{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:ca7-24-2313-2025-09-30","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:ca7-24-2313-2025-09-30)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-17","fingerprint":"ewai:us:e7344b","proof":"sha256:418763007deca3753eb9da0199a7c4391f38d1a536a510907ae85c4e2e9e3661","jurisdiction":"us","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"us:ca7-24-2313-2025-09-30","jurisdiction":"us","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures 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matter","paragraphs":["para_1","para_2","para_3","para_4","para_5","para_6","para_7","para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25","para_26","para_27","para_28","para_29","para_30","para_31","para_32","para_33","para_34","para_35","para_36","para_37","para_38","para_39","para_40","para_41","para_42","para_43","para_44","para_45","para_46","para_47","para_48","para_49","para_50","para_51","para_52","para_53","para_54","para_55","para_56","para_57","para_58","para_59","para_60","para_61","para_62","para_63","para_64","para_65","para_66","para_67","para_68","para_69","para_70","para_71","para_72","para_73","para_74","para_75","para_76","para_77","para_78","para_79","para_80","para_81","para_82","para_83","para_84","para_85","para_86","para_87","para_88","para_89","para_90","para_91","para_92","para_93","para_94","para_95","para_96","para_97","para_98","para_99","para_100","para_101","para_102","para_103","para_104","para_105","para_106","para_107","para_108","para_109","para_110","para_111","para_112","para_113","para_114","para_115","para_116","para_117","para_118","para_119","para_120","para_121","para_122","para_123","para_124","para_125","para_126","para_127","para_128","para_129","para_130","para_131","para_132","para_133","para_134","para_135","para_136","para_137","para_138","para_139","para_140","para_141","para_142","para_143","para_144","para_145","para_146","para_147","para_148","para_149","para_150","para_151","para_152","para_153","para_154","para_155","para_156","para_157","para_158","para_159","para_160","para_161","para_162","para_163","para_164","para_165","para_166","para_167","para_168","para_169","para_170","para_171","para_172","para_173","para_174","para_175","para_176","para_177","para_178","para_179","para_180","para_181","para_182","para_183","para_184","para_185","para_186","para_187","para_188","para_189","para_190","para_191","para_192","para_193","para_194","para_195","para_196","para_197","para_198","para_199","para_200","para_201","para_202","para_203","para_204","para_205","para_206","para_207","para_208","para_209","para_210","para_211","para_212","para_213","para_214","para_215","para_216","para_217","para_218","para_219","para_220","para_221","para_222","para_223","para_224","para_225","para_226","para_227","para_228","para_229","para_230","para_231","para_232","para_233","para_234","para_235","para_236","para_237","para_238","para_239","para_240","para_241","para_242","para_243","para_244","para_245","para_246","para_247","para_248","para_249","para_250","para_251","para_252","para_253","para_254","para_255","para_256","para_257","para_258","para_259","para_260","para_261","para_262","para_263","para_264","para_265","para_266","para_267","para_268","para_269","para_270","para_271","para_272","para_273","para_274","para_275","para_276","para_277","para_278","para_279","para_280","para_281","para_282","para_283","para_284","para_285","para_286","para_287","para_288","para_289","para_290","para_291","para_292","para_293","para_294","para_295","para_296","para_297","para_298","para_299","para_300","para_301","para_302","para_303","para_304","para_305","para_306","para_307","para_308","para_309","para_310","para_311","para_312","para_313","para_314","para_315","para_316","para_317","para_318","para_319","para_320","para_321","para_322","para_323","para_324","para_325","para_326","para_327","para_328","para_329","para_330","para_331","para_332","para_333","para_334","para_335","para_336","para_337","para_338","para_339","para_340","para_341","para_342","para_343","para_344","para_345","para_346","para_347","para_348","para_349","para_350","para_351","para_352","para_353","para_354","para_355","para_356","para_357","para_358","para_359","para_360","para_361","para_362","para_363","para_364","para_365","para_366","para_367","para_368","para_369","para_370"],"kind":"front_matter"}],"paragraphs":[{"text":"In the","paragraph_id":"para_1"},{"text":"United States Court of Appeals","paragraph_id":"para_2"},{"text":"For the Seventh Circuit","paragraph_id":"para_3"},{"text":"____________________","paragraph_id":"para_4"},{"text":"No. 24-2313","paragraph_id":"para_5"},{"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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