Opinion ID: 2508626
Heading Depth: 1
Heading Rank: 5

Heading: Application of the Eldridge Test

Text: This court applies a very high burden to facial constitutional challenges. [2] Statutes must be shown to be unconstitutional beyond a reasonable doubt. Citizens for Responsible Wildlife Mgmt. v. State, 149 Wash.2d 622, 631, 71 P.3d 644 (2003). Washington has adopted the rule that a facial challenge must be rejected if there are any circumstances where the statute can constitutionally be applied. Wash. State Republican Party v. Wash. State Pub. Disclosure Comm'n, 141 Wash.2d 245, 282 n. 14, 4 P.3d 808 (2000); Tunstall v. Bergeson, 141 Wash.2d 201, 221, 5 P.3d 691 (2000) (quoting In re Det. of Turay, 139 Wash.2d 379, 417 n. 27, 986 P.2d 790 (1999)). Thus, in order to hold that a statute is facially unconstitutional, this court must be convinced beyond reasonable doubt that there exists no set of circumstances under which the statute in question would be constitutional. Citizens, 149 Wash.2d at 631, 71 P.3d 644; Tunstall, 141 Wash.2d at 221, 5 P.3d 691. Assumptions or hypotheses about the potential unconstitutionality of a statute are not enough. When the State seeks to deprive a person of a property interest, due process requires that pursuant to RCW 46.20.289 an individual receive notice and an opportunity to be heard at a meaningful time and in a meaningful manner. Eldridge, 424 U.S. 319, 96 S.Ct. 893. The record in this case shows that drivers (including these drivers) receive notice of a pending suspension for failure to appear, pay, or comply on a citation in the form of a letter from DOL. The letter provides a 30-day grace period before the suspension takes effect. The letter also gives an address and phone number of the applicable municipal court so that the driver can contact the court with questions regarding the citation or the fine. [3] Finally, the letter provides the phone number for the DOL agent handling the case. Moore and Wilson argue that these avenues for error correction are insufficient, and they were also entitled to an opportunity for a DOL hearing on the issue of their failure to appear, pay, or comply, prior to any suspension. The Eldridge balancing test is applied to determine whether RCW 46.20.289 and.324(1) are facially unconstitutional because they do not provide for a DOL presuspension hearing. See Eldridge, 424 U.S. at 335, 96 S.Ct. 893; In re Det. of C.W., 147 Wash.2d 259, 277, 53 P.3d 979 (2002) (applying the Eldridge test). Under Eldridge, courts must balance three factors to determine the process due in a particular situation: (1) the private interest that will be affected by the governmental action, (2) the risk of erroneous deprivation and the probable value of requiring additional procedural safeguards, and (3) the government's interest, including the fiscal and administrative burdens that additional procedural safeguards would entail. 424 U.S. at 335, 96 S.Ct. 893. Private Interest: Under the first Eldridge factor, we consider the nature of the individual's interest at stake. Id. A driver's interest in continuing to hold a valid license is undoubtedly strong. In Mackey v. Montrym, 443 U.S. 1, 11-12, 99 S.Ct. 2612, 61 L.Ed.2d 321 (1979), the United States Supreme Court recognized that a driver's interest in the continued possession and use of his or her license is a substantial one. However, the length of the suspension is a factor to be considered in determining the strength of the interest. Id. at 11-12, 99 S.Ct. 2612. Under RCW 46.20.289, the length of the suspension is not fixed, but instead it ends either when the license holder adjudicates the case or pays the fine, or when a mistake is corrected, causing the court to issue a certificate to DOL indicating that the case has been resolved. Furthermore, the existence of a strong individual interest is not determinative; even where a strong interest exists, courts have been willing to hold that the other Eldridge factors outweigh the first, such that additional procedural safeguards are not necessary to satisfy due process. See, e.g., Mackey, 443 U.S. at 11-19, 99 S.Ct. 2612; Mentor v. Nelson, 31 Wash.App. 615, 619-20, 644 P.2d 685 (1982) (holding additional administrative hearing was not necessary before driver's license could be suspended where adequate safeguards were already in place). Risk of Erroneous Deprivation: The second Eldridge factor considers the risk of erroneous deprivation and the likely value of additional procedural safeguards. Eldridge, 424 U.S. at 335, 96 S.Ct. 893. Moore and Wilson do not claim that they were erroneously deprived of their licenses as the result of any court or DOL mistake; they do not challenge the factual basis for their suspensions. Majority at 5. Instead, they argue that errors occur routinely in court records, DOL records, and the transfer of information between the courts and DOL, which in turn lead to erroneous deprivation of driver's licenses. Other courts have considered the risk of error in license suspension cases. In Dixon v. Love, 431 U.S. 105, 97 S.Ct. 1723, 52 L.Ed.2d 172 (1977), the United States Supreme Court considered a statutory and regulatory scheme for license suspensions in Illinois that is similar to the system at hand. [4] Under the Illinois system, a driver's license had to be suspended if the licensee accumulated a certain number of points for traffic offenses within a particular time period. Id. at 109, 97 S.Ct. 1723. The Court found a low risk of error because the suspensions, which were mandatory for drivers with repeated traffic offense convictions, were largely automatic. Id. at 113, 97 S.Ct. 1723. Although the Court recognized that clerical errors might occur, it concluded that an administrative hearing was not the appropriate remedy because a written objection by the license holder would suffice to bring the mistake to the secretary of state's attention. Id. Similarly, in Stauffer v. Weedlun, 188 Neb. 105, 195 N.W.2d 218, appeal dismissed, 409 U.S. 972, 93 S.Ct. 307, 34 L.Ed.2d 236 (1972), the Nebraska Supreme Court reviewed a revocation procedure based on the accumulation of points for traffic violations. The court held that due process did not require notice and a hearing before the revocation because the essential facts had already been determined in the judicial proceedings for the traffic offense. Id. at 223. Thus, the court concluded: In a very real sense the Director acts only ministerially. The resultthe revocationflows from the operation of the statute upon the already judicially determined facts, that is, the series of convictions of traffic offenses. Id. Recognizing that some errors might occur, the court nonetheless concluded that the risk was not high because the system contained no latitude for discretion nor does it require any factual determinations in the judicial, quasi-judicial, or administrative law sense. Id. With regard to potential DOL error in this case, Moore and Wilson present no evidence that speaks to the risk of ministerial error by DOL in processing information sent by the court. Of course, there is always some risk of DOL error; but because suspension pursuant to RCW 46.20.289 is largely a ministerial act, courts have recognized that the risk of such error is small. Dixon, 431 U.S. at 113, 97 S.Ct. 1723; Stauffer, 195 N.W.2d at 223. If DOL errors were to occur, they could be corrected by contacting DOL. In fact, the United States Supreme Court has discounted the risk of deprivation because of clerical error where the administrative agency can be notified of the error in writing. Dixon, 431 U.S. at 113, 97 S.Ct. 1723. Moreover, Moore and Wilson give no examples of DOL error that have not been corrected within the 30-day grace period. Thus, the minimal risk of erroneous deprivation of a license because of DOL error simply does not support a conclusion that RCW 46.20.289 is unconstitutional beyond a reasonable doubt. With regard to court error, Moore and Wilson present anecdotal evidence regarding only two drivers, Barrionuevo and Seals, whose licenses were allegedly suspended because of court error. First, Mr. Barrionuevo's license was suspended for several months because of an error in the information sent from the court to DOL. Second, Mr. Seals' license was suspended because a driver had given Seals' name, instead of his own, upon a traffic stop. Mr. Seals' notification letter from DOL was issued on January 13, 2000, explaining that license suspension would take effect on February 12. He called the court on January 14 to explain that his brother had used his name when pulled over for speeding. Seals filed a letter requesting an identification hearing on January 21. The judge consulted with the deputy prosecuting attorney and then set the hearing for February 22. Because the arresting officer had scheduled a vacation, the hearing was continued until March 17. At the hearing, the officer testified that Mr. Seals was not the correct defendant, and DOL was notified by e-mail on March 20, 36 days after suspension took effect. Thus Seals' 36-day erroneous suspension was a result of an error on the face of the court's judgment. Neither the parties nor the majority explains how DOL could correct court error, a point I return to later in this opinion. Yet, even if we assume for the sake of argument that DOL could somehow ignore the court's judgment and stay suspension of a driver's license where DOL believed the court had made a mistake, the Barrionuevo and Seals cases leave us with very little evidence in the record that speaks to the true risk of erroneous deprivation based on court error. While these erroneous suspensions are regrettable, we have no way of knowing how widespread such errors really are, an analysis compelled by Eldridge. In addition, Moore and Wilson present no evidence as to how frequently municipal courts fail to rectify such errors before the 30-day grace period has elapsed. See IRLJ 6.7; CrRLJ 7.8(b)(1); CrRLJ 7.8(a). The United States Supreme Court has held that due process does not require that the State provide a perfect, error-free process, Mackey, 443 U.S. at 13, 99 S.Ct. 2612, so the mere existence of some error is not enough. See also Eldridge, 424 U.S. at 344, 96 S.Ct. 893 (due process requirements are determined by the overall risk of error in the proceeding at issue, not by the rare exceptions that occur). Given the exacting beyond a reasonable doubt standard for finding a statute facially unconstitutional, the anecdotal evidence here is particularly thin. Mere possibility of error is not enough. Mackey, 443 U.S. at 13, 99 S.Ct. 2612. Probable Value of Providing a DOL Hearing: In a case like Moore's or Wilson's, where the court has entered a valid judgment on the failure to appear, pay, or comply, and no clerical error has occurred, a DOL presuspension administrative hearing would provide no benefit at all. Further, when we consider the value of a DOL hearing in cases where suspension is pending as the result of a DOL error in processing information received from the courts, the type of error that could legitimately be resolved by a DOL administrative hearing, Moore and Wilson present no evidence to suggest that the opportunity for such a hearing would actually benefit drivers. Currently, if the driver receives notice of impending suspension because of DOL error, the licensee can contact DOL by calling the number provided in the notification letter, and presumably the error could easily be confirmed by comparison with the municipal court's judgment. Moore and Wilson have presented no examples of any failure to rectify DOL error before expiration of the 30-day grace period. See Dixon, 431 U.S. at 113, 97 S.Ct. 1723 (noting that a written objection by the license holder would suffice to bring mistake to the secretary's attention). Therefore, Moore and Wilson fail to show any added value in requiring DOL to conduct presuspension hearings. Given the high standard for finding a statute to be facially unconstitutional, how can we conclude that an opportunity for DOL hearing to correct its own error would truly benefit drivers, i.e., that such a process is due? Moore and Wilson rely on Warner v. Trombetta, 348 F.Supp. 1068 (M.D.Pa.1972), aff'd, 410 U.S. 919, 93 S.Ct. 1392, 35 L.Ed.2d 583 (1973), to support their argument that a full administrative hearing is required even if the suspension is mandatory and the only possible errors are ministerial. In Warner, the district court held that a mandatory suspension of a driver's license for one year upon conviction of leaving the scene of an accident violated due process if no administrative hearing was provided. Id. at 1071. But Warner is distinguishable from the case at bar as the statute involved in it provided for the immediate suspension of the license, thus providing the license holder with no opportunity to resolve his or her case prior to suspension. Id. at 1070 n. 2. In contrast, RCW 46.20.289 provides a 30-day grace period. In addition, the statute in Warner provided that the suspension would be for one year. Id. Under RCW 46.20.289, the length of the suspension is not fixed, ending when the license holder resolves the situation. Finally, Warner was decided before the United States Supreme Court adopted the balancing test set forth in Eldridge. Although Warner has not been overruled, it was decided without the benefit of the balancing test analysis that is now used in procedural due process cases. In the case of potential court error, the majority fails to explain how a DOL hearing would have aided drivers like Seals or Barrionuevo. Neither the majority nor the parties have explained how, in light of the separation of powers doctrine, DOL could have the power to overturn or even ignore a court judgment. See, e.g., Carrick v. Locke, 125 Wash.2d 129, 135, 882 P.2d 173 (1994) (one branch of government may not invade the prerogatives of another). Any assumption that DOL could somehow do more than correct its own error remains unsupported. In Seals' case, if there had been a DOL hearing and DOL had determined that Seals was not the one cited, it is unclear how DOL could have used this information to rectify the situation. Likewise, even if DOL had conducted a hearing, it still would have been powerless to change the nature of Barrionuevo's conviction without receiving verification from the court. DOL is not authorized to modify information received from a court of law. RCW 46.20.289 (allowing DOL to lift a suspension only after certification from the court). A DOL hearing would have been of no benefit to either Seals or Barrionuevo. In sum, the second Eldridge factor weighs against a finding of facial unconstitutionality. The risk of erroneous deprivation resulting from the alleged due process violation in this case, namely the denial of a presuspension DOL hearing, is, on this record, slight. In fact, Moore and Wilson present no statistical or anecdotal evidence of ministerial errors that could be remedied by a DOL hearing. Furthermore, the added protection that would result from an opportunity for a DOL hearing is equally slight given that such a hearing could remedy only DOL mistakes. The minimal risk of erroneous deprivation in the absence of a DOL hearing and the equally limited value that a DOL hearing would provide simply do not support a conclusion that we should hold RCW 46.20.289 unconstitutional beyond a reasonable doubt. Burden of Additional Procedure: The third Eldridge factor considers the government's interest, including the fiscal and administrative burden of providing additional procedural safeguards. 424 U.S. at 335, 96 S.Ct. 893. The State has an interest in the efficient and cost-effective administration of its driver's license system, including suspensions. The State also has an interest in ensuring that offending drivers appear in court, pay any applicable fines, and comply with the terms of court orders. In its amicus brief, DOL asserts that it will incur significant fiscal and administrative burdens if it is required to offer hearings to all drivers who receive suspension notices pursuant to RCW 46.20.289. For example, in 2001, DOL issued 391,265 notices of suspension pursuant to RCW 46.20.289. Being required to offer hearings would mean that DOL would have to notify all of these drivers of their right to a hearing. Of those who received suspension notices, DOL suspended 268,331 licenses in 2001. If as few as five percent of those suspended in 2001 requested hearings, DOL would be responsible for conducting over 13,000 hearings. However, Moore and Wilson present no evidence as to how many of those hearings would actually prevent the erroneous deprivation of a driver's license, especially given the limited power of DOL to alter court judgments. This court should find a statute facially unconstitutional only where it can do so beyond a reasonable doubt. Citizens, 149 Wash.2d at 631, 71 P.3d 644. At best, Moore and Wilson have shown that two driver's licenses have been erroneously suspended under the current system. Yet, due process does not require an error-free system. Furthermore, Moore and Wilson have presented no evidence of the extent of ministerial error that could be rectified by the hearing that they request. Although the burden on the State is not controlling, it must be weighed against the value of providing additional safeguards and the risk of erroneous deprivation as discussed above. Here, the burden of providing hearings to all license holders who request them outweighs the slight risk of error and the limited value of providing DOL hearings to correct potential ministerial errors, even considering the strong individual interest in an uninterrupted driver's license. The statutory scheme at issue here allows for a 30-day grace period in which drivers can resolve DOL ministerial errors through informal procedures. I would hold that such a scheme satisfies the requirements of due process. OWENS, FAIRHURST and IRELAND, JJ., concur.