Document: 467 U.S. 822 104 S.Ct. 2769 81 L.Ed.2d 680 UNITED STATES, Petitioner,v.Allan Wayne MORTON. No. 83-916. Supreme Court of the United State Argued April 25, 1984. Decided June 19, Syllabus When respondent, an Air Force Colonel, was stationed in Alaska, Finance Office his base received by certified mail a writ garnishment, accompanied copy judgment against respondent that had been issued Alabama state court divorce proceeding. The directed to withhold $4,100 respondent's pay satisfy sums due under for alimony and child support. Upon being notified writ, told court's order void because no jurisdiction over him. Nevertheless, honored paid court, deducting amount from pay. Subsequently, brought action States Claims recover withheld Government submitted as complete defense 42 U.S.C. § 659(f), which provides, connection with 659(a) making federal employees, including members Armed Services, subject legal process enforce their support payment obligations, "[n]either States, any disbursing officer, nor governmental entity shall be liable respect made moneys or payable individual pursuant regular on its face," if such is accordance statute implementing regulations. held garnishment not "legal process" within meaning 659(f) definition term 662(e) requires it "court competent jurisdiction," did have personal therefore entitled claimed. Appeals affirmed, holding when obligor notifies issuing does him constitute face" 659(f). Held: cannot honoring one question here, "regular has subject-matter issue orders. Pp. 827-836. (a) words must read light immediately following phrase—"regular face." That phrase makes clear require jurisdiction. plain language escaped simply may provided some information casting doubt An inquiry into squared language, recipient act basis "face" process. 827-829. (b) legislative history shows Congress contemplate kind Appeals' would require. history, well 659(a), also indicates intended receive same treatment private employer orders, whereby, great majority jurisdictions employer, upon complying order, discharged liability debtor extent made. Moreover, burdening only frustrate fundamental purpose 659 remedying plight persons left destitute they speedy efficacious means ensuring paid. 829-834. (c) Controlling weight given regulations expressly provide receives which, face, appears conform laws issued, required ascertain whether authority obtained obligor. These possibly considered "clearly inconsistent" "arbitrary," further congressional intent facilitate enforcement orders minimize burden Government. 834-836. 708 F.2d (Fed.Cir.1983), reversed. Michael W. McConnell, Washington, D.C., petitioner, pro hac vice special leave Court. Kaletah N. Carroll, Fairfax, Va., respondent. Justice STEVENS delivered opinion 1 presented employees complied direction those contained without employee. 2 On December 27, 1976, Colonel Force, at Elmendorf Base Alaska. date Elmendorf's Circuit Tenth Judicial form used Alabama, "for support." promptly writ. advice attorney, Officer Clerk Subsequently additional writs were served similar results. 3 Respondent apparently never attempt contest itself beyond initial protest Office.1 Eventually, however, he effect collaterally attacked bringing this amounts remitted court. took position since provided: 4 "Neither section carry out section." 5 trial judge first noted courts. Thus, disagree Government's statute. He held, statutory jurisdiction."2 reasoned portion decree ordering make payments Since domiciled time proceedings, then authorizing service nonresidents could assert either own law Due Process Clause lacked sufficient contacts concluded based lack Accordingly, States. 6 Federal (1983). It him, Judge Nies dissented, reasoning enter notice officer affect jurisdiction." 7 Because creates substantial risk imposing significant liabilities result decision below created conflict Circuits,3 we granted petition certiorari, 465 1004, 994, 79 228 (1984). 8 * Ten years ago decided compensation should employees' obligations payments. Section 459(a) Social Services Amendments 1974, 88 Stat. 2357-2358, enacted result. As amended, currently provides: 9 "Notwithstanding other provision law, effective January 1, 1975, (the entitlement remuneration employment) from, by, District Columbia (including agency, subdivision, instrumentality thereof) individual, armed services, subject, like manner person, enforcement, payments." 659(a). 10 In 1977 amended specifying procedure giving affected directing normal disbursement cycle modified comply writs, promulgation appropriate regulations, defining terms "alimony," "child support," process." added subparagraph (f), case. See 91 157-162.4 II 11 We assume, Government, garnishment. Based assumption, defends arguing hence process."5 If look "competent jurisdiction" isolation, concede ambiguous. concept though usually refer jurisdiction,6 occasion defendant's person.7 do not, construe phrases isolation; statutes whole.8 12 Subject-matter defines hear type case, whereas protects interest implicated nonresident defendant haled distant inconvenient forum. Insurance Corp. Ireland v. Compagnie des Bauxites de Guinee, 456 694, 701-703, n. 10, 102 2099, 2104-2105, 72 492 (1982). strength particular case ascertained process; can determined evaluating specific aggregation facts, possible vagaries forum, determining relationship between defendant—in obligor—and controversy, reasonable expect defend filed forum State.9 requirement garnishee patently inconsistent obligor's person.10 13 Nor raises concerning holding. determination obligor, rather than, statute, "on garnishee; contains shedding Inquiry III 14 contain discussion precise does, show require, plainly identifies objectives compromised requiring inquiry. 15 colloquy floor House during consideration 1974 legislation, two principal sponsors more than face employee's salary: 16 "Mr. ST GERMAIN. Essentially, mother wife goes gets judgment, proceeds execution same, garnishment; correct? 17 ULLMAN. gentleman correct. 18 And there are conditions precedent? 19 decision. father failing live up her obligations. 20 Or alimony? 21 right, alimony." 120 Cong.Rec. 41810 (1974).11 22 Of course, impossible inquire nothing order. No intended.12 23 employers circumstances illuminating. orders.13 A construction impose applicable garnishees. long rule least Harris Balk, 198 215, 226-227, 25 625, 628-629, 49 L.Ed. 1023 (1905). For example, after all duty honor Code, enacted, see 77 555, 24 "Any employer-garnishee conformity discharge payment." D.C.Code 16-573(c) (1981). Alaska effect,14 jurisdictions.15 hold conclude adopt different standard employer. Such conclusion foreclosed history. 26 Finally, underlying significant. remedy paid.16 Burdening consequence resulting delay collection. "[b]ecause so often results loss rights, frequently will ultimate immediate collection what due; substitute right lifelong litigation certain subsistence." Griffin Griffin, 327 220, 239, 4, 66 556, 565, 90 635 (1946) (Rutledge, J., dissenting part). odds intent. IV 27 part amendment, authorized "regulations implementation provisions 659," 661(a). last sentence indicated these explicitly delegated regulation, give controlling unless arbitrary, capricious, contrary statute.17 simplify officer's task deciding deference, objective regulations.18 28 relevant squarely address days process, CFR 581.302(a) except specified situations, none involves employee.19 They state: 29 "If obligor." 581.305(f).20 30 definitively resolve before us.21 ambiguous,22 V 31 purposes, explicit itself, indicate 32 ordered. found attorney consulted assured ignore Apparently ever sought salary instant action. "The 'legal process' summons, nature which— "(1) (A) State, territory, possession . "(2) to, compel, entity, holds otherwise another party obligation 662(e). Calhoun 557 401 (CA4), cert. denied, 434 966, 98 509, 54 453 (1977). Although occurred prior passage parties agree applies This is, ground attacks raised sufficiency opportunity generally Lugar Edmondson Oil Co., 457 922, 2744, 73 482 (1982); North Georgia Finishing, Inc. Di-Chem, Inc., 419 601, 95 719, 751 (1975); Fuentes Shevin, 407 67, 92 1983, 556 (1972); Sniadach Family Corp., 395 337, 89 1820, 349 (1969); afforded adequate where enforced, Vanderbilt Vanderbilt, 354 416, 1360, 1456 (1957); May Anderson, 345 528, 840, 97 1221 (1953); Estin Estin, 334 541, 548-549, 68 1213, 1218-1219, 1561 (1948); (1946). far back Pennoyer Neff, 714, 565 (1878), drew distinction "competence" parties: "To proceedings validity, tribunal constitution—that creation—to pass suit; and, merely defendant, voluntary appearance." Id., U.S., 733. Restatement (Second) Judgments 11, Comment See, e.g., Stafford Briggs, 444 527, 535, 100 774, 780, 63 (1980); Philbrook Glodgett, 421 707, 713, 1893, 1898, 44 525 Chemehuevi Tribe Indians FPC, 420 395, 403, 1066, 1072, 43 279 Chemical Workers Pittsburgh Plate Glass 404 157, 185, 383, 400, 341 (1971). Keeton Hustler Magazine, 770, 775-776, 1473, 1478-1479, 790 (1984); World-Wide Volkswagen Woodson, 286, 292, 559, 564, 62 490 Shaffer Heitner, 433 186, 203-204, 2569, 2579-2580, 53 683 Comptroller General wrote case: valid examination procedural aspects involved, substantive issues. Whether conforms 'on face' just that. Facial validity need 'upon scrutiny trained mind,' facial judged facts outside writ's person executing know." re Mathews, 61 Comp.Gen. 229, 230-231 debates envisioned garnishments foreign judgments debtors statute: "[Mr. WHITE.] I conference report, paternity suit rendered Texas line file social security veterans' benefits, true? PETTIS. understand correct." 41813 (1974). amendment adding alter affairs, specifies liable. fact, clarify law. H.R.Conf.Rep. 95-263, p. 35 (1977), U.S.Code Cong. & Admin.News 1977, 185; 123 12909 (1977) (remarks Sens. Curtis Nunn). actually memorandum explaining agencies respond promptly: provides procedures followed 459. individual's accomplished registered mail, service, designated accept government entity. data permit prompt identification involved. inexpensive expedited enable agency efficient way." 12912. explanatory material taken Report virtually identical bill reported Senate Committee preceding session Congress. S.Rep. 94-1350, (1976). amendment's substantially earlier version, twice-stated goal speed efficiency seriously undermined rely instead relating accompanying stated: "It emphasized fact [6]59 necessarily mean person." 12914. (1976); 93-1356, pp. 53-54 (1974), 8133; 40338-40339 (1974) Sen. Montoya); id., Reps. Ullman Waggonner). Ala.Code §§ 6-6-453(a), 6-6-461 Stat.Ann. 09.40.040 Ariz.Rev.Stat.Ann. 12-1592 Ark.Stat.Ann. 31-146 (1962); Cal.Civ.Proc.Code Ann. 706.154(b) (West Supp.1984); Idaho Code 8-510 (1979); Ill.Rev.Stat., ch. 110, 12-812 (1983); Ind.Code 34-1-11-29 Iowa 642.18 Md.Cts. Jud.Proc.Code 11-601(a) Mass.Gen.Laws Ann., 246, 1959); Mich.Comp.Laws 600.4061(3) (1968); Minn.Stat. 571.54 Miss.Code 11-35-37 Mo.Rev.Stat. 525.070 (1978); N.H.Rev.Stat.Ann. 512:38 (1983-1984); N.J.Stat.Ann. 2A:17-53 N.Y.Civ.Prac.Law 5209 (McKinney 1978); N.D.Cent.Code 32-09.1-15 (Supp.1983); Ohio Rev.Code 2716.21(D) Okla.Stat., Tit. 12, 1233 (1961); Ore.Rev.Stat. 29.195 S.D.Codified Laws 21-18-32 Tenn.Code 29-7-117 Vt.Stat.Ann., 3081 (1973); Wash.Rev.Code 7.33.200 W.Va.Code 38-7-25 (1966); Wis.Stat. 812.16(2) (1981-1982); Wyo.Stat. 1-15-302 Senator Montoya said: modification proposed committee money citizen, men women, garnished "What really civil servants military personnel forced full responsibility care families—especially dependent children—in way Americans can. tragic women who willingly desert children, leaving wives families struggle alone go our already overburdened welfare rolls. "However, member judiciary profession tell you, truth always try avoid debts. ..... President, proposal us prove children justice exists them, too, new. believe sure small change correct disgraceful situation. retirees protections American children." To effect, 43-44 (1974); 40323 Long); 41809 Rep. Ullman). H.R.Rep. 92-481, 17-18 Schweiker Gray Panthers, 34, 44, 101 2633, 2640, 69 460 (1981); Batterton Francis, 432 425-426, 2399, 2405-2406, 448 12912-12913 (1977); provide: because: issued; withholding funds deemed employment; "(3) obligation(s) and/or support; "(4) mandatory part; "(5) enjoining suspending operation entity; "(6) Where appealed suspended until ordered authority, resume However, suspension wherein appeal compliance while pending. Columbia, motion quash equivalent appeal." 581.305(a) 48 Fed.Reg. 811, 26279 argues 581.305(f) deference promulgated Personnel Management brought. But consequence. issuance problems arising administration addressed. Litigation brings latent ambiguities unanswered questions might apparent. assuming response suit, demonstrates administrative problem thought addressed regulation. OPM responded doing assigned it. Clayton Co. 562 972, 979-985 (CA5 1977), 436 944, 2845, 56 785 (1978). supra, 828.

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