Document: 369 U.S. 153 82 S.Ct. 807 7 L.Ed.2d 641 Harold Beck KESLER, Appellant,v.DEPARTMENT OF PUBLIC SAFETY, FINANCIAL RESPONSIBILITY DIVISION, STATE UTAH. No. 14. Argued Oct. 10, 1961. Decided March 26, 1962. Mr. E. J. Skeen, Salt Lake City, Utah, for appellant. Gordon A. Madsen, appellee. Justice FRANKFURTER delivered the opinion of Court. 1 This case presents rather rare claim conflict between an otherwise valid exercise a State's so-called police power and overriding authority Bankruptcy Act.1 The statute before us is Utah's Motor Vehicle Safety Responsibility Act2—a measure directed towards promoting safety in automobile traffic by administrative compensatory remedies calculated to restrain careless driving. Its purpose wholly unrelated purposes Act. 2 In June 1957, Utah court entered judgments damages against appellant, based on his allegedly negligent operation automobile. On appeal Supreme Court were affirmed. After had remained unpaid sixty days or more, judgment creditors requested clerk forward Department Public certified copies judgments, as provided Thereupon suspended appellant's registration operator's license. December 31, 1959, appellant was granted voluntary discharge bankruptcy, releasing him from debts. He then sought restoration license registration. denied. Act requires satisfaction due auto accidents condition reinstatement specifically provides that bankruptcy shall not relieve debtor this requirement. Appellant initiated ancillary proceeding, Local Loan Co. v. Hunt, 292 234, 239, 54 695, 696, 78 L.Ed. 1230, United States District seeking order requiring privileges declaration law invalid insofar it disrespected debt virtue § 17 Act, 11 U.S.C. 35, U.S.C.A. 35. A three-judge Court, 28 2281, upheld denied relief, 187 F.Supp. 277 (1960). brought here direct appeal, 1253, we noted probable jurisdiction, 364 940, 81 459, 5 372. 3 preliminary point jurisdiction though adverted either parties. Was proper convening court, must have been justify Court? present suit asks state officials be 'restrained enjoined' enforcing designated sections because they 'are unconstitutional void,' are with therefore necessarily violative Supremacy Clause Constitution States, Art. VI. It would seem compellingly clear falls within 2281 Title Code, which bars injunction 'upon ground unconstitutionality' 'unless application therefor heard determined district three judges.' so properly directly here, unless invalidation rests different constitutional basis than such any other clause Constitution, at least extent reading implied exception into procedure devised 2281. Neither language nor gave rise affords remotest reason carving out unfrivolous unconstitutionality comprehensive 4 Bearing mind requirement litigation judges, whom one circuit judge, involves serious drain upon federal judicial manpower, 'particularly regions where, despite modern facilities, distance still plays important part effective administration justice * *,' has led long series decisions, variety situations, generalize procedural device viewed 'as broad social policy construed great liberality, but enactment technical strict sense term applied such.' Phillips 312 246, 250—251, 61 480, 483, 85 800. already held invoked contingent question. International Ladies' Garment Workers Donnelly Co., 304 243, 251, 58 875, 879, 1316. consistent view dealing claims right way. regard healthy working system demands treated 'an term,' examine plaintiff's determine whether come single judge judges. If immediate controversy merely construction law, does become operative. Such ruling Ex parte Buder, 271 461, 46 557, 70 1036, where required. Bransford, 310 354, 60 947, 84 1249, Buder followed. required issue 'merely act Congress, constitutionality enactment.' U.S., 359, 950. Contrariwise, Query 316 486, 62 1122, 86 1616, complainant officers score its threatened application. 489, 1122. Accordingly, applied. Bransford clearly differentiated another Case Bowles, 327 92, 66 438, 90 552, 'the complaint did challenge State alleged enforcement violate Emergency Price Control Consequently required.' 97, 441. 6 Here, no question statutory construction, enactment, controversy. We confronted once ousts relevant measure, indirect episodic consequence may some bearing discharged wise resuscitates obligation. general principle elucidated Cardozo differentiating stages adjudication issues reached, Gully First National Bank, 299 109, 117—118, 57 96, 100, 70, serves guide disposition differently supra. sole, question, differing Case, presented even perhaps eventually leading problem highway concerned legislatures since early years century. like responded registration3 inspection4 vehicles prescribing certain necessary equipment;5 examination licensing operators excluding unqualified persons driving;6 providing regulations speed conditions;7 authorizing extraterritorial service process nonresident motorists involved State.8 And, every State, enacting financial-responsibility law. 8 Financial-responsibility laws intended discourage driving mitigate consequences outstanding accident posting security cover possible liability past accident, filing insurance proof ability respond future. By 1915 San Francisco ordinance bond all buses;9 number cities enacted similar provisions.10 1925 Massachusetts forbade motor vehicle without adequate evidence satisfy judgment. Mass. Laws 1925, c. 346. That same year Commissioners Uniform appointed committee consider uniform compulsory Handbook Conference (1932), p. 261. 9 Unwilling require equivalent users, six States—five them New England adopted next two design limited drivers. first these, Connecticut Acts 183, suspension those convicted infractions relating causing specified gravity, financial responsibility restoration. Vermont provision, 1927, 81. Maine's 210, Minnesota's, 412, 61(b), only violations.11 Rhode Island, 1040, originally after resulting violations; 1929, 1429, addition violating minors well. Hampshire, 54, potential request plaintiff case, if fault appeared inquiry. 10 1929 seven time following adverse damages. added her earlier provision suspending anyone there violation until made responsibility. Vt. 76. Connecticut, Maine, Wisconsin satisfied. Conn.Acts 297, 25;12 Me.Laws 209; Wis. however, occur days, '(u)pon prevailing party' lawsuit. Iowa's substantially similar, giving creditor control 'a transcript filed' initiate suspension. Iowa 118.13 California clerks transmit administrator notice fifteen days; debtor's thereupon both given. Cal.Stat.1929, 258, 4. York materially California's should these requirements also pending conviction violations. N.Y.Laws 695. Abandoning drive compulsory-insurance feasible, began work more act. As finally approved 1932, Automobile Liability Security combined features several statutes force. Proof maintained minimum four classes persons: (1) (2) wishing obtain renew privileges, who gravity during preceding year; (3) minors; (4) magnitude unsatisfied days. provisions regarding followed York: obligation, amount, future U.L.A. 125 (1938). 12 Hawaii, Pennsylvania, Washington;14 found little favor. Yet decades large majority form statute, 1943, typical most common enactment. Twelve Columbia basic law;15 and, respectively minor modifications, paralleled five more16 laws. convictions time. Restoration conditioned responsibility; judgment, forwarded initiative clerk. Six principally responsibility, debt, sufficient terminate suspension.17 addition, suspension.18 13 Indiana Maryland 1931, before, placed hands creditor's request. Ind.Acts 179, 2; Md.Laws 498. effect discharge. Maryland's respects Utah; Indiana's, reinstatement, replaced 1935 model. when registrar 'satisfied he require' unpaid. Mass.Acts 304.19 Delaware's respect. Del.Laws Hampshire's 1937 judgments; provide deposit N.H.Laws 1937, 161.20 Provisions accidents, need future, few years.21 14 York's source legislation, underwent gradual evolution 1936 legislature given maximum period years.22 further amended add novel provision. consented, given, defaulting might continue enjoy months, thereafter consent withdrawn.23 payment apply insured owners drivers.24 1939 report dependent creditor.25 Finally, 1941, Hampshire arising accidents.26 1941 provided, done before,27 installments, default payments. 15 background 1932 withdrawn study light States' extensive experience. (1943), 69. result entirely revised model act, indorsed Conference, now appears Chapter Code 1956.28 16 new reflects changes wrought 1941. insured. violations owing thirty insured, amounts required, restored. Installment payments, default, allowed. release; reported creditor; permitted shows longer revoked. material respect currently twenty-one including Columbia.29 Fifteen except creditor.30 Nine retain last foregoing absence substance force usually event accident.31 Vermont's reinstate differs particulars well.32 Maine make violations.33 compulsory.34 18 Twenty ago, variant legislation. whenever county initiative. reinstatement; elapsed, bankruptcy. certification attorney. stood 1936, appropriate promote Due Process Fourteenth Amendment. Because designed aid collection debts enforce irresponsible driving, frustrated drivers could avoid simple expedient bankruptcy,' found. expressly left unanswered amendments over initiation duration contrary Reitz Mealey, 314 33, 24, 21 (1941). 19 challenged pass exceptions. Not initiate, lift, restore under amendments; satisfied, permanent years. urges procedures demonstrates acting collecting agent furthering interest safety, perpetual renders pressure effective. Do differences difference, considerations underlay decision case? 20 Section 'A release bankrupt provable debts,' exceptions material. See 1(15), 1(15). relieves 'from legal pay provable,' Zavelo Reeves, 227 625, 629, 33 365, 367, 676 (1913); defense action recover debt. cannot deal debtor-creditor relationship circumvent aim lifting burden worthy affording start. limitations imposed raise questions Clause, VI Thus, free traces never incurred. moral obligation survives permit grant recovery promise subsequent discharge, supported consideraton. theory, declared, destroys remedy indebtedness,' 367.35 And Spalding ex rel. Backus, How. 21, 858 (1846), law,36 prevent fine contempt issued execution although turned creditor. impose whatever sanctions wish, assumpsit, But lesson teach forbid attach whatsoever discharged.37 leaves burdened Certainly inroad can exert recoup it, through leverage power. deemed vital well-being, interests, propelled Congress enact national There overlapping interests uncritically resolved exclusive money widely safeguarding life safety. 22 When Mealey 34 532 (N.D.N.Y.1940), Judge Learned Hand deciding validity creditor-control passing dealt realities situation demonstrated thin difference made. amendment, 'The original fact complete judgment; amendment enabling withdraw consent, months.' 23 relieved irksome duty. obliged find Instead set up automatic depending starting action. distinction is, apparent real section 1939, incentive likely advise *. (t)he chance acted being prodded very remote.' F.Supp., 535. 24 course aware practical pressures collect bankruptcy; argument pressed dissent. upheld. Why? 'police power' especially exerted protection limb, pervasive reserved powers respected collision way Article facts subjected creditor-debtor relation quit lead hold intruded domain subverted At heart matter complicated our federalism. 25 Are significant constitutionally decisive difference? decide, forty-five done, prospect paid regain substantial deterrent unsafe exempt public easy refuge bankruptcy.38 To request, Columbia, nothing explicit what happens world regardless language. Even creditor-request makes likely, see why party interested sanction motion. Nor do think excess their thirty-five attempted, authorize lift suspension, forty-three that, again forever extinguished. will each less interest. thought amending Columbia; believe identical conflicts either. 26 using devious agency organized creditors. Victims car diffused group shifting uncertain composition, remotely united Relief Mulcted Creditors. bankrupts such. Though particular wants rightfully restored amount served legislation essentially tangential. 27 apothecary's scales weighed. organon leads conclude too insubstantial, tenuous reality, reach solidity. Affirmed. 29 WHITTAKER took case. 30 STEWART, concurring part. 31 For reasons convincingly forth dissenting Chief Justice, I agree convened consequently us. dismiss appeal. Thompson Whittier, 365 465, 712, 704. holds merits Court's conclusion. 32 WARREN, dissenting. threshold should, my opinion, dispositive trial case.1 Although considered courts below raised parties duty take independent matters vacate remand decree improperly constituted court.2 test formulated lower ourselves, problems solve, prior decisions. convene always troublesome review cases involving illustrates difficulties applying principles Court.3 However, rule clear: attacked Federal convened.4 Equally inoperative presence declares pre-emptive dispose case.5 That, submit, precisely here. ours 552. regulating price state-owned land sold disposed State. attempted sell timber located sale enjoined exceeded limits Clause. contention stated cause speaking Black, stated: 35 '* *'6 36 So us, (Utah Financial Act) (Bankruptcy Act). Consequently, (was) adds additional distinction. reasoning conflict, hand, able go 'directly' (i.e., fall Clause), judges greater interpretation congressional Bowles determining scope statutes7 place else. would, fact, difficult conceive call initial inquiry conflict.8 instant exception, refutes establishes.9 among members stems meaning Act,10 evident holding Mealey,11 referred scheme. Indeed, considerable latitude numerous occasions.12 37 Moreover, tacit itself behind final analysis made.13 objection plainly unworkable. Application will, create confusion area jurisdiction. follow decisions,14 unworkable distinctions them, lack Court.15 decided substantive questions. 38 merits, myself agreement FRANKFURTER'S drivers' citizens essential well-being wide allowed formulation am reluctant say area. cannot, treatment portion gives discretion person whose revoked failure incurred previous accident.16 39 field legitimate achieve goals inherent Rather, task ascertain compatible expressed conflict.17 escape finding incompatibility, conflicting yield statute.18 demand determination pursuant power.19 40 according '(b)ecause bankruptcy' *.' decides deliberately canvassed Reitz, namely, 41 view, upholding authorization.20 accident; requisite paid.21 advances laws; governments hence exists. relinquishes paid, authorizes creditor, withholding served. keep financially off highways, ostensibly power, powerful debt.22 emphasis shifted change crucial. private individual, own interest, highways. departing thus substituting individual creditors, brings debtors obligations. circumstances declare Constitution. 42 mean strike entire statute; incorporates separability clause23 interpreted Utah. How foretold, province undertake so. events, All assume responsibilities entrusted use highways delegate 43 stated, 44 BLACK, DOUGLAS concurs, 45 dissent may, 'discharge debts,'1 tort section.2 Despite upholds rendering (arising accident) debtor' avoiding cancellation license.3 deny immunity supreme Law Land.' true plain inevitable scheme weapon released particularly bankrupt's livelihood depends retaining driver's license, choice arrangements loss course, means forego benefits passed automobile-accident advantage suffering prove claim, share distribution estate still, time, rest claim. takes away conferred special class justified reference 'complicated federalism.' plenty ways protect reckless running roughshod immunities granted, chosen give citizens. ways, settle decided—that chooses instead uphold Mealey,4 wrong much narrower sustained grounds kind acquiesce settled ordinarily disturbed.5 justification, expanding far encroachment proceedings.6 47 highly American life. Without bestows helplessly insolvent start life, many individuals themselves permanently crushed weight obligations hope remove country might, therefore, deprived value endeavors useful simply lost constructive work. free—subject veto power—to impair historic Nation embodied respectfully times insolvency laws, affect E.g., Pobreslo Joseph M. Boyd 287 518, 53 262, 77 469 (1933); Shoe Pinkus, 278 261, 49 108, 73 318 (1929). Williston, Effect Upon Laws, Harv.L.Rev. 547 (1909). (1846) (contempt defying later discharged); re Hicks, 133 F. 739 (N.D.N.Y.1905) (fireman nonpayment debt); Finance Corp. Lynchburg Londeree, 200 Va. 607, 106 S.E.2d 760 (1959) (financial statement borrower lender inadmissible proceeding). relatively asserted health, peace, (1941); Locker, 642 (S.D.N.Y.1939); Munz Harnett, 158 (S.D.N.Y.1933); Perkins, 697 (N.D.N.Y.1933); Doyle Kahl, 242 153, N.W.2d 52 (1951); Ellis Rudy, 171 Md. 280, 189 281 (1937); De Vries Secretary 329 Mich. 68, 872 (1950); Smith Hayes, N.E.2d 443 (Ohio Com.Pl.1955). 1951, 71, amended, Uath Ann., 1953, Tit. 41, 12. 1, 3. Id., 41—6—158. 6, 16. 2. Arts. 1—15. 41—12—8. Sustained Cardinal, 170 Cal. 519, 150 P. 348, L.R.A.1915F, 850 (1915). N.J.Laws 1916, 136; 1922, 612. Packard Banton, 264 140, 257, 68 596 (1924); Willis City Fort Smith, 121 Ark. 606, 611, 182 S.W. 275 (1916); Opinion Justices, N.H. 566, 568, 129 117, 118—119, A.L.R. 1023 (1925), cited; Annot., 230 (1923). North Dakota (Laws 163) repealed 82, 294a, reenacted. 295a. South 1933, 144) Hawaii 166; Pa.Laws 110; Wash.Laws 158. Alabama 1947, 276); (49 Stat. 167 (1935)); Idaho 117); Illinois 1938 (1st sp. sess.), 51); (Acts 1935, 113); Kentucky 70); Michigan 203); Missouri 1945, 1207); Montana 129); Nebraska 108); 167); Oregon 434); 68); West Virginia 61). ultimate seems bill sponsored Association 1928. Casualty & Surety Executives, Comments 'Report Committee Study Compensation Accidents University Council Research Social Sciences' pp. 14—15. Arizona 45) years, Kansas 86) three. 272) alone sufficient. Jersey 116, 169) Mexico 201) ordained 'on report' pay. Georgia 332), Carolina 116), apparently Colorado 163. title reads 'and,' text 'or'), both; Minnesota 351), Ohio 218), 206) more. Wisconsin, terminated automatically year. 1943 (p. 658) extended Alabama, Arizona, (Stat. 840), Colorado, Idaho, Illinois, Indiana, Kansas, Kentucky, Michigan, Missouri, Montana, 296), Mexico, York, Oregon, Virginia. property respond, 255), 248), 872), comparable provisions. pertaining judgments. 124); Florida 23626); 1078); 175); 456); 285); Nevada 1949, 127); Tennessee 75); 375). 293. 448. 463. 618. 872. (Stat.1935, 591; id., 159), (1935), Maryland, Nebraska, Jersey, (1939), Ohio, Traffic Ordinances, (1956), §§ 7—101 7—505; (1946), 131. 704, Ala.Code, 1940, recompiled 1958, 36, 74(42)—74(83). (Laws, 72) years); Arkansas 347, Ark.Stat., 1947 (1957 replacement), 75, 14); (68 120 (1954), 72 957 (1958), D.C.Code, 1961, 40, 4); 57—147, Fla.Stat., 324, F.S.A. No specific bankruptcy); 1956, 362, Ga.Code 92A—6. consent. From 1951 386) Georgia's violations.); 393, Rev.Laws, 1955, 160, III); Kan.Gen.Stat., 1949 (Supp.1959), 8, 7); Louisiana 1952, 52, LSA—Rev.Stat., 1950 (1960 Pocket Part), 32, 5); 498, Md.Ann.Code. 1/2, 116—149. payment.); Mississippi Miss.Code 1942, 30, 8285—01 8285—41); 204, Mont.Rev.Code, (1954 53, 384, Nev.Rev.Stat., 485); 182, N.M.Stat., 1953 64, 24); 1300, N.C.Gen.Stat., 1959 Supp., 20, 9A. 1006, Carolina's mandatory, cases, unlicensed operators); 563, Page's Rev.Code 1954 1961 4509); Oklahoma Okla.Stat., 47, 429, Ore.Rev.Stat., (1961 replacement part), 486. well years.); Island 3002, R.I.Gen.Laws, 32); 212, S.D.Code, (Supp.1960), 44.03A. licenses given.); Texas Vernon's Tex.Civ.Stat.Ann., 1960, 6701h.); 41—12—1 41—12—41. recently convictions, 95.); 130, W.Va. 17D). Alaska 163, Comp.Laws 50, 8. Both cases.); 122, Ariz.Rev.Stat.Ann., 28, Delaware Del.Code 29); 256, 49, 15); 172, 321A, I.C.A.); 1946, 118, Ky.Rev.Stat., 187); 285, Minn.Stat., 170); 569, Ann.Mo.Stat., 1952 303); 178, Neb.Rev.Stat., reissue), 60, N.D. Century 39—16); Pennsylvania 433, superseded XIV, Purdon's Pa.Stat.Ann., XIV); 723, S.C.Code, 46, 3.1); 1944, suspensions authorized reasonable ground' institutions insanity, drug addiction, etc. These dropped revision 541, Va.Code, (1958 46.1, 6); 260, 302, Wis.Stat.Ann., 344); Wyoming Wyo.Stat., Tit 6). (Cal.Vehicle Div. 7. convictions.); (Colo.Rev.Stat., 13, Conn.Gen.Stat., 14, Privileges entry satisfied; violations, deposited. notification creditor.); (Smith-Hurd's Ill.Ann.Stat., 95—1/2, (Burns' Ind.Ann.Stat., 10. security.); (Mich.Stat.Ann., 9.2201 9.2232, Supp.1956, 257.501 257.532. accidents.); (N.J.Stat.Ann., 39, 277, Tenn.Code 1955 (Supp.1961), 59, Tennessee's accidents; 206, overdue bankruptcy.); Washington (Wash.Rev.Code, 46.24). Vt.Stat.Ann., 23, 801—809. accidents. caused violation, reporting (Me.Rev.Stat., Supp.1959, 22, 75—82. Suspension 'any ground'; (N.H.Rev.Stat.Ann., 268. accidents.). (Mass.Gen.Laws 90, 34A 34J. 22A.); (N.Y.Vehicle Law, 310—321. 1956 books, 330—368, maintain previsions 346.) Collier, (14th ed. 1956), 17.27; Remington, (6th 1955), 3225; cited. Aug. 19, 1841, 9, 4, 440, 444: certificate 'shall, justice, full debts, contracts, engagements bankrupt, proveable pleaded bar suits judicature destroy landlord's evict non-payment rent, Carter Sutton ,147 Ga. 496, 94 S.E. (1917). equitably charged debt's Evans Staalle, 88 Minn. 253, 92 N.W. 951 (1903). chargeable diminish heir's equitable accounting estate, Leach Armstrong, 236 Mo.App. 382, 156 S.W.2d 959 intimate correctness enormous increase nonbusiness recent 8,566 petitions filed; 97,750. Nonbusiness 74.7% total 1940 88.8% 1960. Hearings Subcommittee House Appropriations, Judiciary, 87th Cong., 1st Sess. 204. tendency reflected slackened Pursuant unconstitutionality. Gas Electric Packing 386, 372, 1318; Interstate 16, 565, 1088. Direct governed 2253, 1253. collected Hart Wechsler, Courts System, 843 et seq. Three-Judge 1931 1616; Stratton St. Louis Southwestern R. 282 51 75 35; Northern Pac. 280 142, 50 74 233. Lime Avocado Growers, Inc. Jacobsen, 362 73, 80 568 (by implication); 552; 1036; Lemke Farmers Grain Embden, N.D., 258 244, 458. unanimous holding. Bell Waterfront Commission, D.C., 279 F.2d 853; Penagaricano Allen Corp., Cir., 267 550; Cloverleaf Butter Patterson, 116 227, rev'd grounds, 315 148, 491, 754; Greyhound Lines, Inc., Board Utility Comm'rs, 107 521. sole interpretation. has, past, construe rigidly reluctance enlarge mandatory duties entails 250, note infra. devoted intent state-highway considers, must, ante, 169—171, S.Ct., 817—818. concludes 'overlapping interests' pieces resolution. 171, 818. 851, part, allowable 21. 676; (decided law); Parker 66, 163 379; Koronsky, 719; cf. Crawford Burke, 195 176, 147; Tinker Colwell, 193 473, 505, 48 754. increasingly becoming interpretation—a regulation reconciled See, e.g., Burnison, 339 87, 503, 675; Rice Santa Fe Elevator 331 218, 67 1146, 91 1447; Southern Pacific etc., 325 761, 65 1515, 89 1915. Cf. Union Auto Employment Relations Board, 336 245, 69 516, 93 651. answers put largely derived 18, 5, 'subject to' 41—12—15, referring 41—12—14(b), valid. federalism' fulfilling federal-state relations play U.S.Const., Sola Jefferson 317 173, 63 87 165; Hill Watson, 538, 1373, 1782. 230—231, 101—102, Napier Atlantic Coast Line 272 605, 610—611, 207, 71 432. Munn 113, 77. Sullivan, controls revocation completely distinguishable, permitting procedure. strictly 'procedural' Hand's pronouncement court's (D.C.N.D.N.Y.1940), dispositive. text, serve purpose; such, whole also, 7, 16371. solely benefit. saying preventing unable meet highways—as others not. delegated Hence, X damage accident. unquestionably equal allowing disallowing debtors, 'Debtor back, B not.' 41—12—40. Lewis Roberts, 467, 357, 739. 41—12—15 1953. Toolson Yankees, 346 356, 78, 98 64. James 366 213, 230—235, 1052, 1061—1063, 246 (separate part). Boxing Club, 348 236, 259, 99 290; Still Norfolk Western 368 103.

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