Document: 443 U.S. 1 99 S.Ct. 2612 61 L.Ed.2d 321 Alan MACKEY, Registrar of Motor Vehicles Massachusetts, Appellant,v.Donald E. MONTRYM, etc. No. 77-69. Argued Nov. 29, 1978. Decided June 25, 1979. Syllabus A Massachusetts statute mandates suspension a driver's license for refusing to take breath-analysis test upon arrest operating motor vehicle while under the influence intoxicating liquor. The must order 90-day receipt police report licensee's refusal such test; licensee, after surrendering his license, is entitled an immediate hearing before Registrar. Appellee, whose was suspended statute, brought class action in Federal District Court alleging that unconstitutional on its face and as applied it authorized without affording him presuspension hearing. held appellee matter due process some sort hearing, declared violative Due Process Clause Fourteenth Amendment, granted injunctive relief. Held : not void Clause. Cf. Dixon v. Love, 431 105, 97 1723, 52 172. Pp. 2617-2621. (a) Suspension statutorily defined cause implicates property interest protected by Resolution question what protect against erroneous deprivation protectible requires consideration (i) nature weight private affected official challenged; (ii) risk consequence summary procedures used; (iii) governmental function involved state interests served procedures, well administrative fiscal burdens, if any, would result from substitute sought. Mathews Eldridge, 424 319, 96 893, 47 18. 2617-2618. (b) Here, neither involved—the continued possession use pending outcome him—nor compels conclusion are unconstitutional, particularly view postsuspension immediately available fact maximum only 90 days. (c) Nor error inherent procedure so substantial itself require departure "ordinary principle" "something less than evidentiary sufficient prior adverse action." supra, U.S., at 113, S.Ct., 1728. observation or deliberate misrepresentation reporting officer facts forming basis insubstantial. When there disputed facts, statute's initial reliance officer's representations Commonwealth stay hand any necessary resolve questions credibility conflicts evidence. 2618-2620. (d) Finally, compelling highway safety justifies making effective prompt Such substantially because acts deterrent drunk driving; provides inducement test, permitting obtain reliable form evidence subsequent criminal proceedings; summarily removes road licensees arrested driving who refuse test. Conversely, undermine Commonwealth's public giving drivers incentive demand dilatory tactic, which turn sharp increase number hearings sought thus impose burden Commonwealth. answer promoted sanction could be other ways. has right offer incentives taking and, exercising powers, required adopt "all nothing" approach acute hazard posed drivers. 2620-2621. 429 F.Supp. 393, reversed remanded. Mitchell J. Sikora, Jr., Boston, Mass., appellant. Robert W. Hagopian, Cambridge, appellee. Mr. Chief Justice BURGER delivered opinion Court. presented this appeal whether liquor Amendment. 2 Commonly known implied consent law, provides: 3 "Whoever operates [public] way . shall deemed have consented submit chemical analysis breath event he If person refuses analysis, having been informed operate vehicles commonwealth period ninety days refusal, no made, but whom made prepare written refusal[, which] endorsed third witnessed refusal[,] sworn penalties perjury made[,] set forth grounds belief had liquor, refused requested do so. Each chief sent forthwith registrar. Upon report, registrar suspend permit issued days." Mass.Gen.Laws Ann., ch. 90, § 24(1)(f) (West Supp.1979). 4 * While Acton, Donald Montrym collision about 8:15 p. m. May 15, 1976. arrival scene accident Acton observed, wrote "glassy eyed," unsteady feet, slurring speech, emitting strong alcoholic odor person. 8:30 endanger, failing produce registration request. then taken station. 5 There, asked examination 8:45 He so.1 Twenty minutes shortly consulting lawyer, apparently retract asking administer declined comply with Montrym's belated leaves discretion once refused: "If refusal." (emphasis added). arresting completed events, including 6 As mandated recited supporting arrest, examination. perjury, another present when counterendorsed police. pursuant statute. 7 On 2, 1976, court dismissed complaint liquor.2 Dismissal predicated request dismissal cryptically recites: 8 "Dismissed. Breathalyzer within 1/2 hr See affidavit & memorandum." 9 According incorporated reference court's order, visited attorney 9:05 o'clock night arrest; counsel, police, however, requests counsel between 9:07 10:07 10 advised letter charge license. Enclosed copy attesting refusals However, did enclose certified dismissing charge. 11 Registrar, discretionary authority statute,3 formally 7, notice stated issuance directed return once. It suspension.4 12 received notice, meaning surrendered mail 8, 13 Under obtained time license; resolved all existed suspension.5 For reasons explained, presumably advice failed exercise Registrar; instead, took Board Appeal. 24, Appeal July 6, 14 Four later, reiterated acquittal driving-under-the-influence charge, asserted finding binding first holding violated process. contain threaten suit were returned immediately. Had enclosed drunken-driving entire might disposed stage more. 15 Thereafter, forgoing scheduled convening three-judge United States alleges opportunity temporary restraining enjoining compensatory punitive damages, declaratory relief behalf persons licenses 16 9, single Judge further court. Subsequently, convened 28 U.S.C. §§ 2281 (1970 ed.), 2284, moved partial judgment stipulated facts. 17 With one judge dissenting, motion. Relying principally Court's decision Bell Burson, 402 535, 91 1586, 29 (1971), concluded contest allegation In April 4, final 12, Fed.Rule Civ.Proc. 23(b)(2) Clause, permanently enjoined enforcing plaintiff members. Panora, 393 (Mass.1977). 18 After timely appeals orders, modification judgment, motions denied. release our 172 (1977), upholding constitutionality Illinois authorizing reconsideration judgment. 19 second October 1977, reasoned Love distinguishable several denied Registrar's motion reconsider; dissenting thought controlled. 438 1157 20 We noted probable jurisdiction following submission supplemental briefs parties. Sub nom. Panora Montrym, 435 967, 98 1603, 56 58 (1978). reverse.6 II 21 concedes here interest;7 accordingly, interest. inquiry factors: 22 "first, will action; second, through used, value, additional procedural safeguards; finally, Government's interest, burdens requirement entail." 335, 903, (1976). 23 Applying balancing F.Supp., 398-400. Later, control. potential irreparable personal economic hardship regarded greater statutory scheme scheme; more well; requiring suspending believed offend safe highways. 1159-1161. 24 conclude cannot materially distinguished case us. Both cases involve pre-suspension each, sole appropriate timing legal licensee. And, both cases, determined factors Eldridge. A. 25 step Eldridge identification challenged. vehicle. More particularly, him. we recognized one, able make driver whole inconvenience suffered reason delay redressing review procedures. 26 But, however may be, surely Love. actually substantial, authorizes days, permitted long year even allowed possibility indefinite revocation 27 To sure, contained provisions unavailable Though adverted existence they sense "controlling" factor them be. 1159. Hardship demonstrated eligibility 114 n. 10, 1728 10. bearing stemmed providing unlike situation initiated simply walking into local offices requesting contrast, mandate date until driver. Id., 109-110, 1726. duration potentially wrongful important assessing impact involved. Fusari Steinberg, 419 379, 389, 95 533, 539, 42 521 (1975). failure consider relative length periods bar, timeliness driver, erroneous. Neither nor contrary reached B Because primary minimize decisions. Greenholtz Nebraska Penal Inmates, 442 1, 12-13, 2100, 2106, 60 668 (1979); Addington Texas, 441 418, 423, 1804, 1808, 323 (1979), likelihood used. although aspect assessment reliability used sought, never construed guard "property" "liberty" comprehensive preclude error. does decisionmaking standards assure perfect, error-free determinations. 2103. Thus, though tradition regards adversary best means ascertaining truth minimizing error, established decisions postdeprivation correction generally predeprivation designed provide reasonably concluding justifying responsible warrants See, e. g., Barry Barchi, 55, 64-65, 2642, 2649, 365 334, 902. 30 predicates objective either knowledge impartial government readily ascertainable Cause arises intoxicant, exists inevitably officer; indeed, two officers. At very least, ordinarily provided informal tell side story here, observe condition behavior effecting arrest. 31 Court, precede suspension, overstated corroborated law enforcement officer. triggers trained observer investigator. is, training experience, suited role accords personally subject civil liability unlawful willful every ascertain accurately truthfully specific dictates shaped "the truthfinding generality cases" rather "rare exceptions." 344, 907. ordinary seems 32 Moreover, illustrates, rarely genuine dispute historical suspension. significant arrested, initially allegedly "factual" claims constitutional raise really presents law; namely, later collateral estoppel; so, undermines validity justified solely notwithstanding honor test.8 authority, people drunken drivers, record content bloodstream earliest possible moment. 33 disputes arise, persuaded 2649. All seeks believe "same day" 24(1)(g) appropriately licensee clerical errors, seek resolution factual raises accuracy refusal. 34 avowedly "nonevidentiary" contemplated enhance Clerical errors deficiencies course, called attention respond writing But genuinely material already course report. Just power complies requirements, defective. Necessarily, then, independent scrutiny. This detached should suffice type corrected something 35 purpose alerting futility, begs suggest, given discretion. Legislature determination case-by-case basis. removed place operative officer, treat requirements presumptively accurate raised Simply put, position probable-cause say legislature's irrational. 36 summary, chosen legislature us depart fail see how enhanced mandating "hearing" C 37 leg identify involved; also, weigh balance 38 enacted aid protecting people. observed paramount preserving highways, standing alone, fully distinguishes 1589, principal reliance. 114-115, 1728, 1729. traditionally accorded states great leeway adopting health safety. least much removing their highways seizing mislabeled drugs destroying spoiled foodstuffs.9 E.g., Ewing Myitinger Casselberry, Inc., 339 594, 70 870, 94 L.Ed. 1088 (1950); North American Storage Co. Chicago, 211 306, 101, 53 195 (1908). 39 those ways First, serves driving. Second, effectuates obtaining relevant proceedings. Third, promptly road, contributes 40 automatic character critical attainment these objectives. tactic. arising availability generate therefore 114, 41 Commonwealth, policy own, elects not, erroneously suggested, plainly most intoxication Indeed, many results lead being "drunken driving" issue. hazards conclude, available. 43 Accordingly, reversed, remanded proceedings consistent opinion. 44 ordered. 45 STEWART, BRENNAN, MARSHALL, STEVENS join, dissenting. 46 case, losing three months penalty constitutionally away. suspensions effected strength policeman's recounting version encounter motorist. 24(1)(f), afforded opportunity, occurs, forum entitlement concededly imposed emergency measure remove unsafe roads, induce tests. short, noncooperation my view, elemental principles forbid State extracting heard. Our 172, clear person's away satisfying guarantee And always understood embody presumptive meaningful heard finally deprive property. Mullane Central Hanover Trust Co., 313, 652, 656, 865; Fuentes Shevin, 407 67, 82, 92 1983, 1995, 556; Boddie Connecticut, 401 371, 378, 780, 786, 113; 542, 1591; Memphis Light, Gas Water Div. Craft, 436 16, 19, 1554, 1563, 1565, 30. 48 settled principle ensure threatened loss neutral decisionmaker "at can still prevented." 81-82, 1994. protects decision. also "vulnerable citizenry overbearing concern efficiency characterize praiseworthy officials mediocre ones." Stanley Illinois, 405 645, 1208, 1215, 551. 28, 1566 28. act dealing purports "individual case" protection offends concept basic fairness underlies guarantee. 49 irreversible—as shortened undone—the kind takes effect important. fundamental "except situations" afford termination becomes effective. 1591.1 Bell, purporting part fault, exclude element fault dimensions may, vary depending affected, adequate supra; 334-335, 902-903, adjudicative involved, valid demonstrably disserved delay, full retroactive provided, after-the-fact issue sufficient. CompareMathews supra. 50 contrary. repeat traffic offender cumulative convictions suspensions. stressed contested followed securing previous convictions. Instead, merely appear advance ask leniency. circumstances, permissible, "appellee judicial connection each based." id., instance virtually automatically duly offenses. broad exception normal presumption favor 1565 24. 51 likens analogy drawn. contrast affords allegations based. Those hardly equated routinely kept records serious offense premised reasonable intoxicated; proper indeed car struck rear motorcycle, intoxicated. admitted consistently contended sanction, vigorously said informed. His claim soon learned inadvertence test—was accepted subsequently clearly case. That dispute, concerned suspension—in demand. suggests nonetheless "fact" bases somehow routine, objective, equivalent maintained I find equation highly dubious. Initial deprivations liberty based ex parte determinations are, unusual, Gerstein Pugh, 420 103, 854, 54; magistrates relying properly affidavits determine search likewise commonly made. Aguilar 378 108, 84 1509, 723. practices, extent property, necessitated exigencies enforcement. They supply support proposition proceeding, ample give owner decisionmaker. 54 vast difference adjudicated motorist relatively uncomplicated unquestionably officer." Ante, 2619. yet hold citizen reliable.2 55 am infrequency successfully show excuse need wishes challenge. classically factfinding, involves issues veracity. 343-344, "opportunity story" officer," ante, 2619, seriously "meaningful heard" sense. There escaping supplies comes effects proceeding restore. 340, 905.3 urged, agree, 2620-2621, nevertheless State's doubted "removing road" significant. precedents turned significance asserted. contrary, relied frustrated (allegedly food), cited n.1, irresponsible swiftly possible. submits fails it, keeps license—a wholly odds notion protective purpose. obviously intoxication, 57 justification scheme, recognizes, 2621, lies unremarkable idea Related argument suggestion encourage "dilatory" costs generating "sharp hearings." 2621. sum, defends essential enlist cooperation cost-saving device. accept argument. 3-month alone promote widespread realize favor. ability ultimately depend swearing deck stacked heavily point lost boils down thesis deck. room system. free manipulate Amendment rights coerce compliance substantive rules, rules tactics motorist, true human nature, inconsistent simple "person" heard, deprived State. too familiar arguments regularly rejected dispensing guarantees criterion, protections read out Constitution. Happily, Constitution recognizes higher values "speed efficiency." 1215. 59 satisfies large assumption assuming situation, so-called "prompt postsuspension" remedy far tell, largely fictional. notify remedy.4 remedy, exists, safeguard. Only last Term reaffirmed "reasonable" integral 13-15, 1562-1563. established, 314, 657, honored it. Quite apart inform "walk-in" cannot—as recognizes—provide contests hearing" presence filed witnesses wish call. mechanism scheduling hearing.5 little meantime, continues, founded technically correct Registrar—according own description scheme—quite possibly 2619 8. "legal" perceives case,6 For, eligible minimally satisfy demands process, 18, 1564.7 D 62 subscribed general "that wrong done undone," 647, 1210. should, opinion, enchanted satisfied undone all, limited duration. Even day's inflict grave injury depends automobile employment job. 63 mean importance testing effort identify, prosecute, rehabilitate alcohol-ridden cannot, agree permissible method affidavit, suspended, cooperate State—in view—has totally demonstrate falls respectfully dissent. deny mandatory statute; asserts warning. acquitted driving-to-endanger found guilty fined $15. part: "Upon [or refusal], Supp.1979) Gen.Laws 1969), aggrieved ruling Appeal, affirmed, modified, annulled. turn, Board's review. 30A, 1979). 1969) "Any paragraph (f ) issues: (1) , (2) placed (3) analysis. If, finds negative, reinstate operate." parties, moment surrenders represented counsel. request, examine 24(1)(f). adjourned sua sponte attendance gathering Witnesses cross-examination attorney, notice. occur pessimistic account intervening weekends, class-wide relief, "as applied" challenge complaint; we. challenge, remand light Also, framed pleadings decided Court; observations post, 2626. applies state's 112, 1727, (1971). An ill law. plenary questions. Ultimately, courts Drunken accounted 283 884 fatalities during 1975 countless injuries App. 31. killed alcohol-related accidents tragic DC-10 crash O'Hare Airport Traffic deaths exceed 50,000 annually States, approximately one-half alcohol related. Dept. Transportation, 1977 Highway Safety Act Report A-9 (Table A-1); Health, Education, Welfare, Third Special Alcohol Health Emergency situations swift health, safety, revenue integrity institutions. Union Garvan, 254 554, 214, 65 403 (emergency wartime); Mytinger (seizure misbranded drugs); diseased poultry); Phillips Commissioner Internal Revenue, 589, 608, 75 1289 (effective tax collection); Fahey Mallonee, 332 245, 67 1552, 2030 bank management); cf. Goss Lopez, 565, 582, 729, 740, 725 (to institution continuing danger). Freedman, Crisis Legitimacy: Administrative Government (1978); L. Tribe, Constitutional Law 10-14 Contrary suggestion, precedential Massachusetts. disability-benefit upheld "ex " recipient extensive submissions 345, 907, 908. Given amenability presentation posttermination heard—albeit writing—was stresses futile since emphasizes reflects "rational" legislative choice. 2620. choice dispense equal "rationality" safeguards controlling. suggesting per se argument, strange context expressly alleged admissible prosecution 24(1)(e) parties practice schedule "walking in" Registry Office. mentioned "an appeal" Vehicle Liability. unexplained appellee's putative 2615-2616, lie right. obvious suggested routine notified summons set, notified, proceeding. identified delayed penalty. arise attributable sanction. claimed, happened, improper legally justify appears "assured disposition outstanding [him] State." 66, 2650, precise infirmity led sustain horse trainer trainer's racing showing drugged race. "appeal" afforded. specify begin, stayed review, reach Further, apparent lack definitive in," "assurance" receive "trial level" examiner. 2617 unless "assured"

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