That would be the conventional wisdom. But, the 9th Circuit had the statutory text on its side.

The term ‘employer’ means a person engaged in an industry affecting commerce who has twenty or more employees . . . . The term also means (1) any agent of such a person, and (2) a State or political subdivision of a State . . . .In a unanimous opinion (minus Justice Kavanaugh, who was not yet on the Court when the case was argued), Justice Ginsburg focused on the text. In particular, the words, "also means." This suggests that the statute is creating additional categories aside from the 20-employee prelude. Thus, the Court held "state and local governments are “employer[s]” covered by the ADEA regardless of their size."
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