Document: 448 U.S. 261 100 S.Ct. 2647 65 L.Ed.2d 757 Halley I. THOMAS, Petitioner,v.WASHINGTON GAS LIGHT COMPANY et al. No. 79-116. Argued March 19, 1980. Decided June 27, Syllabus Petitioner, a resident of the District Columbia, received an award disability benefits from Virginia Industrial Commission under Workmen's Compensation Act for injuries in while employed by respondent employer (hereafter respondent), which was principally located where petitioner hired. Subsequently, supplemental Columbia over respondent's contention that since, as matter law, excluded any other recovery "at common law or otherwise" on account injury Virginia, Columbia's obligation to give full faith and credit precluded second, District. The administrative order upholding reversed Court Appeals, held Full Faith Credit Clause. Held : judgment is reversed, case remanded. Pp. 266-286; 286-290. 4 Cir., 598 F.2d 617, 1 Mr. Justice STEVENS, joined BRENNAN, STEWART, BLACKMUN, concluded Clause does not preclude successive workmen's compensation awards, since State has no legitimate interest within context federal system preventing another granting when second would have had power, here, apply its first instance. 266-286. 2 (a) rule Comm'n Wisconsin v. McCartin, 330 622, 67 886, 91 L.Ed. 1140, authorizing State, drafting construing statute "unmistakable language," directly represents unwarranted delegation States this Court's responsibility final arbitration questions. To vest power determining such extraterritorial effect itself risks very kind parochial entrenchment interests it purpose provisions Art. IV prevent. A re-examination McCartin § language" test reinforces conclusion provide acceptable basis distinguishMagnolia Petroleum Co. Hunt, 320 430, 64 208, 88 149, wherein employee, who one seeking supplementary he been 266-272. 3 (b) In view, however, history subsequent state cases showing they overwhelmingly followed applied permitting principal values underlying doctrine stare decisis be served attempting either revive Magnolia preserve coexistence McCartin. latter attempt could only breed uncertainty unpredictability, application necessarily depends determination tribunal given statutory language enacted legislature different State. And former represent change promote stability law. Moreover, so rarely followed, there little danger significant reliance rule. Hence, fresh examination issue appropriate. 272-277. (c) Since sought instance even if purported confer exclusive remedy, insurer, all practical purposes, measure their potential liability exposure more generous two schemes. It follows State's limiting businesses controlling importance. providing adequate injured worker fully allowance awards. 277-280. 5 (d) With respect whether Virginia's integrity tribunal's determinations precludes critical differences between court general jurisdiction agency with limited authority foreclose constitutional rules applicable judgments are Commission, although establish petitioner's rights neither nor determine his must make but need make. requested, authority, pass can objection adjudication those rights. While having pay amounts specified award, allowing conflict interest. less instance, vindication placing ceiling employers' inevitably impinge upon substantial welfare subsistence disabled workers—interests might consider, ignored Commission. 280-285. 6 WHITE, Chief BURGER POWELL, lacks supra, requires P. 289-290. 7 James F. Green, Washington, D. C., petitioner. 8 Alan Horowitz, supporting petitioner, pro hac vice, special leave Court. 9 Kevin Jeffrey Baldwin, Washington Gas Light Company. 10 STEVENS announced delivered opinion, BLACKMUN joined. 11 Petitioner Act. question presented award1 bars District's Act.2 12 hired Columbia. During year respondent, worked primarily also Maryland. He sustained back at work Arlington, Va., January 22, 1971. Two weeks later entered into "Industrial Memorandum Agreement Payment Compensation" $62 per week. Several approved agreement issued directing payments continue "during incapacity," subject various contingencies changes set forth statute. App. 49. 13 1974, notified Department Labor intention seek Respondent opposed claim primarily3 ground Virginia,4 14 Administrative Law Judge agreed res judicata extent Virginia.5 held, terms, did further Virginia.6 construed prohibition against additional merely covering "common remedies law."7 After taking medical evidence, awarded permanent total payable date previously paid award. Id., 31. 15 Benefits Review Board upheld BRBS 760 (1978). Its order, United Appeals Fourth Circuit, reported 617,8 squarely "second separate proceeding same after prior [is] Clause."9 We granted certiorari, 444 962, 447, 62 374, now reverse. 16 * contends without because Constitution or, precisely, implementing Clause.10 An analysis begin decisions 1940's almost point: 1140. 17 Magnolia, relied heavily both Louisiana Louisiana. employee during course employment Texas. tenuous majority11 permitted already obtained Texas Accident Board: 18 "Respondent free pursue remedy but, chosen Texas, judicata, clause him again grounds." U.S., 444, S.Ct., 216. 19 Little than three years later, severely curtailed impact Magnolia. resided Illinois contract performed Wisconsin. employment. initially filed Prior decision informed proceed Act, then made Thereafter, executed payment specific sum settlement employee's right expressly provided, " 'not affect applicant may Wisconsin.' 624, 888. Commission; courts vacated felt compulsion intervening 20 This holding dissent12 controlling. Although exclusively provision reserving distinguish Murphy's opinion provided significantly said: 21 "[T]he reservation spells out what we believe implicit [the Compensation] Act—namely, . type here involved laws state. setting case, fact decisive significance." 630, 890. 22 Earlier stated "[o]nly some unmistakable judiciary warrant our accepting construction" "is designed proceedings brought state." 627-628, 889. statute, contain required Wisconsin, broadly provided: 23 'No recover damages death employe engaged line duty employe, herein shall available covered act, .' 627, 24 Act's exclusive-remedy provision, see n. 4, exactly Illinois'; contains directed precluding Consequently, rather earlier decision, precedents. Nevertheless, find ourselves comparing statutes, highest resolve arising makes us pause inquire fundamental flaw question. II 25 cannot fail observe that, haste retreat Magnolia,13 fashioned clashes normally accepted principles. long "the should credit, validity, effect, every States, pronounced." Hampton McConnel, Wheat. 234, 235, 378 (Marshall, C. J.). See Mills Duryee, Cranch 481, 484, 411 (Story, rule, compelled itself, 18, infra, surely 28 U.S.C. 1738, provides "Acts, records judicial [of State] usage [the] taken." 1, supra.14 Thus, virtue obligations several judgment; do indirectly prescribing 26 focusing intent rendering fundamentally different. authorizes legislation authorization character inconsistent established Pacific Em- ployers Ins. Comm'n, 306 493, 502, 59 629, 633, 83 940: 27 "This how far compels qualification denial asserted state, forum, inescapably questions.15 incorporated framers transforming aggregation independent, sovereign nation." Sherrer Sherrer, 334 343, 355, 68 1087, 1092-93, 92 1429. own Nevada Hall, 440 410, 424-425, 99 1182, 1190-1191, 416.16 29 McCartin's tentative But reject test, decide overrule making take principles inform III 30 imposes severe burden litigant asks disavow For plays important role orderly adjudication;17 serves broader societal evenhanded, consistent, predictable legal rules. When created modified arguments force.18 31 therefore appropriate inquiry considering permits, forecloses, awards consistent settled practice. answer pellucidly clear. 32 noted slimmest majority, 11, effected dramatic prevailed throughout States. Black's dissent 457-459, 462, 222-223, 224.19 Of greater importance construction left narrowest area precedential value. exclusivity typical most laws. immediately recognized longer impact.20 seldom focuses enactments,21 occasion consider intended probability thereafter announce new extremely remote. As fact, awards.22 really remained largely theoretical difference described broad 33 indicates uneasy appears conclude entirely 34 Three affected valid limit companies transact business borders. Both jurisdictions employee—Virginia occurred party there. finally, formal contested issues respected sovereigns. 35 resolved Alaska Packers Assn. 294 532, 55 518, 79 1044, series cases. Packers, California, made, allowed despite Alaska, place occurred, said afford occurring 539, 520. statutes ought "by giving automatic clause, compelling each subordinate other, appraising governmental jurisdiction, turning scale according weight." 547, 524. 36 converse situation Employers 940. California's based Massachusetts, made. Massachusetts afforded worker's 'right action jurisdiction.' 498, 631. Again, California statute.23 37 principle require policies consistently recent Carroll Lanza, 349 408, 75 804, 1183; Crider Zurich Co., 380 39, 85 769, 641; 421-424, 1188-1190. Indeed, rejected limitation defendant's liability, defendant asserting, alternatively, immunity California. 38 thus perfectly clear supra; Employers, supra,24 resided, located, relation formed, Cardillo Liberty Mutual 469, 801, 1028; supra. underscore, scheme insurer schemes event. 39 manifest share conflict. 40 ultimate issue, therefore, forecloses obtain return resolution 41 majority took position called straightforward law: gave rise cause action; relief Board; Texas;25 elsewhere well. Chicago, R. & Schendel, 270 611, 46 420, 70 757, propositions stands footing judgment, bar 441, 446, 214, 217. 42 Schendel compel result 448, 218 (Douglas, J., dissenting); id., 457, 222 (Black, dissenting).26 Iowa grounded factual finding deceased railroad intrastate commerce, Federal Employers' Liability (FELA) Minnesota courts, interstate commerce. unexceptionable resolutions matters forum Durfee Duke, 375 106, 84 242, 186; 351-352, 1090-1091. FELA Iowa.27 43 contrast, concerns contrary determined proceedings. Unlike mutually remedies, facts. gives facts allows pursuant There inconsistency double recovery. 44 persuaded Magnolia's proposition stand unwarranted. sure, factfindings tribunals entitled findings court. 45 establishes plaintiff's limits liability. traditional enables benefit insofar decide. recognize perhaps paramount choosing particular power. questions Va.Code 65.1-92 (1980). Typically, law.28 make; parity reasoning, make.29 rights.30 true, course, preserving done. Clause, explained 501, 23, 632, "to acquired confirmed public acts" requiring validity. Allowing 47 noted, past strong enough prevent overlapping selects favorable situations tend serve workman constrained circumstances simply ill-advised choice forum. 48 reason extra weight employer's otherwise had. overriding caution asserting claim. often initiated informally, advice counsel, attention Often still hospitalized true case. indeed, always institutes 614, 421.31 informality forbidding recoveries careful part possible desirable immediate commencement essential. 49 reasons why policy defeat implementation entry 50 formulate grant perception interests. these overridden through unnecessarily aggressive Clause,32 implicitly time 51 hold Accordingly, Hunt overruled. 52 53 So ordered. 54 whom THE CHIEF JUSTICE POWELL join, concurring judgment. I agree am unable join reasoning plurality reaches result. argues strenuously today's boards, seems me rationale goes much further. If exercised appeal Supreme presume plurality's nevertheless permit Otherwise, employers interested cutting off possibility review preclusive tribunals. 56 unlike generally parties thereunder. Ante, 282. Yet obligated forum—provided, certainly constitutionally legislatures delimit scope purposes enacting choice-of-law binding criticizes theMcCartin vesting judgments, ante, 271; yet objection. event, convinced instructing merges include claims arise precisely operative 57 logic, seemingly many everyday tort actions. lays down forum-favoring common-law stating principle. Hence court, abstract determines forum's substantive think Suppose, example, wrongful-death enters defendant, sets allowed. seem plaintiff exceeding limit. 58 say board will collateral-estoppel 280-281. does, extent, circumscribe broadest implications remain cases, example discussed above, remaining determinations. dispositive actions frequently mixed obvious violation articulated four Members Actions satisfy relevant standard care considered "negligent" portend wide-ranging reassessment areas. Such undesirable results likely healthy least briefs advocated beneficial impact. 60 One bring end litigation. Riley New York Trust 315 348-349, 608, 86 885 (1942): 61 "Were controls matter, adversaries wage battles whenever met jurisdictions. Each control project beyond boundaries." odds finality. Plaintiffs dissatisfied incentive elsewhere, colorable argument grossly unfair plaintiff, initial advantage prove disappointing. Defendants, hand, assured conclusive obligations, face prospect burdensome multiple litigation impose added strain overworked system. 63 Perhaps major act nationally unifying force. 1092, 1429 (1948). substantially undercut function. up defense obliged balance involved. neutral balance. danger—not firmer judicata—that evaluating concluding suit. my mind, Stone's states sounder doctrine; justify treatment two. However, books widely interpreted outside area. rest questionable foundations, prepared it. precedents concur REHNQUIST, MARSHALL joins, dissenting. 66 clearly whole parts. admittedly precedents, 149 (1943), 1140 (1947), six analytically indefensible. 269-272 (plurality opinion); 291. concede "rest[s] foundations." 289 (opinion BURGER, smoke clears, suggests 285-286. Because correctly decided, fear proposed ill-considered ill-defined, dissent. Stone identified "whether, IV, personal ." 432, 210. answered affirmative,1 "was Id. substitution Louisiana, presents and, believe, demands answer. today properly notes, rough hands unanimous dwell inadequacies spotlights quite convincingly. observes, difficult, impossible, reconcile "normally principles." 270. completely "represents questions." 271. 69 suppose destroyed ratio decidendi, eminently defensible adopted instead raises banner "stare decisis" search support reached failing thing post hoc rationalization bit odd, theory ultimately odder. assumption years, awarding unless, resolves disputed fact. justification theory, apparently surfaced cluster articles written wake Magnolia,2 withstand close scrutiny. 71 identifies "state interests" stake present case: doing "integrity issues," shared employee. 277. undertakes concludes none outweighs concern 72 Whenever Court, attempts competing undervaluing overlooking concerns. incorporates errors. First, asserts operating borders never outweigh protecting residents. cites 1044 (1935), 940 (1939). degree involves enforceablejudgment adjudicatory Stone, authored distinguished reason, chastising lower distinction, local States." 436, 212. overlooked perfect sense, stronger fixed amount haled before adjudged liable 73 similar vein, ignores assert finality adjudications. "non-final" sense continuing supervision modification, cognizable persons avail themselves eschew alternative them. efforts expense applicant's behalf wasted obtains duplicative 74 At base, balancing incorrect recognizes events transpired differences. Commonwealth expended resources, behest "dispute" employer. That similarly behest, complying Virginia. These efforts, corresponding seeing wasted, lie heart divergent statutes. Compare Comm'n. few resources process. observation lends assistance plurality, flatly absolutely guarantee treated novel "court jurisdiction." 282-283. Specifically, points consideration According rights." 283. 285. 76 force somehow thrust will. choose Unless forcing residents accept regardless wishes, Commission's inability look district impinged jurisdiction's election, consummated jurisdiction. 77 suspect Brethren's insistence ratifying condemnation small workers coerced maneuvered filing amenable employers. is, evidence overreaching "fraud, imposition, [or] mistake" claim, permitted, timely motion, vacate Harris Diamond Construction 184 Va. 711, 720, S.E.2d 573, 577 (1946). regard, differently be. 78 are, exceptional indicated credit. See, e. g., Huntington Attrile, 146 657, 224, 1123 (1892) (penal judgments); Fall Eastin, 215 3, (1909) (judgment purporting convey property State). exceptions, "few between. Williams North Carolina, 317 287, 295, 207, 211, 87 279 (1942). Furthermore, appear precedent exception money rendered civil 438, 213. dispute authorized equivalent §§ 65.1-40, 65.1-100.1 zeal perceived imbalance bargaining badly distort tenet. "interest analysis," once removed knows metes bounds. Given modern proliferation quasi-judicial methods resolving disputes lead confusion.3 unacceptable, prefer originally whose analytical validity yet, unchallenged. 80 allot task "balancing" "public Acts, Records, Proceedings" were "Full Credit" denies affirm below. Constitution, 1: Proceedings Congress Laws prescribe Manner Records proved, Effect thereof." Title 1738 provides, part: "The Acts Territory, Possession copies thereof, authenticated affixing seal Territory thereto. "Such authenticated, Territories Possessions D.C.Code 501-502 (1968), adopts terms Longshoremen's Harbor Workers' (LHWCA), 901 seq. program administered Labor. contended barred limitations. ruled, failure file report tolled automatically 10% penalty. LHWCA forbade program. passed arguments, open remand. Code 65.1-40 (1980) provides: "Employee's exclude others.—The respectively accident representative, parents, dependents next kin, otherwise, injury, loss service death." "Accordingly, instant Claimant's Virginia; District." 42. liabilities parties. Rather, contemplated "In view foregoing, not, concept, law." 46-47. 48. "were extension They Ibid. 921(c), "in appeals circuit quoted Circuit's Pettus American Airlines, Inc., 587 630 (1978), cert. denied, 883, 172, 112. brief unpublished citing Pettus. 2a. places imposed Four Court—Justices Black, Douglas, Murphy, Rutledge—dissented, expressing supported accord proper States' compensating workmen. Jackson concurred bound 279, vigorously dissented. 311, 219. Carolina ex parte divorce decree bigamy prosecution resident. (It assumed bona fide domiciliary divorce, 302, 215.) "unable citizens previous matrimonial Nevada." author Williams, pointed out, dissents compared dual problem "questions status, i. e., marital capacity, involve conflicts irreconcilable," 218. Rutledge well received. Cheatham, Res Judicata Clause: Colum.L.Rev. 330, 344-346 (1944) (hereinafter Cheatham); Freund, Conflict Laws, Harv.L.Rev. 1210, 1227-1230 (1946) Freund); Wolkin, Award—Commonplace Anomaly Pattern?, U.Pa.L.Rev. 401, 405-411 Wolkin); Note, Ind.L.J. 214 (1948); Tulane L.Rev. 509 (1944); Recent Cases, Geo.Wash.L.Rev. 487 (1944). reads 1790. Stat. 122. 213; 215; 523, 1044; Reese Johnson. Scope Judgments, 153, 161-162 (1949) Johnson): national policy, policy. demand another, unified nation altering status 'independent, states.' another's interesting note dealing accorded effect.49 attitude taken judgments. "49Pacific Insurance 493 [59 940] (1939); 532 [55 1044] (1935); Tennessee Coal Iron R.R. George, 233 354 [34 587, 997] (1914); Atchison, T. S. Ry. Sowers, 213 [29 397, 695] (Some footnotes omitted.) Coal, cited authors' footnote, Georgia ignore Alabama creating sued upon, suit enforce "must competent elsewhere." 358, 588. Sowers like George Part infra. Cf. Unconstitutional Discrimination Choice Law, 272 (1977) (Privileges Immunities Clause). "[I]mitation past, until change, needs appetite. form inevitable vision things want." O. Holmes, Collected Legal Papers 290 (1920). rests grounds, "correction legislative practically impossible." Burnet Coronado Oil 285 393, 407-408, 443, 815 (Brandeis, dissenting). Mitchell W. Grant 416 600, 94 1895, 1909, 406 (POWELL, concurring). problems, delegates [to] prescribed States'] (Emphasis added.) Congress' exclusive, legislation. Bradford Electric Clapper, 286 145, 571, 1026, Hampshire Vermont bringing job-related formed Vermont, though Hampshire. Clapper predecessor included reference "Acts" sentence taken. 1948. 422, 812, 1183 (Frankfurter, rested alone. Carroll, intents buried whatever 639, 940; 412, 806; 24, cast doubt Clapper's itself. increase cut Freund 1229-1230. Professor Larson virtual unanimity, accordance law's standards applicability, understanding claimant complete deduct award." A. Larson, 85.10, pp. 16-15—16-16 (footnote omitted) Larson). Wolkin 403, 6. recognized, 5, 215, Institute's Restatement 403 (1934) result: "Award credited below, 21, Texas' otherwise. Virtually commentator agrees overruled Leflar, Conflicts 162, p. (3d ed. 1977); G. Stumberg, Principles 221 1963); 85.20, 15-16, 16-17; Johnson 159 ("The dissenters saw day triumph [T]he essentially identical case; similarly, manner distinguishable"). 993, 993-994 (1947) ("By applying nullified , foreshadow modification 'full credit' regard legislation"); Comment, Cornell L.Q. 310, (1947). Apparently Nevada's Rev.Stat. 616.525 (1979) "[I]f regularly receives accepts chapter, acceptance constitute waiver release existence 435, 211. desired situation. governed 454, 220 understood obliquely probative Legislature's regards worth noting certain 65.1-61 City Products Corp. Ariz.App. 286, 506 P.2d 1071 (1973) (prior award); Jordan 117 Ariz. 571 712 (App.1977) McGehee Hatchery Gunter, 234 Ark. 113, 350 S.W.2d 608 (1961) Mississippi Reynolds Electrical Engineering Inc. Bd., Cal.2d 429, Cal.Rptr. 248, 421 96 (1966) Track Builders America Lemaster, 429 (Ky.1968) Indiana Ryder America, 282 So.2d 771 (La.App.1973) Griffin Universal Underwriters 283 748 (La.1973) light McCartin), 904, 1607, 108; Lavoie's Case, Mass. 135 N.E.2d 750 (1956) Rhode Island award), 352 927, 162; Stanley Hinchliffe Kenner, 395 Mich. 645, 652-653, 238 N.W.2d 13, (1976) award) ("It limited, overruled, ."); Cook Minneapolis Bridge 231 Minn. 433, 792 (1950) Dakota Hubbard Midland Constructors, 269 425, 426, 131 209, (1964) South Harrison Norton, 244 Miss. 752, 327 (1962) Bowers N.J.Super. 48, 127 A.2d 580 (1956), aff'd, N.J. 390, 132 (1957) Pennsylvania Hudson Kingston Contracting 455, 156 491 (1959) Maryland Cramer Concrete Corp., 507, 189 (1963) Bekkedahl Bureau, 841 (N.D.1974) Montana Spietz 251 Wis. 168, award). Gasch Britton, U.S.App.D.C. 64, 202 356 (1953) (2-to-1 Fahy, dissenting) specifically Hudson, significantly, declaratory action, Wood Aetna Casualty Surety 260 Md. 651, 273 125 (1971)); Cofer 357, 359, 2, 538 1158, 1160, (1975) (refusing Arizona questioning case's interpretation repudiated Jordan, supra ; Griffin, ). reasoned: deny suffered "To conflicting denied pursuance employees withhold way medical, hospital nursing services remit secure provided. far. "While acts recognition states, nature union reserved attributes sovereignty, resort means substitute concerning legislate." 632. observed "Pacific 940, departed [Bradford v.] decision." 806. rigid appeared centered, flexible respective parallels movement Whether nn. 410. Hope worker] commerce; opposite point same." 616, 422. 86.40, 16-44; Cheatham 344. remedy. lump-sum extended adversary proceeding. 84.20, 16-9: "[A] highly developed that. stays moment restored normal earning capacity. supervising ongoing rehabilitation program, changing extending it, providing, repairing, replacing prosthetic devices, supplying vocational rehabilitation. Apart rehabilitation, optimum administration reopening condition reasons. potentially transitory fault. Central White, 243 188, 190, 247, 667. (Second) Judgments 61.2(c) (Tent.Draft 1978): "(1) following exists, [under extinguishes merger judgment] extinguish subsists defendant: "(c) rely limitations restrictions entertain theories forms single desires relief. isolated examples technically go confines 84.30, 16-13, notes "no decisional done [whose grants commission assertion States] refused use express asked saying 'the integral apart former.' Grenier Alta Crest Farms, 115 Vt. 324, 884, 888 follow unless actually passes 345, pointing knowledgeable about relative 450, 219 dissenting): "Confined told signed him. found trial judge printed 'in type' designation 'Industrial Board, Austin, Texas.' Yarborough Yarborough, 202, 227, 181, 191, (Stone, characterizes "tenuous" belief dictated (1942), 267, 11. read Jackson's concurrence casting logical underpinning Instead, seemed direct Black dissenting exchange, Dennis 339 173-175, 519, 524-525, 734 (Jackson, result), 175-181, 525, 527-530 341-346 1229-1230 (1946); Johnson, 176-177 (1949). Arbitration traditionally Pan Food Lester Lawrence Son, 147 F.Supp. 113 (N.D.Ill.1956); Plywood Lumber 489 (S.D.N.Y.1954); Port Realty Development Aim Consolidated Distribution, 90 Misc.2d N.Y.S.2d 905 (1977). incorporate features excepting requirement. 288-289

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