Document: 439 U.S. 572 99 S.Ct. 802 59 L.Ed.2d 1 Jess H. HISQUIERDO, Petitioner,v.Angela HISQUIERDO. No. 77-533. Argued Nov. 1, 1978. Decided Jan. 22, 1979. Syllabus The Railroad Retirement Act of 1974 (Act) provides retirement benefits for railroad employees. are not contractual and can be altered by Congress at any time. Benefits an employee's spouse terminate upon absolute divorce. 45 U.S.C. § 231d(c)(3). Except satisfying child-support or alimony obligations, "no annuity [under the Act] shall assignable subject to tax garnishment, attachment, other legal process under circumstances whatsoever, nor payment thereof anticipated . ." 231m. Petitioner, a California resident whose years service as employee entitled him if when he attained age 60, petitioned dissolution his marriage respondent, also California, which has community property law. trial court divided parties' but held that respondent had no interest in petitioner's expectation receiving benefits. Supreme Court ultimately reversed, holding because would flow part from employment during marriage, they were property. rejected contention 231m barred respondent's claim, reasoning provision was intended apply creditors only. Held: payable may Pp. 581-590. (a) Ordering petitioner pay appropriate portion Act, its monetary equivalent, receives it, contravene deprive benefit Congress, 231d(c)(3), indicated designed alone. Under Supremacy Clause, must defer Act's statutory scheme allocating insofar terms federal law require. 583-587. (b) An offsetting award expected value likewise defeat purpose barring anticipation payments Act. 588-590. 19 Cal.3d 613, 139 Cal.Rptr. 590, 566 P.2d 224, reversed remanded. James D. Endman, Los Angeles, Cal., petitioner. Elinor Stillman, Washington, C., United States, amicus curiae, special leave Court. Howard M. Fields, pro hac vice, Herma Hill Kay, Berkeley, NOW Legal Defense Education Fund, Mr. Justice BLACKMUN delivered opinion Petitioner Hisquierdo 1975 sued dissolve with Angela Hisquierdo. applying State's rules, awarded 1974, 88 Stat. 1305, 231 et seq. issue here is whether prohibits this allocation division 2 * first passed 1934, 48 1283, system disability persons who pursue careers industry. Its sponsors felt encourage older workers retire providing them means "to enjoy closing days their lives peace mind physical comfort," so "assure more rapid advancement service" jobs younger workers.1 Both employees carriers tax2 funds Account. Board, provided 231f, disburses account each eligible "individual," 231a. 3 In modern form,3 resembles both private pension program social welfare plan. It two tiers upper tier, like pension, tied earnings career service. employee, benefits, work industry 10 years. Absent disability, paid, however, until either reaches 62 least 60 old completed 30 231a(a)(1). Like insurance scheme, taxes paid on behalf do necessarily correlate entitled. Since 1950, Account received substantial transfers security system, legislative changes made require one-time infusion $7 billion general revenues.4 4 lower, larger, tier corresponds exactly those expect receive covered Social Security 231b(a)(1). children parent worker dies. §§ 231a(d)(1)(iii) (iv). makes detailed worker's spouse; qualifies individual regular contributions support, support pursuant order. 231a(c)(3)(i). terminate, absolutely divorced. 231d(c)(3).5 5 Security, unlike most plans, contractual. alter, even eliminate, time.6 This vulnerability congressional edict contrasts strongly protection afforded recipients creditors, taxgatherers, all "anticipate" receipt benefits: 6 "Notwithstanding State, territory, District Columbia, supplemental 231m.7 7 1975, exception similar provisions plans. Concerned about evading obligations thereby throwing divorced spouses public dole, amended adding new provision, 459, effect that, notwithstanding contrary law, reached satisfy obligation child alimony. 2357, 42 659.8 1977, shortly before issuance California's case, added definitional statute, 462(c), relates 459 limits "alimony" traditional common-law meaning spousal support. That statute states specifically 8 "does include transfer former compliance settlement, equitable distribution property, between spouses." Pub.L. 95-30, Tit. V, 501(d), 91 160.9 II 9 residents, married Nevada 1958. They separated 1972. instituted proceeding Superior County marriage. seven form brought our shores Spanish. "statute proceeds theory respect acquired existence, member, equally contributing her prosperity, possessing equal right succeed after dissolution, case surviving other." Meyer v. Kinzer, 12 Cal. 247, 251 (1859).10 11 Community includes earned union, well given See Cal.Civ.Code Ann. 687 (West 1954). separate assets owned separately through gift. ownership turns method timing acquisition, while view States depends title.11 On due labors married, (but petitioner) divorce listed item App. 2, 3. At time, petitioner, machinist, aged 55. He worked 1942 Atchison, Topeka & Santa Fe Railway, subsequently entered employ Angeles Union Passenger Terminal. fell within Because years' service, permit 60. Respondent calculated she half attributable labor 14 or, estimates, 19.6% total received.12 couple children. 13 53. She preceding eight factory. been gainfully employed 35 Neither claimed Respondent, too, waived claims Tr. Oral Arg. 5, 33. After hearing, couple's home, $12,828 equity, furnishings. automobile small mutual fund. court, ordered reimburse installment payments, equity home protected imposed lien favor real estate. ruled existed prospect 4. 15 Appeal affirmed. re Hisquierdo, 133 684 (2d Dist. 1976). noting Court's Clause cases power determine character federally created benefit, claim reasoned programs terminated enforceable contract right. contended state decision Milhan, 129, 117 809, 528 1145 (1974), cert. denied, 421 976, 95 1976, 44 467 (1975), could compensating amount available distribution. held, such remedy 231m, "anticipated," frustrate explicit grant distinct nonemployee spouse's terminates Nizenkoff, 65 Cal.App.3d 136, 135 189 (1st 1976) (expectation Act); Kelley, 64 82, 134 259 (the same). 16 Review granted California. there argued "there evidence ever prevent recognizing plan."13 unanimous Appeal. 224 (1977). Relying recent law,14 though Congress' spouses, believed, rely state-law doctrines protect them. claim. it bar creditor present owner. then very 1977 amendment (mentioned above 462(c) Act) discussed. question left open remand. awarding doctrine supra, avoid infringement designation "individual" recipient. 17 We certiorari consider whether, standard decided cases, impermissibly conflicts Act.15 435 994, 98 1644, 56 82 (1978). III 18 Insofar temporal control, lay guiding hand. "The whole domestic relations husband wife, child, belongs laws States." Burrus, 136 586, 593-594, 850, 853, 34 L.Ed. 500 (1890). Federal courts repeatedly have declined assert jurisdiction over divorces presented question. See, e. g., Ohio ex rel. Popovici Agler, 280 379, 50 154, 74 489 (1930). rare occasion family come into conflict limited review determination "positively required direct enactment" pre-empted. Wetmore Markoe, 196 68, 77, 25 172, 176, 49 390 (1904). A mere words sufficient. State family-property "major damage" "clear substantial" interests will demand overridden. Yazell, 382 341, 352, 86 500, 507, 404 (1966). Nevertheless, four prior occasions found necessary forestall injury rights based concepts. McCune Essig, 199 382, 26 78, 237 (1905), homestead permitted widow patent land husband, prevailed daughter's asserted inheritance father's expectancy him. And trilogy survivorship rules savings bond military life override absent fraud breach trust decedent. Yiatchos Yiatchos, 376 306, 309, 84 742, 745, 724 (1964); Free Bland, 369 663, 1089, 180 (1962); Wissner Wissner, 338 655, 70 398, 94 424 (1950). 20 four, entitlement. manipulation problem concerned bonds purchased here. inception overtones. Compulsory finance just fall employee. closely parallel homesteaded Essig. land, title pass manner U.S., 390, S.Ct., 80, matter kind normally States. Here, critical specified beneficiary flat prohibition against attachment anticipation. interpreted somewhat provision16 preclude purposes, 659-660, 400-401, spoken specificity characterizes amendments inform 21 approach practical. nature does itself proscribe entire field control. contends, create these exist accordingly says "owns" determined erred describing owner Such abstract, cause forbids. pertinent questions express consequences sufficiently injure objectives nonrecognition. A. 22 way seeks vindicate interest, one particularly pressed oral argument, 32, 44, retain order it. Brown, 838, 848-850, 544 561, 567-568 (1976). course, runs language mechanically 23 Section plays important role scheme. anti-attachment generally, see Philpott Essex Welfare 409 413, 93 608 (1973); ensures actually reach beneficiary. pre-empts stands way. protects "[n]otwithstanding State." Even tax-collection bow command, phrase ensure neither collectors encroach benefits.17 prevents vagaries disrupting national guarantees uniformity enhances effectiveness policy. 24 carefully targeted embodied concept extent. spouse, need carrier. sole contribution marital supports career. purposefully abandoned theory, cut off: entitlement end last day month divorced." choice deliberate. When revised proposal labor-management negotiation committee, proposal, ratified decision. conclusion perilous financial Account, devote purposes.18 27 choice, decide how finite allocated. balance delicate. fixed thought retire. Any automatic diminution frustrates objective. By reducing received, discourages retiring. incentive keep working, salary dissolved. shields decisions reverse incentives originally intended. 28 contends interpretation manifestly unjust, Congress. suggests merits recompense, argues logical matter, totally unable spouse. urges claims, should hold than restate Government's sovereign immunity burdensome garnishment suits, notes several adopted construction errant forced payments.19 29 We, cannot lightly discard settled anti-assignment statutes substantive meaning. goes far beyond garnishment. "legal anticipated." make judicial relies line authority did claims: "Venerable worthy is, not, we think likely justify specific recognition particular needs, cases." 660, 400. 31 Now written same distinction drew amending existing 462, expressly facilitate decline so, claims. history sparse mention Wissner.20 know, help get off welfare. therefore conclude adopting family's deflected goals, need, so. B 32 intact pursuing (1974). presently compensate As counsel bluntly put wants house. 5. adopted. 33 award, upset impair economic surely deduction check. harm might greater. "anticipated." Legislative throws little light word.21 trusts, commonly understood mean "the certain date." E. Griswold, Spendthrift Trusts 512, p. 583 ed. 1947).22 respects. If definition applied here, improperly anticipate allowing date set accrue. threatens corresponding frustration policy, loss wealth caused offset. If, example, dies collecting heirs beneficiaries suffer extent offset exceeds lump-sum death provides. 231e. Similarly, leaves retirement, fails meet "current connection industry" requirement 231a(b)(1)(iv), never fully regain third possibility, alter eliminated double accruing 1982.23 past settlements change multiple penalty future recipients. expectations, obvious purpose. preserves freedom amend serves much function frequently stated understanding convey changed without taking violation Fifth Amendment. Richardson Belcher, 80-81, 92 254, 256-257, (1971); Flemming Nestor, 363 603, 608-611, 80 1367, 1371-1373, 1435 (1960); Ruhl 342 F.2d 662, 666 (C.A.7), 836, 81, 78 (1965). IV mindful increasingly American becoming frequent. burden onerous who, own amendments, purposes need. find drawn undesirable. Indeed, recently legislation allow Civil Service purposes. 95-366, 600. 36 For present, promises diminish said go retired alone,24 penalize whom sought protect. thus causes province strike different struck. 37 judgment remanded further proceedings inconsistent opinion. 38 ordered. 39 STEWART, REHNQUIST joins, dissenting. 40 asked treating divorcing husband's 1974. There doubt free treat Herb Pitcairn, 324 117, 125-126, 462-464, 89 789. only question, therefore, something act normal wife. From apparent me law—far being grounded concrete expressions ordinarily finding pre-emption, see, 424—is patched together relationship rights. "policies" perceives commonplace provide income simply nothing suggest meant insulate incident 41 acts, "against background corpus juris states." Wallis Pan Petroleum Corp., 384 63, 1301, 1304, (citation omitted). where essential understand what is. Perez Campbell, 402 637, 644, 1704, 1708, 233; Merrill Lynch, Pierce, Fenner Smith, Inc. Ware, 414 383, 348. Although arises context Despite repeated suggestions contrary, body "benefit" "Community wife whereby common halves." W. deFuniak Vaughn, Principles Property 1971) (hereinafter Principles). recognized 693 A.D. Visigothic Spain, id., 3, now prevails Union. many times past, reflects entirely Poe Seaborn, 282 101, 51 58, 75 239; Bender Pfaff, 127, 64, 252; Hopkins Bacon, 122, 62, 249; 404. generally Principles. Fundamental premise partners Id., 5; Reppy deFuniak, (1975). Each deemed enterprise, shares assets. 11.1, 28. 43 Spanish ganancial followed termination 1; Prager, Persistence Separate Concepts System, 1849-1975, UCLA L.Rev. All presumed 251-252. presumption regarded rule procedure evidence. Nilson Sarment, 153 524, 96 P. 315. Cf. supra. general, stems "irrespective acquisition condition title" absence agreement 6. contributed regardless actual formally "earned" Ibid.1 "during continuance relation interests." 5105 Supp.1978). Upon possesses one-half interest. 251-252; Marriage 848, 126 633, 567. share assets, then, settlement merely distributes which, virtue already owns. contrast, spouse—even marriage—is continuing other. long some reasonable future, attach "vested." Ibid. Pension legislature treated courts,Cheney City San Francisco, Cal.2d 565, 61 754, Fithian, 592, 111 369, 517 449, civil Peterson, 642, 115 184. having policies arguably "vested" make. Court, can, consistently follow dealing prospective 46 clear established purport regulate perceived 390; New York Dept. Services Dublino, 413 405, 423 n. 29, 2507, 2518, 688. regulates arrangements—matters traditionally local 588-594, 500; De Sylva Ballentine, 351 570, 580, 76 974, 100 1415—state "should overridden National Government, served interests, major damage applied." 507 (emphasis added). full force applies less consists 580-582, 979-981. 1304. 47 Consistently principle, pre-empted depended governing involved and, well, application substantially disserve demonstrable policies. 424; 180. Life Insurance policy assumed decedent soldier had, obtaining wife's consent, designated mother father primarily section gave insured "right designate insurance" "at times" change" designation. 802(g) (1946 ed.). "spoken clarity" directing belong "named 658, onehalf said, nullify soldier, 659, 400, "enhanc[ing] morale serviceman," 401. noted state-court judgment, "diversion payments" soon beneficiary, protecting "seizure beneficiary." treasury "or" regulations explicitly survivor directive coupled establishing uniform bonds, sufficient Essential pre-emption Bland asset directive, defined conflicted principles variance law.2 "force contains basic themselves neutral. 231a(a)(1), defines eligibility requirements annuity, 231b, computation annuities, "of individual" indication wholly unremarkable. "title" cannot, more, taken disturb obtains titled 52 structure To sure, chosen additional workers. 231a(c)(3)(i), These provisions, treats community. rule, interest—apart fact attaches performed indicate intent displace demonstrates quite clearly 1951 respond greater needs married. H.R.Rep.No.976, 82d Cong., 1st Sess. (1951); U.S.Code Cong. Admin.Service 1951, 2529. original length salary, status retirement. Report Commission Retirement, H.R.Doc.No.92-350, (1972). increased amounts families increase level families, ordain family. 53 provision. states: 54 55 Yet certainly speak annuities payments. often included spendthrift seems creditors. ed.1947). relevance community.3 another's creditors; co-owners. community, divided, adjudicated indebtedness. "garnishment" "attachment" bears action enforce decree. govern remedies, rights, remedies unavailable "belongs" claimant. J. Rood, Law Garnishment (1896); S. Kneeland, Attachments (1885).4 "assignment" irrelevant case. another. interest—from moment arose—belonged parties 97. 57 reasons places great reliance "garnishment," "attachment," does, discern clause prohibiting "anticipation" demonstrably relevant provisions. 58 acknowledges, explain restraint assumed, operate, law,5 trustees fund compelled periodic statute. 512. import procedural, substantive. permits yet out currently available. securing similarly prevented "anticipating" ignores wording payment" annuity. considers satisfies ordering "payment." accordingly, impact incompatible anticipation" preserve "freedom Act." reduce system. Unlike 1435, permitting discretionary H.R.Rep.No.1711, 74th Sess., 10-11 (1935). drafters features plan guarantee "absolute" pension. 11. provision—included 1935 version Act—had whatever possibility try Whether properly Finally, "regain" But difficulty becomes imaginary understood. referred time current still working dissolved, obligated give heed appraising occasional problems assessing precise property—problems routinely deal—cannot basis pre-emption.6 withdraw Believing, I do, making, respectfully dissent. Tax 3201-3233. 1934 unconstitutional ground took Amendment exceeded Interstate Commerce Clause. Board Alton R. Co., 295 330, 758, 79 1468 promptly enacted spend promote 967 974. operation enjoined. Co. F.Supp. 955 (DC1936). Presidential intervention extensive negotiation, bill produced became 1937. 307. conform 1970 study actuarial soundness submitted report, System: Coming Crisis, H.R.Doc.No.92-350 Further 55-75; Hearing Women Subcommittee Income Employment Select House Committee Aging, 94th (1976) (Hearing Retirement). (1972); Skolnik, Restructuring Soc.Sec.Bull., 4, 231a(c) provides: amend, repeal [Act] reserved Congress." 648, While incorporate language, definitely indirectly, minimum goal union negotiator testified, sure annuitant gets pension." Hearings S.2395 Senate Commerce, 75th (1937) (statement George Harrison, president Brotherhood Railway Clerks). consent reads entirety: effective January moneys remuneration employment) from, by, (including agency instrumentality corporation) individual, including members armed services, subject, person, enforcement, payments." reads: term 'alimony', used reference same, maintenance (or spouse) (subject accordance law) to, maintenance, pendente lite, support; attorney's fees, costs recoverable decree, order, issued applicable competent jurisdiction. 4800 Supp.1978); 1971). Only minority adhere strictly alone controls Foster Freed, Survey Matrimonial Laws States: Distribution Dissolution, Comm.Prop.J. 231, 232 Reporter's transcript appeal D 860954 (Super.Ct. Angeles) 23; 32. Petition LA 30712 (Cal.Sup.Ct.) 14. 419 825, 41, (1974) (federal pay); cf. 561 (nonvested employer's plan); Martin, Spouses, 63 Cornell 789, 830-836 (1978); Reppy, Interests Pensions Brown ERISA, 417-421, 429-443, 483-511 (1978) (discussing cases) Pensions). Texas Compare Allen Allen, S.W.2d 312 (Tex.Civ.App., Houston, 1962) Eichelberger Eichelberger, 557 587 Waco, 1977) (writ dismissed). named "shall exempt liable levy, seizure whatever, 609, 454a Senator John F. Kennedy described floor Senate: "[The amendment] unemployment taxation, clarification inadvertent oversight year's doubts raised 101 Cong.Rec. 11772 (1955). S.Rep.No.1040, 84th 9-10 (1955); S.1589 Labor Public Welfare, 29-30 (1955) (remarks Lester Schoene, representing railway organizations). Rev.Rul. 70-343, 1970-2 Cum.Bull. 1972 employment, 1.68 million World War II, fallen 582,000 quarter system's outnumbered contributing. suggested consumed 1988. pp. 10, 12, LaFarr LaFarr, 132 Vt. 191, 315 A.2d 235 (1974); Heuchan Heuchan, Wash.2d 207, 228 470 Commonwealth Berfield, 160 Pa.Super. 438, 523 (1947). (Before revision exemption codified 228l. 228l (1970 ed.).) dissenting opinion, post, 598-600, co-owner. Surely, inability use whatsoever" severe limitation otherwise overrides package measures combat increases resulting compel solvent unwilling parents. S.Rep.No.93-1356, 42-43 Admin.News 8133. section's adoption, disagreed Stelter, 553 227, 229 (Tex.Civ.App.1977), rev'd, 567 797 (Tex.1978); Williams Williams, So.2d 869 (Fla.App.1976), Marin Hatfield, 546 1230 (C.A.5 1977); Kelley 425 181, 183 (W.D.La.1977). resolved Report, S.Rep.No.94-1350 Nunn clarify explained why divisions excluded. 123 12909-12914, 12958-12959 Companion procedures efficient, 303 Consumer Credit Protection 1673(b), pre-empt limiting garnishments 65% Pub.L.95-30, V., 501(e)(2), 161. contained "nor June 27, ch. 868, 11, 1288. quoted explanation carried later re-enactment Aug. 1935, 812, 973; 24, 1937, 316; Oct. 16, Pub.L.93-445, 14, 1345. Reports mentioned hearings, H.R. 6956 Foreign 69 (1937); S.3151 identical Unemployment 1096, amended, 352(e). Hetrick Reading (NJ 1941), sense. defendant employer tort plaintiff 231b(f)(2); S.Rep.No.93-1163 H.R.Rep.No.93-1345 5702. catalog uncertainties surrounding 529-533. Different considerations remained silent regulates. Employee 829, 1001 Our intimates concerning possess distinctive characteristics. relative parties. early compilation law: "Although realty personalty, let fruits both." Novisima Recopilacion, Book 66, 143 72. "more parallel" 237, Bland. Ante, 582. McCune, rigorous articulated cases. laws, filed died intestate issued. daughter. Two Homestead completing One fulfill patent. 388, 389, 79-80. Another fee "inure of" dead. 80. Noting "[I]t requires exercise ingenuity establish uncertainty provisions," Washington "express" "clear." 424, contrary. proceeds. serviceman's unrestricted "controlling" 399. owed garnish hardly transforms bear 659 dependents parents rolls. With actions enforcement family-support waives statutes. statement affect various systems. "in settlement." face, amendment, truism. settlement. sponsor's clarify. 12913 acknowledges construed encompass awards. 20. infer, restating quell unnecessary litigation. Whatever purpose, Addressed waiving Government suit, claimant proceed directly type developed late 18th century estate woman. Hart, Origin Restraint Anticipation, L.Q.Rev. 221 (1924). trustee making honoring forcing dissolving protection. trust, preventing derogation restrictions instrument. 512 observes exceed lump-sump die

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