Case Title: STATE EX REL SOL v BAKKER

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Docket Number: 

State: montana

Court: Montana Supreme Court

Date: 1982-08-11T00:00:00Z

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No. 82-23 I N THE S U P R E M E COURT O F THE STATE O F MONTANA 1982 THE STATE O F MONTANA, ex rel., C O L O N E L JOE R. SOL, Chief, Montana Highway P a t r o l , P l a i n t i f f and Respondent, -vs- VERNON JOHN BAKKER, Defendant and Appellant. Appeal from: D i s t r i c t Court of t h e Thirteenth 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 of Yellowstone, The Honorable William 5. Speare, Judge presiding. Counsel of Record: For Appellant: Berger, S i n c l a i r and Nelson; James S i n c l a i r , B i l l i n g s , Montana For Respondent: Hon. Mike Greely, Attorney General, Helena, Montana Harold F. Hanser, County Attorney, B i l l i n g s , Montana Submitted on B r i e f s : May 20, 1982 Decided: August 11, 1982 Filed : AblG 11 4982 " D e c l a r a t i o n o f speed l i m i t s -- e x c e p t i o n t o t h e r u l e . The a t t o r n e y g e n e r a l s h a l l d e c l a r e by p r o c l a m a t i o n f i l e d w i t h t h e secre- t a r y of state a speed l i m i t f o r a l l motor v e h i c l e s on a l l p u b l i c streets and highways i n t h e state whenever t h e e s t a b l i s h m e n t of such a speed l i m i t by t h e state is r e q u i r e d by f e d e r a l l a w as a c o n d i t i o n to t h e state's con- t i n u i n g e l i g i b i l i t y t o r e c e i v e f u n d s a u t h o r i z e d by t h e F e d e r a l Aid Highway A c t of 1973 and a l l acts amendatory t h e r e t o o r any o t h e r f e d e r a l s t a t u t e . The speed l i m i t may n o t be less t h a n t h a t r e q u i r e d by f e d e r a l law, and t h e a t t o r n e y g e n e r a l s h a l l by f u r t h e r p r o c l a m a t i o n change t h e speed l i m i t adopted p u r s u a n t t o t h i s s e c t i o n to comply w i t h f e d e r a l law. Any p r o c l a m a t i o n i s s u e d p u r s u a n t t o t h i s s e c t i o n becomes e f f e c t i v e a t m i d n i g h t o f t h e day upon which it is f i l e d w i t h t h e s e c r e t a r y of state. A speed l i m i t imposed p u r s u a n t to t h i s s e c t i o n is an e x c e p t i o n to t h e r e q u i r e m e n t s of 61-8-303 and 61-8-312, and speed i n e x c e s s of t h e speed l i m i t e s t a b l i s h e d p u r s u a n t to t h i s s e c t i o n is unlawful not- w i t h s t a n d i n g any p r o v i s i o n of 61-8-303 and 61-8-312. " S e c t i o n 61-8-304, MCA. "Speed r e s t r i c t i o n s --- b a s i c r u l e . (1) A p e r s o n o p e r a t i n g or d r i v i n g a v e h i c l e of any c h a r a c t e r on a p u b l i c highway of t h i s state s h a l l d r i v e it i n a c a r e f u l and p r u d e n t manner, and a t a rate of speed no g r e a t e r t h a n is r e a s o n a b l e and p r o p e r under t h e c o n d i t i o n s e x i s t i n g a t t h e p o i n t of o p e r a t i o n , t a k i n g i n t o a c c o u n t t h e amount and c h a r a c t e r of t r a f f i c , c o n d i t i o n of b r a k e s , w e i g h t of v e h i c l e , g r a d e and width of highway, c o n d i t i o n o f s u r f a c e , and freedom of o b s t r u c t i o n to view a h e a d , and he s h a l l d r i v e it so as n o t to unduly or u n r e a s o n a b l y endanger t h e l i f e , l i m b , p r o p e r t y , or o t h e r r i g h t s of a p e r s o n e n t i t l e d to t h e use of t h e street or highway. " ( 2 ) Where no s p e c i a l hazard e x i s t s t h a t r e q u i r e s lower speed f o r compliance w i t h sub- s e c t i o n (1) of t h i s s e c t i o n , t h e speed of a v e h i c l e n o t i n e x c e s s of t h e l i m i t s s p e c i f i e d i n t h i s s e c t i o n or e s t a b l i s h e d as a u t h o r i z e d i n 61-8-309, 61-8-310, 61-8-311, and 61-8-313 is l a w f u l , b u t a speed i n e x c e s s of t h o s e l i m i t s is unlawful: " ( a ) 25 miles p e r hour i n an urban d i s t r i c t ; " ( b ) 35 m i l e s p e r hour on a highway under c o n s t r u c t i o n or r e p a i r ; " ( c ) 55 m i l e s p e r hour i n o t h e r l o c a t i o n s d u r i n g t h e n i g h t t i m e , e x c e p t t h a t t h e n i g h t - t i m e speed l i m i t on completed s e c t i o n s of i n t e r s t a t e highways is 65 miles per hour. " ( 3 ) 'Daytime' means from one-half hour b e f o r e s u n r i s e t o one-half hour a f t e r s u n s e t . ' N i g h t t i m e 1 means a t any o t h e r hour. " ( 4 ) The speed l i m i t s set f o r t h i n t h i s s e c t i o n may be a l t e r e d by t h e highway commission as a u t h o r i z e d i n 61-8-309, 61-8-310, and 61-8-313. " ( 5 ) The d r i v e r of a v e h i c l e s h a l l , con- s i s t e n t w i t h s u b s e c t i o n ( l ) , d r i v e a t a n a p p r o p r i a t e reduced speed when approaching and c r o s s i n g an i n t e r s e c t i o n or r a i l w a y g r a d e c r o s s i n g , when aproaching and going around a c u r v e , when approaching a h i l l crest, when t r a v e l i n g upon a narrow or winding roadway and when a s p e c i a l hazard e x i s t s w i t h respect to p e d e s t r i a n s or o t h e r t r a f f i c or by r e a s o n of w e a t h e r or highway c o n d i t i o n ." S e c t i o n 61-8-303, MCA. " S p e c i a l speed l i m i t a t i o n s o n t r u c k s , t r u c k tractors. motor-driven c v c l e s , and - - - . - . - - - - - * v e h i c l e s towing h o u s e t r a i l e r s . N o p e r s o n s h a l l o p e r a t e any t r u c k or t r u c k t r a c t o r t h e q r o s s weight of which e x c e e d s 8,000 pounds a t a speed greater t h a n 65 miles per hour on t h o s e completed s e c t i o n s o f i n t e r s t a t e and f o u r - l a n e d i v i d e d highways and 60 miles p e r h o u r on t h o s e completed s e c t i o n s of primary and secondary highways. However, t h e t r u c k n i g h t t i m e speed l i m i t s h a l l n o t exceed t h a t of a u t o m o b i l e s as s t a t e d i n 61-8-303. " ( 2 ) N o p e r s o n s h a l l o p e r a t e any motor-driven c y c l e a t any t i m e mentioned i n 61-9-201 a t a speed g r e a t e r t h a n 35 miles per hour u n l e s s s u c h motor-driven c y c l e is equipped w i t h a headlamp o r lamps which are a d e q u a t e to r e v e a l a p e r s o n o r v e h i c l e a t a d i s t a n c e of 300 f e e t ahead. " ( 3 ) N o p e r s o n s h a l l o p e r a t e a v e h i c l e which is towing a h o u s e t r a i l e r a t a speed g r e a t e r t h a n a maximum of 50 miles per hour ." S e c t i o n 61-8-312, MCA. The d e f e n d a n t a r g u e s t h a t S e c t i o n 61-8-312, MCA, h a s been preempted by t h e p r o v i s i o n s of S e c t i o n 61-8-304, MCA. I n t h e i n s t a n t case, a c t i o n began when t h e S t a t e of Montana charged d e f e n d a n t as a h a b i t u a l t r a f f i c of f e n d e r . Defendant c o n t e n d s t h a t w i t h t h e enactment of S e c t i o n 61-8-304, MCA, by t h e 1974 l e g i s l a t u r e , and w i t h its s u b s e q u e n t amendment by t h e 1979 l e g i s l a t u r e , S e c t i o n 66, Chapter 421, t h a t under t h e e s t a b l i s h e d r u l e s of s t a t u t o r y c o n s t r u c t i o n o u r l e g i s l a t u r e c l e a r l y intended t h a t S e c t i o n 61-8-304, MCA, is t h e c o n t r o l l i n g s t a t u t e and preempts S e c t i o n 61-8-312, MCA, as t o speeding o f f e n s e s . Montana Department of Revenue v. American Smelting and R e f i n i n g ( 1 9 7 7 ) f 173 Mont. 316, 567 P.2d 901, 906; Matter of S e n a t e B i l l N o . 23, Chapter 491, Montana S e s s i o n Laws of 1973 ( 1 9 7 5 ) , 168 Mont. 102, 540 P.2d 975; Hammill v. Young ( 1 9 7 5 ) , 168 Mont. 81, M r . J u s t i c e John Conway H a r r i s o n d e l i v e r e d t h e Opinion of t h e C o u r t . T h i s is an a p p e a l from an Order of t h e District Court of t h e T h i r t e e n t h J u d i c i a l District, County of Ye11owstone1 ad j udging Bakker to be a h a b i t u a l t r a f f i c o f f e n d e r and d i r e c t i n g him to s u r r e n d e r h i s d r i v e r s l i c e n s e t o t h e Montana Highway P a t r o l . The c o m p l a i n t was f i l e d seeking to d e c l a r e d e f e n d a n t a habi- t u a l t r a f f i c o f f e n d e r . T h e r e a f t e r t h e o r d e r to show cause was i s s u e d by t h e District Court r e q u i r i n g him to a p p e a r on August 12, 1981. Defendant secured counsel and appeared b e f o r e t h e Honorable W i l l i a m J. S p e a r e , s i t t i n g w i t h o u t a j u r y , who determined t h a t d e f e n d a n t was a h a b i t u a l t r a f f i c o f f e n d e r under t h e p r o v i s i o n s of o u r code. Bakker is a twenty-nine y e a r o l d t r u c k d r i v e r employed by Wymont Beverages. H i s s o l e means of s u p p o r t is t h a t of d r i v i n g t r u c k s . H i s d r i v i n g r e c o r d , a s i n t r o d u c e d a t t h e h e a r i n g showed a n accumulation of a s t a t u s of t h i r t y ( 3 0 ) h a b i t u a l o f f e n d e r p o i n t s . The t h i r t y ( 3 0 ) p o i n t s r e p r e s e n t an accumulation of t e n ( 1 0 ) speeding v i o l a t i o n s under t h e p r o v i s i o n s of S e c t i o n 61-8-312, MCA. These v i o l a t i o n s o c c u r r e d between J a n u a r y 15, 1979, and A p r i l 20, 1981. During t h a t p e r i o d t h e r e c o r d i n d i - c a t e d t h a t t h e Montana Highway P a t r o l had corresponded w i t h t h e d e f e n d a n t warning him of t h e acccumulation of p o i n t s and c o u n s e l i n g him about f u t u r e v i o l a t i o n s and t h e p o s s i b l e l o s s of h i s l i c e n s e . Following p o s t - t r i a l motions f o r a new t r i a l and to amend f i n d i n g s of f a c t and c o n c l u s i o n s of l a w , and d e n i a l of same, t h e d e f e n d a n t f i l e d h i s n o t i c e of a p p e a l . The District Court e n t e r e d a n o r d e r , p u r s u a n t to a s t i p u l a t i o n between t h e p a r t i e s , s t a y i n g judgment pending a d e c i s i o n by t h i s Court. The sole i s s u e b e f o r e t h i s Court is whether S e c t i o n 61-8-312, MCA, h a s been preempted by p r o v i s i o n s of S e c t i o n 61-8-304, MCA. Three s e c t i o n s of o u r code are b e f o r e us i n c o n s i d e r i n g t h e i s s u e p r e s e n t e d . 540 P.2d 971. W e f i n d no argument w i t h t h e cases c i t e d and have long adhered to t h e p o s i t i o n t h a t i n c o n s t r u i n g a s t a t u t e t h e inten- t i o n of t h e l e g i s l a t u r e must be followed, i f p o s s i b l e . S e c t i o n 1-2-102, MCA. However, t h e i n t e n t i o n of l e g i s l a t u r e must f i r s t b e determined from t h e p l a i n meaning of t h e words used, and i f t h e meaning of t h e s t a t u t e can be d e t e r m i n e d , c o u r t s may n o t go f u r t h e r and a p p l y any o t h e r means of i n t e r p r e t a t i o n . S t a t e ex re1 Zander v. District Court ( 1 9 7 9 ) , - - Mon t . -- , 591 P.2d 956, 36 St.Rep. 489; Haker v. Southwestern Ry C o . ( 1 9 7 8 ) , 176 Mont. 364, 578 P.2d 724. I n t h i s c a s e t h e i n t e n t of t h e l e g i s l a t u r e c a n be a s c e r t a i n e d from t h e p l a i n meaning as w r i t t e n . S e c t i o n 61-8-304, MCA, makes clear t h a t it is an e x c e p t i o n to S e c t i o n s 61-8-303, MCA, and 61-8-312, MCA, which e s t a b l i s h t h e speed l i m i t a t 55 m i l e s per hour. The b a s i c r u l e s t a t u t e S e c t i o n 61-8-303, MCA, p r o v i d e s i n s u b s e c t i o n ( 2 ) ( c ) t h a t a n i g h t t i m e speed i n e x c e s s of 65 miles per hour on t h e i n t e r s t a t e highway is unlawful. The d e f e n d a n t was c i t e d under S e c t i o n 61-8-312, MCA, which p r o v i d e s t h a t t h e speed l i m i t f o r t r u c k s is 65 miles p e r hour on i n t e r s t a t e and f o u r - l a n e d i v i d e d highways, and 60 miles p e r hour on o t h e r highways. In a d d i t i o n , it restricts t h e night- t i m e speed l i m i t f o r t r u c k s as t h e same f o r a u t o m o b i l e s , a s s t a t e d i n S e c t i o n 61-8-303, MCA. Here t h e clear meaning of t h e s t a t u t e can be determined a c c o r d i n g to t h e plain-meaning r u l e . A s set f o r t h i n S e c t i o n s 61-8-303, MCA, and 61-8-312, MCA, it is obvious t h a t t h e s e sec- t i o n s set t h e speed l i m i t s a t 60 m i l e s p e r hour and 6 5 miles p e r h o u r , and t h a t S e c t i o n 61-8-304, MCA, s p e c i f i c a l l y p r o v i d e s t h a t n o t w i t h s t a n d i n g t h o s e l i m i t s , a speed above 55 miles per hour is unlawful as p u r s u a n t t o t h a t s t a t u t e . T h e r e f o r e , as i n t h i s case, a t r u c k exceeding t h e 50 m i l e per hour speed l i m i t on a completed s e c t i o n of t h e i n t e r s t a t e , b u t n o t exceeding t h e 65 m i l e p e r hour speed l i m i t , would be charged under S e c t i o n 61-8-304, MCA. However, i n t h e e v e n t t h a t t h e t r u c k exceeded t h e rate of 65 miles p e r hour on such a s t r e t c h of highway, t h e d r i v e r would be charged under S e c t i o n 61-8-312, MCA. Rating t h e s e two speed l i m i t s t a t u t e s it is c l e a r t h a t S e c t i o n 61-8-304, MCA, e n s u r e s t h a t it is understood t h a t s p e e d s between 55 and 65 miles p e r hour a r e also unlawful. T h i s is made c l e a r b y t h e l a s t s e n t e n c e of S e c t i o n 61-8-304, MCA, which i n d i c a t e s t h a t t h e l e g i s l a t u r e intended t h a t S e c t i o n 61-8-312, MCA, remained i n e f f e c t . I n f u r t h e r c l a r i f i c a t i o n of o u r i n t e r p r e t a t i o n as g i v e n above, w e l o o k t o o t h e r r u l e s of s t a t u t o r y c o n s t r u c t i o n f o r g u i d a n c e . That n e x t s t e p i n t h e p r o c e s s of i n t e r p r e t a t i o n is looked to t h e purpose of t h e s t a t u t e f o r guidance i n its meaning. See S t a t e v. Weese ( 1 9 8 2 ) , Mont . ---- , 616 P.2d 371, 37 S t . R p t r . 1620 a t 1622. The purpose of S e c t i o n 61-8-304, MCA, was simply to p u t a l a w o n t h e books t h a t would e n s u r e t h e continued r e c e i p t of f e d e r a l highway f u n d s , y e t , impose no real p e n a l t y o r h a r d s h i p on v i o l a t o r s . T h i s is evidenced by t h e minimal $5 ( f i v e ) f i n e , and t h e f a c t t h a t no p o i n t s are accessed f o r v i o l a t i o n . See Chapter 60, Laws of Montana ( 1 9 7 4 ) . That act p r o v i d e s t h a t t h e speed l i m i t e s t a b l i s h e d by t h e a t t o r n e y g e n e r a l s h a l l t e r m i n a t e whe- n e v e r such speed l i m i t is no l o n g e r r e q u i r e d by f e d e r a l l a w . S e c t i o n 3 1 Chapter 601 Laws of Montana ( 1 9 7 4 ) . The purpose of t h a t p o r t i o n of t h e s t a t u t e , o r t h a t which is now S e c t i o n 61-8-304, MCA, was n o t to r e v i s e t h e s t a t u t o r y scheme r e l a t i n g to speed l i m i t s i n g e n e r a l . T h i s is made clear by r e a d i n g of S e c t i o n 61-8-305(2) , MCA, and S e c t i o n 61-8-306(5), MCA. Those s e c t i o n s b a s i c a l l y p r o v i d e t h a t t h e local l a w may e s t a b l i s h lower speed l i m i t s t h a n t h a t d e c l a r e d by t h e a t t o r n e y g e n e r a l . I n a d d i t i o n , to make t h e i n t e n t of t h e act p e r f e c t l y clear, S e c t i o n 7 , Chapter 60, Laws of Montana ( 1 9 7 4 ) , now c o d i f i e d as S e c t i o n 61-8-307, MCA, p r o v i d e s : " T h i s act i n no way af f e c t s t r a f f i c c o n t r o l s t a t u t e s and v i o l a t i o n s of e x i s t i n g s t a t u t e s s h a l l be p r o s e c u t e d s o l e l y as provided t h e r e i n ." Obviously, t h e clear i n t e n t of t h e l e g i s l a t u r e was to e n a c t a new l a w when it passed Chapter 60. But, t h e laws were f o r a l i m i t e d purpose, and t h a t purpose was achieved by s e t t i n g f u r t h e r i e x c e p t i o n s to e x i s t i n g t r a f f i c laws and w i t h o u t r e w r i t i n g t h e e n t i r e t r a f f i c r e g u l a t i o n body of l a w . F i n a l l y , w e n o t e t h a t t h e a p p e l l a n t a r g u e s t h a t S e c t i o n 61-8-304, MCA, "preempts" o t h e r s e c t i o n s , and i n so d o i n g , p r o v i d e s f o r "implied r e p e a l " argument. It h a s been t h e long- e s t a b l i s h e d r u l e t h a t r e p e a l s by i m p l i c a t i o n a r e n o t f a v o r i t e s . R e p e a l s by i m p l i c a t i o n are n o t favored and c o u r t s w i l l make e v e r y e f f o r t to r e c o n c i l e t h e s t a t u t e s i n q u e s t i o n s t o avoid r e p e a l s . Kuchan v. Harvey ( 1 9 7 8 ) , ----- Mont . ---- , 585 P.2d 1298, 35 St.Rep. 1547. See also Lee v. S t a t e of Montana (1981) - - --- Mon t . ---- , 635 P.2d 1282, 38 St.Rep. 1729. Mead, Samuel and C o . , I n c . v . Dyar ( 1 9 8 0 ) , 127 A r i z . 565, 622 P.2d 512. Based on t h e above r u l e s of s t a t u t o r y c o n s t r u c t i o n , we f i n d it c l e a r t h a t t h e Montana state l e g i s l a t u r e d i d n o t i n t e n d to rewrite t h e t r a f f i c r e g u l a t i o n s , and t h a t S e c t i o n 61-8-304 is s i m p l y an e x c e p t i o n to t h e o t h e r s t a t u t e s . Here t h e l e g i s l a t u r e o n l y passed t h e s e c t i o n i n o r d e r to e n s u r e a continued r e c e i p t of f e d e r a l highway funds. S e c t i o n 61-8-304, MCA, as f a r as S e c t i o n s 61-8-303, MCA, and 61-8-312, MCA, are concerned, a p p l i e s o n l y to speed l i m i t s between 55 miles p e r hour and e i t h e r 6 0 or 65 miles p e r hour depending upon t h e type of highway o f f e n s e i n c u r r e d t h e r e o n . The judgment of t h e District Court is a f f i r m e d . We concur: