Kenneth G. Hicks lost his job in 1982 when Brown Group, Inc., reduced the su
*296
pervisory staff at its Benton, Missouri, terminal. Hicks, a white male then 51 years old, sued and a jury found that he was terminated because of his race in willful violation of 42 U.S.C. § 1981. He was awarded $1.00 in actual damages, $10,000 in punitive damages, and his costs and attorneys’ fees. Brown Group appealed and a panel of this court affirmed, one judge dissenting. See
Hicks v. Brown Group, Inc.,
Brown Group then filed a petition for a writ of certiorari, and the Supreme Court remanded. Ill S.Ct. 1299 (1991). Following remand, the panel unanimously reversed the judgment of the district court, concluding that Hicks’s discriminatory discharge claim is not actionable under § 1981 as construed in
Patterson v. McLean Credit Union,
On remand, the panel submitted the case to the court en banc, recognizing that the Supreme Court’s remand requires us to consider again the issue of statutory retroactivity decided by another panel in
Fray v. Omaha World Herald Co.,
Section 101(2)(b) of the 1991 Act legislatively overruled Patterson:
For purposes of this section, the term “make and enforce contracts” includes the making, performance, modification, and termination of contracts, and the enjoyment of all benefits, privileges, terms, and conditions of the contractual relationship.
42 U.S.C. § 1981(b) (emphasis added). Thus, Hicks’s § 1981 claim fails under Patterson and Taggart but would succeed if this provision in the 1991 Act retroactively applies to his case.
This retroactivity question has already been the subject of substantial judicial exposition. In addition to our decision in
Fray,
1
at least five other circuits have concluded that various provisions of the 1991 Act do not apply retroactively to cases pending at the time of enactment.
See, e.g., Gersman v. Group Health Assoc., Inc.,
1. The initial question is whether Congress in the 1991 Act evidenced its intent on this question of retroactivity. The Ninth Circuit concluded that “the language of the Act reveals Congress’ clear intention that the majority of the Act’s provisions be applied to cases pending at the time of its passage.”
Davis,
In
Fray,
we concluded that the presence of these provisions does not outweigh the overwhelming legislative evidence that a divided Congress intended “to hand this controversial issue to the judiciary by passing a law that contained no general resolution of the retroactivity issue.”
However, given the convoluted legislative history of the Act and the war of interests firing at each other across the floor of both legislative houses, one might view these two subsections not as redundancies, but rather as insurance policies [for those who opposed retroactivity].
Gersman,
2. With congressional intent indiscernible, we must apply the conflicting presumptions as to statutory retroactivity articulated in
Bradley v. Richmond School Bd.,
Of course, when two Supreme Court decisions seem inconsistent, they are seldom equally applicable. If
Bradley
is the more applicable — if it is a controlling precedent — we are not free to ignore it. However, we conclude that
Bradley
involved distinguishable circumstances. In
Bradley,
a statute allowing attorneys’ fees in school desegregation cases was applied retroactively to a pending claim for attorneys’ fees against a public school district. This case, on the other hand, involves a dispute between private parties. Long before
Bradley,
the Supreme Court noted that, when a new statute may affect private disputes, courts should “struggle hard against a construction which will, by a retrospective operation, affect the rights of parties.”
United States v. Schooner Peggy,
Section 101 of the 1991 Act expands the range of conduct that will violate § 1981. In
Bennett v. New Jersey,
*298
3. Although we can readily distinguish the Civil Rights Act of 1991 from the statute at issue in
Bradley,
we also believe that the conflicting presumptions articulated in
Bradley
and
Georgetown Hospital
reflect truly divergent lines of authority on the question of statutory retroactivity. We recently reviewed these conflicting precedents in
Simmons v. Lockhart,
[Where] Congress’s silence is ambiguous ... one must choose between the Bradley and Georgetown Hospital presumptions. The better rule is that of Georgetown Hospital____ [T]he presumption against retroactive application best preserves the distinction between courts and legislatures: the former usually act retrospectively, settling disputes between persons, the latter usually act prospectively, setting the general rules for future conduct.
See also Criger v. Becton,
Some have argued that the Civil Rights Act of 1991 should nonetheless be given retroactive effect because it is “restorative” legislation — by overruling recent Supreme Court decisions such as Patterson, the Act restored prior law and therefore did not interfere with justified expectations or vested rights. We agree with the Seventh Circuit’s response to this contention:
When [Congress] “overrules” a Supreme Court decision it is not registering disagreement with the merits of what the Court did; it is laying down a new rule of conduct — ordinarily for the future. Section 1981 dates back to 1866. It is as unlikely that Congress was attempting to restore section 1981 to the understanding of its framers as that Patterson in cutting back the earlier decisions had restored the statute to its original understanding. The new civil rights act reflects contemporary policy and politics, rather than a dispute between Congress and the Supreme Court over the mechanics of interpretation.
Luddington,
In addition, we conclude that case-by-case application of
Bradley’s,
“manifest injustice” exception to the many provisions of the 1991 Act would be unworkable.
3
Focusing on § 101(2)(b) of the Act as an example, some pending § 1981 cases challenge conduct that occurred prior to
Patterson,
while others challenge conduct occurring while
Patterson
was the law. Some challenge conduct that also violates Title VII, while others challenge conduct by private employers who are exempt from Title VII’s proscriptions. Absent explicit congressional directive, we think it unwise and improper to undertake the essentially legislative task of adopting “unwieldy distinctions between classes of litigants based on the degree to which they relied on the legal regime antedating” the 1991 Act.
Johnson,
Retroactive application across the board would produce massive dislocations in ongoing litigation and defeat substantial reliance interests of employers. Retroactive application carefully tailored to situations ... in which those reliance interests are minimal would engender enormous satellite litigation and associated uncertainty to fix an indistinct boundary.
Luddington,
These problems graphically demonstrate that it is Congress that should define, in the legislation, the extent to which a statute is to be retroactively applied. When Congress fails to do so, the presumption that statutes operate prospectively should prevail. Therefore, in this circuit, to the extent that a retroactivity issue reduces to a choice between two equally applicable but inconsistent lines of Supreme *299 Court precedent, we conclude that “the better rule is that of Georgetown Hospital.”
For the foregoing reasons, and for the additional reasons stated in our prior decision in Fray, we conclude that § 101 of the 1991 Act may not be retroactively applied to this pending case. Accordingly, the judgment of the district court is reversed and the case is remanded to the district court with directions to dismiss Hicks’s § 1981 complaint with prejudice.
Two issues are raised on this appeal: (1) whether the racially discriminatory discharge of Kenneth Hicks in 1982 violates the provisions of 42 U.S.C. § 1981; and (2) if not, whether section 101 of the Civil Rights Act of 1991 applies to Hicks’s action. I would answer both questions in the affirmative. Thus, I respectfully dissent.
I recognize that a divided en banc court resolved the first issue in the negative in
Taggart v. Jefferson County Child Support Enforcement Unit,
Assuming
Patterson
did temporarily bar discriminatory discharge claims under section 1981, I turn now to the question whether section 101 of the Civil Rights Act of 1991 restored Hicks’s right to bring this action. I am convinced that it does. The majority holds that unless Congress specifically states that a statute is to be applied retrospectively, a presumption that statutes operate prospectively should prevail.
1
It reasons that
Bowen v. Georgetown University Hospital,
I realize that Supreme Court Justice Antonin Scalia believes that
Georgetown Hospital
and
Bradley
are irreconcilable and that
Georgetown Hospital
should be adopted as the position of the Court, but Justice Scalia does not speak for the full Court on this issue. It is our responsibility to follow the full Court rather than a single Justice. I was under the impression that we had recognized our responsibility to reconcile Supreme Court decisions in
National Wildlife Fed’n v. A.S.C.S.,
In my view, Georgetown Hospital and Bradley are reconcilable, 5 and lead to the view that courts should, in the words of Judge Patricia Wald,
presume, absent clear statutory language or legislative history to the contrary, that courts should apply the law in effect at the time they render their decisions, unless Congress would not intend the retroactive application of the new law because that would work an unfairness by upsetting the expectations of the parties concerning the legal consequences of their past conduct.
Gersman v. Group Health Ass’n, Inc.,
As I noted in
Fray v. Omaha World Herald Co.,
*301 Before applying the Bradley standard, it is important to emphasize that Hicks had secured a judgment in district court before the Supreme Court decided Patterson. The district court judgment determined that the Brown Group had illegally discharged Hicks because of his race. Both on the date of discharge and on the date that the district court’s judgment was entered, discharges because of race were unlawful. 6
I turn now to the very specific
Bradley
criteria, the first of which is whether this is a mere private case between individuals, in which the rights of the parties are of paramount importance, or whether larger public concerns are involved.
See Bradley,
The next criterion of the
Bradley
fairness calculus is a consideration of the relevant rights of the parties, and whether retrospective application of a law would infringe or deprive a person of rights that had matured or become unconditional.
Bradley,
The final Bradley criterion concerns the nature of the impact of the change upon existing rights, id., and whether retrospective application denies fulfillment of justified expectations, or fails to provide citizens with notice of the law so that they may efficiently plan their affairs. 7 In the instant case, only a retrospective application of section 101 would fulfill Hicks’s justified expectation that he would not be discharged because of his race. The Brown Group would simply be held to the existing standard of conduct as of the date of Hicks’s discharge. 8
Thus, when all of the
Bradley
factors are considered, I believe a holding that section 101 should apply retrospectively to
*302
the facts in this case must inexorably follow.
9
Not only had the Brown Group had been on notice before 1982 that it could not discharge employees because of their race,
10
but as Judge Wald notes, “[w]hen the ‘new’ law is nothing more than a reenactment of the law that governed the relevant conduct at the time it occurred, there is no ‘manifest injustice’ in applying the new law to the past conduct, even where an intervening Supreme Court opinion redefined the substantive law.”
Gersman,
I agree with my colleagues that Congress left it for the courts to decide the question of “retroactivity.” They did so because proponents, although in the majority, did not have the votes to override a threatened presidential veto. It is clear from the legislative history of the 1991 Civil Rights Act and from the language of section 101 that Congress intended to overrule Patterson. 11 Moreover, the original 1990 act contained a specific “super-retroactivity” provision that would have applied to all proceedings pending on or commenced after June 15,1989, including cases in which a final judgment already had been entered before the effective date of the act. “The fact that the President vetoed this version (and that a two-thirds majority was unavailable to override) tells us nothing about the congressional intent concerning application of section 101 to cases pending on November 21, 1991.” Gersman at 912 (Wald, J., dissenting). In his veto message to Congress, the President noted that he relied on the attorney general in vetoing the 1990 act for retroactivity reasons. Significantly, however, the attorney general’s objection to the retroactivity provisions of the 1990 act was not that they applied the act to pending cases, but that they applied it to cases already decided. 12
I recognize that this is an unsettled area of the law and that courts that have considered whether the act is retrospective have come down on both sides of the issue. Yet the majority’s analysis of the act’s legislative history strains the bounds of credible statutory interpretation. It is disingenuous to suggest that Congress clearly intended the act to operate only prospectively. It is equally disingenuous to suggest that, unless we rule in favor of the Brown Group, we are undertaking “the essentially legislative task of adopting ‘unwieldy distinctions between classes of litigants based on the degree to which they relied on the legal regime antedating’ the 1991 Act.” Supra, at 298. Regardless of how we rule today, we are filling a gap in the 1991 act on which Congress could not agree, and fully intended we fill. The only question is whether we come down on the side of the reasonable expectations of both of the parties at the time of the disputed conduct, or on the side of a party that is seeking to avoid its responsibility to make racially neutral discharge decisions. I believe the *303 majority comes down on the wrong side, and therefore dissent.
Notes
. Like this case,
Fray
involved the question whether § 101(2)(b) of the 1991 Act is retroactive. We have applied the
Fray
analysis in holding that other provisions of the 1991 Act do not apply retroactively.
See Hughes v. Matthews,
. While we do not agree with the Ninth Circuit’s reasoning, we note that
Davis
retroactively applied the section of the 1991 Act that allows enhanced attorneys’ fee awards to a pending claim against a public body, the San Francisco Fire Department. Thus,
Bradley
was arguably a controlling precedent in
Davis.
However, there is also a basis for distinguishing the statutes at issue in
Davis
and
Bradley.
As the Fifth Circuit has noted, in
Bradley
"the statutory change provided only an additional basis for relief already available,” whereas "a dramatic change in the
*298
remedial consequences of a rule works change in the normative reach of the rule itself.”
Landgraf v. USI Film Prods.,
. We also agree with Justice Scalia that this exception "is just a surrogate for policy preferences ... a rule of discretion, giving judges power to expand or contract the effect of legislative action.”
Kaiser Alum. & Chem. Corp. v. Bonjorno,
. In
Davis v. County of San Francisco,
. Although most commentators refer to Bowen v. Georgetown University Hospital as Bowen, the majority uses the short citation "Georgetown Hospital." In the interest of consistency, I will follow the practice of the majority.
. Even if we could, on our own authority, dismiss a precedent of the Supreme Court, I do not concur with the majority’s election of Georgetown Hospital over Bradley. Other commentators agree:
The Bowen [Georgetown Hospital] approach cannot be justified on constitutional or policy grounds. Although Bowen's dear-statement rule is cloaked in the guise of neutrality — making it appear as if the Court is taking a purely hands-off approach — the imposition of the rule is itself a policy choice to avoid resolving statutory dilemmas. Such a policy creates a conundrum in which Congress leaves the issue to the courts, and the courts give back to Congress a task which it cannot complete. The two branches pass the issue back and forth, without ever assessing its validity, impact, or necessity....
Moreover, the Bowen presumption fails to involve courts in any examination of the effects of particular laws and instead applies a stringent and unyielding test. Statutes differ in purpose and effect, yet the clear-statement rule treats them all identically. In certain cases, the Bowen presumption may prevent unjust application of the laws. With some statutes, however, retroactivity "can ... actually serve the cause of legality____ [I]t can serve to heal infringements of the principle *300 that like cases should receive like treatment." For these statutes, the Bowen presumption uncritically sanctions harsh results. When a court applies the clear statement rule to an ambiguous statute without justification, it avoids its judicial responsibility to interpret statutes. By refusing to engage in substantial interpretation, the Court may undermine legislative enactments.
Michele A. Estrin, Note, Retroactive Application of the Civil Rights Act of 1991 to Pending Cases, 90 Mich.L.Rev. 2035, 2048-50 (1992) (footnotes omitted).
. In
Kaiser Aluminum & Chem. Corp. v. Bonjorno,
. A recent Note from the Michigan Law Review suggests that such reconciliation is possible and desirable:
Instead of providing a presumption, ... a court must determine whether applying the statute at issue to a given case implicates any of the dangers of retroactivity: unsettling expectations, depriving parties of notice, or targeting vulnerable groups. If these concerns arise, a court should decline to apply a statute to pending cases. If these concerns fail to materialize, a court should apply the law to pending cases____
This proposal recognizes the legitimate dangers of retroactivity addressed by Bowen, while concurrently allowing the deliberate approach of Bradley. This method simply eliminates the irreconcilable conflict between Bradley and Bowen by allowing courts to reach the heart of the retroactivity debate. In other words, rather than engaging in a useless debate over which presumption to apply, courts focus on actual objections to retroactivity and whether these objections inhere in a particular statute. This inquiry will lead to well-reasoned and inherently more just opinions.
Estrin, supra, at 2069.
. In our circuit and others, discriminatory discharge cases prior to
Patterson
were actionable under section 1981.
See, e.g., Estes v. Dick Smith Ford,
. See Kenneth J. Kress, Legal Reasoning and Coherence Theories: Dworkin’s Rights Thesis, Retroactivity, and the Linear Order of Decisions, 72 Cal.L.Rev. 369, 399 (1984).
. The majority cites
Bennett v. New Jersey,
. In
Bradley,
the Court tempered its presumption of retroactivity with an exception for cases in which retroactivity would result in “manifest injustice."
. See, e.g., Estrin, supra, at 2074 (“Since Title VII was enacted, employers have been on continual notice that discriminatory practices are subject to lawsuits.”).
. See H.R. 1, 102d Cong., 1st Sess. (1992) (stating that section 12, which is nearly identical to the language of section 101 of the Civil Rights Act of 1991, "shall apply to all proceedings pending on or commenced after June 15, 1989.” [Patterson was decided on June 15, 1989.]); H.R.Rep. No. 40(11), 102d Cong., 1st Sess. (1991) ("H.R. 1 applies retroactively to certain provisions overturning Supreme Court cases____ The retroactive sections are: ... 12 (overturning Patterson)"', and Estrin, supra, at 2053-54 (summarizing the legislative history).
. The Attorney General’s only objection to the retroactivity provisions of the 1990 act was that section 15 "unfairly applies to changes in the law made by S. 2104 to cases already decided.” Memorandum from Dick Thornburgh, Attorney General, to George Bush, President of the United States 10 (Oct. 22, 1990).
