Document: 453 U.S. 210 101 S.Ct. 2728 69 L.Ed.2d 589 Richard John McCARTY, Appellant,v.Patricia Ann McCARTY. No. 80-5. Argued March 2, 1981. Decided June 26, Syllabus A regular commissioned officer of the United States Army who retires after 20 years service is entitled to retired pay. Retired pay terminates with officer's death, although he may designate a beneficiary receive any arrearages that remain unpaid at death. In addition there are statutory plans allow set aside portion his for survivors. Appellant, Regular Colonel, filed petition in California Superior Court dissolution marriage appellee. At time, had served approximately 18 required retirement Under law, each spouse, upon marriage, has an equal and absolute right half interest all community quasi-community property, but retains or her separate property. petition, appellant requested, inter alia, military benefits be confirmed him as The held, however, such were subject division accordingly ordered appellee specified retirement. Subsequently, began receiving pay; under decree, was 45% On review this award, Appeal affirmed, rejecting appellant's contention because federal scheme pre-empts state property Supremacy Clause precluded trial court from awarding Held: Federal law precludes dividing pursuant laws. Pp. 220-236. (a) There conflict between terms statutes asserted by system confers no entitlement member's does not embody even limited "community concept." Rather, language, structure, history make it clear continues personal retiree. 221-232. (b) Moreover, application principles threatens grave harm "clear substantial" interests. Thus, pay, reducing amounts Congress determined necessary member, potential frustrate congressional objective providing member. addition, interfere goals having serve inducement enlistment re-enlistment encouragement orderly promotion youthful military. 232-235. Reversed remanded. Mattaniah Eytan, San Francisco, Cal., appellant. Walter T. Winter, Justice BLACKMUN delivered opinion Court. 1 reserve 10 U.S.C. §§ 3911 3929. question presented case whether, nondisability 2 * Although disability pensions have been provided veterans Revolutionary War period present,1 until Between enacted first comprehensive legislation. See Preliminary Review Military Retirement Systems: Hearings before Compensation Subcommittee House Committee on Armed Services, 95th Cong., 1st 2d Sess., 5 (1977-1978) (Military Hearings) (statement Col. Leon S. Hirsh, Jr., USAF, Director Compensation, Office Assistant Secretary Defense Manpower, Reserve Affairs, Logistics); Income Employment, Select Aging, Women Programs: Current Issues Equity Adequacy, 96th 15 (Comm.Print 1979) (Women Retirement). Sections 21 Act Aug. 3, 1861, 12 Stat. 289, 290, Army, Navy, Marine Corps 40 could apply President 16 22 authorized involuntary "incapable performing duties office." 290. 3 impetus legislation need encourage force officers fit wartime duty.2 Retirement, 15. its inception,3 "as much personnel management tool income maintenance method," id., 16; designed only provide officers, also ensure "young vigorous" force, create pattern recruiting inducement. Hearings, 4-6, 13 Hirsh). 4 current three basic forms retirement: retirement; 4. For our present purposes, these relevant.4 Since services substantially same system, see 5, Army's taken typical.5 An service, least which active officer, request retire him. § 3911.6 requests "retired pay." This calculated basis number rank achieved. 3929 3991.7 serves less than noncontributory neither member nor Government makes periodic contributions fund during service; instead, funded annual appropriations. 5. contrast, since 1957, contribute Social Security System. Pub. L. 84-881, 70 870. 42 410 (l) (m). Upon satisfying age requirements, retiree, ex-spouse married retiree years, dependent children benefits. 402(a) (f) (1976 ed. Supp. IV). 6 pass heirs. 2771. schemes scheme, now known Serviceman's Family Protection Plan (RSFPP), established 1953. 8, 1953, 67 501, version 1431-1446 RSFPP, elect reduce order provide, annuity surviving spouse child. Participation RSFPP voluntary, participating prior revoke election "to reflect change marital dependency status family caused divorce, annulment, remarriage, acquisition child . ." 1431(c). Further, deductions automatically cease death divorce spouse. 1434(c). 7 Because self-financing, deduction substantial consequently, about 15% eligible retirees participated plan. H.R.Rep.No.92-481, pp. 4-5 (1971); S.Rep.No.92-1089, p. 11 (1972), Code Cong. Admin. News 1972, 3288. remedy situation, Survivor Benefit (SBP) 1972. 92-425, 86 706, codified, amended, 1447-1455 plan automatic unless chooses opt out. 1448(a). SBP entirely self-financing; contributes plan, thereby rendering participation expensive RSFPP. Participants given option continuing enrolling SBP. 711, amended 93-155, 804, 87 615. II 8 Appellant McCarty Patricia Portland, Ore., 23, while second year medical school University Oregon. During fourth school, commenced duty Army. graduation, assigned successive tours Pennsylvania, Hawaii, Washington, D. C., California, Texas. After completing Texas, Letterman Hospital Presidio Reservation where became Chief Cardiology. time suit instituted 1976, held Colonel 9 separated October 31, 1976. December year, City County Francisco requesting marriage. granting must divide "the parties." Cal.Civ.Code Ann. 4800(a) (West Supp.1981). Like seven other States, treats earned either property; deemed contribution enterprise, therefore share equally assets. Hisquierdo v. Hisquierdo, 439 572, 577-578, 99 802, 806-807, 59 (1979). "Quasi-community property" defined "all real wherever situated heretofore hereafter acquired [b]y domiciled elsewhere would if [California] acquisition." 4803 includes assets owned separately through gift. U.S., 578, S.Ct., 806. requested listed assets, including "[a]ll benefits," App. 2. response contended "subject disposition proceeding."8 Id., 8-9. November 1977, entered findings fact conclusions holding interlocutory judgment dissolving 39, 44. awarded custody couple's minor children; spousal support. found parties consisted two automobiles, cash, cash value life insurance policies, uncollected debt. 42. It allocated parties. 45. "military pension rights" Ibid. Accordingly, appellee, so long she lives, "that total monthly payment equals one-half (1/2) ratio separation [appellant] retirement." 43-44. 14 retained jurisdiction determination supervise distribution September 30, 1978, decree dissolution, sought Court's Appeal, First Appellate District, affirmed award. Juris. Statement 32. ruling, declined accept laws, Clause, U. Const., Art. VI, cl. pay.9 noted precise rejected re Fithian, Cal.3d 592, 111 Cal.Rptr. 369, 517 P.2d 449, cert. denied, 419 825, 95 41, 48 (1974).10 Furthermore, concluded result Fithian called into subsequent decision supra, payable Railroad 1974 divided law. Gorman Gorman, 90 Cal.App.3d 454, 153 479 (1979).11 Supreme denied hearing. 83. 17 We postponed jurisdiction. 449 917, 314, 66 145 (1980). properly falls within appellate jurisdiction,12 we proceed merits. III repeatedly recognized " '[t]he whole domestic relations husband wife belongs laws States.' 581, 808, quoting Burrus, 136 586, 593-594, 850, 852-853, 34 L.Ed. 500 (1890). "[s]tate family-property do 'major damage' 'clear substantial' interests will demand overridden." references Yazell, 382 341, 352, 500, 506, 404 (1966). Alessi Raybestos-Manhattan, Inc., 451 504, 522, 1895, 1905, 68 402 (1981). California's worked injury "critical terms" statute relied reaching conclusion included provisions establishing "a protected flat prohibition against attachment anticipation," 45 231m, concept terminated 231d. 582-585, 808-810. Appellee argues presently consideration, inapposite. But did hold particular considered justify finding pre-emption; rather, "[t]he pertinent questions whether conflicts express consequences sufficiently injure objectives program require nonrecognition." 583, 809. twofold inquiry turn. A. 19 concepts distinct ways. He contends, first, court's "awarded return previously rendered," Cal.3d, 604, P.2d, 457, ignores contrary. rests premise like typical pension, represents deferred compensation performed 596, 451. But, asserts, reduced, currently rendered, services; accordingly, treated extent community, earnings living "separate apart" 5118, 5119 1970 correctly notes differs some significant respects remains Tyler, 105 244, 26 985 (1882),13 Uniform Justice, 802(4). Hooper 164 Ct.Cl. 151, 326 F.2d 982, 377 977, 84 1882, 746 (1964). forfeit part engages certain activities.14 Finally, recall "at time." 96-513, 106, 94 2868. These factors led several courts, one, conclude reduced services. 245, stated "compensation continued rate, connection continued, only."15 Having said this, decide today prohibits State characterizing compensation, agree alternative argument regardless compensation.16 language straightforward:S "A chapter 584, 809, emphasized railroad worker 231d(c)(3); unlike Act, Indeed, explicitly stated: "Historically, apersonal himself lives." S.Rep.No.1480, 90th (1968) (emphasis added). Congress' use term "personal entitlement" context signifies ceases features governing demonstrate fashion. First, 2771.17 free someone beneficiary; further, expressly provides "[a] section bars recovery person amount paid." 2771(d). Wissner Wissner, 338 655, 398, 424 (1950), analogous scheme. National Service Life Insurance insured policy. 658, 399. award widow proceeds policy, though source premiums—the pay—was characterized reserved "entitled call army property," 657, n. 399, "spoken clarity directing belong named other." 400. context, "force clarity" 2771 claims itself, simply policy purchased One commentator noted: "If thus summarily deprive arrearage." Goldberg, Is Services Pay Really Community Property?, Cal.Bar J. 12, (1973). 23 Second, legislative entitlement." While children. both plans, all, children, 1434 IV) (RSFPP); 1450 (SBP). Here again, property.18 rely implicit alone, statutes19 their leave alone entitlement. rights accrue and, ultimately, survivors." (1971).20 inconsistent explicit expression intent 24 anomalous effect placing better position widower SBP.21 "Congress' concern welfare soldiers' widows sheds little light attitude toward treatment 600, Cal.Rptr., 374, 454. fails recognize deliberately chosen favor over ex-spouse. 1434(a) 1447(3) 1450(a) spouse's 1434(c), "[t]o safeguard participants' future when occurs (1968), U.S.Code & Admin.News 1968, 3294, 3307. indicates remained unchanged. SBP, referred "widow's equity bill," 118 Cong.Rec. 29811 (1972) Sen. Beall), left without support low out ex-spouses. (1972). 25 Third, finally, intended "actually reach beneficiary." cannot attached satisfy settlement incident marriage.22 enacting provision bill, H.R.10670, allowed up 50% comply former 1; 25. Report accompanying H.R.10670 Buchanan Alexander, How. 20, 857 (1845), Applegate Applegate, 39 F.Supp. 887 (ED Va.1941), Government's hands;23 thus, clause represented "drastic departure" one believed necessitated difficulty enforcing orders. 17-18. passed House, Senate bill. Thereafter, acceded Senate's view unfairly "single form enforcement orders imposed employees Government." 30151 (remarks Rep. Pike); S.Rep.No.921089, Instead, problem should "legislation might pays attachment." Ibid.; Pike). enacted. 1975, benefits, those members legal process enforce alimony obligations. Pub.L. 93-647, 101(a), 88 2357, 659. added new definitional (§ 462(c)) "alimony" 659(a) "does include transfer compliance settlement, equitable spouses spouses." 95-30, 501(d), 91 159, 662(c) ed., As "logical Congress, adopting 462(c), thought family's garnishment, deflected goals, claims, based need, so." 587, 811. 27 pointed distinction "undesirable." 590, 813. recently requires Civil paid court-approved agreement separation." 95-366, 1(a), 92 8345(j)(1) more extreme recent step, Foreign that, matter pro rata benefits.24 amendments court, establish concept. Significantly, similar affecting introduced none bills reported committee.25 striking contrast amendment systems, contrary, B 28 conclude, therefore, here. mere words sufficient"; "consequences [of right] 581-583, 808-809. inquiry, brief manifest 507. Constitution, power raise Armies," maintain Navy," Rules Regulation land naval Forces." U.S.Const., I, cls. 13, 14. generally Rostker 57, 59, 2646, 2649, 478. Pursuant grant authority, accomplish major goals: meet needs forces. objectives. 29 place, seeks "promises diminish benefit go [service member] alone." courts disrupt carefully balanced devised By diminishing available likely choose still further purchasing any, McCune Essig, 199 382, 78, 50 237 (1905), permitted patent husband, prevailed daughter inheritance law; daughter's "reverses gives paramount State." 389, 80. So here, asserts statute" giving member; indeed, (in noncommunity State) gone far heirs inherit Miller, Mont., 609 1185 (1980), pending sub nom. Miller 80-291. Clearly, competent this." 30 disruption clear. above, re-enlistment, career path, "youthful forces.26 conceding attracting retaining forces, impaired allowing manner applies civilians. Yet essential characteristics service: forces national operation; members, civilian employees, cf. place residence. instance, four District Columbia. obviously diminished recognizes involuntarily transferred divorce. Free Bland, 369 663, 82 1089, 180 (1962), override survivorship savings bond, "[o]ne inducements selected," 669, 1093, purchase bonds attractive; similarly, selected attractive, "interfere[s] directly legitimate exercise 31 interference encouraging direct. Here, "Congress fixed appropriate employee's old employee retire." 585, 810. reduction discourages positive incentive keep working divisible defense; goal lessening created system. IV 32 plight often serious one. Hearing H.R.2178, H.R.3677, H.R.6270 Sess. That mitigated ex-spouse's claim 812, garnish purposes Nonetheless, well decide, contexts, protection afforded decision, alone. very re-emphasized area accorded greater deference conduct control affairs. 64-65, 2651. reached follows fortiori here: weighed matter, "[i]t province strike balance different struck." 33 reversed, remanded proceedings opinion. ordered. 35 REHNQUIST, whom BRENNAN STEWART join, dissenting. 36 curious salient respects. purported reliance (1979), quote cite test pre-emption established. analysis, noting "lay guiding hand" questions, stating: 37 "On rare occasion come statute, 'positively direct enactment' pre-empted. Wetmore Markoe, 196 68, 77 [25 172, 175, 49 390] (1904)." 808. 38 reason omission seemingly critical sentence course quite clear: cannot, satisfaction, plausibly "positively enactment" pre-empted most can advance vague implications tangentially related enactments failure act. announced enough swept rug. aspect opinion, diverting analysis anything bar. example, analyzes great length actions concerning attachability awards, ante, 228-230. However interesting be, concerns rights, support, effort attach To take another learn 230-232. Whatever provisions, they "direct enactments" inescapable solid reaches—certainly sort Hisquierdo—and I dissent. Both matters peculiarly local governed (1890); 349, 353, 505, 507, Questions case, particularly authority displaced except clearest direction Congress. Only five previous cases examination clearly establishes precedent supporting admission exclusive club. 41 (1905). McCune's father, homesteader, died conditions obtain title land. claimed Washington father's Homestead enactment," 808; homesteader's succeed forth schedule succession specifically McCune. She succeeded fee father mother. McKenna: "It ingenuity uncertainty provisions. clear, turn shall beneficiaries. reverses state." 43 is, course, nothing remotely approaching situation ex-spouses appellee's schedule.1 44 next arise later. deceased serviceman's estranged premiums accrued married, decedent designated parents serviceman 'the beneficiaries [within class], times beneficiaries.' 400 (quoting 802(g) (1946 ed.)). interpreted spoken belonged 3929, sure, general permitting payment—it hardly evinces "deliberate purpose Congress" us, designation Wissner. 659, "[p]ayments 'shall exempt creditors, liable attachment, levy, seizure whatever, receipt beneficiary.' 816 wife's "flat conflict" statute. forceful unambiguous protecting parallel concerned. 46 important purporting actually contrary case. explored detail below, focuses concluding property: theory dispose ex-spouse—either annuity—the This, precisely adopt pursue proceeds, funds. comparable ruling arrearages, else them. open taken—the pay—could analytic jump takes today, parts it, it—arrearages annuity—cannot be.2 47 cases, Yiatchos Yiatchos, 376 306, 742, 724 (1964), involved Plaintiffs Savings Bonds, duly issued Treasury Regulations co-owners would, co-owner, sole owner" bonds. No worker's bears revisited. specific satisfied requirement requir[e] pre-empted." 808 77, 390 (1904)). Section 1974, carrying forward 1937, provided: "Notwithstanding State, territory, Columbia, supplemental assignable tax circumstances whatsoever, thereof anticipated." 231m. viewed playing role scheme," 583-584, 809-810. stressed "[n]otwithstanding State," 810, "pre-empts stands way." 51 With emphasis placed expected counterpart figure prominently today. closest analogue, 701(a), buried footnote provides: 52 "Under regulations prescribed Air Force, Force assign account, due payable." 53 stark. forbids assignment; 701(a) permits it. contains 582, 809; gleaned negative implication prohibiting voluntary assignments payable. Such limit cry requiring "legal whatsoever" "be wonder opinion.3 54 entitlement, "embod[ying] extent." 231d(c), benefit, 231d(c)(3). extending divorced so. permit expand beyond Act. terminable exists "this further" made 55 foregoing demonstrates today's logical extension precedent. not, mean necessarily wrong—there everything. convinces me unprecedented wrong. 56 contrasts received provision. states conclusion: "Thus, 'community concept.' Ante, 224. exact opposite employed Hisquierdo. seen, point conscious : 57 targeted embodied extent. purposefully abandoned theory, allocating choice deliberate." 584-585, 58 Now told suggested absence suggest pre-emption, made, addressed drawn line. Milhan, 765, 775-776, 166 533, 538, 613 817 Milhan 80-578. am wrong correct. inquire moving target appear. relies "several scheme" evidence serviceman. 2771, select arrearages. 240-241, establishes, most, be. tell mail last paycheck supports inference pre-empt general. 60 and/or Even treatment, follow. If then means law—to conflict. intentionally intrude annuity, Nothing shows why uses 61 resists recognition "anomalous" annuity. 227. Court, comparing apples oranges dies. widow's begins "deliberately ex-spouse" concerned, 228, relevance itself. contributed earning degree serviceman, according done "earn" remarried event, efforts show anomalous. 62 third advanced weakest all: otherwise, attachment. implication—not "positive requirement" indicated required. And seek anything, relevant. 63 stresses varying degrees Again, meets test. contain strong anti-attachment 8346; 1104, areas. 64 annuities leap narrow wholly pronouncements State's determine Rombauer, Marital Status Eligibility Statutory Benefits: Historical Survey, Wash L.Rev. 227, 228-229 (1977). 1201 et seq. Cong.Globe, 37th (1861) Grimes) ("some commanders regiments utterly incapacitated performance duty, ought terms, efficient men stead"); 159 Wilson) ("We colonels, lieutenant majors men, worn exposure perform duties; honorably retired, measure"). survey legislation, Dept. Defense, Background Papers, Third Quadrennial 183-202 (1976); 12-13. overview Investigations, Post Service, Dual Paid Uniformed Services' Personnel Civilian Positions, 18-20 1978). systems various codified follows: U.S.C., ch. 367, (Army); 571, 6321 (Navy Corps); 867, 8911 (Air Force). Officer Management 2835. 2875, 1251 IV), required, exceptions, 62; dealing service. affect issue enlisted U.S.C 3917. 3914, Amendments 1980, 96-343, 9(a)(1), 1128, 3914 (voluntary followed Reserve). 3991. formula: (basic grade member) x (21/2%) (the creditable service). (21/2% service) special allowances. upper 75% pay—the percentage attained completion (30 21/2%)—regardless served. 16. adjusted increase Consumer Price Index. 1401a. initiation suit, 3991 twice. Department Authorization 1981, 96-342, 813(c), 502(21), 2910. Neither bearing Internal Revenue 1954, taxable ordinary received. 61(a)(11); CFR 1.61-11 entered, begun yet completed "pension "vested." Brown, 838, 126 633, 544 561 (1976). account possibility termination employment destroy them vest. 848, 639, 567. Alternatively, jurisdiction, made. here apparently elected latter alternative. invoked estopped arguing Oregon domiciliary. 50-54. renewed us. "no interferes way administration 377, 457. unique 1974; itself bound follow "pending consideration Court." Cal.App.3d, 462, 483. reaffirmed 812 contends proper appeal constitutionality courts. Our record, leads us otherwise. "also respect thereto, 57. flatly argument, 57-59, hearing, 1, closely resembles Dahnke-Walker Milling Co. Bondurant, 257 282, 425 239 (1921), challenged being Commerce Clause. proper, "did immunity Constitution distinctly insisted transaction void, unenforceable, commerce 288-289, 107-108. appeal. Japan Line, Ltd. Los Angeles, 441 434, 440-441, 1813, 1817-1818, 336 Tyler increased "commissioned officers." reasoned: impossible declared army, wear uniform, whose names borne register, superior are, rules articles war, tried, jury, citizens court-martial, breach rules, finally dismissed disgrace, service." 246. (Emphasis original.) Kahn Anderson, 255 6-7, 224, 225, 65 469 (1921); Puglisi 215 86, 97, 564 403, (1977), 435 968, 98 1606, (1978). lose employment. 5531 citizenship, Comp.Gen. 566, 568-569 (1979); accepts foreign government, 9, 95-105, 509, 859 (granting permission engage approval concerned State); sells supplies agency agencies. 801 note. 87-849, 76 1126 (retired represent sale department holds status). court-martialed. cited text. Relying Ninth Circuit alteration method deprived Costello 587 424, 426 (CA9 1978), 442 929, 2858, 296 "retirement differ character service," F.2d, 427, calculation prospectively altered Larionoff, 431 864, 879, 97 2150, 2159, Abbott 200 384, 414 1024, 448, 315 (1973); Lemly 109 760, 763, 75 248, 249 (1948); Watson Watson, 866 (EDNC 1976). Some "property" meaning "cash surrender value; loan redemption [or] realizable death." Ellis Ellis, 191 Colo. 317, 319, 552 507 Fenney Fenney, 259 Ark. 858, 537 S.W.2d 367 See, e. g., 456; 80-291; Kruger Kruger, 73 N.J. 464, 375 A.2d 659 true compensation. W. Glasson, Pensions (1918). receives performs, obtained 7, supra. recalled additional scale, rate thereafter. 1402, 813(b)(2), 1102, 511(50), 2924. faces restrictions activities, risk recall. least, then, risks suggests tread caution area, lest Ct.Cl., 987 ("the salary solely recompense past services, assure availability preparedness contingencies"). Cf. 158 (remark (object gentlemen country faithfully forty voluntarily fit, (but subject, moment ask services,) ."). relevant part: "(a) accounts armed highest following list date death: "(1) Beneficiary writing "(2) Surviving "(3) Children descendants, representation. "(4) Father mother or, dead, survivor. "(5) Legal representative. "(6) Person domicile member." "permit soldier final H.R.Rep.No.833, 84th (1955). testamentary owed Government, treat (1950). combination "assignable execution, process." 1440 1450(i). ground "To title, retainer become force." 1431(b) "The applies— "(A) participate becomes elects day 1448(a)(2) maximum level person's notified decision." notice; irrevocable revoked observed acknowledged: "Because carries survivorship, characterization places ex-wife somewhat widow." reasons. nothing. offsetting compensate dies prematurely. 588-589, 811-812. whereas remarries 60, 1450(b), awards continue despite remarriage. Lastly, payments offsets, 1451, not. inconceivable results. Cal. Bar 89 man 701(c). "[u]nder Army," "due 701(a). limitation appear "anticipation" discussed Smith Commanding Officer, Accounting Finance Center, 555 234, 235 1977). injunction circumvented simple expedient 588, (1962). mistakenly view, doctrine nonattachability "restate[s] sovereign burdensome garnishment suits Rather resting grounds administratively burdensome, out: funds government appropriated objects, appropriations diverted defeated functions suspended." How., 20. 17. 814 96-465, 2113, otherwise order; survivor's widow. consent Reports commented radical nature H.R.Rep.No.96-992, pt. 70-71 (1980); S.Rep.No.96-913, 66-68 H.R.Conf.Rep.No.96-1432, 116 4419. floor debates Representative Schroeder "Whereas social security spouses, nonworking spouse." "thus far" failed enact extend "equitable spouses" systems. 28660. amendments, H.R.2817, spouse; bill electing along bills, H.R.6270, Whereas H.R.2817 Title bring conformity model, paralleled extensive hearings, committee. Legislation 97th H.R.3039, (1981), S.888, H.R.3040, (1981) (pro employee). Presidential Commission questioned accomplishes goals. President's 49-56 legally financial settlements courts; oppose honor divisions dissimilar depending stationed States. 55, 58, (1980) Deputy Tice). Of subordinated ex-spouse, issues decide. maintains "[s]o 'reverses statute' 233. respect, understand recognizing burden McCune, switch invoking correct answer across board, conflict, i. e., used infra, 245. error logic perhaps apparent compel untenable shies away explanation, 224-225, "[r]etired marriage," 228. sources rather common-law doctrine, explaining requir[ing] Thus accepting rule, evince to, anticipation Government.

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