Document: 449 U.S. 433 101 S.Ct. 703 66 L.Ed.2d 641 Julius T. CUYLER, Superintendent, State Correctional Institution, et al., Petitioners,v.John ADAMS. No. 78-1841. Argued Oct. 7, 1980. Decided Jan. 21, 1981. Syllabus While respondent was serving a sentence in Pennsylvania correctional institution, the Camden County, N. J., prosecutor's office lodged detainer against him and sought custody pursuant to Art. IV of Interstate Agreement on Detainers (Detainer Agreement) order try New Jersey criminal charges. Article IV, which provides procedure whereby receiving may initiate prisoner's transfer, states paragraph (d) that nothing shall be construed deprive prisoner "of any right he have contest legality his delivery as provided (a) hereof," but such not opposed ground sending State's executive authority has affirmatively consented or ordered delivery. Respondent filed an action Federal District Court for Eastern under 42 U.S.C. §§ 1981 1983, alleging petitioners had violated Due Process Equal Protection Clauses by failing grant pretransfer hearing would been available transfer Uniform Criminal Extradition Act (Extradition Act), Clause inform IV(a) Detainer petition Pennsylvania's Governor disapprove Jersey's request custody. The dismissed respondent's complaint. Appeals vacated judgment remanded case, finding it unnecessary reach constitutional claims holding matter statutory construction federal law Art IV(d) procedural safeguards, including hearing, prescribed Act. Held: 1. is congressionally sanctioned interstate compact interpretation presents question law. An agreement does fall within scope Constitution's Compact Clause, will invalidated lack congressional consent, where "directed formation combination tending increase political power States, encroach upon interfere with just supremacy United States." But Congress authorized States enter into cooperative subject appropriate legislation, Congress' consent transforms States' question. Here, gave its advance enacting Crime Control Consent 1934. That intended legislation. Pp. 438-442. 2. As construction, incarcerated jurisdiction adopted entitled protections Act, before being transferred another Agreement. Both language legislative history support that, whereas initiating III waives rights affords persons extradited, extradition are preserved when seeks involuntary phrase "as contained IV(d), modifies "delivery," "right," thus preserves all state other except right, otherwise oppose explicitly approved request. Moreover, remedial purpose protecting prisoners whom detainers outstanding supports gives judicial they can bring limited challenge 443-450. 3 Cir., 592 F.2d 720, affirmed. Maria Parisi Vickers, Philadelphia, Pa., petitioners. James D. Crawford, respondent. Justice BRENNAN delivered opinion Court. 1 This case requires us decide recurring concerning relationship between Act.1 specific issue presented whether Act—particularly hearing—before Third Circuit held protections. 720 (1979). Courts courts divided question,2 we granted certiorari resolve conflict. 444 1069, 100 1011, 62 750 (1980). 2 * In April 1976, John Adams convicted court robbery sentenced 30 years Institution at Graterford, Pa. County (New Jersey) subsequently May 1977 "Request Temporary Custody" trial charges armed offenses.3 effort prevent pro se class-action complaint June Pennsylvania. He declaratory, injunctive, monetary relief (1) Act; (2) contended, inter alia, advised Governor, able convince authorities deny request.4 4 Court, without reaching class certification issue, October failure claim could granted, 441 F.Supp. 556. then Jersey,5 convicted, 91/2-year prison term (to served concurrently sentence), returned 5 further proceedings. Finding no need claims, see Hagans v. Lavine, 415 528, 543, 94 1372, 1382, 39 577 (1974), concluded "hearing," § 10 It made respect argument notification Governor.6 II 6 this appeal, hearing. Commonwealth ex rel. Coleman Cuyler, 261 Pa.Super. 274, 396 A.2d 394 (1978). Although did bound court's result because rather than construction. Before merits Circuit's decision, must determine conclusion correct. We hold was. 7 Constitution, I, 10, cl. 3, "No shall, Congress, . ." Because See Petty Tennessee-Missouri Bridge Comm'n, 359 275, 278, 79 785, 788, 804 (1959); West Virginia Dyer Sims, 341 22, 28, 71 557, 560, 95 L.Ed. 713 (1951); Delaware River Joint Toll Comm'n Colburn, 310 419, 427, 60 1039, 1040, 84 1287 (1940).7 remains determined Constitution. 8 requirement heart Clause. By vesting withhold condition compliance specified conditions, Framers ensure maintain ultimate supervisory over might full free exercise authority. Frankfurter & Landis, Constitution—A Study Adjustments, 34 Yale L.J. 685, 694-695 (1925). 9 Congressional required agreements outside Where States," consent. See, e. g., Steel Corp. Multistate Tax 434 452, 468, 98 799, 810, 54 682 (1978), quoting Tennessee, 148 503, 519, 13 728, 734, 37 537 (1893); Hampshire Maine, 426 363, 369-370, 96 2113, 2117, 48 701 (1976). agreement, Clause.8 authorizing joint giving expressed implied approval already joined. supra, 521, S.Ct., 735; Green Biddle, Wheat. 1, 85-87, 547 (1823). Agreement, 1934, Stat. 909, amended.9 pertinent part, provides: 11 "The hereby given two more compacts mutual assistance prevention crime enforcement their respective laws policies. 112(a). 12 legislation,10 conclude therefore turn Appeals' read incorporating safeguards both establish procedures one temporary jurisdiction. A "hearing" informed custody, counsel, apply writ habeas corpus challenging also permitted "a reasonable time" writ.11 However, similar explicit provision found 14 establishes State. One these invoked prisoner; prosecuting attorney 15 prisoner-initiated procedure. warden notify final disposition underlying those detainers. If initiates demanding (which automatically extends pending State), 180 days prejudice, absent good cause shown. 16 prosecutor transfer. First, file written notice request, having hear For next days, wait while State, own motion prisoner, decides request.12 disapprove, brought 120 arrival. Again, if time period, 17 contends who involuntarily greater III. argues receives significant benefit waive transfer; from assert (or applicable prisoners) 18 Respondent's substantial III(e) "[a]ny [under Article] deemed waiver charge proceeding contemplated thereby. (Emphasis added.) reference "waiver extradition" reasonably interpreted mean extradited." Since include 19 contention meant detainer. 20 "Nothing hereof, denied delivery." 21 Petitioners argue hereof" protect request.13 rejected interpretation, concluding "right." major thrust describe means obtain vehicle forfeit Act,14 22 There three textual reasons why find convincing. protects only claim, difficult understand what serves Why drafters add second provided? Common sense securing something more. 23 Second, contesting withholds prisoner—that -is expressly reserves prisoner. surely elimination affecting withheld concluded, "the fact specifically refer minor feature process affected suggests forcefully aspects, particularly furnishing continue effect." 724. 24 Finally, refers "any [the prisoner] have" (emphasis added) involved, suggestion consistent pre-existing preserved. petitioners' were correct—that Governor—it much likely referred narrowly 25 comments draft Council Governments 1956 conference circulated adopting reading. discussing different degrees protection Arts. stated: 26 "Article certain rights. Normally, way get purposes indictment, information through resort thereof. waives, there problem. extradition, attempt force give up process, even done constitutionally." Governments, Suggested Legislation, Program 1957, pp. 78-79 (1956) added). 27 suggestion, course, should whatever "safeguards process" enjoyed. Those (in it), well guarantees extradited borders. 28 suggested distinction make procedures: 29 situation portion [Article IV] dealt III] relates proceedings initiated Accordingly, instances fitting extradition. proceeding. Consequently, probably improper require features designed rights." Id., 79. These statements strongly treated differently depending invoked, general body context effected IV. 31 IX "shall liberally so effectuate purpose." Reports debates preceding adoption behalf Columbia Government, emphasizes primary outstanding. stated House Senate Reports: 32 "[A] seriously disadvantaged action. position seek witnesses preserve defense. often kept close ineligible desirable work assignments. What more, sometimes loses interest institutional opportunities serve knowing additional sentences lie him, when, ever, employ education skills developing." H.R.Rep. 91-1018, p. (1970); S.Rep. 91-1356, (1970), U.S.Code Cong. Admin.News 1970, 4866. 33 request.15 light reflected structure Agree ment, language, history, provisions 1983 asserted violation officials terms Maine Thiboutot, 448 2502, 65 555 Affirmed. 35 REHNQUIST, THE CHIEF JUSTICE STEWART join, dissenting. 36 remarkable feat alchemy today enactment Legislature, never save vaguest some prior passage, Ante, Part II. Nothing decisions suggests, say compels, untoward result. cases relied establish, most, present (1959) ("The Constitution question") supplied); 27, (1951) ("congressional [was] required"); (1940) ("the virtue involves 'title, privilege immunity') supplied). our recent decisions, however, cannot contended constitutes "agreement compact" come understood (1976), "application 'directed States.' " 369, (1893). rule reaffirmed 471, 811, ruled quoted test "states proper balance among Certainly about threatens enhances detriment sovereignty. "compact" join considered elevate member expense nonmembers. id., 477-478, 815. despite contrary intimations ante, 441, n.9, views form controlling. involved termed repeatedly sought, 456, 458, n.8, 804, 805, yet nonetheless U.S., 470-471, 811 mere dispositive. relevant inquiry impact structure"). 38 purview irrelevant Court's reliance described baffling. maintaining Agreement—a foreclosed decisions—the "whether Constitution" concludes Clause." 439, 440 Whether particular "within" "under" depends Congress—the speaks else. Whatever effect cover, thought cover. Engdahl, Construction Compacts: Questionable Question, 51 Va.L.Rev. 987, 1017 (1965) ("[T]he requiring consented, ."). stresses area 442, n. but, purposes, "[a]bsent threat encroachment interference enhanced power, existence irrelevant." 480, n.33, 816, n.33. operate transform statute law, albeit unnecessary, so. Such proposition is, established contexts. most fundamental example discussed Coyle Smith, 221 559, 568, 688, 690, 55 853 (1911): 40 ". require, penalty denying admission, organic new admission meet approval. constitution supervised would, after all, toalteration amendment admission. Its constitution, act Congress." 41 taxation instrumentalities tax question, Gully First National Bank, 299 109, 115, 57 96, 98, 81 70 (1936) ("That permitting change basis suit still state, though evidence prove valid") original), consents regulating commerce prohibited remain laws, re Rahrer, 140 545, 561, 865, 869, 572 (1891) (by attempted delegate regulate commerce, adopt laws"); Prudential Insurance Co. Benjamin, 328 408, 438, n.51, 1142, 1159, 90 1342 (1946) 'adoption' South Carolina's amounts unconstitutional delegation obviously confuses legislate They identical, exercised same formal manner"). generally 1015-1016. unsettling confuse legislation completely gratuitous passage disturbing analysis potential sweep. books reciprocal area. Secure Attendance Witnesses Without Proceedings, U.L.A. (Supp.1980) (adopted jurisdictions); Rendition Prisoners Proceedings jurisdictions). clear 469-471, 810-811, agreements. ibid. (discussing York O'Neill, 564, 585 (1959), involving Witnesses); 491, 821 (WHITE, dissenting). each broad array matter. apparently answer Clause; true And "consent" 1934 applies Yet supposed override Enough said demonstrate become Midas meandering books, turning everything touches 43 I view statute, defer it. sufficiently me disagrees undertaken below Court.* reverse remand, instructions consider avoided unjustifiable interpretation. Detainers, codified Pa.Cons.Stat. 9101 seq. (Supp.1980), Columbia, States. Initially drafted included Council's Legislation bringing trial. Unlike speedy 9121 Puerto Rico, Virgin Islands. 1926 revised later, like liberty prison. Compare Atkinson Hanberry, 589 917 (CA5 1979); (1978); Thompson, 133 N.J.Super. 180, 336 (1975); Hystad Rhay, Wash.App. 872, 533 P.2d 409 Wertheimer 294 Minn. 293, 201 N.W.2d 383 (1972): (CA3 1979) (case below); McQueen Wyrick, 543 S.W.2d 778 (Mo.1976); Moen Wilson, 189 Colo. 85, 536 1129 Garner Gray, Wis.2d 574, 163 (1972). "detainer" nowhere defined noted Mauro, 436 340, 1834, 56 329 accompanying 'a institution sentence, advising wanted face jurisdiction.' 359, 1846, (1970). Apparently, acted bad faith deliberately filing until chief alibi witness died. presumably raised either subsequent n.11, infra. Jersey, actually occur January 1978, months opinion. Brief 31, n.4. do issue. "law Union" doctrine principle based origin Wheeling Belmont Co., How. 518, 249 (1852). bridge company defended nuisance legislature offending bridge. argued authorization shielded "there prohibiting obstructions Ohio River, regulation, bridges, discretion subject." clause Virginia-Kentucky 1789, declaring use navigation "free common citizens 565. Even river, prohibition controlling "[t]his compact, sanction Union. desired action?" Id. 566; Wedding Meyler, 192 573, 581-582, 322, 323, 570 (1904). law-of-the-Union questioned People Central R. Co.,, Wall. 455, 458 (1872) Hinderlider La Plata Cherry Creek Ditch 304 92, 58 803, 82 1202 (1938), doubts continued vitality put rest 427-428, 1040-1041, "In Railroad, review construing drawn nor set decision long doubted, now immunity' 'specially claimed' reviewed here 237(b) Judicial Code, 344." 1040. Accord, 788; Esola Groomes, 520 830, 841 1975) (Garth, concurring); League Save Lake Tahoe Regional Planning Agency 507 517 (CA9 1974), cert. denied, 420 974, 1398, 654 (1975). 26, (congressional control pollution streams, "an national legislation"); 281, 789 navigable waters commerce). WHITE stated, dissenting (1978): "Congress pass submitted manner deciding constitutionality. Rather, approve judgment: Is activity area, disadvantage important extent, better left untouched regulation?" 485, 819 (footnotes omitted). enacted express complying "congressional consent" Act: "Legislation necessary accomplish bill part article section 'No .' "This remove obstruction imposed allow cooperatively out problems enforcement." 1007, 73d Cong., 2d Sess., (1934); 1137, 1-2 (1934). doubt falls authorization. Not interpretive handbook "falls purview" Handbook 117 itself, Pub.L. 91-538, 1397, 91-1018 91-1356 Admin. News 4864. At time, implicitly derived Commerce latter 2, since 1793 passed first 302, 3182. Michigan Doran, 439 282, 286-287, 99 530, 534, 521 Innes Tobin, 240 127, 130-131, 134-135, 290, 291, 292, 562 (1916); Roberts Reilly, 116 80, 94, 299, 544 (1885); Robb Connolly, 111 624, 628, 544, 546, 542 (1884); Kentucky Dennison, 66, 104-105, 717 (1861); DeGenna Grasso, 413 431 (Conn.), aff'd sub nom. Carino 913, 2617, 49 368 recognition evidenced rapidity move another, charged proceedings, barriers obstructing movement, makes things done, Government greatly extended aid detection punishment offenders laws." added); Despite dissent, post, 453-454, cited examples "reciprocal area" received Acts determinations await properly raising Acts. Section 9131 person arrested warrant agent appointed receive unless taken forthwith judge record demand surrender procure legal and, counsel desire arrest, fix allowed corpus." facts surrounding lodging later any, "(a) documents order; (b) [he] state; (c) named extradition; fugitive." 289, 535. part: "[T]here period receipt honored, availability, prisoner." Paragraph performs functions. authorizes 9128 "If complied sign arrest sealed seal directed peace officer think fit entrust execution substantially recite validity issuance." contend frustrates streamline process. accept argument. 30-day date transferred. expiration reason 31st day. "reasonable fixes computed Judge Van der Voort, writing court, assumed incorporated deprivation affording state-court comprehensive survey contain incorporated. Spaeth, dissented equal different, else challenge. Wallace Hewitt, 428 (MD Pa.1976).

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