
When a statute “merely
clarifies,
rather than changes, existing law [it] does not operate retrospectively.”
(Western Security Bank v. Superior Court
(1997)
We take judicial notice of these regulations at plaintiff’s request. (Evid. Code, § 451, subd. (b)0
Because the issue is not before us, we express no opinion as to the significance of this change in the statute’s language.
The Poppink Act also added these two provisions; “(i) ‘Limits’ shall be determined without regard to mitigating measures such as medications, assistive devices, prosthetics, or reasonable accommodations, unless the mitigating measure itself limits a major life activity, [f] • • • TO (in) ‘Major life activities’ shall be broadly construed and includes physical, mental, and social activities and working.” (§ 12926, subd. (k)(B)(i) & (iii).)
We disapprove the following cases to the extent they hold or suggest the federal law’s
substantial limitation
test applies to claims of physical disability brought under the FEHA:
Diffey
v.
Riverside County Sheriff’s Dept.
(2000)
