Document: 349 U.S. 1 75 S.Ct. 553 99 L.Ed. 773 Elizabeth R. GRANVILLE-SMITH, Petitioner,v.Edward GRANVILLE-SMITH. No. 261. Argued Feb. 3 and 4, 1955. Decided April 11, Mr. Abe Fortas, Washington, D.C., for petitioner. Erwin N. Griswold, Cambridge, Mass., amicus curiae by invitation of the Court. No brief filed respondent. Justice FRANKFURTER delivered opinion This case concerns § 9(a) divorce law Virgin Islands: 2 'Notwithstanding provisions sections 8 9 hereof,1 if plaintiff is within district at time filing complaint has been continuously six weeks immediately prior thereto, this shall be prima facie evidence domicile, where defendant personally served or enters a general appearance in action, then Court have jurisdiction action parties thereto without further reference to domicile place marriage was solemnized cause arose.' The circumstances course litigation are briefly stated. Petitioner suit because 'irreconcilable incompatibility'2 District Islands on March 16, 1953. alleged that she had 'resident inhabitant' more than commencement respondent not resident Islands, couple no children under 21. Through counsel authorized power attorney executed New York—respondent entered an appearance, waived personal service, denied petitioner's allegations, 'Waiver Consent' 'hearing as default' 'such findings fact conclusions decree may seem just reasonable.' 4 Solely basis testimony resided 43 days before bringing suit, Commissioner who heard found inhabitant so action. Having also claimed ground substantiated, he recommended granted divorce. On motion confirm Commissioner's recommendation, inquired whether 'any offer question domicile.' Since proffered, court, relying its earlier Alton v. Alton, 121 F.Supp. 878, dismissed want over 5 Appeals Third Circuit, sitting en banc, affirmed, 214 F.2d 820, decision case, 207 667. In Appeals, likewise banc three judges dissenting, held violation 'due process' guaranteed Fifth Amendment Organic Act, 48 U.S.CA. 1405 et seq. certiorari 347 911, 74 478, 98 1068, but intervening mootness aborted disposition merits. 610, 736, 987. obvious importance issue which brought here led us grant case. 348 810, 60. view lack genuine adversary proceedings any stage litigation, outcome could far-reaching consequences domestic relations throughout United States, invited specially qualified 'to appear present oral argument support judgment below.' 885, 205. 6 We need consider substantive questions passed below we intimate nothing about them. For find Congress did give Legislative Assembly enact with radiations 9(a). 7 Article IV, Constitution gives authority 'make all needful Rules Regulations respecting Territory other Property belonging States * *.' Accordingly, from established governments various territories come federal control. Territorial government continental customarily viewed transition step statehood, statehood resulted. Spanish-American War opened new chapter. Beginning Treaty Paris, acquired conquest, treaty purchase outlying contemplated. position these our national scheme gave rise lively political controversy. Answers some constitutional issues arose were unfolded series decisions best formulated, perhaps, opinions Chief White3 Taft.4 A vital distinction made between 'incorporated' 'unincorporated' territories.5 first category potentialities like unto territories. Constitution, including Bill Rights, fully applied territory. See, e.g., Rassmussen 197 516, 25 514, 49 862. second described possessions thought future States. To only essentials, withal undefined, extended. Balzac People Porto Rico, 258 298, 42 343, 66 627. incidence differentiation fell two areas: (a) right individual trial jury similar protections, supra; (b) Federal Government tax territorial products nonuniform basis, Downes Bidwell, 182 244, 21 770, 45 1088. legislative expressed extending 'all rightful subjects legislation' inconsistent laws States.6 conventional phrasing altered 'local application,' 'not locally inapplicable,' unincorporated such pre-Commonwealth Puerto Guam.7 10 arisen grants powers fallen into main classes: (1) those sovereign immunity territory issue, Rico Rosaly y Castillo, 227 270, 33 352, 57 507; (2) conflict laws, Shell Co., 302 253, 58 167, 82 235; Montana Lee, Mont. 124; (3) 'rightful' nature particular legislation assailed, Chuoco Tiaco Forbes, 228 549, 585, 960; Daniels, Utah 288, 22 P. 159, L.R.A. 444. It third group immediate concern. determining rightfulness courts considered legislature transcended familiar bounds legislation. Christianson King County, 239 356, 36 114, 60 327. One regarding legislatures involved pass applicable generally specific individuals portions Maynard Hill, 125 190, 723, 31 654, Oregon Legislature local homesteader valid though wife notice. relied historic practice divorces.8 significant, however, while progress forbade 'local' 'special' laws. 24 Stat. 170, now U.S.C.A. 1471, 1471. 11 Denmark 1917,9 it until Act 1936 provided complete government—including Assembly. OrganicAct: labeled 'insular possession' 1807, U.S.C. 1405a, 1405a; endowed (consisting pre-existing municipal councils joint session) application title said islands, enacted would impair rights existing arising virtue nor lands property nonresidents taxed higher residents', 1811, 1405r, 1405r; due process clause 1815, 1406g, 1406g; (4) '(a)ll cases divorce', 1814, 1406(4), 1406(4). 12 checkrein presidentially appointed governor shared President absolute veto customary reserved annul 1810, 1405o, 1405o. 13 By 1944 making weeks' 'residence' 'inhabitant' sufficient jurisdiction.10 1952, Circuit construed imply 'domiciliary' 'domicile.' Burch Burch, 195 799. thereupon 'physical presence' adequate Governor vetoed amendment.11 overcome veto, enacted. 55, 17th 3d Sess., 14 revised 1954. July 22, 1954, 68 497, 1541 Previous legislation, June 1, supra, mootness. Though vacated, views constitutionality Certainly inference favorable validity can drawn Act.12 15 giving content having considerations once obtrude. phrase most liberally interpreted broader legislation.'13 Yet Acts territories, Alaska Hawaii, there limitation least years.14 37 45, (Alaska); 150, 519, 519 (Hawaii). hardly reasonable believe less concerned scope possession temptingly near mainland, intended them unrestricted freedom sensitive field law, exception grounds Danish copied Alaska. See Compiled Laws (1913) §§ 1293—1306; cf. Terrill Terrill, 475; Wilson Wilson, 616. Secondly, application' obviously implies relevant ties territory,15 growing out needs governing An example antitrust law. 'It requires demonstrate conspiracy restraint trade borders clearly matter, falls precise terms page 261, 171. And upholding Philippine deport dangerous aliens, Holmes, Court, observed 'the civil judicial necessary govern Islands. strange remote should bound wait matter might touch life unless dealt sopt.' 557, 586. 16 light decisive is: interests population it, pressed upon us, designed export?16 purpose regulating Islanders, abstractly practically point.17 Islanders bring themselves They difficulty appropriate showing connection forum. seeking sojourners, mere transients Cf. Berger Berger, Cir., 210 403. proof read statute one people outside stated disarming frankness.18 inadmissible assume traffic easy divorces citizens stimulus money-making Islanders. What Taft another strikingly here: 'All others see understand this. How properly shut minds it?' Bailey Drexel Furniture Co. (Child Labor Tax Case), 259 20, 37, 449, 450, 817. But sometimes helps prove, well see, obvious.19 17 1950 26,665 inhabitants 133 square miles; 20 years remained relatively static, 1952 census estimates indicate slight decline. 1940, 34 (1.4 per 1,000 population). 1951 figure reached 312 (12.5 1,000). This, capita, represented highest State Moreever, far exceeded leader, Nevada, ratio marriages. Nevada 55.7 same 289.5 licenses 1,000. Thus every divorce, granting Lest year unrepresentative, look during marriages respectively. Only exceed consideration. average 1940 2.0 12.1 population. Apart wartime fluctuations, ratios quite stable. 2.5 10.4 Thus, somewhat 1951, times 18 hit peak divorces. Three hundred forty-three (14.3 1,000) opposed 237 reduced 236 1953, 111 January November 19 extraordinary rate disproportion raise controlling doubts 9(a), especially context history. Such confirmed inquiry. Census reveals 416 widowed divorced men 1,105 women Islands.20 number nearly equalled total male Remarriage serve partial explanation. Petitioner's surprising disproportion. Although components (the Municipality St. Croix Thomas John) equal population, although John increased 33, whereas gone up 2,000% 310.21 inappropriate take notice considerably greater tourist facilities John.22 information duration residence divorcees questioned advised contest occurred 1% 310 concluded merits frequent. appearance—which strips court inquire domicile—but cases. clear impact even disregard candid explanations political, commercial legal sources23 rapid drop following initial unconstitutionality, provide convenient forum prosperous persons substantial connections desire sever their marital vacationing. bar ask petitioner lived much liberal toward would-be voters.24 One-year required. Further, income physically stronger link doubt strongly challenged questionable validity. circumstances, cannot conclude consciously asked do what ever attempted, done so. 23 Affirmed. HARLAN took part consideration CLARK, whom BLACK REED join, dissenting. 26 'fundamental tenet review' late Jackson said, wisdom policy legislature, fit subject courts.' Jackson, Struggle Judicial Supremacy (1941), p. 81. Some later Harisiades Shaughnessy, 342 580, 590, 72 512, 96 586, added 'judicially must tolerate regard mistake.' 27 I dissent feel majority, striking down Islands' substituting Congress. fail how failure require—in form substance jurisdictional requirements presently vogue 'legislative face unbroken history full legislating subjects, declares invalid that, rather being 'of application,'1 'designed export.' doing, does violence command Congress; overrides long line own decisions, unanimous seven each experience acts; and, finally, confounds fundamental heretofore unquestioned. 28 'subjects provision, shows beyond today's construction never dreamed 29 used closely language 1850. Mexico inapplicable, force effect elsewhere States.' (Emphasis supplied.) 452. declared covered consistent act'. 449. 30 Fifty later, Foraker 77, establishing inapplicable' provision when Island. With repeated phrasing, matters character inapplicable *,'2 83, instead 'rightful legislation'. After words evolved little, now, dropping double negative, become application'. majority dispute par Act. does, contend represents positive State. That quantum self-government possesses question. All appointive There limitations power.3 specifically 1574c, 1575. However, neither annulled. 32 As points out, (of application) legislation." Illiberally interpreted, narrower. Senate Report bill possibly clearer saying, phrase, assembly power, supervision Congress, legislate legislation.' S.Rep. 249, 56th Cong., 1st Sess. 3. then, meaning legislation'? note cites 160, Utah, 'restricted' Cope Cope, 137 682, 684, 222, 832, decided year, 'With exceptions noted section (such 'no interfering primary soil'), apparently plenary state.'4 Nor Caribbean placed footing different possessions. debates show unaware legislators Rather asserting given Congressman complained 54 Cong.Rec. 3008 3009. Likewise, successors had, restrictions, attained self- government, 3074; 53 7478. debates, 3079, Senator 'Congress, supreme Territories expressly restricted delegate tribunals self-government, corresponding Union chosen leave (and Hawaii) control laws.' earlier, 'radical difference' 3084, receive 8470. ancestral provisions, meant Again again committee reports, listed. examination listings complete, nowhere equivalent among 7479; H.R.Rep.No.163, 62d (with Alaska). fact, hundreds pages acts using contemplated limitation. 35 modified occasions, always definitely direction self-government. H.R.Rep.No.461, 63d 2d 7469. common enactments, compromise still independence degree restriction warranted. Yet, after exhaustive research, hearings, arguments supporting hint type above usual concepts jurisdiction. study, difficult me follow reasoning opinion. Apparently, says reach borders, since attracts domiciliaries get divorces, ipso facto application.' Under reasoning, Five certainly attract out-of-staters. 'operation bootstrap,' planned campaign industry Island means benefits several programs. Probably analogous corporation Delaware, often enterprises doing business State; except incorporation contact companies 'home' abstruse standards Due Process Clause, Miller Bros. Maryland, 340, 535, 744, strikes completely unreasonable application', faintest indication history, novel standard, equally indefinite, apply ad hoc basis. slenderness reed depends emphasized 55 describing not, find, contended opinion, review treatise, it. 38 Weight Statistics? 39 agrees studying problem, seems impressed (though too enterprise) great importance. concern motives exercising powers. 40 admits hands forty many capita Islands.5 concludes, really attempts, lower. approaches perfect non sequitur. statistics relevance whatever us. feel, point reasons Nevada. First, machinery smooth husband-to-be flies gets married church next door, accompanies his 'new' domicile. thriving divorcing out-of-staters marrying well; requiring waiting period marriage, steals march nearby California attempt impatient residents days.6 41 majority's holding appreciated asking question, 'What application?' this, whole founded proposition will suffice. because, 'For point.' 559. Why? Because, 'Virgin Islands.' domiciled 3, 799, 805. 'appropriate forum.' crystal 'be (will have) definition, 'sojourners' 'transients' there. forum' required sacred cow Is meaningful adhere jurisdiction, may, 'Congress Islanders'? area If willing say restrained passing story. Brown 685, 223, peculiarly '(W)hile duty put statutes, shall, possible, consonant good morals, know principle authorize pronounce kind, plain unambiguous face, void, reason conform standard social moral obligations. Legislatures competent deal fixing own, control.' Hawaii Alaska? rationalize Procrustean treatment argues limited years, follows similarly limit 'so mainland.' 1921 requirement longer months; recognized continued requirement; thereafter 1939, weeks; continued. Then, 'extraordinary divorce' controversy attention adopted, re-enacted identical Steamship 290 256, 78 302.7 44 Moreover, conclusion two-year casts shadow 'hardly anything, logical opposite—that Alaskan Hawaiian subsequently interesting explanation supra: 'That discussion contained organic act session Congress) wholly significance, actual conditions Congressional draftsmanship. issued committees, actually sets legislators. Instances, discloses, uniformity enactments scientific draftsmanship, Page 8, Brief. 46 Constitutional Doubts? 47 While Court's makes doubts, motivated statutory ground. my excuse. limits run escape adjudication. Admittedly, free doubters. Even judge-made, involve American life. Nevertheless, entitled forthright adjudication statute—not phantom clause. presented Clause Amendment, Full Faith Credit Tenth Amendment. First all, Granville-Smiths claims deprived life, liberty, interest relationship, protection Clause. faith credit applicable. Mrs. Granville-Smith make her granted, be. asks permitted proceed connection, require invaded sphere activities contrary 'Tenth 'does operate powers, express implied, delegated government." Case Bowles, 327 92, 102, 438, 443, 90 552. withholding sees fit. 50 bugaboo judge-made one, domicile.8 creates anomalies. couple, both obtain merely spouse 'reside' uninterruptedly weeks, claim intention permanent Business Week, 14, 1945, 24. divorcee leaves intended, sides concede regardless evident State, appeared Johnson Muelberger, 340 581, 71 474, 95 agree Taft: it?'9 Child (Bailey Co.) Still avoids fraud. 51 Divorce intensely practical husband enough, they secure true, sense state Yorkers fly 2,400 miles land Reno 1,450 water 52 vice statute, uncontested unnecessary choice bigamy perjury. think discourage reverse. Section deals annulment relevant. reads follows: 'In dissolution contract separation therein 8th 1944. amendment 7(8), 287—344, 787—809, 1088; Coudert, Evolution Doctrine Incorporation, Col.L.Rev. 823. Both distinguished 'A state, Constition otherwise requires, independent. dependency (here Philippines) permit. (O)ver nation plus possible.' Cincinnati Soap 301 308, 317, 764, 768, 81 1122. E.g., 77 (Alaska). 964, 821, 821 (Puerto Rico); 500, 1574(a) (Virgin Islands); 64 387, 1423a, 1423a (Guam). '* according prevailing country, understanding profession congress, either legislature.' 209, 728. existed rule effect, 1132, 1392, change Colonial Councils, instruments districts Presidential approval body Ibid. Each Council verbally 805—806. supra. His objection physical presence ex parte contested actions. time, explicitly characterized 'unincorporated territory.' spoke 'S. 3378 'an America.' status distinct Alaska, Incorporated Territories. (S)tatehood unvaryingly destiny hand, precedent geographic, economic unit S. 3378. autonomy is, course, possible framework—such elective ready it.' S.Rep.No.1271, 83d 8. Powell, criticized unwarranted advance whatsoever self-government.' 100 8664. 12, idea purpose: capable managing affairs. Unfortunately, islands yet economically self-supporting. Hence amount affairs commensurate continuing expenditures funds subsidize government. Matters purely power. levying taxes expenditure revenue authorized. deemed wise incur bonded indebtedness insufficient pay entire cost Locally bills Governor.' S.Rep.No.1974, 74th 2. 5267—5270, 5293, 5297—5298. Of damages injury occurring against transaction connecting contain tie amply affording dealing bearing consensual So entirety, accomplishes precisely thing second. system judge charged role party, called responsibility rebutting presumption. 293, 444 extent subject, fixed, ascertain determine illustrate: person invalid.' members addressed changing result Rohlsen member charge bill: 'The business. provides municipalities estimated $300,000 spent homes order. error draft original Governor's attitude becomes enhance u-coming (sic) islands. am trying speak ethics concerned, enhancing economy *' enjoyed financial influx getting divorced. recommend colleagues piece inasmuch disadvantage functioning time.' Proceedings Debates, pp. 46—47, 66—67. Moving adoption version differ Richards stated: why deliberating extensively amendment. 2% rendered Courts affect facilitate bona fide order source asset shores contribute welfare proud year.' 10. Heywood, discussing amendment, observed: 'This today appears devise aimed primarily very aware volume carried anticipated half million dollars-business current distributed lawyers, hotel bills, taxi cabs ventures Community.' Id., derived sources: Bureau Census, Statistical Abstract States: 9, 63, 85, 940, 942; Department Health, Education, Welfare, Summary Marriage Statistics, 52—53; Monthly Vital Statistics Report, Vol. 15, 1955, 7; Brief Petitioner, 53. 939. Committee Interior Insular Affairs, 125—127; VIII Magazine (Special Edition 1954) seq.; Murray, Complete Handbook 12—100. Chamber Commerce Newsletter cited 'change situation' slump previous season. Judge Moore, wrote Affairs: unsympathetic affected lawyers guest house keepers 54. '(b) 'residents maintained preceding date election, vote sixty election. residence, Board request registrant submit satisfactory fulfilled requirement. registrant's determined accordance rules: '1) Every '2) '3) Legal habitually resides work temporary returns season rest. '4) changed joinder intent. '5) lost acquired. subsection strictly enforced Board.' 86, 18th c. II, 1. Divorce, me, subject. History? interpreting restriction, repeating words, laid exercise Territory, supported Government's 235, majority: broad power' 'extend as, to, taken establishing, organized system, legislative, executive, confers Act) exercised State.' brief, 31. These include 1561, covering legislators, 1572, franchise, 1542, aspects procedure, 1575, Walker & Southern Pacific 1897, 165 593, 604, 421, 425, 837 (New Mexico); Clinton Englebrecht, 1872, Wall. 434, 441, 659 (Utah); Hornbuckle Tombs, 1874, 648, 655, 966 (Montana); Gromer Standard Dredging 1912, 224 362, 370, 499, 502, 56 801 1915, 365, 118, (Washington); 1888, 204, 726, 654 (Oregon); 960 (Philippine re Murphy, 1895, Wyo. 297, 310, 398, 402 (Wyoming); Long Bell Lumber 1908, Okl. 890, 898, 914—915 (Oklahoma); Op.Atty.Gen. 335, 338 (Arizona). Nevada's yearly 9,000; 5-year 200. arrangement nuptials lucrative good, recently settle squabble officials perform ceremony. Evening Gazette, 21, col. 3; 23, 6. Law Would Be 'Of Local Application'? addition re-enactment 1954 extra weight. When came permit weight re-enactment. Any lawyer one-judge Supreme likely disagree agree. improbable enactment constitutional, small way preventing operation 'Pied Piper.' change. Stone dissenting Girouard 328 61, 75, 76, 826, 833, 1084, lightly implied deliberately readopted'. fast undone 'English England.' 65 Harv.L.Rev. 193, Crownover Crownover, N.M. 597, 274 P.2d 127. article popular magazine closed has. 'Nevada's smugly refer 'legal fiction': steady mild sort perjury committed applicant mumbles reply judge's mumble, intend continue Nevada.' Holiday, February 1949, 98.

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