Source: http://masscases.com/cases/sjc/365/365mass13.html
Timestamp: 2019-04-20 10:13:58+00:00

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LUCIO FIORENTINO vs. PROBATE COURT & another. CARMEN FERNANDEZ vs. GUILLERMO FERNANDEZ.
binding on us. United States ex rel. Lawrence v. Woods, 432 F. 2d 1072 (7th Cir. 1970), cert. den. sub nom. Lawrence v. Woods, 402 U.S. 983 (1971).
the Probate Court for Suffolk County. Confronted with the libellant's challenge to the constitutionality of the two-year residence requirement, the probate judge reported the case to the Appeals Court. [Note 6] The case is before us on direct appellate review. G. L. c. 211A, Section 12, inserted by St. 1972, c. 740, Section 1.
a marriage previously existing in the Commonwealth.
These statutory restrictions on the divorce powers of Massachusetts courts were presumably intended to prevent the bringing of migratory causes of action in Massachusetts courts and to ensure the validity (i.e., full faith and credit in other jurisdictions) of the decrees of Massachusetts courts against collateral attack by limiting proceedings in divorce actions to situations where the Commonwealth has some substantial connection with the dispute being adjudicated. In the typical case these interests are served by the court's refusing to proceed unless it has personal jurisdiction over both parties to a dispute (in personam jurisdiction) or it has jurisdiction over the thing, or res, that is the subject of a dispute (in rem jurisdiction). Jurisdiction over causes of action for divorce, however, is strictly neither in personam nor in rem. Williams v. North Carolina, 317 U.S. 287, 297 (1942). "Under our system of law, judicial power to grant a divorce -- jurisdiction, strictly speaking -- is founded on domicil." Williams v. North Carolina, 325 U.S. 226, 229 (1945). See Shaw v. Shaw, 98 Mass. 158 (1867). Thus, it is established that State courts may exercise divorce jurisdiction based solely on the domicil [Note 7] of the libellant even if the libellee neither appears nor is personally served and even though the parties never resided as husband and wife in the forum State. Williams v. North Carolina, 317 U.S. 287, 298-299 (1942). In such a case, however, it is essential that the libellant's claim to domiciliary status in the forum State be a legitimate one; otherwise, the court's power to dissolve the marriage is a mere chimera vulnerable to collateral attack in another jurisdiction. Williams v. North Carolina, 325 U.S. 226 (1945). Andrews v. Andrews, 188 U.S. 14 (1903). Cohen v. Cohen, 319 Mass. 31 (1946).
It may be because jurisdiction founded solely on the libellant's domicil was thought to be so fragile that the Legislature has imposed the two-year residence requirement of G. L. c. 208, Section 5. In effect, however, Section 5 creates an irrebuttable presumption that a divorce libellant is not a domiciliary of Massachusetts until he or she has resided in the Commonwealth for at least two years. Such a presumption surely serves to protect the divorce courts of Massachusetts from actions based on fraudulent claims of domicil by temporary residents. The present libellants insist, however, that it also operates to deprive domiciliaries such as themselves, [Note 8] namely, those who have resided here for less than two years, of their constitutional rights of due process and equal protection. [Note 9] We hold that the two-year residence requirement does work a deprivation of equal protection in these cases and, therefore, that it was unconstitutional to bar these libellants from prosecuting their divorce libels solely on the ground that they were not two-year residents of Massachusetts.
least one year and in the county of registration for three months. Because those durational residence requirements both penalized persons on the basis of recent travel and also denied a fundamental political right (voting), the court held that they could not stand absent a showing by the State that it had a compelling interest in imposing the requirement. Likewise, in the cases before us the two-year residence requirement penalizes persons merely because they have recently traveled interstate. [Note 10] In addition, the benefit withheld by the requirement (i.e., access to the divorce courts) is one that merits constitutional protection. See Boddie v. Connecticut, 401 U.S. 371 (1971). Therefore, as was said in the Dunn case, "[W]hether we look to the benefit withheld by the classification . . . or the basis for the classification . . . we conclude that the State must show a substantial and compelling reason for imposing durational residence requirements." 405 U.S. at 335 (1972).
also that the classification be precisely tailored to achieve its legitimate objective and that there be no alternative, less burdensome, means to achieve the State's goal. Dunn v. Blumstein, 405 U.S. at 343 (1972). Memorial Hosp. v. Maricopa County, 415 U.S. 250, 268 (1974). The issue, therefore, comes down to this: Is the durational residence requirement the least drastic means by which the jurisdiction of the Commonwealth's divorce courts may be protected from fraud? We hold that it is not.
our Probate and Superior Courts are incapable of making proper determinations of domicil in divorce cases is to argue that they are incapable of performing the functions of their offices, namely, finding the facts and applying the law. We see no reason to arrive at such a conclusion.
residence requirements. For example, the statutes in several situations require a determination whether the parties ever "lived together as husband and wife in this commonwealth." This court has consistently construed that provision as requiring a showing that the parties were domiciled here as husband and wife. Winans v. Winans, 205 Mass. 388, 393 (1910). Field v. Field, 236 Mass. 256 (1920). Thus, to determine whether jurisdiction is proper on the ground that the parties lived here as husband and wife, a judge must make a determination of domicil without reliance on a durational residence requirement. Likewise, in so far as the words "lived" in the final clause of Section 4 and "resident" in Section 5 are construed to require domicil rather than mere residence, [Note 15] to that extent the Legislature has declared that judges are capable of making case-by-case determinations of domicil. Such determinations become no more difficult just because domicil of the libellant is the sole connection between Massachusetts and the marriage, as in the cases before us.
unlikely that the nonresident could be located for notice purposes. [Note 16] Second, there is no substantial justification for the assertion that the Commonwealth's "interest" in a resident somehow increases in proportion to the length of residence. Absent some other valid basis for classification, the Commonwealth's obligation is to treat all residents alike, regardless of length of residence. Dunn v. Blumstein, 405 U.S. 330 (1972).
pregnancy). [Note 17] Because the statutory presumption now before us infringes on certain constitutionally protected interests of divorce libellants (see discussion below), and because that presumption is "neither `necessarily nor universally true,'" Cleveland Bd. of Educ. v. LaFleur, supra, at 646, it may be that the two-year residence requirement is unconstitutional under the Supreme Court's due process analysis of irrebuttable presumptions. Cleveland Bd. of Educ. v. LaFleur, supra.
G. L. c. 208, Sections 4 and 5, at the very least, is unconstitutional as violative of the Equal Protection Clause. A durational residence requirement is simply too imprecise a means for accomplishing the goal of restricting Massachusetts divorces to legitimate Massachusetts domiciliaries. [Note 18] In addition, there is available the more precise, less burdensome alternative of case-by-case judicial determination of domicil. Given the certainty that the present system bars legitimate domiciliaries access to our divorce courts, we hold that the harm thus caused outweighs any harm which might result from the speculative possibility of fraudulent claims to domicil. The libellants in the cases now before us should be permitted to prove the legitimacy of their assertions of Massachusetts domicil without having to wait out an arbitrary two-year period as required by the offending statute.
we would ordinarily agree with the majority that we should declare the rights of the parties. See Karchmar v. Worcester, 364 Mass. 124, 136 (1973). In this case, however, we are adjudicating a difficult and important Federal constitutional question on which other courts have divided and which the Supreme Court of the United States will doubtless soon resolve (see fn. 2 to the majority opinion). In such a situation we should not rush to make a constitutional decision which cannot finally resolve the question. See First Natl. Bank v. Attorney Gen. 362 Mass. 570, 596 (1972) (concurring opinion of Quirico, J.).
constitutionally permissible for the Legislature to determine that the durational residence requirement imposed on the libellants in these cases by G. L. c. 208, Sections 4 and 5, is necessary to protect State interests of the most compelling nature. Therefore we must respectfully dissent from the decision and opinion of the court.
415 U.S. 250, 258-259 (1974). But in our view this does not end the inquiry. The Supreme Court has clearly held that durational residence requirements need not be offensive to the Constitution in every case. Shapiro v. Thompson, 394 U.S. 618, 638, n. 21 (1969). Starns v. Malkerson, 401 U.S. 985 (1971), affg. without opinion 326 F. Supp. 234 (D. Miss. 1970). Vlandis v. Kline, 412 U.S. 441, 452-453, n. 9 (1973). Sturgis v. Washington, 414 U.S. 1057 (1973), affg. without opinion 368 F. Supp. 38 (W. D. Wash. 1973). Memorial Hosp. v. Maricopa County, 415 U.S. 250, 256 (1974). Although it is not clear in these cases whether or not the court found a significant "penalty" inherent in the restriction, Memorial Hosp. v. Maricopa County, supra at 257-259, the court has made it plain that even such a penalty may be permissible if necessary to promote a compelling State interest. See, e.g., id. at 258; Shapiro v. Thompson, supra, at 634; Dunn v. Blumstein, 405 U.S. 330, 341-343 (1972).
be sustained "unless the State can demonstrate that such laws are `necessary to promote a compelling governmental interest.'" Dunn v. Blumstein, supra, at 342. Taking the court at its word and finding such a necessity here, we would uphold the statute. See Shiffman v. Askew, 359 F. Supp. 1225, 1229 (M. D. Fla. 1973).
such as that provided by G. L. c. 208, Sections 4 and 5. These sections effectively reinforce the critical State objective of restricting the Massachusetts Probate Courts to divorce by bona fide domiciliaries. See Shiffman v. Askew, supra, at 1231-1232. By so doing, they manifest the Commonwealth's concern for comity by refusing to adjudicate matters which are more properly left to the law of other jurisdictions. They also make it more certain that Massachusetts decrees will be respected in other jurisdictions which could refuse them effect on the basis of improper domicil. Williams v. North Carolina, 325 U.S. 226, 239 (1945).
apparent that the extensive litany of factors bearing on domicil which the majority would have probate judges investigate is utterly inadequate to deter or discover the possible fraud of those who perceive so much at stake in a unique episode in their lives.
domiciliary intent. What the majority do not consider, however, is that the risk of such deceit is considerably reduced in the former cases. There is no doubt a greater reluctance to swear falsely to facts which are already false than to some uncertain future intent or state of mind. Moreover, in doubtful cases the fact of continuous residence for the required period may more easily be proved or disproved than the domiciliary intent evidenced only by sworn statements and easily acquired "objective" indicia. By requiring two years of residence in addition, the Legislature has adopted a test which most effectively secures the Commonwealth's interest in granting divorces only to bona fide domiciliaries. The statute does not, and cannot, operate with complete perfection, including all legitimate domiciliaries and excluding only those seeking migratory divorces. But no classification can sustain that burden, and this should not automatically disqualify it under the strict constitutional test applied. That test does "not have the precision of mathematical formulas" but "emphasize[s] a matter of degree." Dunn v. Blumstein, 405 U.S. 330, 342-343 (1972). It is for the Legislature to determine the least restrictive means which are reasonably adapted to the protection of the vital State interest involved.
change. [Note Dissent-3] Many States are currently undergoing a rexamination of their substantive divorce laws and a number have adopted the concept of "no-fault" divorce. See, e.g., Fla. Sts. Section 61.052 added by Laws 1971, c. 71-241, Section 7; Iowa Code (1966) Section 598.5, added by Acts of 1970, c. 1266, Section 6. The majority would have Massachusetts protect its compelling interest in assuring the proper domicil of parties in divorce actions by assuming that its substantive law of divorce cannot be liberalized. It is competent, however, for the Legislature to determine that the current mechanism of requiring continued residence in specified cases is far more appropriate and that it is compatible with any grounds for divorce the Legislature may hereafter formulate.
The present application of the statute also serves the distinct State interest in assuring justice to litigants. These cases suggest the hardship and possible injustice which may result from an exercise of divorce jurisdiction on the basis of domicil without other safeguards. In the Fiorentino case the libellee wife continues to reside in New York with the two children of the parties, and the husband has been ordered to pay $50 a week for their support. The record discloses no personal service on the wife, no actual notice to her, no appearance on her behalf in the present proceeding, and only notice "by certified mail return receipt requested"
in the prior separate support proceeding. In the Fernandez case the record shows that the libellee husband, a resident of Puerto Rico, was served by "publication and registered mail," and a return receipt indicates that he had actual notice. In neither case is there any showing that the libellee has the means to participate in judicial proceedings in Massachusetts.
appropriate for legislative rather than judicial determination. It cannot be said that a two-year period is excessive, much less that it is irrational or invidious. Compare Boddie v. Connecticut, 401 U.S. 371, 388-389 (1971) (concurring opinion of Brennan, J.).

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