Shirley v. Com.

• Decision Date: 10 June 1977
• Docket Number: No. 761065,761065
• Citation: 235 S.E.2d 432,218 Va. 49
• Court: Virginia Supreme Court
• Parties: Bonnie West SHIRLEY v. COMMONWEALTH of Virginia. Record

Page 432

235 S.E.2d 432

218 Va. 49

Bonnie West SHIRLEY v. COMMONWEALTH of Virginia.

Record No. 761065.

Supreme Court of Virginia.

June 10, 1977.

Raymond H. Strople, Portsmouth (Dennis F. McMurran, Moody, McMurran & Miller, Ltd., Portsmouth, on brief), for plaintiff in error.

A. R. Woodroof, Asst. Atty. Gen. (Anthony F. Troy, Atty. Gen., on brief), for defendant in error.

Before I'ANSON, C. J., and CARRICO, HARRISON, COCHRAN, HARMAN, POFF and COMPTON, JJ.

HARRISON, Justice.

Bonnie West Shirley was convicted in the lower court of the grand larceny of a 1963 Chevrolet Corvette automobile and sentenced to serve five years in the penitentiary. Her conviction was the result, in part, of evidence obtained by police officers when they inspected the automobile pursuant to the provisions of Code § 46.1-9, which reads:

"Right to inspect vehicles in garages, etc. Any peace officer or Division officer or employee who shall be in uniform or shall exhibit a badge or other sign of authority shall have the right to inspect any motor vehicle, trailer or semitrailer in any public garage or repair shop, for the purpose of locating stolen motor vehicles, trailers and semitrailers and for investigating the title and registration of motor vehicles, trailers and semitrailers. For such purpose the owner of any such garage or repair shop shall permit any such peace officer or Division officer or employee without let or hindrance to make investigation as herein authorized. (Code 1950, § 46-17; 1958, c. 541.)"

Defendant says the statute violates the Fourth and Fourteenth Amendments of the Constitution of the United States and the information obtained by the police was the product of an unreasonable search and seizure.

In August, 1974, the 1963 Chevrolet Corvette automobile of Donald Rood, valued at $1,700, was stolen. He promptly reported the theft to the police, but the vehicle was not recovered until August, 1975. On August 8, 1975, a Portsmouth detective and a special agent of the National Automobile Theft Bureau inspected a number of motor vehicles parked in the public garage and repair shop of defendant in Portsmouth. While on the premises the officers noticed that a 1963 Chevrolet Corvette was missing a public vehicle identification number. Upon inquiry the defendant admitted ownership of the automobile and handed the officers a document from the Division of Motor Vehicles of Virginia. This document bore a vehicle identification number which did not correspond to that of the Corvette, but rather corresponded to that of a 1962 Chevrolet Impala convertible. The officers determined that the license plates attached to the Corvette were assigned to a 1962 Impala. The special agent determined the serial number of the Corvette by checking the engine number and confidential serial number of the vehicle. The officers then made a search of the inside of the Corvette and recovered two official inspection stickers, indicating a Corvette as the automobile inspected but giving as the license number the number assigned to the 1962 Impala. It developed that the Corvette involved was the one stolen from Rood.

Thereafter defendant was arrested and indicted for the grand larceny of the Rood vehicle and three other vehicles which the inspection allegedly disclosed were also stolen. We are concerned here only with the count in the indictment which charges defendant with the larceny of Rood's automobile.

Defendant says that the court erred in refusing to suppress the evidence obtained by the police on August 8, 1975 during their inspection of the automobile, i. e., the registration, the confidential serial number, the engine number, the evidence of a missing number and evidence of inspection receipts.

Code § 46.1-9 is one of numerous related motor vehicle laws designed for the protection of lawful owners and the public. Among these statutes are: Code § 46.1-41, which requires every owner of a motor vehicle to be operated upon any highway in this state to first obtain a certificate of title and registration; Code § 46.1-4, which requires that every motor vehicle owner apply for a new identification number if such number has been removed, obliterated or has become illegible; Code § 46.1-5, which makes it a misdemeanor for any person to purchase, trade, exchange or barter for a motor vehicle knowing or having reason to believe that the vendor has no certificate of title; Code § 46.1-7, which requires any operator of a motor vehicle to have in his possession the registration card; Code §§ 46.1-82 and 46.1-83, which make it unlawful to remove, alter, change or conceal any motor number, serial or other identification number; Code § 46.1-84, which makes it unlawful to sell, or to operate, any motor vehicle which does not bear a permanent identification number; Code § 46.1-85, which makes the fraudulent altering or forging of a certificate of title or registration card a felony; Code § 46.1-8, which authorizes police officers to stop any motor vehicle for the purpose of inspecting the vehicle, its serial or engine number, etc.; and Code § 46.1-6, which requires every county, city, town, or other political subdivision of the state and its law enforcement officers to enforce these provisions of the motor vehicle laws.

Both the public and confidential identification numbers are put on vehicles to aid in identifying them. There are so many cars of the same make, model, design, style and color that individual vehicles can be identified only through the use of such numbering. Requirements for disclosing and recording vehicle identification numbers are designed to keep track of the ownership of potential instruments of personal and property injury, so that automobile owners and drivers involved in accidents can be traced and insurance requirements can be enforced. In addition, many states require periodic inspection for mechanical defects and the exhibition of stickers and certificates showing that the inspections have been made. The state seeks to protect ownership rights in vehicles which are mobile and expensive assets. License plates alone do not suffice because they can be easily transferred from one vehicle to another.

It is routine for law enforcement officers to stop cars and to inspect automobile registration papers as well as operators' licenses. Viewing such papers is an accepted part of the regulatory system. Further, vehicle identification numbers are routinely disclosed incident to the purchase and sale of vehicles and the purchase of insurance. Titles, registration certificates, inspection certificates and insurance policies identify cars by their vehicle identification numbers. As the Court observed in United States v. Polk, 433 F.2d 644, 647-48 (5th Cir. 1970):

"There can therefore be no reasonable expectation of privacy with respect to the identity of the VIN. Opening the car door, looking under the hood, or crawling under the car to inspect the rear axle does not independently bring an inspection of the VIN within the scope of the Fourth Amendment.

"A car is not a home. An automobile runs and stops on the public roads, where viewers may crawl under it or press their faces against its windows. Its exterior and much of its interior are within the 'plain view' of the casual or purposeful onlooker, and thus are not protected by the Fourth Amendment from searching eyes. See, e. g., Marshall v. United States, 5 Cir., 1970, 422 F.2d 185; Wright, Federal Practice and Procedure § 668 (1969).

"Thus the VIN on the rear axle or on the car frame are outside any reasonable expectations of privacy. Those that may be seen only by opening the car door or hood are no more private: doors and hoods are continually opened to the eyes of observers. Although opening the door of a car may involve a technical trespass, such action does not invade any expectations of privacy."

In United States v. Powers, 439 F.2d 373, 375-76 (4th Cir. 1971), the Court said:

"Inspection of a car's identification number differs from a search of a vehicle and seizure of its contents in one important aspect. The occupants of the car cannot harbor an expectation of privacy concerning the identification of the vehicle. The state requires manufacturers to identify vehicles by affixing identification numbers which are also recorded in registries where the police and any interested person may inspect them. (footnote omitted) Since identification numbers are, at the least, quasi-public information, a search of that part of the car displaying the number is but a minimal invasion of a person's privacy. A police officer, therefore, should be freer to inspect the numbers without a warrant than he is to search a car for purely private property. Because of the car's mobility, he may have little opportunity to do so if he must first secure a warrant or have probable cause for a search or arrest. . . . "

It does not appear that the constitutionality of Code § 46.1-9 has ever before been challenged, or that it has previously been considered by this Court. However, there have been a number of cases before the Supreme Court which involved administrative searches based on justifying statutes. The Attorney General cites United States v. Biswell, 406 U.S. 311, 92 S.Ct. 1593, 32 L.Ed.2d 87 (1972). There, pursuant to the provisions of the Gun Control Act, a federal treasury agent visited the defendant, a pawn shop operator who was federally licensed to deal in sporting weapons, demanded the right to inspect the defendant's books and requested entry to a locked gun storeroom. The agent's right to make the inspection was challenged and the Court held that if the Gun Control Act was to be properly enforced and inspection made effective, inspection without warrant had to be deemed reasonable, official conduct under the Fourth Amendment. The Court said:

"Here, if inspection is to be effective and serve as a credible deterrent, unannounced, even frequent, inspections are essential. In this...