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(b) "'llllon.r II b.11l1 p'IlIUr.td1 I.colld limo for atllolll for wblcb bo bid
prnloully bllll p.naUud and/or WII lequllled oC thlrg.a.
(c) nollce 10 lb. public I, conlahlOd In lhe PcnnlylYlnlo Bullelln Vol. 24, No. 4.5,
Nov. 5, 1l)l)4, p. 5609, Indlcaled Ibll only ehargea of 'drunk drlYlnll' Ire
rnclprutol and Ihe charlll ...Inll Ibe defendanl did nol con,IIIUIe drullk
driving,
(d) nollfltlllun 10 Ihe public toneernln. reclproclly 05 well 05 lhe Drlyer Llc.n..
Compoct Ind Admlnillrlllv. Procedurn Mlnual, c1~arly Indlc'le Ib.1 driving
. mOlor vehicle while uoder Ihe Influente II Ilmll~d 10 lholt ch.rln which
Ipeclrlcolly Ire 'driving. mol!)r vehicle while und~r lhe Inrluence of .Icoholle
beyerlge, or I nlrcolle 10 I degree which render5 lh~ dri ver Incap.ble of ,.roly
driving a motor vehicle' DC whlth condlct the defendant wu nol sullty,
(e) the Penn5ylYlnll Bulletin, II well '1 lhe Drlv~r L1ten.. Comp.ct .nd
Admlnl51rlllve Procedurtl ManuIl, c1urly Indlcalta lhll Ibellcen51ng authority
In Ihe home 51 ale 5hlll give ',ucb errcet lolhe condUtl a5 15 provided by tbe IIW5
oC Ibe home 51 ale' Ind under tbe II WI DC Ibe home 511le your Pclllioner would
be ARD ellslble,
(f) lhe Driver L1cenlt Com pitt I. nOI belns enforced In Penn5ylvlnl. except for.
Cew vlollllon5 .nd 51ld enforcement therefore deni.. equ.t prol.clion and due
procen and hI' mulled In me..1 dele.lllon of aUlhorlly Ind IIlol'llon of Ilw,
2
961718918000106
You will be noUfied of anI/ outstandino rutoration re-
quirements approximatell/ 30 dal/s before the eligibility date
of the restoration of I/our driving privilege. You must fol-
low those instructions very carefully in order to have I/our
driving privilege restored.
You have the right to appeal the Department's action to the
Court of Common Pleas (Civil Division) within ~O dal/s of the
mail date (JUNE 28, 199(,) of this notice. PLi:Atll: NOTE thaI:
this Civil Appeal isln addition to any anpeal YOU have to
file from the criminal conviction. You must follow the in-
structions listed below according to your individual situ-
ationc
1. PENNSYLVANIA RESIDENT If you are a resident of
Pennsylvania, you must file an anneal with the Court of Com-
mon Pleas in the County of your /'esidel1ce. Sending a COPI/
of the appeal which you filod with the Court, to the Depart-
ment, will postpone the Department's action pending a final
decision by the Court if the appeal was filed within the re-
quired 30 days. However, if your privilege to operate (I
commercial motor vehicle has been DISQUALIFIED, a signed
supersedeas by the judge must accompany your appeal.
2. NON-RESIDENT - If you are not a resident of Pennsylvania,
you must file an appeal with the Court of Common Pluas in the
Pennsylvania County where the violation occurred. Sending a
COpy of the apoeal whicl1 you tiled wHh the Court, to the
Department, will posl:pone the Department's action pending a
fil1al decision by the Co"rt if the anpeal was filed witllin
the required 30 days.
THE APPEAL MUST BE SENT BY CERTIFIED MAIL TOc
PENNSYLVANIA DEPARTMENT OF TRANSPORTATION
OFFICE OF CHIEF COUNSEL
ROOM 103, TRANSPORTATION & SAFETY BUILDING
HARRISBURG, PA. 17120
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as mandated by 75 Pa, C,S. 51532(b) (3).
At the statutory appeal hearinq, DOT asserted its
authority to suspend sullivan's license based on the Nebraska
conviction under the Driver License Compact (Compact), effective
January 1, 19915, pursuant to notice published in 24 Pa, Bull. 5609.
Accordinq to DOT, the Compact authorizes tho home state to qive
ettect to the out-ot-state conduct es provided by the law. ot the
home state. DOT then moved to admit a copy ot the Nebraska
conviction report,
counsel tor sullivan objected to admission ot' the report
as inadlDissible hearsay because the document was not properly
certiried as required by 42 Pa, C.S, 55328(a), In addition,
counsel tor sullivan asserted the tollowinql 1r the notice
purported to suspend the license under 715 Pa, C.S. 51532(b) tor
violation ot 715 Pa. C,S, 53731, and sullivan did not violate that
sectionr 2) tor the notice to be valid, it must set forth the
authority under which DOT is proceedinqr and 3) DO'1' had no
authority to suspend sullivan's license under the Vehicle Code or
under the Driver License Compact, which has not been enacted into
law in the Commonwealth,
COJll.1Don Pleas sustained Sullivan's appee.l. The court
found that DOT's notice was dericient in that it tailed to set
torth the authority upon which 00'1' based the suspension, and it
tound that the Nebraska conviction report was -not properly
certitied, DOT appealed.
Our review ot a common pleas decision in a motorist's
2
statutory app.al trom suspension ot his or her operating privilege
is limited to determininq whether necessary tindings ot tact were
supported by competent evidence ot record and whether the trial
court cOMitted errors ot law or abused its discretion.
Commonwealth v, Dantorth, 1530 Pa. 327, 608 A,2d 1044 (1992),
Betore thil Court, DOT asserts 1) that the notice wal sutticiently
intormative to appris8 SUllivan ot the tactual and statutory basil
tor the IUlpension and to provide hilD with the opportunity to
adequately prepare a detense, and 2) that DOT's certitication ot
the Kebralka conviction report was admilsible as a DOT document
pursuant to 715 Pa. C,S. SlI5150(d),
DOT detends the adequacy ot its notice ot suspension on
due procesl grounds, but the issue is not precisely tramed in terml
ot due process, In substance, sullivan'S objection and the basis
tor his Itatutory appeal, is that DOT had no authority to suspend
sullivan'l license tor the Kebraska conviction either under 75 Pa,
C,S, S1532(b), as stated in the notice, or under any other law ot
the cOlDlDonwealth, At the statutory he/lrinq, when DOT first
revealed that it was proceedinq under the Driver License compact
(Kotes ot TestilDony at p, 2,), sullivan ilDlDediately asserted DOT's
lack ot authority to have entered into an interstate compact and
its lack ot authority to proceed under the compact, (Kotes ot
Testimony at p, 4,)
w. now consider whether DOT hu the authority (or
jurisdiction) to suspend a driver's license based on an out-ot-
stat. conviction pursuant to the Compact, The power and authority
3
to be exercised by adlDinistrative agoncies must be either expressly
conferred or given by necessary imp Hcat ion by the leg islature.
pepartJDJln.t......Jll_.tniliQlll1tlllttA.L.n!lllQ.IU':ce5 v. BlJtler COlJntv Mushroom
lAr.m, 499 Pa. 509, 454 ....2d 1 (1982).
Accordinq to DOT, the G~noral Asaembly, in 75 Pa. C.S.
56146, specifically authorized the Secretary ot Transportation to
enter into the Compact on tho Commonwea lth' s beha 1 t. That, section,
in pertinent part, permits the Secretary to
enter into agrenments relating to entorcement
ot tht. title, incLUding, but not limited tOI
(1) the Dr i ver License Compact and any
other agreements to notity any state ot
violations incurred by residents ot that
state;
(2) agreeme.nts to suspend or revoke the
operating privile7e of Pennsylvania licensod
drivers who are convicted in Federal court or
in another state ot any ottense flssentially
similar to those enumflrated in section 1532(a)
and (b) (relating to revocation or suspension
ot operating privilege);
75 Pa, C.S, 56146, "All agreements, arrangelDents and declarations,
and amendlDents thereto, shall be in ~riting and shall be published
in compliance with Part II of T.\Ue 45 (relating to publi.cation and
etfectiveness ot CODlDlonwealth documents), The department shall
provide copies tor public distribution upon request.'1 75 Pa, C,S.
56152,
Although 75 Pa, C,S, 56146 does specitically mention the
Compact in its grant ot authority to enter into entorcelDent
agreements, that authority is insufticient to give the COlDpact the
ettect ot law, A state can delegate to an administrative agency
the authority to enter into an interstate COMpact, but a etate may
4
join a compact only in the manner specified in the compact.
Participation in the Driver License Compact is only by
enactment. Article VIII of the Compact pL'ovidn, "(1) This compact
shall enter into force and become effective as to any state when it
has enacted the same into law[,]" and "(2) (a]ny party state may
withdraw from this compact by enactin<J a statute repealing the
.a=.",." The Driver License Compactl Administrative Procedures
Manual 4-5, U,5, Dep't of Transp, (1990). A history, published as
AppendiX E of the Admir.istrative Procedures Manual, characterizes
the Compact as "(a)n interstate compact ,.. a formal and
contractual agreement between two or more States, .,. enacted into
state law in each participating jurisdiction, usually with
identical wording," IlL. at 37. Participation in the compact must
be effected by enactment, and the compact, by its own .terms, is not
effective until it is enacted into law,2
2 Enactment is "[t)he method or process by which a bill in the
Le<Jislature. becomefl a law," Black's Law Dictionary 472, (5th ed.
1979), All participating states have enacted the compact into law:
Ala, Code 5532-6-30 - 32-6-36 (1975); Ariz, Rev, stat, 5528-1601-
28-1605; Ark, Code 5527-17-101 - 27-17-106; Cal, Veh, Code 515000
et. .eq, (West); Colo, Rev, stat, 5524-60-1101 - 24-60-1107; 1992
Conn, Acts 92-186 (Reg, Sess,); Del, Code tit, 21, 58101; D.C, Code
5540-1501, 40-1502 (1981); 23 Fla. stat, Ann, 55322,43-322.48
(West); Haw, Rev, Stat, 55286C-1, 286C-2; Idaho Code 5549-2001 -
49-2003; Ill, Ann, stat, ch, 625, para, 5/6-700 - 5/6-708 (Smith-
Hurd); Ind, Code Ann, 559-28-1-1 - 9-28-1-6 (West); Iowa Code
55321C,l, 321C,2; Kan, stat, Ann, 558-1212 - 8-1218; La, Rev, stat,
Ann, 5532:1420-32:1425; He, Rev, stat, tit, 29,55631-675; Hd,
Transp. Code 5516-701 - 16-708; Hinn, stat, 55171,50-171,56; Hiss,
Code Ann, 5563-1-101 - 63-1-113 (1972); HO, Ann, stat, 55301,600-
302,605 (Vernon); Mont, Code Ann, 5561-5-401 -61-5-406; 2A Nob,
Rev, stat, app. at 840 (Reissue 1985); Nev, Rev, stat, 55483,640-
483,690; N,H, Rev, stat 5263,77; N,J, stat, Ann, 5539:50-1 - 39:50-
14 (West); N,M, stat, Ann, 5566-5-49 - 66-5-51 (Hichie 1978); N.Y.
Veh, 'Trat, Law 5516 (HcKinney 1989); N,C, Gen, stat, 5520-4.21-
20-4,301 Ohio Rev, Code Ann, 54507,60 (Baldwin); Okla, stat, tit.
S
In contrast, Florida's Nonresident Violator Compact, 23
Fla. stat. Ann. 55322.49-322,150, which follows the Florida Driver
Lioense Compact in the Florida statutn, provides for participation
by resolution,
Article VII of Florida's Nonres ident Violator
Compact states that entry into the compact is made by resolution of
ratification, executed by authorhed official. of the applyinq
juri.diotion, and includinq a citation of the authority by which
the jurbdiction is empowered to become a party to the compact. 23
Fla, stat. Ann, 5322,150. If the Driver License Compact provided
for .uch a procedure, other than enactment, the authorization in 715
Pa, C.S, 56146 would be sufficient to pet'1llit DOT to join the
Compact by aqreement/ however, it doe. not,
The Commonwealth's attempt to participate in the compact
without enactment threaten. the compact'. effectivene.. in other
state., Decisions from jurisdictions where the Compact ha. been
enacted illustrate the kind of problems that can arise when the
Compact has not been enacted in the reportinq .tate, In PeoDle v,
siems, 1523 N, E, 2d 727 (Ill. App, ct. 19118), an I11inoie appeals
court refused to uphold a license suspension based on a Kentucky
conviction because Kentucky had not enacted the Compact. In
McKenzie v, Reaistrar, No, 95-01-005, 1996 Ohio 1.pp, LEXIS 854
(Ohio Ct, App, Mar, 5, 1996) (per curiam), the court reached the
47,55781-788/ Or, Rev, Stat, 5802.540/ S,C, Code Ann, 5556-1-610 -
56-1-690 (Law, Co-op, 1976) / Utah Code Ann, 5541-2-501 - 41-2-506
(1953)/ Vt, stat, Ann, tit, 23,553901-3910/ Va, Code 5546,2-483 -
46,2-488 (1950) / Wash, Rev. Code Ann, 5546,21.010-46,21,040 (West) /
W, Va, Code 55178-11.-1, 178-11.-2 (1986) 1 Wyo, stat. 5531-7-201, 31-
7-202 eli77) ,
6
sams conclusion, aqain based on ~entucky not havinq enacted the
Compa ct. I n DiY 1 s1 on...2t...ll:9.tQDJlbW.u-v..o.-K.WnU.t., 4B 6 '\. 2 d 13 24
(tLJ. Super, Ct. ,\pp. Div. 198~), the court ruched a contrary
conclusion, upholdinq a suspension based on a Vermont conviction
even though Vermont was not a member state, but only because
another Heli Jeney statute, other than the compaot, authorized
suspansion based on an out-of-state conviction,
The Compact's lanquaqe requirinq enactment is consistent
liith the commonwealth's established leqal principles. Article III
of the compact would have the effect of makinq an out-of-stata
traffic offense punishable within the commonwealth, ~ at 3, in
contravention of the well-settled rule that only the leqislature
has the power to define criminal at tenses and to determine the
punishment to be imposed.'
Hot only hu the Compact not been enacted in the
commonwealth, DOT has not complied with the procedures required to
qive ettect to reciprocal agreements authorized by 75 Pa, C,S,
56146, DOT has tailed to publish the Compact in compliance with
Part II of Title 45, lIB specified in 75 Pa, C.S. 56152, DOT
published a notice of its membership in the compact with a
synopsis, 24 Pa, Bull, 5609 (1994), The full text ot the Compact
has never appeared in the Pennsylvania Bulletin or in the
Pennsylvania Code; theretore, DOT is not entitled to the statutory
, Section 107 ot the crimes Code, 18 Pa, C,S, 5107, In
pertinent part, "(b) COUOD la. ori.e. abolhbe4.-- No conduct
oon.titute. a crime unle.. it is a crime under this title or
another .tatute ot this Commonliealth," 18 Pa. C,5, 5107(b) ,
7
pr..umpt1on of 4~ Pa, C. S, 590!! that the document wu duly
promu19ated and that all applicable requlations were tollowed.l
We are dhmayed with DOT'. lack ot candor durinq all
phasu of this litiqation. In its notice to SUllivan, DOT made no
mention of the Compact as the basi. Cor the license suspensionl
sullivan made hh appeal knowin9 that his Nebraska trartic
violation Will not a violation ot 7~ Pa. C.S. 51~32 (b), At the
.tatutory hearinq, DOT announced that it Will proceec:S1nq undet. the
compaot, citinq to the Pennsylvania Bulletin, DOT's brier to thi.
Court quotes liberally from the compact. At no time was the
Compact made part or the record in thi. caae, even thouqh the
CODlpact 11 not pub11lhed and is available to the public only
throu9h DOT. In wei9hin9 the Dlerits of the arquments, the Court ia
entitled to review the compact in its entirety, not just thou
provi.ions that DOT deems pertinent.
Because the Compact itself requires that it be enaotad
into law by the le9illlatures of all the participatin9 .tat.. and
because the commonwealth has never enaoted the compact, DOT 11
without authority to proceed under the Compact to suspend the
operator'a lic.nse of any Commonwealth resident ba.ed on an out-of-
state conviction tor any trattic otten.e, At the present time, DOT
may not suspend an operator's license billed on an out-ot-state
4 415 Pa, C,S, 59015 provides that publication ot a docUIIlent in
the code or the bulletin creat.. a rebuttable presumption that the
document was duly issued or promulqated, approved a. to legality,
and III requirements othen/i.. met. Even it DOT were entitled to
the pr.sUlllption, our conclusion that the Compact is invalid unle..
enacted ettectively rebut. th1l prelUJllpt1on,
8
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ClK2 A.2d 5 (I'u. l'l\\whh. I 99Cl).
5, Thll MINI1CI1NIlll1 which IN lhll NlIbjllClllf IhlN uppcullN bUNlld 11l1lhU I1rlwr'N 1.lcel1Nll
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6, Thll C'ol1llllol1\wulth ('<mrlol1 July 29. 191)6.111 51111/1'111/ I'. (,'1111/11/111/1"1'111,11 '!(
fll'lII/sylvcllllrl. f)"IWI'IIIIr!I/II!( 1hlll,Ij!I//'IllI/0I1. IJIII"'III10{OI'/w/' L!1't'IIS/I/II. ClK2 A.2d S (lln.
Cl1lwhh. 1996) hllld Ilmllhll DllpUrlmlll11 did llull1l1W uUlhol'lty 10 NUNplll1d U drlwr'N IlcllllNll
bUNlld 11I1UI10UHlf'NIUlll convlcllol1 PUI'NUUl1tlU Ihll Drlwr'N LlcllnNll Clll1lpUCI bllCUUNlllt hud nUl
blllll1 propcrly 11I1UCIcd 111101ul\'.
7, Thll Suprclllll COUl'l ucccplcd (lI'Illlol/fiw allol.'olll/' IlIcd by thll Dcpurtmenl.
K. Thll Suprclllll Court atllrl1lcd IhllOl'dcr Ill' Ihc COllllllol1l\'cuhh Cuurtll1 .\'1111/1'111/ v.
COlI/lllolIIVl'(/I,I/ r!/'PI'IImylwlIIllI. Ol'flO/'IIIII'III 1/1 Ti'/II/.Ij!o/'Irlllllll. 1110"'(/11 0{01'/I',,1' 1.In'l/s/IIII.
No. 0023 W.O. Appcul Dockct 1997.ln ul1oplnloll issued 011 Fcbruury 2C1. 199K,
9. Thll OCpUl1l11Cl1t hud 110 ulIIhority IU suspcl1d the lllolol'lst's operuling prlvllcge II11hiN
mUlIllr bCCUUNllthc COl11lllonl\'cullh had l1otpl'llpcrly cnaetcd Ihc Driver's Llccl1sc CUl1lpuel Ullhc
1111111 whcn Ihc Dcpurtllllll1tlOok Ihis UClilll1.
10. Thll COI1lIll11I1Wcuhh cnuclcd Intolul\' Ihc Driver's Liccnsc COl11puct by Scclllll1 10 of
Act of 1996. Dcc. 10. P. L. 925. No. 149. lltl'cClivc Dcccmbcr 10, 1996. Ul 7S Pu, C.S. ISH I-I SK5.
II. Thc cnuctl1lcl1loflho: Drlvcl"s Liccnsc COmptlCI hus no dfcct unlhls suspcl1sion
which was buscd upol1lhc Driwr's l.iCIlI1S11 CUl11pUel bct,)rc it wus Cl1uClcd, Scc MOI,t'I(/1/{1 I',
DI'(I(//'III/I'III (!/'T/,(/I/,ljlOl'lrlfloll. 701 A.2d 294 (Pu. Cwmth. 1997),
12. Thll mOlori~I's upcrating prlvilegc hus bo:cl1 rcstorcd pcnding appcul pUrSUUI1110
Scctlol1 IS50 oflhc Vchiclc ('ooc,
decide the iSllue of whether, Ilt the time of Sullivan I s license
suspension, Pennpo'r had the authority to /:luspond a driver's license
based on nn out-of-state conviction pursuant to the Driver License
compact of 1961 (Compact).
Because we conclude that, at the
relevant time, the commonwealth had not enllcted the Compact into
law, we affirm the Order of the Commonwealth Court.
FACTUAL AND PRoqnuRAL HIS'l'QB1
The compact is a contractual agreement among states intended
to promote compliance with each party state's driving laws and
regulations, Besides Pennsylvania, the Compact has thirty- nine
party jurisdictions (thirty-eight states and the District of
Columbia), each of which has enacted the compact into law by
statute.2
( . . _ continued)
or an adjUdication of delinquency based on section 3731 or 3733. .
. .
.5.'iUl A 1 a. Code ~ ~ 32 - 6 - 30 to 36 I Ad z. Rev. S ta t . U
28-1601 to 16051 Ark. Co'de H 27-17-101 to 1061 Cal. Veh. Code ~
15000 at saq" Colo. Rev. Stat. ~~ 24-60-1101 to 1107, 1992 Conn.
Acts 92-186 (Reg. sess.)1 Del. Code tit. 21, ~ 81011 D.C.Code ~~
40-1501 a,nd 1502; 23 Fla. Stat. Am.. ~~ 322.43 to 322.481 Haw. Rev.
Stat. H 286C-1 and 286C-21 Idaho Code ~~ 49-2001 to 2003; Ill.
Ann. Stat. ch. 625, ~ 5/6'700 to 7081 Ind. Code Ann. ~~ 9-28-1-1 to
61 Iowa Code ~~ 321C.l and 321C.21 Kan. Stat. Ann. ~!i 8-1212 to
1218, La. Rev. Stat. Ann. ~~ 32tl420 to 14251 Me. Rev. Stat. tit.
29, H 631 to 6751 Md. Transp. Code ~~ 16-701 to 708; Minn. Stat.
~~ 171.50 to 561 Miss. Code Ann. ~~ 63-1-101 to 1131 Mo. Ann. Stat.
~~ 301.600 to 302.6051 Mont. Code Ann. ~~ 61-5-401 to 4061 2A Neb.
Rev. Stat. App. at 840, Nev. Rev. stat. ~~ 483.640 to 483.690; N.H.
Rev. Stat. ~ 263.77, N.J. Stat" linn. ~~ 39t5D-l to 141 N.M. Stat.
Ann, ~G 66-5-49 to 511 N.Y. Veh. & Traf. Law!i 516, N.C. Gen. Stat.
~~ 20-4.21 to 4.30, Ohio Rev. Code Ann. G 4507.60 Okla.Stat. tit.
47, H 781 to 788, Or, Rev. Stat. G 802.540; S.C. Code Ann. 55
56-1-610 to 690, Utah Code Ann. G~ 41-2-501 to 506, Vt. Stat_ Ann.
(continued... )
[J-158-1997) - 2'
Article III of the Compact llrov.ldell that, II [tlhe licensing
authority of a par.ty Btata llhall report each conviction [for an
oHense rolatt;ld to thll use or oplilrat,ton of a motor vehl,cllil of a
perBon from another party atate occurring within ita jurisdiction
to the licenlling authori ty of the home Iltate of the 1 icenlll!o. II
Pursuant to Article IV (1) of the Compact I
The licensing authority in the home state, for the
purposes of suspension, revocation, or limitation of the
license to operate a motor vehicle, shall give the aame
effect to the conduct reported, pursuant to Article III,
as it would if auch conduct had occurred il\ the home
state, in the caae of convictions fori
(a) Manalaughter
resulting froln the
vehicle,
(b) Driving a motor vehicle while undor the
influence of al cohol ic beverl\qes or a narcotic
to a degree which rundera the driver incapable
of aafely drivinq a motor vehio1e,
or negligent
opera tion of
homicide
a motor
(c) Any felony in tho commission of which a
motor vehicle was ul5ed, or
(d) Failure to stop and r.ender aid in the
event of a motor vehicle accident resultinq in
the death or peraonal injury of another.
On Marcn 28, 1995, Sullivan, a resident and licensed driver of
Pennsylvania, waa convicted of drivinq under thl3 influence (DUI) in
Nebraska, which is a party to the Compact.
Pursuant to the
Compact, Nebraska reported Sull i van I IS (~onviction to PennDOT. By
( . . . continued)
tit. 23, ~~ 3901 to 3910, Va. Code 55 46.2.483 to 488, Wash. Rev,
Code Ann. IHi 46.21.010 to 46.21.040 (West), W.Va. Code 55 178.1A.1
and 2, Wyo. Stat. IH 31.7.201 and 202.
[J'158.1997) . 3
notice dated May 25, 1995, PannDO'l' informed Sullivan that his
conviction for DUI in Nebraska was equivalent to a violation of
Section 3731 of the Vehicle Code, 75 Fa.C.S. 5 3731,1 and,
accordinqly, PennDOT was suspendinq his license for one year
pursuant to 75 Pa.C.S. /)1532(b)(3), The noticn, hc;>wever, made no
reference to the compact.
Sullivan appealed to the trial court, arquinq, inter Al.i.a,
that he had Mt been convicted of a violation of 75 Pa.C.S. 5
3731, and that PennDOT had no authority to suspend his license
based on an out'of'state conviction. At the hearinq on September
20, 1995,
PennOm' for the first time cited the Compact as
authority for its i>uspension of SUllivan's license.
PennDOT's
attorney mistakenly identified the Compact ss the "Interstste
Compact Act", and cited to Pennsylvania BUlletin Volume 24, Number
45 (November 5, 19941. He argued thatl
under Article 4 of that compact, the effect of a
conviction of PUI reported to the department, the
licensing authority in the home state, that is
Pennsylvania, shall give such effect to the conduct as
provided by the laws in the home state. Under the laws
of Pennsylvania, under Section 1532 (b), when a person is
convicted of Section 3731 of the Motor Vehicle COde, it
is a one year suspension.
R.R. at 9a.10a. Although Sullivan's counsel did not address the
issue of whether the Compact was effective as to the Commonwealth,
75 Pa.C.S. 5 3731 provides that no person shall operate
a vehicle while under the influence of alcohol or any controlled
substance to a degree which renders the person incapable of safe
. driving, or while the amount of alcohol by weight in the blood of
the person is 0.10% or greater.
[J'158'1997j . 4
he did arque that PennDOT improperly failed to notify Sullivan that
the suspension of his lioense was based on the Compaot. The trisl
court sustained sullivan's appeal, and pennDO'l' Ilppea led to the
Commonwealth Cou~t.
The commonwealth Court considered Article VIII of the compact,
which provides as follows I
(1) This compact shall enter into force and become
effe(:tive as to any state when 1.t has enacted the same
into law.
(2) Any party state may withdraw from this compaot by
enacting a statute repealing the same. . .
The court concluded that the Commonwealth had not "enacted [the
Compact) into law" as required by Article VIII(l), and, therefore,
PennDOT lacked the authority to suspend SUllivan'S license based on
his ~onviction in Nebraska.
brscUSSION
On appeal to this Court, PennDOT first /,lrgues that the
commonwealth Court should not have addressed the issue of whether
the Commonwealth enacted the Compact into law, because Sullivan did
not raise it in the trial court. In the first instance, PennDO'!'
,
overlooks the fact that, until the September 20, 1995 hearing, it
had not notified sullivan that it was relying on the Compact for
,
authority to suspend his license. Moreover, the general rule that
issues not raised in the lower court may not be raised on appeal
applies only to appellants, not to appellees. aee Commonwealth v.
Katze, 540 Pa, 416, 658 A.2d 345 (1995) (plurality opinion) I
[J'158'1997! . 5
Bl1erwood v. Elaart, 383 Pa, 110, 117 IL2d 899 (1955).
As an
appellee, Sullivan waB not precluded from raisinQ in t;he
CO/1llllonweal th Court the issue of whl3ther tho compact had been
enacted into law..
PennCO'!' next argues that the commonwealth did enact the
Compact into law pursuant to Seotion 6146 of the Vehicle Code, 75
Pa.C.S. 6 6146, which provides as followsl
The secretary may enter into aQreements relating to the
enforcement oF. this title, including, but not limited tOI
(1) the Driver License Compact and any other
aQreements to notify any state of vlolations
incurred by residents of that state. . . .
According to PennDO~', the Secretary'a exercisinQ the authority
conferred upon him by 75 P!l.C.s. 6 6146 (1) is sufficient to
constitute enactment of the Compa-::t into law.!
disaqree.
We regret fully
· In ita brief, PennDOT makes reference to Pa.R.A.P. 1551,
which qoverns the scope of review of quasijudicial orders. Rule
1551 provides, in part. that, "[nJ 0 question shall be heard or
considered by the court which was not raised before the qovernment
unit except I (1) Questions involvinq the valiMty of a statute. .
. ." Although the question of whether the Commonwealth enacted the
Compact into law involves the effect of Section 6146 of the Vehicle
Code, 75 Pa.e.S. ~ 6146, that statute'a validity is not at issue.
Accordingly, RUle 1551 (a) (1) in inapplicable.
! Pursuant to Section 6152 of the Vehicle Code. 75 Pa.C.S.
~ 6152, aqreements entered into by the Secretary mUBt be published
in compliance with Part J.I of Title 45. In the Commonwealth Court,
Sullivan argued that PennDOT's published notice failed to comply
with those requirements, in that the notice contained only a
synopsis of the Compacl and not the full text. However, because we
conclude that enactment of the Compact into law requires the
passaqe of a statute by the Legislature, we do not address the
adequacy of the published notice.
[J-15S-l997) - 6
The Compact ia a contract betw<len states. Accor.dinqly, we are
bound to interpret its terms accordinq to their plain meoninq.
&la, ~, Steuart v. Mcchesney, 498 Po, 45, 444 A.2d 659 (1962).
Furthermore, this Court will not rewrite the terms of 0 oontract,
nor give them a meaning that conflicts with that of the languago
used. 1.l:L" at 50-51, 444 A.2d at 662 (ql\oting ~rt li'. Felte.
Ino. v. White, 451 Pa. 137, 144, 302 /L2d 347, 351 (1973) (quoting
Hagarty v. William Aker.s. Jr. CQ.........lns4, 342 pn. 236, 239, 20A.2d
317, 319 (1941))). Pursuant to Article vn I (1) of the Compact, its
provisions "enter into force and become effective as to any state
when it has enacted the [Compact) into law." In the context of lllw
making, the plain meaning of .the term "enectment" is "[tj he method
or process by which a bi 11 in the Legislature becomes n law."
Bt-IICK'S LAW DICTIONARY 526 (6th ed. 1990).
The language of Articl.e VIII (2) of the Compact supports this
interpretation. It provides that, "[a] ny party state may withdraw
from this compact by enacting a statute repealing the same. .
I .
If the passage of a statute were not also required for entry
, .
"
into
the Compact, the withdrawal provision of Article VIII(2) would be
incongrUously burdensome. We cannot conclude that the Compact's
drafters intended such a disparity between entry into and
withdrawal from the compact, nor are we empowered to give the terms
of the contract II meanLng inconsistent w1th tho drafters' clear
. ,
intent. .5.lW, !il....\L., S1.ewU:.t., 498 Pa. at 48-49, 444 A.2d at 661,
Felte, 451 Pa. at 143-44, 302 A.2d at 351. Thus, we hold that the
(J.15B-1997J - 7
Compact becomes effective as to the COl1unonwealth only when the
Legislature passes a statute adoptinq it. Any other construction
would impermissibly strain the lahquaqe of the contract beyond its
plain meaninq.
Notwithstandinq the Compact I s express lanqua\le, PennDOT arques
that, in passinq Section 6146 of the Vehicle Code, 75 Pa.C.S. 5
614 6, the Legislature properly delllgated to the Secretary of
Transportation (Secretary) the authority to enter into the Compact.
Overall, the Lagislature may delegate policy making authoritv to an
administrative agency, so long as the Legislature makes the "basic
policy choices" and establishes "adequate standarde which wi 11
guide and restrain thfl exercise of the delegated administrative
functions." GilliQ'/ULY.. Pennsvlvania Horse RacinG Commiseion, 492
Pa, 92, 96, 422 A.2d 487, 489 (1980) (citing William Penn Parkinq
GaraGe. Inc. v. City of Pittsburgh, 464 Pa. lG8, 346 A.2d 269
(1975), chartiers Vallev Joint 3choo1s v. county Board of school
Directors of Alleahenv county, 418 Pa. 520, 211 A.2d 487 (1965) I
Belovsky v. Redevelopment liU.tbority of. the City ot Philadelphia,
357 Pa. 329, 54 A.2d 277 (1947)).
Here, PennDOT asserts that
Section 6141 of the Vehicle Code, 75 Pa.C.S. 5 6141., evinces the
Legislature I s basic pol icy choice to participate in interstate
agreements regarding the regulation of dr.ivers,' and that Section
· Section 6141 of the Vehicle Code, entitled "Declaration
of policy", provides thatl
It is the policy of this Commonwealth to promote and
(continued.. .)
[J'158.1997) . 8
6146 adequately limits the Secretary's discretion in entering into
such aqreements, e.g., by specifically refarring to the Compact.
Thus, PennDOT concludes, by deleqatinq to the Secretary the
authority to enter into the Compact, the Leqislature obviated the
,
need to pass a statute enacting the Compact into law.
PennDOT's argument is unavai ling, however, because it
conflicts with the separation of powers mandated by the
Pennsylvania COI\stitution. Article II, Section 1 provides that,
"[tl he legislative power of this conunonwealth shall be vested in a
General Assembly, which shall consist of a Senate and a House of
Representatives/" and Articlu III, Section 1 provides that, "[nlo
law shall be passed except by bill.
"
In liqht of these
. .
consti t:utional provisions, "[ i 1 t is axiomatic that the Leqislature
cannot constitutionally delegate the power to m~ke law to any other
branch of government or to any other body or authority." Gilliqan,
492 Pa, at 95, 422 A.2d at 489 <citing State Board of Chirooractic
E)Caminers v. Life Fellpwship of P'ilnnsvlvania, 441 Pa. 293, 272 A.2d
478 (1971)).
"
< . . . continued)
encourage the fullest possible use of its hiqhway system by
authori:zing the making and execution of reciprocal aqreements,
arrangements and declarations with other states, provinces,
territories and countries with respect to drivers licensed and
vehicles registered in this and other states, provinces,
territories and countries, thus contributinq to the economic and
social development and growth of this Commonwealth.
75 Pa .C.S. !i 6141.
[J.15e.1997) . 9
In ~uch v. Wilhelm, 352 Pa, 586, 43 A.2d 894 (1945), this
Court held that the power of "substantive enactment" is vested in
the Leqis1ature alone,
Thus, the Court determined that,
"(al uthority may be given to a gover.nment official or an
administrative agency to make rules and regulations to cover mere
matters of detail for the implementation of a statute, but where
tho statute itself is lacking in essential substantive provisions
the law does not permit a transfer of the powor to supply them, for
the leqislature cannot delegate its power to make a law," llL., at
592,93, 43 A.2d at 897.
In this case, we view 75 Pa.C.S. II' 6146(1) merely as a
deleqation of buthority to implement the mechanics of the Compact
in the Commonwealth. Pursuant to the constitution's separation of
powers, however, the Legislature could not delegate to the
Secretary the power to enaat the compact into law as required by
its terms. Thus, while not unconstitutional, 75 Pa.C.S. /I 6146(1)
is insufficient to render the Compact effective as to the
Commonwealth.
Indeed, the Legislature seemed to concede as much in passing
Act No. 1996.149 (Act), Although the Secretary had purported to
I
enter into the Compact effective January 1, 1995, on December 10,
1996, the Leqislature passed the Act, which, inter ll.l..IJl, added
Section 1581 to the Vehicle Code. That section sets forth the full
text of the Compact and provides that, "[~lhe Driver's License
[J'158'1997J . 10
Compact is hereby enactElQ into....lllli llnd entered into wi th all other
jurisdictions legally joining therein,
. , ,
" 75 pa.C.S, 6 1591
(emphasis added),
Had the Compact been enacted into law
previously, the addition of 75 Pa,e,S, 6 1581 would havl1 been
unneceuary. Thus, in enacting 75 P.S. 6 1591, the Legislature
anticipated our hOlding that the delegation of aUthority to the
Secretary pursuant to 75 Pa.C,B. 6 6146 was insufficient to
effectuate the Commonwealth's entry into the Compa~t, and that a
statute enacting the Compact into law would be necessary.'
In this case, however, PennOOT suspended Sullivan'S license
more than a year before the Legislature enacted the Compact into
law pursuant to 75 Pa.C.S. S 1581. Consequently, PennDOT lacked
the authority to suspend sullivan's license based on his out'of-
state OUI conviction.
The Order of the CommonweaHh Court is
therefore affirmed.
, Note that the lanquage of 75 Pa.C.S. 6 1581 comports with
other. Pennsylvania statutes pursuant to which various interstate
compacts and agreements have been enacted into law. ~,~, 3
J?S. S 214.41 (enactinq Pest Control Compact), 24 P.S. S 2401.1
(enacting Interstate Agreement on Qualifications of Educational
J?ersonnel) I 24 P.S. I} 5401 (enacting Compact for Education), 32
P. S. S 816.1 (enacting ohio River Valley Water Sani tation Compact) ,
32 P.S. I} 817.1 (enacting Great Lakes Basin Compact), 35 Pa.C.S. S
7111 (enacting Interstate Civil Defense and Disaster Compact), 42
Pa.C.S. S 9101 (enacting Aqreement on Detainers), 61 P.S. S 1062
(enacting Interstate Corrections Compact) .
[J.158 '1997) . 11