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"text": "LORI CHAVEZ-DEREMER,", "paragraph_id": "para_6" }, { "text": "Secretary of Labor,", "paragraph_id": "para_7" }, { "text": "Petitioner,", "paragraph_id": "para_8" }, { "text": "v.", "paragraph_id": "para_9" }, { "text": "ELMER MILLER d/b/a", "paragraph_id": "para_10" }, { "text": "MILLER BUILDING SYSTEMS, LLC,", "paragraph_id": "para_11" }, { "text": "Respondent.", "paragraph_id": "para_12" }, { "text": "____________________", "paragraph_id": "para_13" }, { "text": "Petition to Enforce an Order of the", "paragraph_id": "para_14" }, { "text": "Occupational Safety & Health Commission", "paragraph_id": "para_15" }, { "text": "No. 16295559", "paragraph_id": "para_16" }, { "text": "____________________", "paragraph_id": "para_17" }, { "text": "ARGUED FEBRUARY 10, 2025 — DECIDED SEPTEMBER 10, 2025", "paragraph_id": "para_18" }, { "text": "AMENDED SEPTEMBER 30, 2025", "paragraph_id": "para_19" }, { "text": "____________________", "paragraph_id": "para_20" }, { "text": "Before EASTERBROOK, ROVNER, and LEE, Circuit Judges.", "paragraph_id": "para_21" }, { "text": "ROVNER, Circuit Judge. Elmer Miller, a general contractor", "paragraph_id": "para_22" }, { "text": "and owner of a construction company, has been an actual and", "paragraph_id": "para_23" }, { "text": "metaphorical moving target for the Occupational Safety and", "paragraph_id": "para_24" }, { "text": "Health Administration (OSHA). OSHA is responsible for as-", "paragraph_id": "para_25" }, { "text": "suring, as best it can, that workplaces are safe for workers.", "paragraph_id": "para_26" }, { "text": "2 No. 24-2313", "paragraph_id": "para_27" }, { "text": "And so, when one of its inspectors discovers that a business", "paragraph_id": "para_28" }, { "text": "owner like Miller has not provided fall protection for workers", "paragraph_id": "para_29" }, { "text": "laboring high off the ground, it can issue a citation, as it did", "paragraph_id": "para_30" }, { "text": "here. The Occupational Safety and Health Act (“Act”) al-", "paragraph_id": "para_31" }, { "text": "lowed Miller fifteen working days from the date of receipt of", "paragraph_id": "para_32" }, { "text": "the citation to contest it before the Occupational Safety and", "paragraph_id": "para_33" }, { "text": "Health Review Commission (“Commission”), the body carry-", "paragraph_id": "para_34" }, { "text": "ing out the adjudicative functions of the Act. 29 U.S.C. §659(c),", "paragraph_id": "para_35" }, { "text": "29 U.S.C. §651(b)(3). After fifteen days it became a final order", "paragraph_id": "para_36" }, { "text": "of the Commission. 29 U.S.C. §659(a). And then once it be-", "paragraph_id": "para_37" }, { "text": "came a final order, Miller had sixty days to file a petition for", "paragraph_id": "para_38" }, { "text": "review with this court, before the final order became ripe for", "paragraph_id": "para_39" }, { "text": "an order for summary enforcement. 29 U.S.C. §660(b).", "paragraph_id": "para_40" }, { "text": "The Secretary of Labor petitioned this court for enforce-", "paragraph_id": "para_41" }, { "text": "ment of the final order on July 30, 2024. Summary enforce-", "paragraph_id": "para_42" }, { "text": "ment of the final order by a court is a purely ministerial action", "paragraph_id": "para_43" }, { "text": "and unreviewable by any court or agency. 29 U.S.C. §660(b),", "paragraph_id": "para_44" }, { "text": "29 U.S.C. §659(a). That means that one of the very few ways", "paragraph_id": "para_45" }, { "text": "for the recipient of the citation to contest it after fifteen work-", "paragraph_id": "para_46" }, { "text": "ing days has passed is to assert that OSHA did not properly", "paragraph_id": "para_47" }, { "text": "serve the citation, and therefore it never became a final order", "paragraph_id": "para_48" }, { "text": "over which this court has jurisdiction. This is precisely what", "paragraph_id": "para_49" }, { "text": "Miller claims here. And so, the only question we are left to", "paragraph_id": "para_50" }, { "text": "answer is did OSHA demonstrate that it adequately served", "paragraph_id": "para_51" }, { "text": "Miller with the citation.", "paragraph_id": "para_52" }, { "text": "OSHA initially sent the citation to “Elmer Miller dba Mil-", "paragraph_id": "para_53" }, { "text": "ler Building Systems, LLC,” by United States Postal Service", "paragraph_id": "para_54" }, { "text": "certified mail, as the Act instructs. 29 U.S.C. §659(a). OSHA", "paragraph_id": "para_55" }, { "text": "sent the certified mail to 433 E. County Road, 100 North, Ar-", "paragraph_id": "para_56" }, { "text": "cola, Illinois 61910 (“433 address”), the address to which", "paragraph_id": "para_57" }, { "text": "OSHA had sent many notices in the past. According to the", "paragraph_id": "para_58" }, { "text": "No. 24-2313 3", "paragraph_id": "para_59" }, { "text": "tracking information, someone at that address twice refused", "paragraph_id": "para_60" }, { "text": "to accept the certified mail when the United States Postal Ser-", "paragraph_id": "para_61" }, { "text": "vice attempted delivery, and therefore the postal service re-", "paragraph_id": "para_62" }, { "text": "turned the mail noting that it had been “refused” two times.", "paragraph_id": "para_63" }, { "text": "Once the certified mail was returned as refused, OSHA", "paragraph_id": "para_64" }, { "text": "moved to a new plan, resending the citation to Miller at the", "paragraph_id": "para_65" }, { "text": "same address using United Parcel Service (UPS) ground ser-", "paragraph_id": "para_66" }, { "text": "vice delivery with tracking services. UPS tracking showed", "paragraph_id": "para_67" }, { "text": "that the citation was delivered and that it was “Received By", "paragraph_id": "para_68" }, { "text": "Miller.” R. 5 at 19.", "paragraph_id": "para_69" }, { "text": "Miller claims in his brief that OSHA bears the burden of", "paragraph_id": "para_70" }, { "text": "demonstrating adequate service, and that it failed to do so for", "paragraph_id": "para_71" }, { "text": "the following two reasons: first, because OSHA did not send", "paragraph_id": "para_72" }, { "text": "the citation to the proper address, and second, and relatedly,", "paragraph_id": "para_73" }, { "text": "because it has no proof that Miller received the document.", "paragraph_id": "para_74" }, { "text": "Miller claims that his address and that of his business is 435", "paragraph_id": "para_75" }, { "text": "East County Road, 100 North, Arcola, Illinois, 61910 (“435 ad-", "paragraph_id": "para_76" }, { "text": "dress”), and not the 433 address. As we describe in more de-", "paragraph_id": "para_77" }, { "text": "tail below, public records indicate that Miller Building Sys-", "paragraph_id": "para_78" }, { "text": "tems owns both parcels of land.", "paragraph_id": "para_79" }, { "text": "Miller’s argument about the incorrect address is a new", "paragraph_id": "para_80" }, { "text": "one. In his answer to the Secretary’s “Petition for Summary", "paragraph_id": "para_81" }, { "text": "Enforcement and Proposed Judgment” in this court, he ar-", "paragraph_id": "para_82" }, { "text": "gued only that OSHA did not properly execute service for the", "paragraph_id": "para_83" }, { "text": "following three reasons: it sent notice by UPS rather than cer-", "paragraph_id": "para_84" }, { "text": "tified mail, it should have sent the notice to his counsel, and", "paragraph_id": "para_85" }, { "text": "the date the order became final was incorrect. It was not until", "paragraph_id": "para_86" }, { "text": "Miller’s response to the Secretary’s substantive brief in this", "paragraph_id": "para_87" }, { "text": "case that he moved the target, alleging that OSHA had no", "paragraph_id": "para_88" }, { "text": "4 No. 24-2313", "paragraph_id": "para_89" }, { "text": "proof that he was associated with the 433 address.1 Miller al-", "paragraph_id": "para_90" }, { "text": "leges that he could not have made this argument any sooner", "paragraph_id": "para_91" }, { "text": "than he did because at the time he filed his brief he had not", "paragraph_id": "para_92" }, { "text": "yet seen the agency record. But the Secretary of Labor’s very", "paragraph_id": "para_93" }, { "text": "first filing in this court—the Petition for Summary Enforce-", "paragraph_id": "para_94" }, { "text": "ment—contained an attachment that included almost all of", "paragraph_id": "para_95" }, { "text": "the information in the agency record—including a copy of the", "paragraph_id": "para_96" }, { "text": "cover letter and citation, both of which were addressed to", "paragraph_id": "para_97" }, { "text": "“Elmer Miller, dba Miller Building Systems LLC and its suc-", "paragraph_id": "para_98" }, { "text": "cessors, 433 East County Road, 100 N, Arcola, IL 61910.” R.1", "paragraph_id": "para_99" }, { "text": "at 12, 14. Miller therefore knew from the inception of this mat-", "paragraph_id": "para_100" }, { "text": "ter that OSHA sent the notice to the 433 address.", "paragraph_id": "para_101" }, { "text": "1 This is why we describe Miller as a metaphorical moving target. As", "paragraph_id": "para_102" }, { "text": "for the literal moving target piece, having twice refused service of the cer-", "paragraph_id": "para_103" }, { "text": "tified mail, or, perhaps having instructed an employee or family member", "paragraph_id": "para_104" }, { "text": "to do so, he now accuses OSHA of failing to prove that it provided him", "paragraph_id": "para_105" }, { "text": "with service. Some might describe this as “chutzpah.” Miller has a docu-", "paragraph_id": "para_106" }, { "text": "mented history of attempting to avoid service of OSHA citations. On at", "paragraph_id": "para_107" }, { "text": "least four occasions since 2018, OSHA has needed to hire a private process", "paragraph_id": "para_108" }, { "text": "server to effectuate service on Miller. See Reply Brief, Exh. B at 2 (Declara-", "paragraph_id": "para_109" }, { "text": "tion of Tricia L. Rankin, Assistant Area Director of OSHA, Peoria Area", "paragraph_id": "para_110" }, { "text": "office). On each of those occasions Miller was served at the 433 address.", "paragraph_id": "para_111" }, { "text": "And on one occasion, when the Secretary moved the court to require Mil-", "paragraph_id": "para_112" }, { "text": "ler to waive service and provide reliable contact information, Miller pro-", "paragraph_id": "para_113" }, { "text": "vided the 433 address as his reliable contact address. See Id. at Exh. N. As", "paragraph_id": "para_114" }, { "text": "we explain later, we take judicial notice of the court documents in exhibits", "paragraph_id": "para_115" }, { "text": "M and N of the Secretary’s reply brief. We do not accept the factual asser-", "paragraph_id": "para_116" }, { "text": "tions made in Assistant Area Director Rankin’s declaration for the truth of", "paragraph_id": "para_117" }, { "text": "the matter, but rather for the purpose of assessing whether OSHA’s at-", "paragraph_id": "para_118" }, { "text": "tempts to serve Miller at the 433 address were reasonably calculated to", "paragraph_id": "para_119" }, { "text": "give Miller fair notice of the citation, in light of the information it had at", "paragraph_id": "para_120" }, { "text": "the time.", "paragraph_id": "para_121" }, { "text": "No. 24-2313 5", "paragraph_id": "para_122" }, { "text": "Nevertheless, we will put this belated argument issue aside", "paragraph_id": "para_123" }, { "text": "and discuss what is required for OSHA to fulfill its notice re-", "paragraph_id": "para_124" }, { "text": "quirements.2", "paragraph_id": "para_125" }, { "text": "Although it is true that section 10(a) of the Act calls for", "paragraph_id": "para_126" }, { "text": "OSHA to send a citation by certified mail, it would be absurd", "paragraph_id": "para_127" }, { "text": "to conclude that an employer could avoid fines and sanctions", "paragraph_id": "para_128" }, { "text": "merely by contumaciously refusing to accept the citations", "paragraph_id": "para_129" }, { "text": "OSHA sends by certified mail. The Due Process Clause of the", "paragraph_id": "para_130" }, { "text": "Constitution defines the type of notice a government entity", "paragraph_id": "para_131" }, { "text": "must provide a citizen before depriving it of property by, for", "paragraph_id": "para_132" }, { "text": "example, levying a fine for regulatory violations. As the Su-", "paragraph_id": "para_133" }, { "text": "preme Court has defined it, “[a]n elementary and fundamen-", "paragraph_id": "para_134" }, { "text": "tal requirement of due process in any proceeding which is to", "paragraph_id": "para_135" }, { "text": "be accorded finality is notice reasonably calculated, under all", "paragraph_id": "para_136" }, { "text": "the circumstances, to apprise interested parties of the pen-", "paragraph_id": "para_137" }, { "text": "dency of the action and afford them an opportunity to present", "paragraph_id": "para_138" }, { "text": "their objections.” Mullane v. Cent. Hanover Bank & Tr. Co., 339", "paragraph_id": "para_139" }, { "text": "U.S. 306, 314 (1950). Due process does not require that the", "paragraph_id": "para_140" }, { "text": "government “must provide actual notice, but that it must at-", "paragraph_id": "para_141" }, { "text": "tempt to provide actual notice.” Dusenbery v. United States, 534", "paragraph_id": "para_142" }, { "text": "U.S. 161, 170 (2002) (emphasis in original). If the government", "paragraph_id": "para_143" }, { "text": "has reason to know that the party never received the initial", "paragraph_id": "para_144" }, { "text": "notice, it need only undertake reasonable additional efforts at", "paragraph_id": "para_145" }, { "text": "notification. Jones v. Flowers, 547 U.S. 220, 234 (2006) (declaring", "paragraph_id": "para_146" }, { "text": "that if a certified letter comes back as “unclaimed,” the", "paragraph_id": "para_147" }, { "text": "2 Miller has dropped his arguments regarding notice to his lawyers", "paragraph_id": "para_148" }, { "text": "and the miscalculated date, the latter of which has been corrected in the", "paragraph_id": "para_149" }, { "text": "Secretary’s brief.", "paragraph_id": "para_150" }, { "text": "6 No. 24-2313", "paragraph_id": "para_151" }, { "text": "government must take additional reasonable steps to give no-", "paragraph_id": "para_152" }, { "text": "tice).3", "paragraph_id": "para_153" }, { "text": "For this reason, the agency has long interpreted the Act to", "paragraph_id": "para_154" }, { "text": "allow for alternative methods of service if the agency cannot", "paragraph_id": "para_155" }, { "text": "effectuate service through certified mail. See Donald K. Nelson", "paragraph_id": "para_156" }, { "text": "Constr., Inc., 3 BNA OSHC 1914, 1976 WL 30037, at *1 (No.", "paragraph_id": "para_157" }, { "text": "4309, 1976) (“[A]n alternative method may be used if service", "paragraph_id": "para_158" }, { "text": "by certified mail cannot be effected.”); see also Field Operations", "paragraph_id": "para_159" }, { "text": "Manual Chapter 5, § XI(b)(1) (“[U]se of a mail delivery service", "paragraph_id": "para_160" }, { "text": "other than the United States Postal Service, can be used in ad-", "paragraph_id": "para_161" }, { "text": "dition to certified mail if it is believed that these methods", "paragraph_id": "para_162" }, { "text": "would effectively give the employer notice of the citation.)", "paragraph_id": "para_163" }, { "text": "(emphasis in original); DRTG Builders, LLC v. Occupational", "paragraph_id": "para_164" }, { "text": "Safety & Health Comm’n, 26 F.4th 306, 311 (5th Cir. 2022)", "paragraph_id": "para_165" }, { "text": "(OSHA’s service by UPS was reasonably calculated to provide", "paragraph_id": "para_166" }, { "text": "the employer with notice after the original notice by USPS", "paragraph_id": "para_167" }, { "text": "was never retrieved from the post office.). The relevant ques-", "paragraph_id": "para_168" }, { "text": "tion is “whether the service is reasonably calculated to pro-", "paragraph_id": "para_169" }, { "text": "vide an employer with knowledge of the citation and notifi-", "paragraph_id": "para_170" }, { "text": "cation of proposed penalty and an opportunity to determine", "paragraph_id": "para_171" }, { "text": "3 The Supreme Court has considered the adequacy of notice in many", "paragraph_id": "para_172" }, { "text": "different contexts, including, for example, to a taxpayer on the brink of", "paragraph_id": "para_173" }, { "text": "losing a home, Jones, 547 U.S. at 220; owners of seized cash and automo-", "paragraph_id": "para_174" }, { "text": "biles, Dusenbery, 534 U.S. at 161; creditors of an estate, Tulsa Pro. Collection", "paragraph_id": "para_175" }, { "text": "Servs., Inc. v. Pope, 485 U.S. 478 (1988); a mortgagee of property subject to", "paragraph_id": "para_176" }, { "text": "a pending tax sale, Mennonite Bd. of Missions v. Adams, 462 U.S. 791 (1983);", "paragraph_id": "para_177" }, { "text": "tenants living in public housing subject to eviction, Greene v. Lindsey, 456", "paragraph_id": "para_178" }, { "text": "U.S. 444 (1982); and beneficiaries of a common trust fund, Mullane, 339", "paragraph_id": "para_179" }, { "text": "U.S. at 306. We have no reason to think it would define notice any differ-", "paragraph_id": "para_180" }, { "text": "ently in the case of a citation from OSHA.", "paragraph_id": "para_181" }, { "text": "No. 24-2313 7", "paragraph_id": "para_182" }, { "text": "whether to abate or contest.” B.J. Hughes, Inc., 7 BNA OSHC", "paragraph_id": "para_183" }, { "text": "1471, 1474, 1979 WL 8462, at *3 (No. 76-2165, 1979).", "paragraph_id": "para_184" }, { "text": "To sum up, due process does not require actual receipt of", "paragraph_id": "para_185" }, { "text": "the violation, only that the government’s service was reason-", "paragraph_id": "para_186" }, { "text": "ably calculated to provide notice of the citation. In this case,", "paragraph_id": "para_187" }, { "text": "therefore, if the government sent the notice to the proper ad-", "paragraph_id": "para_188" }, { "text": "dress (and we will address this question shortly), the govern-", "paragraph_id": "para_189" }, { "text": "ment’s attempt to serve Miller by certified mail was likely suf-", "paragraph_id": "para_190" }, { "text": "ficient, as the government took steps reasonably calculated to", "paragraph_id": "para_191" }, { "text": "give Miller notice of the citation, despite the fact that the mail", "paragraph_id": "para_192" }, { "text": "was refused. Dusenbery, 534 U.S. at 169–70; see also George", "paragraph_id": "para_193" }, { "text": "Barry, et al., d/b/a Union Waterproofing, Roofing & Painting Co.,", "paragraph_id": "para_194" }, { "text": "9 BNA OSHC 1264, 1981 WL 18843,*4 (No. 77-2720, 1981)", "paragraph_id": "para_195" }, { "text": "(“[O]rdinarily, nonreceipt or refusal to accept mail does not", "paragraph_id": "para_196" }, { "text": "affect the validity of service.”); Maxim Crane Works, No. 17-", "paragraph_id": "para_197" }, { "text": "1894, 2020 WL 9894075, at *8 (O.S.H.R.C. A.L.J. Jan. 14, 2020)", "paragraph_id": "para_198" }, { "text": "(noting that service of “certified mailing of the Citation and", "paragraph_id": "para_199" }, { "text": "Notification of Penalty was still valid, even though Respond-", "paragraph_id": "para_200" }, { "text": "ent did not receive it”), affirmed, Maxim Crane Works, 2021", "paragraph_id": "para_201" }, { "text": "CCH OSHD ¶ 33847 (O.S.H.R.C. No. 17-1894, 2021). Where", "paragraph_id": "para_202" }, { "text": "the notice comes back as “undeliverable,” the government is", "paragraph_id": "para_203" }, { "text": "on notice that it must take additional reasonable steps to at-", "paragraph_id": "para_204" }, { "text": "tempt notice again. See Jones, 547 U.S. at 230; see also Garcia v.", "paragraph_id": "para_205" }, { "text": "Meza, 235 F.3d 287, 291 (7th Cir. 2000) (holding that even", "paragraph_id": "para_206" }, { "text": "though the government may have believed at the time of", "paragraph_id": "para_207" }, { "text": "sending the notice that its methods were adequate to apprise", "paragraph_id": "para_208" }, { "text": "the recipient, once it was informed by the carrier that the", "paragraph_id": "para_209" }, { "text": "plaintiffs had never received written notice of the impending", "paragraph_id": "para_210" }, { "text": "proceeding, due process required the government to try", "paragraph_id": "para_211" }, { "text": "again). A notice of refusal, however, is different from a notice", "paragraph_id": "para_212" }, { "text": "that service was “undeliverable.” In the case of a refusal,", "paragraph_id": "para_213" }, { "text": "OSHA has reason to think that Miller knew that it had been", "paragraph_id": "para_214" }, { "text": "8 No. 24-2313", "paragraph_id": "para_215" }, { "text": "delivered but was purposefully trying to evade the conse-", "paragraph_id": "para_216" }, { "text": "quences of that notice. But if Miller were deliberately refusing", "paragraph_id": "para_217" }, { "text": "to accept the otherwise properly sent certified mail, the reason", "paragraph_id": "para_218" }, { "text": "he did not receive notice would be of his own making—not", "paragraph_id": "para_219" }, { "text": "OSHA’s. Miller cannot avoid the consequences of violating", "paragraph_id": "para_220" }, { "text": "OSHA’s safety regulations by refusing to accept the certified", "paragraph_id": "para_221" }, { "text": "mail. And Miller is no less responsible for his lack of notice if", "paragraph_id": "para_222" }, { "text": "he instructed his employees or family members to refuse the", "paragraph_id": "para_223" }, { "text": "service on his behalf, as he would be if he did it himself. In", "paragraph_id": "para_224" }, { "text": "such a case, we see no reason why due process would require", "paragraph_id": "para_225" }, { "text": "OSHA to try again.", "paragraph_id": "para_226" }, { "text": "If employers could avoid OSHA regulations simply by re-", "paragraph_id": "para_227" }, { "text": "fusing to accept certified mail, the provision requiring OSHA", "paragraph_id": "para_228" }, { "text": "to send notification by certified mail would essentially evis-", "paragraph_id": "para_229" }, { "text": "cerate any enforcement powers in the Act. We need not, de-", "paragraph_id": "para_230" }, { "text": "cide, however, if “refused” certified mail requires OSHA to", "paragraph_id": "para_231" }, { "text": "take reasonable additional steps to notify the employer, be-", "paragraph_id": "para_232" }, { "text": "cause OSHA did take such additional steps here. And once", "paragraph_id": "para_233" }, { "text": "the certified mail was twice rejected, it was eminently reason-", "paragraph_id": "para_234" }, { "text": "able for OSHA to try a different method, as it did by sending", "paragraph_id": "para_235" }, { "text": "the notice via UPS. See Mullane, 339 U.S. at 315 (“The reason-", "paragraph_id": "para_236" }, { "text": "ableness and hence the constitutional validity of any chosen", "paragraph_id": "para_237" }, { "text": "method may be defended on the ground that it is in itself rea-", "paragraph_id": "para_238" }, { "text": "sonably certain to inform those affected, or, where conditions", "paragraph_id": "para_239" }, { "text": "do not reasonably permit such notice, that the form chosen is", "paragraph_id": "para_240" }, { "text": "not substantially less likely to bring home notice than other of", "paragraph_id": "para_241" }, { "text": "the feasible and customary substitutes.”) (internal citations", "paragraph_id": "para_242" }, { "text": "omitted); DRTG Builders, 26 F.4th at 311 (concluding that", "paragraph_id": "para_243" }, { "text": "OSHA properly served an employer with notice via UPS after", "paragraph_id": "para_244" }, { "text": "an unsuccessful initial attempt by USPS certified mail).", "paragraph_id": "para_245" }, { "text": "No. 24-2313 9", "paragraph_id": "para_246" }, { "text": "Miller argues that, in any event, neither mailing consti-", "paragraph_id": "para_247" }, { "text": "tuted a reasonable attempt to give him notice of the citation", "paragraph_id": "para_248" }, { "text": "because the government sent the notice either negligently or", "paragraph_id": "para_249" }, { "text": "purposefully to the incorrect address. Miller asserts that his", "paragraph_id": "para_250" }, { "text": "address and that of his business is the 435 address, and the", "paragraph_id": "para_251" }, { "text": "government sent the notice to the adjacent property at the 433", "paragraph_id": "para_252" }, { "text": "address. Miller argues that because OSHA has not presented", "paragraph_id": "para_253" }, { "text": "any evidence to support a finding that the certified mail or", "paragraph_id": "para_254" }, { "text": "UPS ground package were sent to Miller at the 435 address,", "paragraph_id": "para_255" }, { "text": "the OSHA has not met the burden of proving that service was", "paragraph_id": "para_256" }, { "text": "proper.", "paragraph_id": "para_257" }, { "text": "Official public records indicate, however, that the 433 ad-", "paragraph_id": "para_258" }, { "text": "dress is one with which Miller is undeniably associated, and", "paragraph_id": "para_259" }, { "text": "is an address that both he and Miller Building Systems have", "paragraph_id": "para_260" }, { "text": "used in official government transactions on many occasions.", "paragraph_id": "para_261" }, { "text": "We, therefore, take judicial notice of the fact that the 433 ad-", "paragraph_id": "para_262" }, { "text": "dress is one associated with Miller, and an address at which", "paragraph_id": "para_263" }, { "text": "OSHA reasonably could be assured Miller would receive the", "paragraph_id": "para_264" }, { "text": "citation.", "paragraph_id": "para_265" }, { "text": "Rule 201(b) of the Federal Rules of Evidence", "paragraph_id": "para_266" }, { "text": "permits a court to take judicial notice of an ad-", "paragraph_id": "para_267" }, { "text": "judicative fact that is ‘not subject to reasonable", "paragraph_id": "para_268" }, { "text": "dispute’ because it:", "paragraph_id": "para_269" }, { "text": "(1) is generally known within the trial", "paragraph_id": "para_270" }, { "text": "court’s territorial jurisdiction; or", "paragraph_id": "para_271" }, { "text": "(2) can be accurately and readily deter-", "paragraph_id": "para_272" }, { "text": "mined from sources whose accuracy can-", "paragraph_id": "para_273" }, { "text": "not reasonably be questioned.—", "paragraph_id": "para_274" }, { "text": "In the Matter of Lisse, 905 F.3d 495, 496 (7th Cir. 2018) (quoting", "paragraph_id": "para_275" }, { "text": "Fed. R. Evid. 201(b)). A party need not make a separate", "paragraph_id": "para_276" }, { "text": "10 No. 24-2313", "paragraph_id": "para_277" }, { "text": "request to the court for judicial notice. It need only refer to the", "paragraph_id": "para_278" }, { "text": "evidence in its brief and explain why it is relevant and subject", "paragraph_id": "para_279" }, { "text": "to judicial notice. Id. The Secretary, in her brief, explains that", "paragraph_id": "para_280" }, { "text": "Miller has asserted for over a decade that the 433 address was", "paragraph_id": "para_281" }, { "text": "his business address and thus service of the citation to that", "paragraph_id": "para_282" }, { "text": "address was reasonably calculated to provide him notice. Ju-", "paragraph_id": "para_283" }, { "text": "dicial notice of public records listing Miller’s address at 433", "paragraph_id": "para_284" }, { "text": "would demonstrate that notice addressed to 433 was reason-", "paragraph_id": "para_285" }, { "text": "ably calculated to apprise him of the citation.", "paragraph_id": "para_286" }, { "text": "We cannot reasonably question the accuracy of the Doug-", "paragraph_id": "para_287" }, { "text": "las County tax and property records that list the owner of the", "paragraph_id": "para_288" }, { "text": "433 address as Miller Building Systems, LLC, c/o Elmer M.", "paragraph_id": "para_289" }, { "text": "Miller.4 See Reply Brief at Exh. C & D. OSHA also conducted", "paragraph_id": "para_290" }, { "text": "a public records search with CLEAR, a public records search", "paragraph_id": "para_291" }, { "text": "tool offered by Thomson Reuters. That search revealed that", "paragraph_id": "para_292" }, { "text": "Miller Building Systems Inc. registered a vehicle to the 433", "paragraph_id": "para_293" }, { "text": "address.5", "paragraph_id": "para_294" }, { "text": "4 Miller argues that OSHA issued the citation to Elmer Miller individ-", "paragraph_id": "para_295" }, { "text": "ually and not Miller Building Systems, but he is incorrect. The initial De-", "paragraph_id": "para_296" }, { "text": "cember 2, 2022, letter from OSHA to Miller was addressed to “Elmer Mil-", "paragraph_id": "para_297" }, { "text": "ler, dba Miller Building Systems, LLC.” R.5 at 5. And the Petition for Sum-", "paragraph_id": "para_298" }, { "text": "mary Enforcement filed in this court states that “Pursuant to section 11(b)", "paragraph_id": "para_299" }, { "text": "of the Occupational Safety and Health Act of 1970 (OSH Act), 29 U.S.C.", "paragraph_id": "para_300" }, { "text": "§660(b), the Secretary of Labor petitions this Court for an order summarily", "paragraph_id": "para_301" }, { "text": "enforcing the Occupational Safety and Health Review Commission’s", "paragraph_id": "para_302" }, { "text": "(Commission) January 4, 2023 final order against Respondent Elmer Mil-", "paragraph_id": "para_303" }, { "text": "ler, dba Miller Building Systems, LLC (Miller).” R.1 at 1. In any event, no-", "paragraph_id": "para_304" }, { "text": "tice to Miller at either his home or work address could be reasonably cal-", "paragraph_id": "para_305" }, { "text": "culated to apprise Miller of the citation.", "paragraph_id": "para_306" }, { "text": "5 The Secretary’s brief also includes exhibits from several private web-", "paragraph_id": "para_307" }, { "text": "sites that allow a user to search for business registration. These websites", "paragraph_id": "para_308" }, { "text": "(continued)", "paragraph_id": "para_309" }, { "text": "No. 24-2313 11", "paragraph_id": "para_310" }, { "text": "Moreover, having claimed to OSHA, the Commission,", "paragraph_id": "para_311" }, { "text": "multiple courts, and myriad other governmental bodies that", "paragraph_id": "para_312" }, { "text": "his address was the 433 address, Miller cannot now claim that", "paragraph_id": "para_313" }, { "text": "notice to the 433 address was not reasonably calculated to ap-", "paragraph_id": "para_314" }, { "text": "prise him of the citation. OSHA has inspected Miller’s work-", "paragraph_id": "para_315" }, { "text": "place thirteen times and issued citations for thirty-eight vio-", "paragraph_id": "para_316" }, { "text": "lations, all sent to the 433 address. OSHA has verified Miller’s", "paragraph_id": "para_317" }, { "text": "receipt of service at that address. And in fact, Miller asserts in", "paragraph_id": "para_318" }, { "text": "his answer in this very case that he has “received and con-", "paragraph_id": "para_319" }, { "text": "tested prior OSHA citations” all of which were sent to the 433", "paragraph_id": "para_320" }, { "text": "address. R. 3 at 2. In more than a decade of interacting with", "paragraph_id": "para_321" }, { "text": "OSHA, in his communications with the agency, with its legal", "paragraph_id": "para_322" }, { "text": "counsel, and in proceedings before the Commission, Miller", "paragraph_id": "para_323" }, { "text": "has never before informed OSHA that it erred by sending ci-", "paragraph_id": "para_324" }, { "text": "tations to the 433 address. As both a pro se litigant and when", "paragraph_id": "para_325" }, { "text": "represented by counsel, Miller has stated to federal courts that", "paragraph_id": "para_326" }, { "text": "the 433 address was the correct address for his business oper-", "paragraph_id": "para_327" }, { "text": "ations. For example, in 2020, in other litigation over OSHA", "paragraph_id": "para_328" }, { "text": "violations, Miller submitted an answer in a case before the", "paragraph_id": "para_329" }, { "text": "Commission that stated as follows:", "paragraph_id": "para_330" }, { "text": "Respondents admit … Miller building systems", "paragraph_id": "para_331" }, { "text": "LLC having business operations engaged in res-", "paragraph_id": "para_332" }, { "text": "idential construction work and other related", "paragraph_id": "para_333" }, { "text": "also list the 433 address as being registered to Miller Building Systems,", "paragraph_id": "para_334" }, { "text": "LLC. Because Miller could argue about the veracity or reliability of the", "paragraph_id": "para_335" }, { "text": "information from these commercial websites, we will not take judicial no-", "paragraph_id": "para_336" }, { "text": "tice of the information from those commercial websites, or from declara-", "paragraph_id": "para_337" }, { "text": "tions or affidavits that have not been made subject to testing and challenge", "paragraph_id": "para_338" }, { "text": "through the judicial process. See In the Matter of Lisse, 905 F.3d at 496–97.", "paragraph_id": "para_339" }, { "text": "In any event, the information about the 433 address contained in those", "paragraph_id": "para_340" }, { "text": "records and declarations is merely duplicative of the information from the", "paragraph_id": "para_341" }, { "text": "official government tax and property records.", "paragraph_id": "para_342" }, { "text": "12 No. 24-2313", "paragraph_id": "para_343" }, { "text": "activities during the times at issue herein. …", "paragraph_id": "para_344" }, { "text": "The correct address for such operations is 433 E.", "paragraph_id": "para_345" }, { "text": "County Road 100 N., Arcola, Illinois 61910.", "paragraph_id": "para_346" }, { "text": "Reply Brief, Exh. M at 2. And in proceedings involving other", "paragraph_id": "para_347" }, { "text": "OSHA citations in the District Court for the Central District of", "paragraph_id": "para_348" }, { "text": "Illinois, Miller has specifically requested to be served at the", "paragraph_id": "para_349" }, { "text": "433 address. Id., Exh. N at 1.", "paragraph_id": "para_350" }, { "text": "We take judicial notice of the fact that the 433 address is", "paragraph_id": "para_351" }, { "text": "an address where OSHA could reasonably calculate that Mil-", "paragraph_id": "para_352" }, { "text": "ler would be found and could receive the citation. We hold,", "paragraph_id": "para_353" }, { "text": "therefore, that OSHA’s mailings to the 433 address were rea-", "paragraph_id": "para_354" }, { "text": "sonably calculated to apprise Miller of the citation. Conse-", "paragraph_id": "para_355" }, { "text": "quently, we grant the Secretary’s petition for summary en-", "paragraph_id": "para_356" }, { "text": "forcement and issue the enforcement decree pursuant to 29", "paragraph_id": "para_357" }, { "text": "U.S.C. §660(b).", "paragraph_id": "para_358" }, { "text": "By so holding, we have done Miller a great favor. The al-", "paragraph_id": "para_359" }, { "text": "ternative would be for us to appoint a special master to deter-", "paragraph_id": "para_360" }, { "text": "mine at a hearing whether Miller is indeed associated with the", "paragraph_id": "para_361" }, { "text": "433 address in such a way that notice sent to that address was", "paragraph_id": "para_362" }, { "text": "reasonably calculated to apprise him of the citation. 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