Document: 416 U.S. 783 94 S.Ct. 2028 40 L.Ed.2d 540 John R. DILLARD and Willie Williams, etc., Appellants,v.INDUSTRIAL COMMISSION OF VIRGINIA et al. No. 73—5412. Argued March 26, 1974. Decided May 15, Syllabus In this action (brought initially by appellant Dillard in which Williams was allowed to intervene) claimed that the Due Process Clause of Fourteenth Amendment prevented Virginia from permitting suspension workmen's compensation benefits as a result change condition without notice claimant prior adversary hearing. The District Court rejected constitutional claim on merits. Held: If, indicated briefs oral arguments Court, state law permits whose have been suspended them reinstated trial courts, act purely ministerial capacity, pending full administrative hearing before State Industrial Commission merits his claim, it probably unnecessary address federal question. Accordingly, case must be remanded for reconsideration. Pp. 784—798. 347 F.Supp. 71, vacated remanded. M. Levy, Richmond, Va., appellants. Stuart H. Dunn, Va. others. J. Robert Brame, III, Aetna Casualty & Surety Co. Mr. Justice POWELL delivered opinion Court. 1 Appellants seek establish that, under Amendment, may not permit A three-judge United States over one dissent, appellants' arguments. 71 (E.D.Va.1972). We noted probable jurisdiction. 414 1110, 838, 38 736 (1973). Although parties focused primarily due process issue, court claim. If is an accurate reading law, all probability any questions case. 2 * This litigation has centered role (Commission) overseeing relationships between claimants employers or employers' insurance companies. system controlled significant respects extensive statutory scheme referred Act, Va.Code Ann. § 65.1—1 seq. (1973 Supp. 1973),1 operates largely voluntary manner through memoranda agreement disabled workmen Compensation paid out private funds, some cases self-insurance but most part coverage All agreements employees companies approved Commission, extend its imprimatur 'only when member thereof, clearly best interests employee dependents will served thereby . ..' 65.1 93. 3 instances agree voluntarily entitlement benefits.2 When does occur, grant resolve disagreement, 65.1—94, make award if found due. 65.1—96. Commission's awards are subject review appeal Supreme and, unchallenged, conclusive until changed Commission. 65.1—98.3 no enforcement power per se. Rather, Act provides: 4 'Any party interest file circuit corporation county city injury occurred, Richmond then equity such city, certified copy memorandum order decision unappealed from, affirmed upon appeal, whereupon court, judge thereof vacation, shall render judgment accordance therewith notify parties. Such same effect, proceedings relation thereto thereafter same, though had rendered suit duly heard determined court. .' 65.1—100. 5 courts construed their duty 65.1—100 ministerial. They do inquire into whether claimant's continues justify compensation. they simply enforce formally rescinded Commission.4 Thus, at disposal ready mechanism facially valid agreement. Since judicial act, relief appears available with minimum delay procedural difficulty. 6 Termination condition, like commencement first instance, product cases. But dispute arises continued benefits, only avenue open employer extinguishing rights 65.1—99. See Bristol Door Lumber v. Hinkle, 157 474, 161 S.E. 902 (1932). section provides, relevant part: 7 'Upon own motion application interest, ground ending, diminishing increasing previously awarded .. No affect regards moneys 65.1—99 (1973).5 8 indisputable longer entitled refuses terminate agreement, insurer defense against there formal determination section. E.g., Manchester Bd. Paper Parker, 201 328, 111 S.E.2d 453 (1959).6 company meets requirements established invoking section, course conduct hearing, right participate extended parties.7 At bears burden proving justifies rescission Oak Flooring Chrisley, 195 850, 80 537 (1954); A. Foust Coal Messer, 762, 533 (1954). 9 last sentence above quotation prevents recovering erroneously termination Gray Underwood Bros., 164 344, 182 547 (1965). cause believe obvious incentive unilaterally cease payment time seeks ultimately holds favor, required pay further protected itself unmerited payments period rules it, reinstate retroactively date least avoided paying true legal obligation. 10 police tendency insurers litigate later, promulgated Rule 13. supra.8 13 sets forth certain meet, precision, see ibid., can obtain prerequisite condition.9 For example, requires continue up defined date. And since April 1, 1972, imposed following applications: 11 'All applications oath deemed filed supporting evidence constitutes basis changing existing reviewed designated purpose, made exists occurred.' 12 13, amended, date, oath, submit 'supporting these met finds 'probable occurred .,' accorded lead met, request denied, issue remain courts. II Appellant original named plaintiff class 42 U.S.C. 1983. He contended makes pursuant argument appealed, settled we mootness. 409 238, 93 566, 34 444 (1972). unreported order, subsequently permitted intervention published opinion. bringing espoused Dillard. 14 injured employment 1972. employer's company, appellees herein, weekly benefits. October applied determine Williams' disability ended. Simultaneously, discontinued payments. Within few days ex parte existed occurred. point, effort petition December conducted concluded proof, On 17, 1973, again petitioned claiming condition. once more basis, second terminated did resort order. Approximately two months intervene lawsuit noted, brought appeal.10 15 attack suspending premised assumption shield interim ultimate Act. essence reads phrase providing 'benefits suspended' meeting meaning successfully those met. incorrect, complexion changes dramatically, because within petitioning perform duty. It well perfunctory so readily could de minimis. so, able constitutionally Amendment. 16 Every indication record authorities he failed utilize. n. 4, supra. As declared dismiss Court: 17 'Virginia's framework authorize alleged plaintiff, initiation procedure terminated. Should dissatisfied temporary cessation provisions reduce appropriate compel resumption should ocurt discretion enter insurer.' (Emphasis original; citations omitted.) One point brief,11 counsel conceded read literally, other result.12 Counsel attempted overcome concession arguing interpreted recently might today hold overrides language 65.1—100.13 plainly merit, promulgate rule would repeal Act.14 Moreover, purpose. designed protect employees, (1959), deprive establishes barriers surmount serve screening device eliminating obviously unmeritorious hearings employers.15 authorization suspend assurance 18 escape Act.16 reached assuming, arguendo, 'that authority F.Supp., 75. Based what our attention likelihood inaccurate.17 event, doubts reaching doubt about status consider abstention, question dispositive. Lake Carriers' Ass'n MacMullan, 406 498, 92 1749, 32 257 case, provided adequate remedy pursue, presented wholly different decided. Assuming also procedures necessarily parte,18 interruption, any, obtains reinstatement controlling significance. determines general undue finding complaint. 19 indicate view decided Court—whether denies where funds private, public, safeguards short follows average month. vacated, reconsideration 20 ordered. 21 Vacated 22 DOUGLAS, dissenting. 23 involves behalf persons who, sustaining employment-related injuries, recipients Workmen's challenges constitutionality allowing benefit asserted complaint prayed injunction restrain convened, 28 2281, challenged portions were constitutional, 24 provides personal on-the-job injuries; fixed rules. Once approves move 'on condition.' Code According decrease "require inquiry held temporarily hearing." 79. 25 Suspension thus cause' exists. here final termination, opportunity heard, satisfies process. reach suspension, claimant, suspended, bring reinstated, 26 I disagree counteract payable instituting answer challenge termination.* necessity Any places worker going redress already point. affirmative segment society bear less opportune. Judge Merhige said below dissent: 'Judges need blind themselves know men. cannot help workingman Virginia, who sustained resulting substantial reduction income, suffers grave immediate loss. very thought proceeding milk delivery, electric power, fuel working man family, shocks my conscience.' 81. working-class men women situation battle corporate meaningful solution problem. 27 find inapposite, dissent remand impact. defines relationships, §§ 65.1—3 65.1—5, types compensable disabilities, 65.1—7 65.1—46, levels compensations, 65.1—54 65.1—57, 65.1—65 65.1—65.1, 65.1—70 65.1—71, like. Participation mandatory covered 65.1—23, amended. force 1918. Its history structure described Court's 72 73 (ED Va.1972). An amicus brief indicates years 1967 1971 approximately 95% claims resolved Brief American Insurance Association 10. accords weight findings fact, e.g., LeWhite Constr. 211 279, 176 809 (1970), restricts law. Cf. Brown Fox, 189 509, 54 109 (1949). Cedar Works Harper, 129 481, 492—493, 106 516, 520 (1921): 'Section 62 (the predecessor 100 Act) enacted purpose means enforcing commission commission. invoked, however, established. resembles statute execution forthcoming delivery bond. (A)ll compensation, determined, either (a) parties, commission, (b) appealed (c) appeal. stage proceeding, vested discretion; mandatory, refusal compelled mandamus. rendering had, exercise function, mere method legislature collection amount legally ascertained Accord, Parrigen Long, 145 637, 134 562 (1926). refers specifically awards, applying (1959). entered approved. returned work, himself technically ineligible commenced leading now adhere precisely year after refused rescind concluding comply implemented affirmed. exclusive rescinding follow risk, regard actual claimant. There instant conducts terminates Appellants' directed suspensions 'The reason stated follows: "More than thirty ago arbitrarily disregarding effect outstanding terminating (Rule 13) continuously force." 331, S.E.2d, 456. rulemaking Section 65.1—18 rules, inconsistent carrying Act.' authority. 'Applications Review Ground Change Condition. Applications writing relied relief. Reviews filing offices except paragraphs three hereof. issurer show paid. considered Except, actually work (§ 65.1—63), medical 65.1—88), examination 65.1—91), employment, examination, fourteen filed, whichever later. return refusal, incapacity begins, later.' relating September ruling apparently sought accuracy disabled. issued ruling. certiorari seeking holding. That petition, pending, 73—6431, Guano Co., raise advanced Indeed, although represented mention light disposition decide addressed present Appellee 5: 'Applicants usually based speaks terms continuing 'during incapacity,' Therefore, even schedules just recalcitrant suspends cause.' Tr. Oral Arg. 53. Id., 52, 53, 55. 8, states require 'to sufficient information merit possibility fraudulent, frivolous arbitrary eliminated (sic) non-fraudulent otherwise non-meritorious minimized.' Motion Affirm 3. Amicus one-third 14. declared: 'Nowhere direct merely hear asserting admonition submitted made, filed. Here again, payments, unless complied with.' 74—75 (emphasis original). fact denied proceeding. outset opinion: basis' award. Nowhere say chance heard. inference exist heard—does objectionable face. (April 1972) amendment new way constitute establishing 75 (citation omitted). informed matter practice regularly inform pending. 43—44. take account submissions determination. 44. that: 'An may, written statement opposing However, rarely occurs normally access acts rapidly waiting receive submission employee. (However, send found, evaluate information. informs carrier claimant).' 13—14. receives counter-affidavits evidence, arise recourse impact bypassed 'assum(ed) provide addressing argument. Sniadach Family Finance Corp., 395 337, 89 1820, 349 (1969), wages earned seized garnishment creditor By token, taken control

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