nevada department human resources et al hibbs et argued january decided may respondent hibbs hereinafter respondent employee nevada department human resources department sought leave care ailing wife family medical leave act fmla entitles eligible employee take work weeks unpaid leave annually onset serious health condition employee spouse reasons department granted respondent request full weeks fmla leave eventually informed exhausted leave must report work certain date respondent failed terminated pursuant fmla provisions creating private right action seek equitable relief money damages employer including public agency interfere restrain ed den ied exercise fmla rights respondent sued petitioners department two officers federal district seeking damages injunctive declaratory relief inter alia violations awarded petitioners summary judgment grounds fmla claim barred eleventh amendment respondent fourteenth amendment rights violated ninth circuit reversed held state employees may recover money damages federal event state failure comply fmla provision congress may abrogate eleventh amendment immunity suit federal makes intention abrogate unmistakably clear language statute acts pursuant valid exercise power fourteenth amendment see board trustees univ garrett fmla satisfies clear statement rule see kimel florida bd regents congress also acted within authority fourteenth amendment sought abrogate immunity purposes fmla provision exercise power congress may enact prophylactic legislation proscribes facially constitutional conduct order prevent deter unconstitutional conduct city boerne flores may attempt substantively redefine legal obligations kimel supra test distinguishing appropriate prophylactic legislation substantive redefinition valid legislation must exhibit congruence proportionality injury prevented remedied means adopted end city boerne supra fmla aims protect right free discrimination workplace statutory classifications distinguish males females subject heightened scrutiny see craig boren must serv important governmental objectives discriminatory means employed must substantially related achievement objectives virginia enacted fmla congress significant evidence long extensive history sex discrimination respect administration leave benefits weighty enough justify enactment prophylactic legislation cf fitzpatrick bitzer garrett supra kimel supra reached opposite conclusion distinguished ground legislation issue responded purported tendency state officials make distinctions characteristics judged heightened review standard pass equal protection muster rational basis enacting see kimel supra standard demonstrating constitutionality classification difficult meet test easier congress show pattern state constitutional violations cf south carolina katzenbach impact discrimination targeted fmla based mutually reinforcing stereotypes women responsible family caregiving men lack domestic responsibilities significant moreover congress chosen remedy fmla provision congruent proportional targeted violation garrett supra congress already tried unsuccessfully address problem title vii civil rights act pregnancy discrimination act previous legislative attempts failed see katzenbach supra problems may justify added prophylactic measures response kimel supra creating routine employment benefit eligible employees congress sought ensure leave longer stigmatized inordinate drain workplace caused female employees employers evade leave obligations simply hiring men unlike statutes issue city boerne kimel garrett applied broadly every aspect state employers operations fmla narrowly targeted fault line work family precisely overgeneralization remains strongest affects one aspect employment relationship also significant many limitations congress placed fmla scope see florida prepaid postsecondary ed expense bd college savings bank example fmla requires unpaid leave applies employees worked employer least one year provided hours service within last months apply employees sensitive positions including state elected officials staffs appointed policymakers pp affirmed rehnquist delivered opinion souter ginsburg breyer joined souter filed concurring opinion ginsburg breyer joined stevens filed opinion concurring judgment scalia filed dissenting opinion kennedy filed dissenting opinion scalia thomas joined nevada department human resources et petitioners william hibbs et al writ certiorari appeals ninth circuit may chief justice rehnquist delivered opinion family medical leave act fmla act entitles eligible employees take work weeks unpaid leave annually several reasons including onset serious health condition employee spouse child parent stat act creates private right action seek equitable relief money damages employer including public agency federal state competent jurisdiction employer interfere restrain deny exercise fmla rights hold employees state nevada may recover money damages event state failure comply provision act petitioners include nevada department human resources department two officers respondent william hibbs hereinafter respondent worked department welfare division april may sought leave fmla care ailing wife recovering car accident neck surgery department granted request full weeks fmla leave authorized use leave intermittently needed may december respondent august return work october department informed respondent exhausted fmla leave leave granted must report work november respondent failed terminated respondent sued petitioners district seeking damages injunctive declaratory relief inter alia violations district awarded petitioners summary judgment grounds fmla claim barred eleventh amendment respondent fourteenth amendment rights violated respondent appealed intervened defend validity fmla application ninth circuit reversed granted certiorari resolve split among courts appeals question whether individual may sue state money damages federal violation compare kazmier widmann case century made clear constitution provide federal jurisdiction suits nonconsenting board trustees univ garrett kimel florida bd regents college savings bank florida prepaid postsecondary ed expense seminole tribe florida hans louisiana congress may however abrogate immunity federal makes intention abrogate unmistakably clear language statute acts pursuant valid exercise power fourteenth amendment see garrett supra blatchford native village noatak citing dellmuth muth clarity congress intent fairly debatable act enables employees seek damages employer including public agency federal state competent jurisdiction congress defined public agency include government state political subdivision thereof agency state political subdivision state iii held kimel using identical language age discrimination employment act adea stat amended et congress satisfied clear statement rule dellmuth case turns whether congress acted within constitutional authority sought abrogate immunity purposes fmla provision enacting fmla congress relied two powers vested constitution article commerce power power fourteenth amendment enforce amendment congress may abrogate sovereign immunity pursuant article power commerce seminole tribe supra congress may however abrogate sovereign immunity valid exercise power eleventh amendment principle state sovereignty embodies necessarily limited enforcement provisions fourteenth amendment fitzpatrick bitzer citation omitted see also garrett supra kimel supra two provisions fourteenth amendment relevant section grants congress power enforce substantive guarantees among equal protection laws enacting appropriate legislation congress may exercise power simply proscribe conduct held power enforce amendment includes authority remedy deter violation rights guaranteed thereunder prohibiting somewhat broader swath conduct including forbidden amendment text garrett supra quoting kimel supra city boerne flores katzenbach morgan words congress may enact prophylactic legislation proscribes facially constitutional conduct order prevent deter unconstitutional conduct city boerne also confirmed however falls congress define substance constitutional guarantees ultimate interpretation determination fourteenth amendment substantive meaning remains province judicial branch kimel section legislation reaching beyond scope actual guarantees must appropriate remedy identified constitutional violations attempt substantively redefine legal obligations distinguish appropriate prophylactic legislation substantive redefinition fourteenth amendment right issue applying test set forth city boerne valid legislation must exhibit congruence proportionality injury prevented remedied means adopted end fmla aims protect right free discrimination held statutory classifications distinguish males females subject heightened scrutiny see craig boren classification withstand scrutiny must serv important governmental objectives discriminatory means employed must substantially related achievement objectives virginia citations internal quotation marks omitted state justification classification must rely overbroad generalizations different talents capacities preferences males females ibid inquire whether congress evidence pattern constitutional violations part area history many state laws limiting women employment opportunities chronicled relatively recently sanctioned opinions example bradwell state wall illinois goesaert cleary michigan upheld state laws prohibiting women practicing law tending bar respectively state laws frequently subjected women distinctive restrictions terms conditions benefits jobs take muller oregon example approved state law limiting hours women work wages observed laws time laws based related beliefs woman remain center home family life hoyt florida proper discharge woman maternal functions view merely health race justif ies legislation protect greed well passion man muller supra decision reed reed remained prevailing doctrine government federal state withhold women opportunities accorded men long beliefs conceived discrimination virginia supra quoting goesaert supra congress responded history discrimination abrogating sovereign immunity title vii civil rights act stat sustained abrogation fitzpatrick supra state gender discrimination cease hardly doubted women still face pervasive although times subtle discrimination job market frontiero richardson according evidence congress enacted fmla continue rely invalid gender stereotypes employment context specifically administration leave benefits reliance stereotypes justify gender discrimination area virginia supra long extensive history sex discrimination prompted us hold measures differentiate basis gender warrant heightened scrutiny fitzpatrick persistence unconstitutional discrimination justifies congress passage prophylactic legislation fmla legislative record reflects bureau labor statistics bls survey stated percent surveyed employees covered maternity leave policies percent covered paternity leave policies pp corresponding numbers similar bls survey previous year percent percent respectively ibid data show increase percentage employees eligible leave also show widening gender gap period thus beliefs allocation family duties remained firmly rooted employers reliance establishing discriminatory leave policies remained congress also heard testimony arental leave fathers rare even leave policies exist men public private sectors receive notoriously discriminatory treatment requests leave washington council lawyers emphasis added many offered women extended maternity leave far exceeded typical period physical disability due pregnancy granted men parallel benefit fifteen provided women one year extended maternity leave four provided men lord king state reference guide programs state employees differential leave policies attributable differential physical needs men women rather pervasive stereotype caring family members women finally congress evidence even state laws policies facially discriminatory applied discriminatory ways aware serious problems discretionary nature family leave authority grant leave arrange length leave rests individual supervisors leaves employees open discretionary possibly unequal treatment pt pp testimony supported conclusion explaining lack uniform parental medical leave policies work place created environment sex discrimination rampant senate labor hearings pt testimony peggy montes mayor commission women affairs city chicago spite evidence justice kennedy argues dissent congress passage fmla unnecessary appear ahead congress providing family leave benefits post points nevada leave policies particular post however ince federal family leave legislation first introduced even begun consider similar family leave initiatives see also minority views durenberger elected enact similar legislation state level furthermore dissent statement adopted form leave fmla enactment post glosses important shortcomings state policies first seven childcare leave provisions applied women indeed massachusetts required notice leave provisions posted establishment females employed laws reinforced stereotypes congress sought remedy fmla second provided employees family leave beyond initial childbirth adoption care seriously ill child family third many provided statutorily guaranteed right family leave offering instead voluntary discretionary leave programs three left amount leave time primarily employers congress reasonably conclude discretionary programs little combat stereotypes roles male female employees congress sought eliminate finally four provided leave administrative regulations personnel policies congress reasonably conclude offered significantly less firm protection federal backdrop limited state leave policies matter generous petitioner may see post dissent congress justified enacting fmla remedial sum record unconstitutional participation fostering discrimination administration leave benefits weighty enough justify enactment prophylactic reached opposite conclusion garrett kimel cases legislation review responded purported tendency state officials make distinctions equal protection case law discrimination basis characteristics judged heightened review standard passes muster rational basis level even probably true reasons valid majority cases kimel see also garrett required fourteenth amendment make special accommodations disabled long actions toward individuals rational thus order impugn constitutionality state discrimination disabled elderly congress must identify existence state decisions widespread pattern irrational reliance criteria kimel supra found showing respect adea title americans disabilities act ada kimel supra garrett supra however congress directed attention state gender discrimination triggers heightened level scrutiny see craig upheld voting rights act racial classifications presumptively invalid acts race discrimination violated fourteenth amendment impact discrimination targeted fmla significant congress determined historically denial curtailment women employment opportunities traceable directly pervasive presumption women mothers first workers second prevailing ideology women roles turn justified discrimination women mothers joint hearing stereotypes women domestic roles reinforced parallel stereotypes presuming lack domestic responsibilities men employers continued regard family woman domain often denied men similar accommodations discouraged taking leave mutually reinforcing stereotypes created cycle discrimination forced women continue assume role primary family caregiver fostered employers stereotypical views women commitment work value employees perceptions turn congress reasoned lead subtle discrimination may difficult detect basis believe congress chosen remedy leave provision fmla congruent proportional targeted violation garrett supra congress already tried unsuccessfully address problem title vii amendment title vii pregnancy discrimination act katzenbach supra congress confronted difficult intractable proble kimel supra previous legislative attempts failed see katzenbach supra upholding voting rights act problems may justify added prophylactic measures response kimel supra creating routine employment benefit eligible employees congress sought ensure leave longer stigmatized inordinate drain workplace caused female employees employers evade leave obligations simply hiring men setting minimum standard family leave eligible employees irrespective gender fmla attacks formerly stereotype women responsible family caregiving thereby reducing employers incentives engage discrimination basing hiring promotion decisions stereotypes dissent characterizes fmla substantive entitlement program rather remedial statute establishes floor weeks leave post dissent view face evidence discrimination provision leave benefits congress exercising power simply proscribe discrimination position squared recognition congress confined enactment legislation merely parrots precise wording fourteenth amendment may prohibit somewhat broader swath conduct including forbidden amendment text kimel supra example upheld certain prophylactic provisions voting rights act valid exercises congress power including literacy test ban preclearance requirements changes voting procedures see katzenbach morgan oregon mitchell south carolina katzenbach supra indeed light evidence congress statute mirroring title vii simply mandated gender equality administration leave benefits achieved congress remedial object law allow provide family leave nonprofessional caregivers older chronically ill disabled persons working women pt state practices continue reinforce stereotype women caregivers policy exclude far women men workplace unlike statutes issue city boerne kimel garrett applied broadly every aspect state employers operations fmla narrowly targeted fault line work family precisely overgeneralization remains strongest affects one aspect employment relationship compare ragsdale wolverine world wide discussing important limitations fmla remedial scheme city boerne weeping coverage religious freedom restoration act kimel indiscriminate scope adea substantive requirements garrett ada prohibits disability discrimination regard terms conditions privileges employment internal quotation marks omitted also find significant many limitations congress placed scope measure see florida prepaid congressional enactment pervasively prohibits constitutional state action effort remedy prevent unconstitutional state action limitations kind tend ensure congress means proportionate ends legitimate quoting city boerne supra fmla requires unpaid leave applies employees worked employer least one year provided hours service within last months employees sensitive positions simply ineligible fmla leave particular importance fmla expressly excludes coverage state elected officials staffs appointed policymakers employees must give advance notice foreseeable leave employers may require certification health care provider need leave choosing weeks appropriate leave floor congress chose middle ground period long enough serve needs families long upset legitimate interests employers ragsdale supra quoting moreover cause action fmla restricted one damages recoverable strictly defined measured actual monetary losses iii accrual period backpay limited act statute limitations extended three years willful violations reasons conclude congruent proportional remedial object understood responsive designed prevent unconstitutional behavior city boerne supra judgment appeals therefore affirmed nevada department human resources et petitioners william hibbs et al writ certiorari appeals ninth circuit may justice souter justice ginsburg justice breyer join concurring even view scope congressional power fourteenth amendment see board trustees univ garrett kimel florida bd regents florida prepaid postsecondary ed expense bd college savings bank family medical leave act undoubtedly valid legislation application act constitutional conclusions follow fortiori understanding see garrett supra breyer dissenting kimel supra stevens dissenting florida prepaid supra stevens dissenting see also katzenbach morgan join opinion without conceding dissenting positions cited dissenting views expressed seminole tribe florida souter dissenting nevada department human resources et petitioners william hibbs et al writ certiorari appeals ninth circuit may justice stevens concurring judgment never convinced act congress amend constitution uncertain whether congressional enactment us truly secure guarantees fourteenth amendment write separately explain join judgment fitzpatrick bitzer stevens concurring judgment quoting katzenbach morgan plain language eleventh amendment poses barrier adjudication case respondents citizens nevada sovereign immunity defense asserted nevada based regard second eleventh amendment source common law rather constitutional text pennsylvania union gas stevens concurring long clearly expresses intent congress may abrogate defense pursuant power regulate commerce among several art provision family medical leave act unquestionably valid exercise power broad enough support federal legislation regulating terms conditions state employment fitzpatrick stevens concurring judgment accordingly nevada sovereign immunity defense without merit nevada department human resources et petitioners william hibbs et al writ certiorari appeals ninth circuit may justice scalia dissenting join justice kennedy dissent add one observation constitutional violation prerequisite prophylactic congressional action enforce fourteenth amendment violation state enforcement action taken guilt association enabling sovereignty one state abridged fourteenth amendment violations another state even congress sometimes displayed awareness limitation presumably sweeping provisions voting rights act upheld city rome valid exercise congressional power fifteenth restricted demonstrable history intentional racial discrimination voting today opinion even attempt demonstrate one covered violation fourteenth amendment treats sort collective entity guilty innocent body record unconstitutional participation fostering discrimination concludes weighty enough justify enactment prophylactic legislation ante prophylaxis sense extending remedy beyond violation one thing prophylaxis sense extending remedy beyond violator something else see city rome supra congress rationally concluded electoral changes jurisdictions demonstrable history intentional racial discrimination voting create risk purposeful discrimination proper prohibit changes discriminatory impact emphasis added litigant claims legislation denied individual rights secured constitution ordinarily asks first whether legislation constitutional applied see broadrick oklahoma hand federal statute challenged going beyond congress enumerated powers precedents first asks whether statute unconstitutional face ante post kennedy dissenting see morrison city boerne flores lopez statute survives challenge however stands reason may asked proceed analyze whether statute constitutional face validly applied litigant context prophylactic legislation applied state entail examining whether state engaged discrimination sufficient support exercise congress prophylactic power seems therefore purposes defeating petitioner challenge enough respondents demonstrate facially valid constitutionally applied jurisdictions see salerno even demonstration reasons set forth justice kennedy made comes challenge think nevada entitled assert mere facts state bad actors enough demand shown acting violation fourteenth amendment nevada department human resources et petitioners william hibbs et al writ certiorari appeals ninth circuit may justice kennedy justice scalia justice thomas join dissenting family medical leave act makes explicit congressional intent invoke fourteenth amendment abrogate state sovereign immunity allow suits money damages federal courts ante specific question whether congress may impose entitlement program design mandated minimums leave time enforce permitting private suits money damages turn must answered asking whether subjecting treasuries monetary liability insistence private litigants congruent proportional response demonstrated pattern unconstitutional conduct see ante board trustees univ garrett city boerne flores apply teaching related cases family leave provision act respectful view invalid extent allows private suits unconsenting congress authority define substantive content equal protection clause may shape remedies warranted violations guarantee city boerne supra requirement special force context eleventh amendment protects state fiscal integrity federal intrusion vesting immunity private actions damages pursuant federal laws commerce clause likely permit national government enact entitlement program one congress couples entitlement authorization sue monetary damages blurs line accountability state citizens basic concerns underlie cases garrett kimel florida bd regents counsel far caution shows holding somehow congruent proportional remedy identified pattern discrimination unable show engaged pattern unlawful conduct warrants remedy opening state treasuries private suits inability adduce evidence alleged discrimination coupled inescapable fact federal scheme remedy benefit program demonstrate lack requisite link problem congress identified program mandated examining whether congress addressing demonstrated pattern unconstitutional employment discrimination gives superficial treatment requirement identify precision scope constitutional right issue garrett provision us different aim title vii seeks ensure eligible employees irrespective gender take minimum amount leave time care ill relative relevant question seems acknowledge whether notwithstanding passage title vii similar state legislation continued engage widespread discrimination basis gender provision family leave benefits ante pattern shown eleventh amendment bar congress devising congruent proportional remedy evidence substantiate charge must far specific however simple recitation general history employment discrimination women federal statute seeks abrogate state sovereign immunity careful insist adherence analytic requirements set forth precedents persisting overall effects discrimination workplace must ignored simply noting problem substitute evidence identifies real discrimination family leave rules designed prevent respondents fail make requisite showing act findings purpose devoid discussion relevant evidence see lizzi alexander making finding purpose congress identify required pattern gender discrimination respect granting employment leave purpose providing family medical care see also chittister department community econ notably absent finding concerning existence much less prevalence public employment personal sick leave practices amounted intentional gender discrimination violation equal protection clause seems recognize evidence considered congress concerned discriminatory practices private sector state employers ante statistical information compiled bureau labor statistics bls factual findings cites surveyed private employers ante evidence discrimination private entities may relevant justify abrogation sovereign immunity garrett supra congress authority appropriately exercised response state transgressions seeks connect evidence private discrimination alleged pattern unconstitutional behavior inferences drawn two sources first testimony meryl frank director infant care leave project yale bush center child development social policy surveyed private public employers found little variation leave policies two sectors ante citing parental medical leave act joint hearing subcommittee relations subcommittee labor standards house committee education labor hereinafter joint hearing second view expressed washington council lawyers even leave policies exist men public private sectors receive notoriously discriminatory treatment requests leave ante quoting joint hearing emphasis added statements made hearings proposed national leave legislation preceded act seven years bill enacted differed important respect legislation congress eventually passed proposal sought provide parenting leave leave care another ill family member compare see also gladstone congressional research service issue brief family medical leave legislation pp tr oral arg statement counsel first time family leave introduced first time section authority invoked proposed testimony relies concerned discrimination respect parenting leave see joint hearing statement meryl frank yale bush study evaluate impact changing composition workplace families infants statement washington council lawyers first time childcare responsibilities natural adoptive mothers fathers legislatively protected even isolated testimony support inference private sector discrimination provision parenting leave parallel behavior state actors evidence probative conduct seven years later respect statutory provision conferring different benefit appeals admitted much recognize weakness evidence applied hibbs case bls yale bush center studies deal parental leave leave care sick family member thus document widespread pattern precisely kind discrimination intended prevent reliance evidence suggesting provided men women parenting leave different length ante suffers flaw evidence concerns act grant parenting leave attenuated justify family leave provision appeals conclusion contrary based assertion discriminate along gender lines regarding one kind leave likely regarding charge state engaged pattern unconstitutional discrimination citizens serious one must supported conjecture maintains evidence pertaining parenting leave relevant parenting family leave provisions respond gender stereotype women family duties trump workplace ante sets contours inquiry high level abstraction question whether family leave provision congruent proportional response general stereotypes employment ha historically produced discrimination hiring promotion women ibid question whether proper remedy alleged pattern unconstitutional discrimination grant family leave evidence stereotypes remote support required showing next argues even state laws policies facially discriminatory applied discriminatory ways ante charge based allegation many guarantee right family leave statute instead leaving decision individual employers subject employees possibly unequal treatment ibid quoting pt pp study derives conclusion examined parental leave policies federal executive branch agencies study explicitly stated conclusions concerned federal employees absence national minimum standard granting leave parental purposes authority grant leave arrange length leave rests individual supervisors leaving federal employees open discretionary possibly unequal treatment history discrimination part federal government may situations support inference similar conduct explain inference justified even evidence individual state employers absence clear statutory guidelines discriminated administration leave benefits circumstance alone support finding pattern discrimination evidence perhaps support charge disparate impact charge engaged pattern intentional discrimination prohibited fourteenth amendment garrett equivalence upon places emphasis deficient rationale even fundamental level however appear ahead congress providing family leave benefits thirty district columbia puerto rico adopted form leave years preceding act adoption reports houses congress noted fact pp see also brief state alabama et al amici curiae congressional hearings noted provision family leave issue picked tremendous momentum form family medical leave books family medical leave act hearing subcommittee relations house committee education labor statement congresswoman marge roukema congress relied experience designing national leave policy parental medical leave act hearings subcommittee children family drugs alcoholism senate committee labor human resources pt pp congress also acknowledged many implemented leave policies generous envisioned act pt least history act suggests process solving existing discrimination provision family leave acknowledges adopted family leave programs prior federal intervention argues policies suffered serious imperfections ante even correct observation proves programs generous effective operated feasible devise optimal programs however evidence perpetuating unconstitutional discrimination given assumed pioneering role creation family leave schemes surprising early efforts may imperfect altogether different however purposeful discrimination lengthy discussion allegedly deficient state policies falls short meeting standard great majority programs exhibit constitutional defect fact authorized precedent points seven adopted leave provisions applicable women ibid yet must acknowledge three schemes concerned solely pregnancy disability leave ante citing code regs rule iowa code ann west rev stat ann vi michie supp cases make clear state violate equal protection clause granting pregnancy disability leave women without providing grant parenting leave men geduldig aiello see also tr oral arg counsel conceding geduldig permit practice treats pregnancy disability scheme fourth state louisiana disguised provision parenting leave scheme permit leave excess period congress believed medically necessary pregnancy disability ante louisiana statute however granted leave period female employee disabled account pregnancy childbirth related medical conditions la rev stat ann west supp repealed properly administered scheme despite generous maximum transform discriminatory maternity leave female employees ante next observes provided employees family leave beyond initial childbirth adoption ante four discussed offered pregnancy disability leave see ante citing code regs rule iowa code ann west la rev stat ann west supp repealed rev stat ann vi michie supp remaining eight five offered parenting leave men women equal basis practice one contends suffers constitutional infirmity see ante citing del code tit rev stat ann michie mo rev stat lab law mckinney dept labor women bureau state leave law june discussing policy adopted virginia department personnel training explain provision social benefits either level parenting leave way permitted case law pregnancy disability leave offends constitution instead seems suggest pattern unconstitutional conduct may inferred solely state providing zens social benefits make benefits generous extensive congress later deem appropriate chastises provided statutorily guaranteed right family leave offering instead voluntary discretionary leave programs ante see also ibid provided leave administrative regulations personnel policies argue intended enable employers discriminate provision family leave already noted evidence state employers discriminated administration leave benefits see supra reasoning congress seems justified abrogating state immunity private suits whenever state social benefits program enshrined statutory code provides employers discretion stripped conduct exhibits constitutional infirmity exten sive specifi record unconstitutional state conduct ante boils fact three massachusetts kansas tennessee provided parenting leave female employees program granting employees male female family leave see ante nn citing mass laws ch west admin regs code ann already explained supra evidence related parenting leave simply attenuated support charge unconstitutional discrimination provision family leave seems acknowledge constitution require provide employees family leave ante state failure devise family leave program evidence unconstitutional behavior considered entirety evidence fails document pattern unconstitutional conduct sufficient justify abrogation sovereign immunity incidents identified fall far short even suggesting pattern unconstitutional discrimination legislation must based garrett see also kimel city boerne juxtaposed evidence record addressing discrimination provision leave benefits volition see generally brief state alabama et al amici curiae concern gender discrimination subjected heightened scrutiny opposed distinctions reviewed rational standard see kimel supra garrett supra alter conclusion application heightened scrutiny designed ensure classifications based entrenched pervasive stereotypes inhibit women progress workplace ante consideration divest respondents burden show congress identified history pattern unconstitutional employment discrimination garrett supra seems reaffirm requirement ante inquire whether congress evidence pattern constitutional violations part see also ante record unconstitutional participation fostering discrimination administration leave benefits weighty enough justify enactment prophylactic legislation submission however follow given insufficiency evidence discriminated provision family leave unfortunate fact stereotypes women continue serious pervasive social problem alone support charge state engaged practice designed deny citizens equal protection laws garrett supra paucity evidence support case tries make demonstrates congress responding congruent proportional remedy perceived course unconstitutional conduct instead enacted substantive entitlement program congress concerned different treatment men women respect family leave congruent remedy sought ensure benefits leave program enacted state available men women equal basis instead act imposes across board requirement grant minimum weeks leave per year requirement may represent congress considered judgment optimal balance family obligations workers interests employers may decide follow guidelines designing family leave benefits follow however choose enact different benefit scheme deemed engage unconstitutional conduct forced open treasuries private suits damages well federal enactment nevada provided employees basis option requesting one year unpaid leave admin code also permitted subject approval conditions leaves absence excess one year nevada state employees also entitled use days accumulated paid sick leave care ill relative nevada addition program special catastrophic leave state employees donate accrued sick leave general fund aid employees needed additional leave care relative serious illness rev stat sure nevada scheme track devised act respects provision unpaid leave discretionary subject possible reporting requirement admin code congruent remedy discriminatory exercise discretion however requirement grant leave administered basis displacement state scheme federal one scheme enacted act respect autonomous power design social benefits regime proof needed show entitlement program remedial statute suffice note act even purport bar discrimination leave programs enact administer act state allowed provide women say weeks family leave per year provide weeks leave men counsel conceded argument law kind might run afoul equal protection clause title vii constitute violation act tr oral arg act face drawn remedy discrimination family leave long acknowledged federal legislation deters remedies constitutional violations fall within sweep congress enforcement power even process prohibits conduct unconstitutional city boerne see also ante exercising power fourteenth amendment congress may prohibit somewhat broader swath conduct including forbidden amendment quoting kimel explained however congress may enforce constitutional right changing right city boerne supra dual requirement congress identify pervasive pattern unconstitutional state conduct remedy proportional congruent violation designed separate permissible exercises congressional power instances congress seeks enact substantive entitlement guise authority precedents upholding voting rights act proper exercise congress remedial power instructive south carolina katzenbach concluded voting rights act prohibition state literacy tests appropriate method enforcing constitutional protection racial discrimination voting measure justified congress documented marked pattern unconstitutional action garrett city rome katzenbach morgan principle jurisprudence well illustrated opinions cases also late justice harlan dissent katzenbach morgan justice harlan contrasted vote invalidate federal ban new york state literacy tests earlier decision south carolina katzenbach uphold stronger remedial measures state south carolina suspension literacy tests imposition preclearance requirements changes state voting laws appointment federal voting examiners katzenbach morgan supra see also south carolina katzenbach supra justice harlan explained case south carolina legislative history well judicial precedents supporting basic congressional findings clear commands fifteenth amendment infringed various state subterfuges given existence evil held remedial steps taken legislature enforcement clause fifteenth amendment justifiable exercise congressional initiative quoting south carolina katzenbach supra contrast new york case view lacked showing fact infringement constitutional command whether particular state practice offend ed command equal protection clause fourteenth amendment absence evidence state engaged unconstitutional conduct justice harlan concluded literacy test ban congress sought impose appropriate remedial measur redress prevent wrongs impermissible attempt define substantive scope amendment reasons abrogation state sovereign immunity pursuant title vii legitimate congressional response pattern discrimination employment fitzpatrick bitzer family leave benefit conferred act contrast substantive benefit congress chose confer upon state employees see city boerne supra must congruence proportionality injury prevented remedied means adopted end lacking connection legislation may become substantive operation effect plain truth congress ac accomplish legitimate end enforcing fourteenth amendment rights instead pursued object outside scope section five imposing new legal obligations beck heart federalism pretext review relationships rev bears emphasis even bar unconsented federal suits private individuals money damages state individuals whose rights act violated without recourse act likely valid exercise congress power commerce clause art cl standards prescribes binding upon may enforce standards actions money damages private individuals may bring actions state officials injunctive relief ex parte young issue whether subjected without consent suits brought private persons seeking collect moneys state treasury immunity abrogated without documentation pattern unconstitutional acts congruent proportional remedy complete failure respondents carry burden establish necessary propositions hold act valid abrogation state sovereign immunity dissent respect conclusion contrary footnotes compare purpose act balance demands workplace needs families promote stability economic security families promote national interests preserving family integrity promote goal equal employment opportunity women men pursuant equal protection lause accomplish act purposes manner consistent equal protection clause minimizes potential employment discrimination basis sex see also fmla based commerce clause also guarantees equal protection due process embodied amendment pt text act makes clear congress found due nature roles men women society primary responsibility family caretaking often falls women responsibility affects working lives women affects working lives men response finding congress sought accomplish act purposes manner minimizes potential employment discrimination basis sex ensuring generally leave available basis promote goal equal employment opportunity women men emphasis added material described leave policies private sector survey also congress demonstrated proportion construction leave policies available public sector employees differs little offered private sector employees parental medical leave act joint hearing subcommittee relations subcommittee labor standards house committee education labor hereinafter joint hearing statement meryl frank director yale bush center infant care leave project see also see six weeks medically recommended pregnancy disability leave period pt referring pregnancy discrimination act legislative history establishing four eight weeks medical recovery period normal childbirth example state employers agreements often granted extended maternity leave six months year women gerald mcentee president american federation state county municipal employees testified vast majority contracts even though look upon great pride really cover essentially maternity leave paternity leave parental medical leave act hearings subcommittee children family drugs alcoholism senate committee labor human resources pt hereinafter senate labor hearings addition state leave laws often specified catchall provisions used extended maternity leave authorize leave paternity purposes see family medical leave act joint hearing house committee post office civil service gary ackerman recounted suffering expressly denial unpaid leave absence benefit ostensibly available child care leave evidence pertaining parenting leave relevant state discrimination provision types benefits based gender stereotype women family duties trump workplace justice kennedy dissent hereinafter dissent ignores common foundation congress found historically produced discrimination hiring promotion women see post consideration evidence dissent contends expand inquiry include general stereotypes employment ibid emphasis added contrary parenting family leave address similar situations work family responsibilities conflict implicate stereotypes mass laws ch west providing leave female employee childbirth adoption see also code regs rule pregnancy disability leave iowa code former regs reasonable period maternity leave female employees stat ann vi supp pregnancy disability leave la stat ann west supp repealed maternity leave female employees code ann dissent asserts four schemes colorado iowa louisiana new hampshire concern pregnancy disability leave post louisiana provided women four months leave far exceeds medically recommended pregnancy disability leave period six weeks see supra policy attributable different physical needs men women rather invalid stereotypes congress sought counter fmla see supra see code regs rule del code tit iowa code regs rev stat ann michie la stat ann west supp mass laws ch west mo rev stat stat ann vi supp lab law west code ann dept labor women bureau state leave law june citing virginia personnel policy see code regs rule regs stat ann vi supp oklahoma offered system employees voluntarily donate leave time colleagues family emergencies okla tit historical note west see code regs rule regs admin code ch dwd former ch ilhr state leave law supra virginia contrary dissent belief hold congress may abrogat state immunity private suits whenever state social benefits program enshrined statutory code provides employers discretion post state confer social benefits generous extensive congress later deem appropriate ibid dissent misunderstands purpose fmla family leave provision fmla substantive entitlement program post congress create particular leave policy sake see infra rather congress sought adjust family leave policies order eliminate reliance perpetuation invalid stereotypes thereby dismantle persisting barriers hiring retention promotion women workplace pursuing goal reasons discussed supra congress reasonably concluded state leave laws practices brought within act given extent specificity record unconstitutional state conduct difficult understand dissent accusation rely simple recitation general history employment discrimination women post stated holding rests congressional findings time fmla enacted rel ied invalid gender stereotypes employment context specifically administration leave benefits supra emphasis added see supra congress established weeks floor thus leaving free provide employees family leave time choose see nothing act amendment made act shall construed supersede provision state local law provides greater family medical leave rights rights established act amendment made act dissent faults congress giving choice arguing fmla terms bar granting family leave time women men post justice kennedy effectively counters argument next breath recognizing discrimination run afoul equal protection clause title vii post crafting new legislation remedy unconstitutional state conduct congress may certainly rely take account existing laws indeed congress expressly see nothing act amendment made act shall construed modify affect federal state law prohibiting discrimination basis sex footnotes see stevens two questions justice rev forthcoming manuscript file law review discussing fitzpatrick footnotes section fifteenth amendment practically identical fourteenth amendment compare amdt congress shall power enforce appropriate legislation provisions article amdt congress shall power enforce article appropriate legislation