United States: Ninth Circuit Reverses District Court Decisions, Reviving U.S. Department Of Labor Rule Restricting Tip-Pool Distribution

On February 23, 2016, in a surprise ruling, a divided Ninth Circuit Court of Appeals (which covers the states of California, Nevada, Oregon, Washington, Arizona, Alaska, Idaho, Montana and Hawaii) ignored its prior precedent issued in 2010 and reversed  federal district court orders invalidating 2011 revisions to the Department of Labor's (DOL's) tip-pool regulation. Oregon Restaurant and Lodging Association v. Perez, No. 13-35765 (9th Cir. Feb. 23, 2016).

The majority held the DOL acted within its authority when it promulgated the rule change.  As revised, the tip-pool regulation prohibits an employer from including non-tipped staff in tip pools even when it does not take the tip credit, but instead pays the full statutory minimum wage. The majority concluded that the Fair Labor Standards Act's (FLSA's) "clear silence as to employers who do not take a tip credit" has left room for the DOL to promulgate the 2011 rule and rejected the notion that the appeals court had foreclosed the agency's ability to do so by virtue of its 2010 decision in Cumbie v. Woody Woo, Inc., 596 F.3d 577 (9th Cir. 2010). This decision means that even in states where no tip credit exists, employers can no longer mandate a tip-pool distribution that includes employees who are not in the chain of service or do not have direct contact with customers, such as cooks or dishwashers. These employees are by this decision properly prohibited under the regulation from being part of a tip pool. 

History of Tip-Pool Restriction

FLSA section 203(m) allows employers to institute a tip pool among workers who "customarily and regularly" receive customer tips for their efforts. The federal law on tip pooling adopts standards that are protective of employees' right to tips. The type of employees that are usually viewed as "customarily and regularly" receiving tips are waiters, waitresses, bellhops, bussers and service bartenders. Some cases have found that hosts/ hostesses who perform direct customer service, such as greeting the customer, can be included in a tip pool. Also, the FLSA forbids any arrangement where any part of the tip received becomes the property of the employer. A tip is the sole property of the tipped employee or employees.

The FLSA makes  it clear that the rationale for the restriction on which employees can share in tips is to protect workers in states that allow a tip credit. Section 3(m) of the FLSA permits an employer to take a tip credit toward its minimum wage obligation for tipped employees equal to the difference between the required cash wage (which currently must be at least $2.13 per hour) and the federal minimum wage. By restricting the distribution of tips in a tip-pool to only workers who "customarily and regularly" interact with customers, the DOL is attempting to protect these workers from wage inequities and making sure employees in the service industry can maximize their wages since these employees rely on tips to at least reach the minimum wage.  Historically, states have also had similar definitions of allowable tip-pooling

Tip pools, whether voluntary or mandatory, are generally permitted for employees so long as:

  • Tip pool participants are limited to those employees who contribute to the chain of service bargained for by the patron
  • No employer or agent of the employer takes or receives any part of the tips intended for employees
  • The tips are distributed among the pool participants in a fair and reasonable manner.

Pooling tips for redistribution is not required, nor is a written agreement or policy required to allow a tip pool.  

Employers in states that did not allow them to take a tip credit began challenging the tip credit restrictions to allow tips to be shared by all employees, even those who did not have direct customer contact.  These employers argued that even employees who did not have direct customer contact were vital to the customer's positive experience and contributed to any tip the customer elected to leave. In 2010, in the Cumbie decision, the Ninth Circuit held that an employer who did not take the tip credit against its obligation to pay the statutory minimum wage was entitled to use a tip pool comprising tipped and non-tipped employees. The rationale and reasoning was section 203(m) of the FLSA was silent as to employers that do not take the tip credit, and the appeals court found such a tip pool permissible under these circumstances.

Many industries, in particular hospitality (restaurants, hotels and resorts, golf clubs), adopted tip-pooling agreements that recognize the importance of all employees to the experience of a guest or customer and to address income inequality between tipped and non-tipped employees. Such tip-pooling arrangements included a standard that (1) distributes the majority of the pooled gratuities to those employees with direct customer contact, i.e., wait staff and bartenders, (2) followed by a smaller percentage to bussers, (3) a still smaller percentage to other categories of employees who provide limited direct table service and (4) an even smaller percentage to employees who had little to no contact with the customers, such as back of the house cooks and dishwashers.

Shortly after the Cumbie decision, the DOL revised its tip-pool regulation so that the restriction now applied to all employers, regardless of whether they take a tip credit. It did so despite the holding in Cumbie – and notwithstanding comments that the agency received in response to a 2008 notice of proposed rulemaking and comment request on this very issue – that suggested that section 203(m)'s tip-pooling restrictions should only apply to employers that take the tip credit.  

On April 5, 2011, the DOL issued regulations that directly conflicted with the holding in Cumbie. At that time, it was unclear whether the DOL would enforce the new regulations against employers in the Ninth Circuit. In early 2012, the DOL clarified its position on tip pooling by fully rejecting the Ninth Circuit's decision in Cumbie. As a result, employers could no longer require mandatory tip pooling with back of the house employees. In conjunction with this announcement, the DOL issued an advisory memo directing its field offices nationwide, including those in the Ninth Circuit, to enforce its rule prohibiting mandatory tip pools that include those employees who do not customarily and regularly receive tips.   

The District Court's Decision in Oregon Restaurant and Lodging Association

Several trade groups stepped up to challenge the DOL's 2011 rule.  The Oregon Restaurant and Lodging Association's  challenge resulted in the District of Oregon's holding that the DOL had exceeded its authority when it issued regulations on tip-pooling restricting restaurants that did not take the tip credit.  In Oregon Restaurant and Lodging Assn. v. Solis, No. 3:12-cv-01261 (D. Or. June 7, 2013), the court held that the language of section 203(m) of the FLSA is clear and unambiguous; it only imposes conditions on employers that take a tip credit. Quoting the Ninth Circuit's opinion in Cumbie, the court explained that "[a] statute that provides that a person must do X in order to achieve Y does not mandate that a person must do X, period."  As a result, this decision extended the Cumbie holding allowing mandatory tip pools that include employees who do not normally receive tips so long as a tip credit was not taken to reach the minimum wage. This case has not been appealed to date and is good law subject to citation especially in states located in the Ninth Circuit where no tip credit exists.

In response to Oregon Restaurant and Lodging, and other cases, the DOL appealed but stipulated that it would not attempt to enforce the 2011 tip-pooling rules within states in the Ninth Circuit that do not allow a tip credit.

Scaling Back Cumbie

Despite the uniformity of the District Court's decisions applying Cumbie, the Ninth Circuit reversed, rejecting the lower court's application of Cumbie as well as its analysis of the DOL's action.

In attempting to reconcile Oregon Restaurant and Lodging with Cumbie, the majority stated that the task in that case was merely to decide whether a particular restaurant's tip pool violated section 203(m), it explained. "We did not hold that the FLSA unambiguously and categorically protects the practice in question."  In so holding, the majority relied on the U.S. Supreme Court's reasoning in Christensen v. Harris County decided in 2000, an FLSA case involving compensatory time, which it had cited in Cumbie. According to the Ninth Circuit, Christensen "illustrates the crucial distinction between statutory language that affirmatively protects or prohibits a practice and statutory language that is silent about that practice." In that case, the Supreme Court construed the FLSA's silence on the matter to be in favor of the employer, but it did not preclude the agency from enacting regulations in the future that would prohibit the policy at issue. Likewise, the Ninth Circuit majority decision reasoned that the DOL's 2011 rules are  still valid as the matter occurred prior to the revisions to its regulations.

The appeals court also held that the DOL's interpretation of section 203(m) was a reasonable one. The agency saw a "loophole" in the law as written, one that was being unfairly exploited as a result of statutory silence; moreover, the AFL-CIO, the National Employment Lawyers Association, and the Chamber of Commerce all agreed (in public comments) that the statutory provision was "confusing" or "misleading." Consequently, "it was certainly reasonable to conclude that clarification by the DOL was needed." And the legislative history of the Act supported the agency's interpretation in making the clarification, despite the employers' assertions to the contrary.

The dissent by Judge Smith is not kind and states in pertinent part: "Colleagues, even if you don't like circuit precedent, you must follow it....Afterwards, you call the case en banc. You cannot create your own contrary precedent." According to Smith, the case before the Ninth Circuit "is nothing more than Cumbie II," identical to its predecessor. "The DOL's promulgation of this new rule changes nothing," and the matter should have been resolved by a memorandum disposition and upholding the district court decisions.

Practical Guidance for Compliance

As a result of the Ninth Circuit decision in Oregon Restaurant, a company located in the jurisdiction of the Ninth Circuit is no longer allowed to impose a tip pool that allows employees who are not directly in the line of service to be a part of a tip-pool arrangement. "Back of the house" employees such as cooks, kitchen staff and dishwashers who have no contact with the customer going forward are barred from sharing in a tip pool even in a state where the tip credit does not apply.

However, given the DOL's position not to enforce while the appeal was pending, employers are likely not subject to retroactive application of the regulations. The restaurant organizations and Wynn Las Vegas can ask for the entire Ninth Circuit Court of Appeals to reconsider the decision of the three-judge panel and an appeal can be made to the U.S. Supreme Court. However, it is unknown if these avenues will be considered. Moreover, a reversal by an en banc Ninth Circuit is rare and even less likely would be the U.S. Supreme Court electing to take such an appeal.

As a result, going forward, employers should take the following steps to limit liability on tip-pooling claims:

  • Only include employees who actually contribute to the chain of service and per industry custom regularly are subject to receiving tips. Such individuals typically include those who provide direct service to the customer.  
  • Rely on what the employee actually does in his/her job instead of on their job title. For example, an employee carrying the title of "waitress" whose only job is to prepare food outside the view of patrons or without personal contact with patrons will not be appropriately included in a tip pool. Also an employee who has greater contact with the customer should receive a greater percentage of the tip pool than employees who have less direct interaction with the patron.
  • Do not distribute any portion of a tip pool to any manager or supervisor, even if that manager or supervisor provides direct table service and/or the tip was left by the patron specifically for that individual.
  • Make sure that the tip pool is distributed to participating employees in a reasonable manner, proportionate with the employees' direct interaction with the customers.
  • Review your current tip-pooling arrangement and revise it as needed to comply with this new decision.

For more specific questions as to prevention and allowable tip-pooling policies, it is important to consult competent legal counsel who understands the hospitality industry and wage-and-hour issues and can analyze those issues relative to your specific circumstances and policies.

The content of this article is intended to provide a general guide to the subject matter. Specialist advice should be sought about your specific circumstances.

To print this article, all you need is to be registered on Mondaq.com.

Click to Login as an existing user or Register so you can print this article.

Authors
Similar Articles
Relevancy Powered by MondaqAI
Ogletree, Deakins, Nash, Smoak & Stewart
Fisher Phillips LLP
 
In association with
Related Topics
 
Similar Articles
Relevancy Powered by MondaqAI
Ogletree, Deakins, Nash, Smoak & Stewart
Fisher Phillips LLP
Related Articles
 
Related Video
Up-coming Events Search
Tools
Print
Font Size:
Translation
Channels
Mondaq on Twitter
 
Register for Access and our Free Biweekly Alert for
This service is completely free. Access 250,000 archived articles from 100+ countries and get a personalised email twice a week covering developments (and yes, our lawyers like to think you’ve read our Disclaimer).
 
Email Address
Company Name
Password
Confirm Password
Position
Mondaq Topics -- Select your Interests
 Accounting
 Anti-trust
 Commercial
 Compliance
 Consumer
 Criminal
 Employment
 Energy
 Environment
 Family
 Finance
 Government
 Healthcare
 Immigration
 Insolvency
 Insurance
 International
 IP
 Law Performance
 Law Practice
 Litigation
 Media & IT
 Privacy
 Real Estate
 Strategy
 Tax
 Technology
 Transport
 Wealth Mgt
Regions
Africa
Asia
Asia Pacific
Australasia
Canada
Caribbean
Europe
European Union
Latin America
Middle East
U.K.
United States
Worldwide Updates
Registration (you must scroll down to set your data preferences)

Mondaq Ltd requires you to register and provide information that personally identifies you, including your content preferences, for three primary purposes (full details of Mondaq’s use of your personal data can be found in our Privacy and Cookies Notice):

  • To allow you to personalize the Mondaq websites you are visiting to show content ("Content") relevant to your interests.
  • To enable features such as password reminder, news alerts, email a colleague, and linking from Mondaq (and its affiliate sites) to your website.
  • To produce demographic feedback for our content providers ("Contributors") who contribute Content for free for your use.

Mondaq hopes that our registered users will support us in maintaining our free to view business model by consenting to our use of your personal data as described below.

Mondaq has a "free to view" business model. Our services are paid for by Contributors in exchange for Mondaq providing them with access to information about who accesses their content. Once personal data is transferred to our Contributors they become a data controller of this personal data. They use it to measure the response that their articles are receiving, as a form of market research. They may also use it to provide Mondaq users with information about their products and services.

Details of each Contributor to which your personal data will be transferred is clearly stated within the Content that you access. For full details of how this Contributor will use your personal data, you should review the Contributor’s own Privacy Notice.

Please indicate your preference below:

Yes, I am happy to support Mondaq in maintaining its free to view business model by agreeing to allow Mondaq to share my personal data with Contributors whose Content I access
No, I do not want Mondaq to share my personal data with Contributors

Also please let us know whether you are happy to receive communications promoting products and services offered by Mondaq:

Yes, I am happy to received promotional communications from Mondaq
No, please do not send me promotional communications from Mondaq
Terms & Conditions

Mondaq.com (the Website) is owned and managed by Mondaq Ltd (Mondaq). Mondaq grants you a non-exclusive, revocable licence to access the Website and associated services, such as the Mondaq News Alerts (Services), subject to and in consideration of your compliance with the following terms and conditions of use (Terms). Your use of the Website and/or Services constitutes your agreement to the Terms. Mondaq may terminate your use of the Website and Services if you are in breach of these Terms or if Mondaq decides to terminate the licence granted hereunder for any reason whatsoever.

Use of www.mondaq.com

To Use Mondaq.com you must be: eighteen (18) years old or over; legally capable of entering into binding contracts; and not in any way prohibited by the applicable law to enter into these Terms in the jurisdiction which you are currently located.

You may use the Website as an unregistered user, however, you are required to register as a user if you wish to read the full text of the Content or to receive the Services.

You may not modify, publish, transmit, transfer or sell, reproduce, create derivative works from, distribute, perform, link, display, or in any way exploit any of the Content, in whole or in part, except as expressly permitted in these Terms or with the prior written consent of Mondaq. You may not use electronic or other means to extract details or information from the Content. Nor shall you extract information about users or Contributors in order to offer them any services or products.

In your use of the Website and/or Services you shall: comply with all applicable laws, regulations, directives and legislations which apply to your Use of the Website and/or Services in whatever country you are physically located including without limitation any and all consumer law, export control laws and regulations; provide to us true, correct and accurate information and promptly inform us in the event that any information that you have provided to us changes or becomes inaccurate; notify Mondaq immediately of any circumstances where you have reason to believe that any Intellectual Property Rights or any other rights of any third party may have been infringed; co-operate with reasonable security or other checks or requests for information made by Mondaq from time to time; and at all times be fully liable for the breach of any of these Terms by a third party using your login details to access the Website and/or Services

however, you shall not: do anything likely to impair, interfere with or damage or cause harm or distress to any persons, or the network; do anything that will infringe any Intellectual Property Rights or other rights of Mondaq or any third party; or use the Website, Services and/or Content otherwise than in accordance with these Terms; use any trade marks or service marks of Mondaq or the Contributors, or do anything which may be seen to take unfair advantage of the reputation and goodwill of Mondaq or the Contributors, or the Website, Services and/or Content.

Mondaq reserves the right, in its sole discretion, to take any action that it deems necessary and appropriate in the event it considers that there is a breach or threatened breach of the Terms.

Mondaq’s Rights and Obligations

Unless otherwise expressly set out to the contrary, nothing in these Terms shall serve to transfer from Mondaq to you, any Intellectual Property Rights owned by and/or licensed to Mondaq and all rights, title and interest in and to such Intellectual Property Rights will remain exclusively with Mondaq and/or its licensors.

Mondaq shall use its reasonable endeavours to make the Website and Services available to you at all times, but we cannot guarantee an uninterrupted and fault free service.

Mondaq reserves the right to make changes to the services and/or the Website or part thereof, from time to time, and we may add, remove, modify and/or vary any elements of features and functionalities of the Website or the services.

Mondaq also reserves the right from time to time to monitor your Use of the Website and/or services.

Disclaimer

The Content is general information only. It is not intended to constitute legal advice or seek to be the complete and comprehensive statement of the law, nor is it intended to address your specific requirements or provide advice on which reliance should be placed. Mondaq and/or its Contributors and other suppliers make no representations about the suitability of the information contained in the Content for any purpose. All Content provided "as is" without warranty of any kind. Mondaq and/or its Contributors and other suppliers hereby exclude and disclaim all representations, warranties or guarantees with regard to the Content, including all implied warranties and conditions of merchantability, fitness for a particular purpose, title and non-infringement. To the maximum extent permitted by law, Mondaq expressly excludes all representations, warranties, obligations, and liabilities arising out of or in connection with all Content. In no event shall Mondaq and/or its respective suppliers be liable for any special, indirect or consequential damages or any damages whatsoever resulting from loss of use, data or profits, whether in an action of contract, negligence or other tortious action, arising out of or in connection with the use of the Content or performance of Mondaq’s Services.

General

Mondaq may alter or amend these Terms by amending them on the Website. By continuing to Use the Services and/or the Website after such amendment, you will be deemed to have accepted any amendment to these Terms.

These Terms shall be governed by and construed in accordance with the laws of England and Wales and you irrevocably submit to the exclusive jurisdiction of the courts of England and Wales to settle any dispute which may arise out of or in connection with these Terms. If you live outside the United Kingdom, English law shall apply only to the extent that English law shall not deprive you of any legal protection accorded in accordance with the law of the place where you are habitually resident ("Local Law"). In the event English law deprives you of any legal protection which is accorded to you under Local Law, then these terms shall be governed by Local Law and any dispute or claim arising out of or in connection with these Terms shall be subject to the non-exclusive jurisdiction of the courts where you are habitually resident.

You may print and keep a copy of these Terms, which form the entire agreement between you and Mondaq and supersede any other communications or advertising in respect of the Service and/or the Website.

No delay in exercising or non-exercise by you and/or Mondaq of any of its rights under or in connection with these Terms shall operate as a waiver or release of each of your or Mondaq’s right. Rather, any such waiver or release must be specifically granted in writing signed by the party granting it.

If any part of these Terms is held unenforceable, that part shall be enforced to the maximum extent permissible so as to give effect to the intent of the parties, and the Terms shall continue in full force and effect.

Mondaq shall not incur any liability to you on account of any loss or damage resulting from any delay or failure to perform all or any part of these Terms if such delay or failure is caused, in whole or in part, by events, occurrences, or causes beyond the control of Mondaq. Such events, occurrences or causes will include, without limitation, acts of God, strikes, lockouts, server and network failure, riots, acts of war, earthquakes, fire and explosions.

By clicking Register you state you have read and agree to our Terms and Conditions