Case Title: STATE v DEMERS

Citation: 

Docket Number: 81-087

State: montana

Court: Montana Supreme Court

Date: 1981-06-02T00:00:00Z

Document:
N o . 81-87 I N T H E SUPREME C O U R T O F T H E STATE O F M O N T A N A 1981 STATE O F P ! l O N T A N A , P l a i n t i f f and Appellant, HAROLD DeMERS, J e f f e r s o n County S h e r i f f , Defendant and Respondent. Appeal from: D i s t r i c t Court o f t h e F i f t h J u d i c i a l D i s t r i c t , I n and f o r t h e County o f J e f f e r s o n , The IIonorable Frank B l a i r , Judge presiding. Counsel of Record: For Appellant: Hon. Mike Greely, Atty. General, Helena, Montana P a t r i c k F. Flahery, County Attorney, Boulder, Montana For Respondent : Gene P i c o t t e , Clancy, Montana Submitted on B r i e f s : May 1, 1981 Decided: JUN 2 ]%IF Filed: dl&! 2 I?@ M r . Chief J u s t i c e Frank I. H a s w e l l d e l i v e r e d t h e Opinion of t h e C o u r t . I n an a c t i o n by t h e S t a t e a g a i n s t t h e J e f f e r s o n County s h e r i f f s e e k i n g t r e b l e damages f o r r e c e i v i n g p r o h i b i t e d f e e s , t h e District Court g r a n t e d d e f e n d a n t s h e r i f f summary judgment. The S t a t e a p p e a l s . W e a f f i r m . The s a l i e n t f a c t s d i s c l o s e t h a t on J a n u a r y 20, 1981, t h e J e f f e r s o n County a t t o r n e y f i l e d a complaint i n t h e name of t h e S t a t e of Montana a g a i n s t t h e J e f f e r s o n County s h e r i f f , a l l e g i n g t h a t t h e s h e r i f f had r e c e i v e d and a p p r o p r i a t e d to h i s own use a c h e c k f o r $100 drawn on S t a t e P r i s o n funds i n v i o l a t i o n of sec- t i o n 7-4-2519, MCA. It a p p e a r s from documents a t t a c h e d to t h e c o m p l a i n t t h a t t h e check was payable to "Harold DeMersn and was s e n t to t h e s h e r i f f as reward money f o r costs r e l a t e d to t h e s e a r c h and apprehension of an e s c a p e e from t h e S t a t e P r i s o n who w a s c a p t u r e d n e a r Gold Creek i n Powell County, Montana. The complaint sought judgment t h a t t h e s h e r i f f had r e c e i v e d t h e $100 reward i n v i o l a t i o n of s e c t i o n 7-4-2519, MCA, and t h a t t h e s h e r i f f repay t r e b l e t h e amount r e c e i v e d t o t h e S t a t e P r i s o n . It a p p e a r s from a r e c e i p t a t t a c h e d to t h e c o m p l a i n t t h a t t h e s h e r i f f had refunded t h e $100 t o t h e S t a t e P r i s o n p r i o r to t h e f i l i n g of t h e complaint. The g i s t of t h e s h e r i f f ' s answer to t h e complaint w a s a d e n i a l of t h e a l l e g e d v i o l a t i o n , coupled w i t h a claim t h a t t h e money w a s s e n t to him as a reward f o r h i s p e r s o n a l use. The s h e r i f f submitted an a f f i d a v i t g i v i n g h i s v e r s i o n of t h e f a c t s and moved f o r summary judgment. The S t a t e countered w i t h an a f f i d a v i t of t h e county a t t o r n e y g i v i n g h i s v e r s i o n of t h e f a c t s and s e e k i n g a c o n t i n u a n c e of t h e h e a r i n g on t h e s h e r i f f ' s motion f o r summary judgment to e n a b l e him to u t i l i z e d i s c o v e r y p r o c e d u r e s to e x t r a c t f u r t h e r f a c t s from r e l u c t a n t w i t n e s s e s . W e need n o t d e t a i l t h e e v i d e n t i a r y f a c t s d i s c l o s e d by t h e s e a f f i d a v i t s . W e n o t e , however, t h a t t h e opposing a f f i d a v i t s o f t h e county a t t o r n e y on t h e one hand and t h e s h e r i f f on t h e o t h e r , d i s c l o s e f a c t u a l d i s p u t e s concerning whether t h e money was s e n t to t h e s h e r i f f f o r h i s p e r s o n a l use, whether t h e s h e r i f f used J e f f e r s o n County v e h i c l e and equipment i n s e a r c h i n g f o r and apprehending t h e e s c a p e e , and whether t h e s h e r i f f was a c t i n g i n t h e performance of h i s o f f i c i a l d u t i e s o r s i m p l y as a p r i v a t e c i t i z e n i n s e a r c h i n g f o r and apprehending t h e e s c a p e e . On February 23, 1981, t h e D i s t r i c t Court denied t h e S t a t e ' s motion f o r a c o n t i n u a n c e , heard oral argument on t h e d e f e n d a n t ' s motion f o r summary judgment, and g r a n t e d d e f e n d a n t s h e r i f f a summary judgment. The S t a t e h a s appealed from t h e sum- mary judgment i n f a v o r of t h e s h e r i f f . W e frame t h e i s s u e s on a p p e a l i n t h i s manner: (1) Was t h e reward money a p r o h i b i t e d " f e e " under s e c t i o n 7-4-2519, MCA? ( 2 ) Did a genuine i s s u e of material f a c t p r e c l u d e summary j udgmen t ? ( 3 ) Did t h e D i s t r i c t Court err i n denying t h e S t a t e a c o n t i n u a n c e ? The county a t t o r n e y c o n t e n d s t h a t t h e reward money is a f e e as t h a t term is used i n s e c t i o n 7-4-2519, MCA, and its r e c e i p t by t h e s h e r i f f and a p p r o p r i a t i o n to h i s own use is p r o h i b i t e d by t h a t s t a t u t e . H e c i t e s S t a t e v. S t o r y ( 1 9 1 7 ) , 53 Mont. 573, 165 P. 748, as t h e l e a d i n g Montana case f o r t h e p r o p o s i t i o n t h a t any money c o l l e c t e d by a p u b l i c o f f i c e r from any s o u r c e whatever w i t h o u t a u t h o r i t y of l a w is prohi- b i t e d . The S t a t e also cites S t a t e ex rel. Holt v. District C o u r t ( 1 9 3 6 ) , 103 Mont. 438, 63 P.2d 1026 and S t a t e ex rel. Matson v. O'Hern ( 1 9 3 7 ) , 104 Mont. 126, 65 P.2d 619, i n sup- p o r t of its c o n t e n t i o n t h a t t h e word " f e e " i n s e c t i o n 7-4-2519, MCA, encompasses t h e reward money i n t h i s case. The s t a t u t e t h a t t h e s h e r i f f is a l l e g e d to have v i o l a t e d p r o v i d e s : " P r o h i b i t i o n upon r e c e i v i n g -- o t h e r f e e s . The o f f i c e r s named above may r e c e i v e no o t h e r f e e s f o r any s e r v i c e s performed by them i n any a c t i o n or proceeding or f o r t h e performance of any ser- v i c e f o r which f e e s are allowed, and t h e p a r t y demanding or r e c e i v i n g any f e e s n o t h e r e i n allowed is l i a b l e to refund t h e same to t h e p a r t y a g g r i e v e d , w i t h t r e b l e t h e amount as damages, i n a d d i t i o n to costs of s u i t . " S e c t i o n 7-4-2519, MCA. T h i s s t a t u t e is found i n p a r t 25 o f T i t l e 7 o f t h e Montana Code Annotated r e l a t i n g to compensation and o f f i c i a l f e e s of c o u n t y o f f i c e r s . T h i s s e c t i o n of t h e Code sets up s a l a r y schedu- l e s f o r county o f f i c e r s and d e p u t i e s ; p r o v i d e s f o r m n t h l y a f f i d a - v i t s by each county o f f i c e r of t h e f e e s he h a s c o l l e c t e d , monthly r e m i t t a n c e of such f e e s to t h e county t r e a s u r e r , and a p o s t i n g by e a c h county o f f i c e r of t h e f e e s allowed by l a w ; p r o v i d e s t h a t e a c h county o f f i c e r may r e c e i v e no o t h e r f e e s f o r h i s s e r v i c e s i n a n y a c t i o n or proceeding or f o r t h e performance of any s e r v i c e f o r which f e e s are allowed i n t h e quoted s t a t u t e ; and f i n a l l y p r o v i d e s t h a t upon c o n v i c t i o n of r e c e i v i n g i l l e g a l f e e s or f a i l i n g t o a c c o u n t f o r f e e s c o l l e c t e d , t h e county o f f i c e r ' s o f f i c e must be d e c l a r e d v a c a n t and a s u c c e s s o r a p p o i n t e d . I n d e t e r m i n i n g t h e meaning of t h e term " f e e s " i n s e c t i o n 7-4-2519, MCA, t h e s e c t i o n of t h e Code summarized i n t h e pre- c e d i n g paragraph must be read i n t h e c o n t e x t of o t h e r s e c t i o n s of t h e Code d e a l i n g w i t h f e e s a u t h o r i z e d to be charged and c o l l e c t e d by county o f f i c e r s . T h i s e n a b l e s us to c o n s t r u e and i n t e r p r e t t h e Code as a homogenous whole g i v i n g e f f e c t to each p r o v i s i o n t h e r e o f r a t h e r t h a n i n t e r p r e t i n g a s p e c i f i c s t a t u t e i n i s o l a t i o n w i t h o u t r e f e r e n c e to o t h e r r e l a t e d s t a t u t e s . Montana Ass'n of Tobacco & Candy D i s t r i b u t o r s v. S t a t e Bd. of E q u a l i z a t i o n ( 1 9 7 0 ) , 156 Mont. 108, 476 P.2d 775. The f e e s a u t h o r i z e d by law to be charged and c o l l e c t e d by t h e s h e r i f f are e x p r e s s l y set f o r t h i n s e c t i o n s 7-32-2141 and 7-32-2142, MCA. They i n c l u d e a f e e of $2 f o r s e r v i n g a summons and complaint on e a c h d e f e n d a n t ; a f e e of $2 f o r s e r v i n g a body a t t a c h m e n t o r o r d e r of arrest; a f e e of $2 f o r s e r v i n g an a f f i d a v i t , o r d e r and u n d e r t a k i n g i n claim and d e l i v e r y ; a f e e of $ 1 f o r s e r v i n g a supoena on a w i t n e s s ; a f e e of $4 f o r s e r v i n g a w r i t o f p o s s e s s i o n o r r e s t i t u t i o n ; a f e e of $5 f o r t r i a l of t h e r i g h t o f p r o p e r t y or damages; a f e e of $2 f o r t a k i n g bond or u n d e r t a k i n g ; a f e e of $2 f o r s e r v i n g e v e r y n o t i c e , r u l e or o r d e r ; a f e e of 25 c e n t s p e r page f o r a copy of any w r i t , p r o c e s s or o t h e r paper demanded o r r e q u i r e d by l a w ; a f e e of $2 e x c l u s i v e of p u b l i c a t i o n costs f o r a d v e r t i s i n g any p r o p e r t y f o r sale on e x e c u t i o n , under any judgment, or under any o r d e r of sale; and a f e e to be f i x e d by t h e c o u r t or judge f o r t a k i n g , keeping or pre- s e r v i n g p r o p e r t y under a t t a c h m e n t , e x e c u t i o n , or o t h e r p r o c e s s . These a r e t h e " f e e s n r e f e r r e d to i n s e c t i o n 7-4-2519, MCA. When a b r o a d e r and more i n c l u s i v e p r o h i b i t i o n w a s intended by t h e l e g i s l a t u r e , a p p r o p r i a t e language s i g n i f y i n g such i n t e n t w a s used. For example, s e c t i o n 7-4-2511(a), MCA, p r o v i d e s t h a t no s a l a r i e d county o f f i c e r may r e c e i v e f o r h i s own use "any f e e s , p e n a l t i e s , or emoluments of any kind" and s e c t i o n 7-4-2512, MCA, p r o v i d e s t h a t t h e monthly af f i d a v i t of county o f f i c e r s f i l e d w i t h t h e county t r e a s u r e r must i n c l u d e a t r u e s t a t e m e n t i n d e t a i l "of a l l f e e s and compensations of e v e r y kind and n a t u r e f o r o f f i c i a l s e r v i c e s rendered." The s h e r i f f is n o t charged with v i o l a t i o n of e i t h e r of t h e s e s t a t u t e s i n t h i s a c t i o n . A d d i t i o n a l l y , t h e r e is a s p e c i f i c s t a t u t e d e a l i n g w i t h e n t i t l e m e n t of t h e s h e r i f f to reward money. S e c t i o n 7-32-2301, MCA. T h i s s t a t u t e u s e s t h e t e r m "reward" and does n o t c o n t a i n any r e f e r e n c e t o " f e e s . " It a u t h o r i z e s t h e Board of County Commissioners t o o f f e r a reward n o t exceeding $500 f o r t h e appre- h e n s i o n and c o n v i c t i o n of any person committing a f e l o n y i n t h e c o u n t y and p r o v i d e s t h a t " i n no case s h a l l t h e . . . s h e r i f f . . . b e e n t i t l e d to any p a r t of such reward .I1 Although t h i s s t a t u t e d o e s n o t a p p l y to a reward from t h e S t a t e P r i s o n , it i n d i c a t e s a l e g i s l a t i v e i n t e n t to t r e a t rewards s p e c i f i c a l l y and i n d e p e n d e n t l y a p a r t from s h e r i f f I s " f e e s " a u t h o r i z e d by l a w . S t o r y , s u p r a , c i t e d by t h e S t a t e , d o e s n o t s u p p o r t t h e argument t h a t " f e e s " as used i n s e c t i o n 7-4-2519, MCA, i n c l u d e s reward money. That case involved an a c t i o n to remove a county com- m i s s i o n e r from o f f i c e f o r c h a r g i n g t h e county $8 p e r day f o r a t t e n d i n g to t h e b u s i n e s s of t h e county and $8 p e r day f o r i n s p e c t i n g and o v e r s e e i n g road work. The county commissioner was charged under s e c t i o n 9006, R.C.M. 1907. T h i s s t a t u t e w a s e n t i t l e d "Removal of p u b l i c o f f i c e r s by summary proceed i n g s " and g e n e r a l l y provided f o r t r i a l and removal from o f f i c e of a p u b l i c o f f i c e r found g u i l t y of c h a r g i n g and c o l l e c t i n g i l l e g a l f e e s f o r s e r v i c e s rendered o r r e f u s a l or n e g l e c t to perform t h e d u t i e s of h i s o f f ice. It is n o t a p r e d e c e s s o r of s e c t i o n 7-4-2519, MCA, which t h e s h e r i f f is a l l e g e d to have v i o l a t e d i n t h i s case. The meaning of t h e word " f e e s " i n t h a t s t a t u t e is a f a r c r y from t h e meaning of t h e term " f e e s n i n s e c t i o n 7-4-2519, MCA. Q u i t e t h e c o n t r a r y . S t o r y recognized t h e d i f f e r e n c e i n meaning be tween t h e term " f e e s " as used i n d i f f e r e n t s t a t u t e s by t h i s language: "On t h e c o n t r a r y , we f i n d i n t h e Chapter on ' S a l a r i e s and Fees of O f f i c e r s t . . . t h a t it is used i n almost e v e r y p o s s i b l e s e n s e . For example: . . . i n s e c t i o n . . . 3149, [now sec- t i o n 7-4-2519, MCA] and o t h e r s it i m p o r t s s p e c i - f i c c h a r g e s to be c o l l e c t e d from p r i v a t e i n d i v i d u a l s f o r p a r t i c u l a r s e r v i c e s . . ." S t o r y , s u p r a , 53 Mont. a t 578, 165 P. a t 750-751. N e i t h e r H o l t n o r Matson is germane to t h e meaning of t h e term " f e e s " as used i n s e c t i o n 7-4-2519, MCA. Halt, l i k e S t o r y , i n v o l v e d i n t e r p r e t a t i o n of t h e term " f e e s " as used i n t h e same s t a t u t e d e a l i n g w i t h removal of p u b l i c o f f i c e r s by summary pro- c e e d i n g s and is i n a p p l i c a b l e to t h i s case f o r t h e same r e a s o n s . Matson relates to t h e meaning of t h e t e r m " f e e s n i n a n o t h e r c o n t e x t . F i n a l l y , t h e p l a i n language of s e c t i o n 7-4-2519, MCAI i n d i c a t e s t h a t it does n o t i n c l u d e rewards. Its language l i m i t s its a p p l i c a t i o n to f e e s f o r s e r v i c e s performed by t h e s h e r i f f " i n a n y a c t i o n or proceeding" or " f o r t h e performance of any s e r v i c e s f o r which f e e s a r e allowed .I1 The s e a r c h f o r and a p p r e h e n s i o n of a S t a t e P r i s o n e s c a p e e i n a n o t h e r county can h a r d l y be s a i d to be a s e r v i c e performed by t h e s h e r i f f " i n any a c t i o n o r proceeding". N e i t h e r can it be s a i d t h a t t h e s h e r i f f ' s p a r t i c i p a t i o n i n t h e c a p t u r e of t h e e s c a p e e is " t h e performance of any s e r v i c e f o r which f e e s are allowed." The language of t h e s t a t u t e could n o t a p p l y t o t h e reward i n t h i s case. For t h e f o r e g o i n g r e a s o n s , we hold t h a t t h e term " f e e s " as used i n s e c t i o n 7-4-2519, MCA, is l i m i t e d to c h a r g e s a u t h o r i z e d b y l a w to be made by t h e s h e r i f f f o r t h e performance of s p e c i f i c s e r v i c e s enumerated i n s e c t i o n s 7-32-2141 and 7-32-2142, MCA. It d o e s n o t r e f e r t o o r i n c l u d e reward money. S i n c e s e c t i o n 7-4-2519, MCA, is t h e o n l y s t a t u t e t h e s h e r i f f was charged w i t h v i o l a t i n g , t h e s h e r i f f was e n t i t l e d to summary judgment as a matter of l a w . The second i s s u e is whether summary judgment is precluded by t h e e x i s t e n c e of a genuine i s s u e of material f a c t . W e have p r e v i o u s l y noted i n t h i s o p i n i o n t h a t f a c t u a l i s s u e s are p r e s e n t i n t h i s case. These i s s u e s concern whether t h e reward money was s e n t to t h e s h e r i f f f o r h i s p e r s o n a l u s e , whether t h e county v e h i c l e and equipment were used i n t h e s e a r c h for and apprehen- s i o n of t h e e s c a p e e , and whether t h e s h e r i f f was a c t i n g i n h i s o f f i c i a l c a p a c i t y or as a p r i v a t e c i t i z e n . None of t h e s e are "material f a c t s v v w i t h i n t h e meaning of Rule 56, M.R.Civ.P., p r e c l u d i n g summary judgment. W e have h e l d t h a t t h e reward money is n o t a f e e as t h a t t e r m is used i n s e c t i o n 7-4-2519, MCA, t h e o n l y s t a t u t e t h e s h e r i f f is a l l e g e d to have v i o l a t e d . Thus t h e f o r e g o i n g f a c t u a l i s s u e s are n o t m a t e r i a l to a d e c i s i o n i n t h i s case as t h e i r r e s o l u t i o n could n o t af f e c t t h e r e s u l t . The f i n a l i s s u e is whether t h e District Court e r r e d i n denying t h e S t a t e a c o n t i n u a n c e to pursue d i s c o v e r y p r o c e d u r e s to s e c u r e f u r t h e r f a c t s from r e l u c t a n t w i t n e s s e s . In view of o u r p r e v i o u s h o l d i n g t h a t reward money is n o t a f e e w i t h i n t h e meaning of 7-4-2519, MCA, t h e development of f u r t h e r f a c t s c o u l d n o t change t h e r e s u l t i n t h i s case and t h e S t a t e could n o t have been p r e j u d i c e d by d e n i a l of f u r t h e r d i s c o v e r y of f a c t s . T h i s case t u r n s on t h e l a w , n o t on t h e f a c t s , and no amount of d i s c o - v e r y could af f e c t t h e r e s u l t . Affirmed. Chief J u s t i c e