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FILE[)-OFFICE
OF 'rHF p\\)THOljotMY
98 APR ~n Pt~;\\ 50
CUMl"r'."I '.')'jNN
i~l.:hi-fj ~l) i,.:{, " '1 I
PENNSYL\W,liA
decide the issue of whether, at the time of sullivan's license
suspension, PennDOT haj the authority to suspend a driver's license
based on an 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 enacted the Compact into
law, we affirm the Order of the Commonwealth Court.
EAQTUAL AND PROCEDURAL HISIQRY
The Compact is a contractual agreement among states intended
to promote compliance with each party state 1 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 adjudicatioo of delinquency based on section 3731 or 3733. .
2
~ Ala. Code ~~ 32-6-30 to 36; Ariz. Rev, Stat. !l!i
28"1601 to 1605; Ark. Code ~~ 27-17-101 to 106; Cal. Veh, Code !i
15000 et seq.; Colo. Rev. Stat. !i~ 24-60-1101 to 1107; 1992 Conn.
Acts 92-186 (Reg. Sess.); Del. Code tit. 21, !i 8101; D.C.Code !i!i
40-1501 and 1502; 23 Fla. Stat. Ann. !i!i 322.43 to 322.48; Haw. Rev.
Stat. ~~ 286C-1 and 286C-2; Idaho Code !i~ 49-2001 to 2003; Ill.
Ann. Stat. ch. 625, ~ 5/6-700 to 708; Ind. Code Ann. ~!i 9-28-1-1 to
6; Iowa Code !i~ 321C.1 and 321C,2; Kan, Stat. Ann. ~~ 8-1212 to
1218; La. Rev. Stat. Ann. ~!i 32:1420 to 1425; Me. Rev. Stat. tit.
29, ~!i 631 to 675; Md. Transp. Code !i!i 16-701 to 708; Minn, Stat.
~~ 171.50 to 56; Miss. Code Ann. ~!i 63-1-101 to 113; Mo. Ann, Stat.
~!i 301.600 to 302.605; Mont. Code Ann. ~!i 61-5-401 to 406; 2A Neb.
Rev. Stat. App. at 840; Nev. Rev. Stat. !i~ 483.640 to 483.690; N.H.
Rev. Stat. !i 263.77/ N.J. Stat. Ann. !i!i 39:5D-l to 14; N.M. Stat.
Ann. !i!i 66-5-49 to 51/ N.Y. Veh. & Traf, Law!i 516; N,C. Gen. Stat.
~~ 20-4.21 to 4.30/ Ohio Rev. Code Ann, !i 4507,60 Okla.Stat. tit.
47, !i~ 781 to 788; Or. Rev. Stat. ~ 802.540; S.C. Cod('1 Ann. ~!i
56-1-610 to 690; Utah Code Ann. ~~ 41-2-501 to 506; Vt, Stat. Ann.
(continued... )
[J-158-1997] - 2
1\.rt icle II I of the Compact provides t.hat, II [tl he licensing
authority of a party stat.e shall report each conviction [for an
offense related t.o the use ur operation of a motor vehicle] of a
person from another party state occurring within it.s jurisdiction
to the licensing iiluthority of the home st.ate of the licensee."
pursuant to Article IV(l) of the Compact:
The licensing authorit.y in the home state, for the
purposes of suspension, revocat.ion, or limitation of the
license to operate a motor vehicle, shall give t.he same
effect to. the conduct. reported, pursuant to Art. icle II I,
as it would if such conduct had occurred in the home
state, in the case of convictions for:
(a) Manslaughter
resulting from the
vehicle;
or negligent
operation of
homicide
a motor
(b) Driving a mot.or vehicle while under the
influence of alcoholic beverages or a narcotic
to a degree which renders the driver incapable
of safely driving a motor vehicle;
(c) Any felony in the commission of which a
mot.or vehi,cle was used; or
(d) Failure to stop and render aid in the
event of a mot.or vehicle accident. resulting in
the deat.h or personal injury of another.
On March 28, 1995, sullivan, a resident and licensed driver of
pennsylvania, was convicted of driving under the influence (DUI) in
Nebraska, which is a party to the Compact.
pursuant to the
Compact, Nebraska reported sullivan's conviction to pennDOT. By
( . . . continued)
tit. 23, !i!i 3901 to 3910; Va. Code !l!l 46.2-483 to 488; Wash. Rev.
Code Ann. !l~ 46.21.010 to 46.21.040 (West); W.Va. Code !l!l 17B-11\.-1
and 2; wyo. Stat. ~~ 31-7-201 and 202.
[J-158-1997] - 3
notice dated May 25, 1995, PennDOT informed Sullivan that his
conviction for DUI in Nebraska was equivalent. to a violation of
Section 3731 of the Vehicle Code, 75 Pa,C.S. 9 3731,] and,
accordingly, Penn DOT was suspending his I icense for one year
pursuant to 75 Pa.C.S. !i 1532(b) (3)
'rhe notice, however, made no
reference to the Compact,
Sull i van appealed to t.he t.rial court, arguing, illte.z: a.l.ia,
that he had not been convicted of a viol at ion of 75 Pa. C. S. !i
37~1, and that PennDOT had no authorit.y to suspend his license
based on an out-of-state convict.ion. At. the hearing on September
20, 1995,
PennDOT for the first t.ime cited the Compact as
authority for its suspension of Sullivan 1 s license,
PennDO'l"s
attorney mistakenly identified the Compact as the "Int.erstate
Compact Act II , and cited to Pennsylvania Bulletin Volume 24, Number
45 (November 5, 1994). He argued that:
under Article 4 of that compact, the effect of a
conviction of DUI reported to t.he department, the
licensing authority in t.he home state, that is
Pennsylvania, shall give such effect to the conduct as
provided by the laws in the home state, Under t.he laws
of Pennsylvania, under Sect.ion 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. !i 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-158-1997] - 4
.'llie.rwood v. IUaart, 383 Pa, 110, 117 A,2d 899 (1955) , As an
appellee, Sullivan was not prl,!cluded from raising in the
CommonwE,al t.h Court the issue of whet.her the Compact had been
enacted into law. '
PennDOT next argues that t.he Commonwealth did enact the
Compact int.o law pursuant t.o Section 6146 of the Vehicle Code, 75
Pa.C,S. g 6146, which provides as follows:
The secret.ary may ent.er into agreements relating to the
enforcement of this title, including, but not limited to:
(1) the Driver Lic8nse Compact and any ot.her
agreements to notify any state of violations
incurred by residents of that stat.e,
According to PennDOT, the Secret.ary 1 s exercising the authori ty
conferred upon him by 75 Pa,C.S. !i 6146 (1) is sufficient. t.o
constit.ute enactment of t.he Compact into law.5
We regretfully
disagree.
In its brief, PennDOT makes reference to Pa.R,A.p. 1551,
which governs the scope of review of quasijudicial orders. Rule
1551 provides, in part, that, II [n] 0 quest ion shall be heard or
considered by the court which was not raised before the government
uni t except.: (1) Questions involving the validi ty of a statute. .
II Although the question of whether the Commonwealth enacted the
Compact int.o law involves the effect of Sect.ion 6146 nf the Vehicle
Code, 75 Pa.C.S. !i 6146, that statute's validity is not at issue.
Accordingly, Rule 1551 (a) (1) is inapplicable.
5
Pursuant to Section 6152 of the Vehicle Code, 75 Pa.C.S.
!i 6152, agreements entered into by the Secretary must be published
in compliance with Part II 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 Compact and not the full text.. However, because we
conc' ude that. enactment of the Compact into law requires the
passage of a statute by the Legislature, we do not address the
adequacy of the published not.ice,
[J-158-1997] - 6
The Compact is a contract between stat.es. Accordingly, we are
bound to int.erpret its t.erms according to their plain meaning.
~, ~, .s.te.u.a1:.LY~McChe~, 498 Pa, 45, 444 A,2d 659 (10182),
Furthermore, this Court will not rewrite the t.erms of a contract,
nor give t.hem a meaning that conflict.s with that of t.he language
used. l.>L., at 50-51, 444 A.2d at 662 (quoting Robert F. Felte,
lnQ.....y,..J/hfu, 451 Pa, 137, 144, 302 A,2d 347, 351 (1973) (quoting
Ha9artY~.J'/.illiam Akers, Jr----.Qo...., Inc" 342 Pa. 236, 239, 20 A,2d
317, 319 (1941))). Pursuant to Article VIII(l) of the Compact, its
provisions "enter into force and become effective as to any state
when it has enacted the [Compact] into law. II In the context of law
making, the plain meaning of t.he t.erm "enactment. II :is II [t] he method
or process by which a bill in the Legislature becomes a law. II
B1J\CK'g LAw DICTIONARY 526 (6th ed, 1990).
The language of Article VIII(2) of the Compact supports this
interpretat.!.on. It. provides that, II [a) ny party state may withdrC\w
from this compact by enacting a statute repealing the same. II
If the passage of a statut.e 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
wi thdrawal from the Compact, nor are we empowered to give the terms
of the contract a meaning inconsistent wit.h the drafters' clear
intent. s.e.~, .e...s..., SteuaJ;'J;., 498 Pa. at 48-49, 444 A.2d at 66~;
felte, 451 Pa, at 143-44, 302 A.2d at 351, Thus, we hold that the
[J-158-1997] - 7
Compact becomes effective as to the Commonwealth only when the
Legislature passes a otatute adopting it. Any other construction
would impsrmissibly strain the language of the contract beyond its
plain meaning,
that, in passing Sectjon 6146 of the Vehicle Code, 75 Pa.C.S. !i
Not.withstanding the Compact's expresl'J language, PennDOT argues
6146, the LegJ slature properly delegat.ed to the Secretary of
Transportation (Secretary) the authority to ent.er into the Compact.
Overall, the Legislature may delegate policy making authori ty to an
administrat.ive agency, so long as the Legislature makes the "basic
policy choices" and establishes "adequat.e standa~ds which will
guide and rest.rain the exercise of t.he delegated administrative
functions. II rLUligan V. PE:nnsyl vania Horse Racing CommJ ssioT\, 492
Pa. 92, 96, 422 A.2d 487, 489 (1980) (citing William P"'llU Parking
Qaraae. Inc. v. City of PittsbJ.lL.qh, 464 Pa. 168, 346 A.2d 269
(1975); Chartiers Valley Joint Schools v, County Board of School
Directors of. Alle.gheny Cou~, 418 Pa. 520, 211 A,2d 487 (1965);
Jlel.Q.vsky v ,_~evel opment .Al.ltlJ.m:.ity of the Ci ty of Philfuie..lo<lli,
357 Pa. 329, 54 A.2d 277 (1947)).
Here, PennDO'r asserts that
Sect.ion 6141 of t.he Vehicle Code, 75 Pa,C,S. !i 6141, evinces the
Legislatufe' s basic policy choice to participate in interstate
agreements regarding the regulation of drivers,' and that Section
-.
6 Section 6141 of the Vehicle Code, entitled "Declaration
of policy", provides that:
It is the policy of this Commonwealth to promote and
(continued. . .)
[J-158-1997] .. 8
6146 adequately limit.s the Searetary's discretion in entering into
such agr'eements, e,g" by spEJaiEically referring to the Compact..
Thus, PennDOT concludes, by delegating to the Secretary the
authority to ent.er int.o t.he Compact., the Ilegislature obviat.ed the
need to pass a st.atute enacting the Compact into law,
PennDOT's argument is unavailing, however, because it
Conflicts with t.he separation of powers mandated by t.he
Pennsylvania Const.itut.ion, Article II, Sect.ion 1 provides that,
II [t) he legislative power of this Commonwealth shall be vested in a
General Assembly, which shall consist. of a Senate and a House of
Representatives; II and Article III, Section 1 provides that, "[n]o
law shall be passed except. by bill.
II
In light of these
constitutional provisions, "[i)t is axiomatic that the Legislature
cannot const.itutionally delegat.e the power to make law to any other
branch of government or to any other body or authority. II Gilliaau,
492 Pa. at. 95, 422 A.2d at 489 (citing al~ Board of Chiropractic
Examine~. Lif~~~f Pennsy~tuig, 441 Pa, 293, 272 A.2d
478 (1971)).
(.. . continued)
encourage the fullest possible use of its highway system by
authorizing the making and execution of reciprocal agree~ents,
arrangements and declarations with other states, prov1nces,
territories and countries with respect to drivers licensed and
vehicles registered in this and other states, provinces,
territories and countries, thus contributing to the economic and
social development and growth of t.his Commonwealth.
75 Pa.C.S. ~ 6141.
[J-158"19971 - 9
In RuclLv, Wilhelm, 35;>, Pa. 586, 43 A,;~d 894 (1945), this
Court held that the power of "subst.antive enactment II is vested in
t,he I,egislature alone. 'I'hus, the Court. det.ermined that,
lI[aJuthority may be given to a government. official or an
administrative agency t.o make rules and regulations to cover mere
matters of detail for t.he implementation of a statute, but where
the statute itself is lacking in essent.ial subst.ant.ive provisions
the law does not permit a transfer of the power to supply them, for
the legislature cannot delegate its power to make a law. II J..d..., at
592-93, 43 A.2d at 897,
In t.his case, we view 75 Pa,C.S, !i 6146(1) merely as a
delegation of authority to implement the mechanics of the Compact
in the Commonwealth. Pursuant to the Constitution's separation of
powers, however, the Legislature cou1d not delegate to the
Secret.ary the power to enact the Compact into law as required by
its terms. Thus, while not unconstitutional, 75 Pa,C,S. ~ 6146(1)
is insufficient to render the Compact. effect.ive as to the
Commonwealth.
Indeed, the Legislature seemed to concede as much in passing
Act No. 1996-149 (Act). Although t.he Secretary had purported to
enter int.o the Compact effective January 1, 1995, on December 10,
1996, the Legislature passed the Act, which, inter .al.ia, added
Section 1581 to the Vehicle Code. That section sets forth t.he full
text of the Compact and provides t.hat, II [t] he Driver I s License
[J-158-19971 - 10
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DL-326'(9/95)
CERTIFICA TION
.
DATE May 6,1998
I hereby certify that Rebecca L. Bickley, Director of the Bureau of Driver Licensing of the
Pennsylvania Department of Transportation, is the legal custodian of the Driver License records of the
Pennsylvania Department of Transportation, As the Director of the aforesaid Bureau, she has legal
custody of the original or microfilm records which are reproduced in the attached certification.
IN TESTIMONY WHEREOF, I HAVE HEREUNTO SET MY HAND AND SEAL OF
THIS DEPARTMENT THE DAY AND YEAR AFORESAID.
BRADLEY L MAL OR':::c:t::lNSPDRTATIDN
I HEREBY CERTIFY THAT THE FOREGOING AND ANNEXED IS A FULL, TRUE AND
CORRECT CERTIFIED PHOTOSTATIC COPY OF:
1) Official Notice of suspension daled & mailed 07/29/96, effective 09/02/96; 2) Record of
Conviction Detail, Out of State Driver Violations Report received by the Department electronically
from the State of OHIO, operating under the Influence of liquor or drugs, date of violation
02/23/96, and date of conviction OS/26/96, and 3) Driving Record, which appears In the file of the
defendant DANIEL BELL, operator's no. 20896826, date of birth 08/04/62, in the Bureau of Driver
Licensing, Harrisburg, Pennsylvania.
).
m~
CERTIFIED TO as presorlbed by Sections 6103 and 6109 of the Judicial Code, Act of July 9,
1976, P.L. 586, as amended, 42 Pa.C.S. ~~6103 and 6109.
IN TESTIMONY WHEREOF I I HAVE HEREUNTO SET MY HAND AND SEAL THE DAY AND YEAR
AFORESAID, <&~ t ~
~ SEAL
REBECCA L, BICKLEY, DIRE~R
BUREAU OF DRIVER LICENSING
C6,tJftlo
~x' fJVV"qlth's
HIBIT
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PAGE 4
CERTIFICATION STATEMENT - APR 27 1998 - LICENSE NUMBER 20896826 CONTINUED
~---------------------------------------~---------------------------------------
REPORT OF MEDICALS AND DEPARTMENTAL ACTIONS
-----------------------------------.---------------------------------------------
NO MEDICALS OR DEPARTMENTAL ACTIONS DURING THIS REPORTING PERIOD
-----------------------------------..--------------------------------------------
REPORT OF ACCIDENTS AND DEPARTMENTAL ACTIONS
--------------------------------------------------------------------------------
MOTOR VEHICLE ACCIDENT RECORDS LISTED ON THIS OPERATING REPORT DO NOT
INDICATE FAULT FOR THE ACCIDENT. THE RECORD ONLY INDICATES THAT THIS
INDIVIDUAL OR THE INDIVIDUAL'S VEHICLE WAS INVOLVED IN AN ACCIDENT ON
THE DATE LISTED.
ACCIDENT DATE I
LOCATION I
VEHICLE TYPEI
MAY 29 1984
DAUPHIN COUNTY
PASSENGER
~~~ END OF RECORD ~~~
, .
t
PAGE 5
CERTIFICATION STATEMENT - APR 27 1998 - LICENSE NUMBER 20896826 CONTINUED
IN COMPLIANCE WITH YOUR REQUEST, I HEREBY CERTIFY THAT I
HAVE CAUSED A SEARCH TO BE MADE OF THE FILES OF THE DEPART-
MENT OF TRANSPORTATION, AND HAVE SET FORTH ABOVE AN ACCURATE
SUMMARY OF ALL RECORDS IN THE NAME OF THE PERSON INDICATED.
SINCERELY,
~A~\~~
SEAL
DIRECTOR, BUREAU OF DRIVER LICENSING
FOR
SECRETARY OF TRANSPORTATION
COMMONWEALTH OF PENNSYLVANIA SSI
DATEIAPR 27 1998
I HEREBY CERTIFY THAT REBECCA L. BICKLEY, DIRECTOR OF THE
BUREAU OF DRIVER LICENSING, OF THE PENNSYLVANIA DEPARTMENT
OF TRANSPORTATION IS THE LEGAL CUSTODIAN OF THE DRIVER
LICENSING RECORDS OF THE DEPARTMENT OF TRANSPORTATION. AS
THE DIRECTOR OF THE AFORESAID BUREAU, SHE HAS LEGAL CUSTODY
OF THE ORIGINAL OR MICROFILM RECORDS WHICH ARE THE SUBJECT
OF THE ABOVE CERTIFICATION.
IN TESTIMONY WHEREOF, I HAVE HEREUNTO SET MY HAND AND SEAL
OF THIS DEPARTMENT THE DAY AND YEAR AFORESAID.
SINCERELY,
~
SECRETARY OF TRANSPORTATION
SEAL
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