Case Title: JONES HERRIOTT v JUDGE

Citation: 

Docket Number: 

State: montana

Court: Montana Supreme Court

Date: 1978-04-16T00:00:00Z

Document:
No. 14206 IN THE SUPREME COURT OF THE STATE OF MONTANA 1978 LEWIS R. JONES, RALPH L. HERRIOTT et al., Plaintiffs and Petitioners, HON. THOMAS L. JUDGE, Governor of the State of Montana et al., Defendants and Respondents. Original Proceeding: Counsel of Record: For Petitioners: Ralph L. Herriott argued, Hysham, Montana John L. Adams, Jr. Billings, Montana Douglas Y. Freeman, Hardin, Montana Weymouth D. Symrnes, Billings, Montana Hon. Judge Charles B. Sande, argued, ~illinqs, Montana For Respondents: Hon. Mike Greely, Attorney General, Helena, Montana Mike NcGrath, Assistant Attorney General, argued, Helena, Montana Hon. Judge W. W. Lessley argued, Bozeman, Montana Submitted: Decided: - - . 41:3 'b?? Filed: Hon. Peter G . Meloy, D i s t r i c t Judge, s i t t i n g , d e l i v e r e d t h e Opinion of t h e Court. This i s an o r i g i n a l proceeding seeking a d e c l a r a t o r y judgment from t h i s Court on t h e c o n s t i t u t i o n a l i t y of s e c t i o n 93-710, e t s e q . , R . C . M . 1947. These s t a t u t e s provide i n p a r t t h a t i n d i v i d u a l s nominated f o r j u d i c i a l vacancies be confirmed by t h e S e n a t e , b u t t h a t a nomination made while t h e Senate i s not in s e s s i o n i s e f f e c t i v e a s an appointment, u n t i l t h e end of t h e next s e s s i o n . This controversy arose a f t e r t h e j u d i c i a l vacancy created by t h e appointment of Chief J u s t i c e Paul H a t f i e l d t o t h e United S t a t e s Senate. The J u d i c i a l Nominating Commission a s authorized by s e c t i o n 93-710, presented t h e Governor with t h r e e nominees. Thomas L. Judge a s Governor of t h e S t a t e of Montana s e l e c t e d one of t h r e e nominees, Frank I . Haswell, t o f i l l t h e o f f i c e of Chief J u s t i c e of t h e Supreme Court a s authorized by Section 93-71 1. The appointment of J u s t i c e Haswell a s Chief J u s t i c e c r e a t e d a vacancy on t h e Supreme Court which r e q u i r e s t h e same procedures a s used i n f i l l i n g t h e vacancy f o r Chief J u s t i c e . P e t i t i o n e r s a r e Lewis R . Jones, Ralph R . H e r r i o t t and Charles B . Sande, r e g i s t e r e d v o t e r s i n Treasure and Yellowstone Counties who d e s i r e and intend t o vote in t h e next primary and next general e l e c t i o n s i n t h e S t a t e of Montana. Respondents f i l e d a motion t o dismiss and t h e Court dismissed t h e a c t i o n a s t o respondents Mike Greely, John C . Harrison, Larry Elison and " a l l o t h e r persons r e c e n t l y involved as candidates o r a s p i r a n t s t o t h e appointment t o t h e o f f i c e of Chief J u s t i c e of t h e Supreme Court of t h e S t a t e of Montana and Associate J u s t i c e of t h e Supreme Court of Montana." The m o t i o n t o d i s m i s s as t o t h e o t h e r r e s p o n d e n t s was h e a r d a t t h e t i m e o f t h e h e a r i n g on t h e m e r i t s on March 31, 1978. It i s p e t i t i o n e r s ' c o n t e n t i o n t h a t i n d i v i d u a l s a p p o i n t e d t o f i l l j u d i c i a l v a c a n c i e s m u s t r u n f o r o f f i c e a t t h e n e x t s u c c e e d i n g p r i m a r y . The' c r u x o f p e t i t i o n e r s ' argument i s t h a t A r t i c l e V I I , S e c t i o n 8, 1972 Montana C o n s t i t u t i o n , i s ambiguous. The t h r u s t o f t h e c o m p l a i n t i s t h a t s e c t i o n s 93-710 and 93-711 a r e u n c o n s t i t u t i o n a l . The b a s i s f o r t h e c o n t e n t i o n s i s c o n s i d e r e d l a t e r i n t h i s O p i n i o n . Respondents i n i t i a l l y c o n t e n d p e t i t i o n e r s l a c k s t a n d - i n g t o i n v o k e t h e j u d i c i a l power o f t h i s C o u r t . I n a d d i t i o n , r e s p o n d e n t s c o n t e n d t h e mandates o f A r t i c l e V I I , S e c t i o n 8, as t o j u d i c i a l v a c a n c i e s a r e unambiguous and t h e r e f o r e n o t s u b j e c t t o a n y c o n s t r u c t i o n by t h i s C o u r t . The f i r s t i s s u e i s w h e t h e r p e t i t i o n e r s have s t a n d i n g t o i n v o k e t h e C o u r t ' s j u d i c i a l power. The r u l e i s w e l l - e s t a b l i s h e d i n Montana t h a t o n l y t h o s e who a r e a d v e r s e l y a f f e c t e d b y a s t a t u t e w i l l be h e a r d t o q u e s t i o n i t s v a l i d i t y . Chovanak v . Matthews, ( 1 9 4 8 ) , 1 2 0 Mont. 520, 188 P.2d 582. Chovanak s t a t e d t h a t as a g e n e r a l r u l e , p r i v a t e c i t i z e n s may n o t r e s t r a i n o f f i c i a l a c t s when t h e y f a i l t o a l l e g e and p r o v e damages t o t h e m s e l v e s d i f f e r i n g i n c h a r a c t e r f r o m t h a t s u s t a i n e d by t h e g e n e r a l p u b l i c . The r i g h t t o v o t e , however, i s a p e r s o n a l and c o n s t i t u t i o n a l r i g h t . A l t h o u g h s t a t u r e as an e l e c t o r w i l l g e n e r a l l y n o t a l l o w an i n d i v i d u a l t o b r i n g an a c t i o n i n v o k i n g t h e j u d i c i a l power, an e l e c t o r who i s d e n i e d t h i s r i g h t i s s u f f i c i e n t l y a f f e c t e d t o i n v o k e t h e j u d i c i a l power t o c h a l l e n g e t h e v a l i d i t y o f t h e A c t w h i c h d e n i e s him t h e r i g h t . The second i s s u e i s w h e t h e r t h e j u d i c i a l n o m i n a t i n g p r o c e s s as e s t a b l i s h e d i n Montana i s c o n s t i t u t i o n a l . A r t i c l e V I I , S e c t i o n 8 , 1972 Montana C o n s t i t u t i o n , i s d i v i d e d i n t o t h r e e s u b s e c t i o n s . S u b s e c t i o n ( 1 ) p r o v i d e s f o r t h e n o m i n a t i o n and a p p o i n t m e n t t o f i l l j u d i c i a l v a c a n c i e s and i s t h e c o n s t i t u t i o n a l b a s i s f o r s e c t i o n s 93-71 0 and 93-71 1 . S u b s e c t i o n s ( 2 ) and ( 3 ) p r o v i d e t h e manner o f t h e e l e c t i o n t o f i l l t h e v a c a n c i e s . P e t i t i o n e r s r e l y on t h e l a n g u a g e i n K e l l e r v . S m i t h , ( 1 9 7 6 ) , Mont. 553 P.2d 1002, 33 S t . Rep. 828, and Yunker v. M u r r a y , ( 1 9 7 6 ) , Mont. , 554 P.2d 285, 33 S t . Rep. 856, w h i c h d e a l w i t h s u b s e c t i o n s ( 2 ) and ( 3 ) and t h e meaning o f t h e word " i n c u m b e n t " . P e t i t i o n e r s a r g u e t h a t because o f a s o - c a l l e d " a m b i g u i t y " i n s u b s e c t i o n s ( 2 ) and ( 3 ) t h a t s u b s e c t i o n ( 1 ) i s a l s o ambiguous. W e do n o t a g r e e . A r t i c l e V I I , S e c t i o n 8 , s u b s e c t i o n ( I ) , s t a t e s i n p a r t : "Each n o m i n a t i o n s h a l l be c o n f i r m e d b y t h e s e n a t e , b u t a n o m i n a t i o n made w h i l e t h e s e n a t e i s n o t i n s e s s i o n s h a l l be e f f e c t i v e a s an a p p o i n t m e n t u n t i l t h e end o f t h e n e x t s e s s i o n . " T h e r e i s n o t h i n g a n b i g u o u s a b o u t t h i s l a n g u a g e . When t h e words o f a s t a t u t e a r e p l a i n , unambiguous, d i r e c t and c e r t a i n , i t speaks f o r i t s e l f and t h e r e i s n o t h i n g f o r t h e c o u r t t o c o n s t r u e . S t a t e ex r e l . P u b l i c S e r v i c e Comm. v . Brannon, ( 1 9 2 9 ) , 8 6 Mont. 200, - 2 8 ' 2 P . 202, 209. The t e r m s m u s t be g i v e n t h e n a t u r a l and p o p u l a r meaning i n w h i c h t h e y a r e u s u a l l y u n d e r s t o o d . S t a t e ex r e l . Hinz v . Moody, ( 1 9 2 4 ) , 71 Mont. 473, 230 P . 575; Cashman v . V i c k e r s , (19241, 69 Mont. 516, 223 P . 897. These, same p r i n c i p l e s a p p l y i n t h e i n t e r p r e t a t i o n of t h e C o n s t i t u t i o n . Cruse v . F i s c h l , ( 1 9 1 8 ) , 55 Mont. 258, 175 P . 873; Martien v . P o r t e r , ( 1 9 2 3 ) , 68 Mont. 450, 219 P . 817. The language o f t h e C o n s t i t u t i o n i s u n e q u i v o c a l l y c l e a r s o t h a t when a j u d i c i a l vacancy e x i s t s , a nomination made when t h e s e n a t e i s n o t i n s e s s i o n i s e f f e c t i v e a s an appointment u n t i l t h e end of t h e n e x t s e s s i o n . The h o l d i n g i n K e l l e r v . Smith, s u p r a , t h a t t h e word "incumbent" i n A r t i c l e V I I , S e c t i o n 8 i s ambiguous has no b e a r i n g on t h e c l a r i t y o f any o t h e r l a n g u a g e i n t h i s s e c t i o n . P e t i t i o n e r s u s e of Yunker v . Murray, s u p r a , i s s i m i l a r l y i n a p p r o p r i a t e . Because t h e language i s unambiguous t h e r e i s n o t h i n g f o r t h e Court t o c o n s t r u e . The s t a t u t e s complained of a r e d e r i v e d d i r e c t l y from t h e unambiguous l a n g u a g e of t h e 1972 Montana C o n s t i t u t i o n . P e t i t i o n e r s p o i n t o u t t h a t a t t h e t i m e of t h e o f t h e a d o p t i o n / j u d i c i a l a r t i c l e i n 1972, t h e l e g i s l a t u r e met i n annual s e s s i o n s and t h a t s u b s e q u e n t l y t h e C o n s t i t u t i o n was amended t o p r o v i d e b i e n n i a l s e s s i o n s . From t h i s e v e n t p e t i t i o n e r s seem t o contend t h e j u d i c i a l a r t i c l e i s n o t what t h e people d e s i r e a t t h i s t i m e . To a c h i e v e t h e r e s u l t t h a t p e t i t i o n e r s d e s i r e , t h i s Court would have t o i n s e r t language i n t o s u b s e c t i o n ( 1 ) of t h e j u d i c i a l a r t i c l e . T h i s Court has no such a u t h o r i t y . N e i t h e r can t h i s Court a c c e p t p e t i t i o n e r s ' c o n t e n t i o n t h a t t h e j u d i c i a l appointment p r o c e s s i s v i o l a t i v e of and repugnant t o t h e f o l l o w i n g p r o v i s i o n s of t h e 1972 Montana C o n s t i t u t i o n : A r t i c l e 11, S e c t i o n 1 ; A r t i c l e 111, S e c t i o n 1 ; and A r t i c l e V , S e c t i o n 1 3 . A r t i c l e 1 1 , S e c t i o n 1 , p r o v i d e s : " P o p u l a r S o v e r e i g n t y . All pol i t i c a l power i s v e s t e d i n and d e r i v e d from t h e p e o p l e . All government of r i g h t o r i g i n a t e s with t h e p e o p l e , i s founded upon t h e i r w i l l o n l y , and i s i n s t i t u t e d s o l e l y f o r t h e good o f t h e whole." A r t i c l e 111, S e c t i o n 1 , p r o v i d e s f o r t h e s e p a r a t i o n of t h e powers of t h e government i n t o t h r e e d i s t i n c t b r a n c h e s , and A r t i c l e V , S e c t i o n 1 3 , governs t h e impeachment p r o c e s s . The C o n s t i t u t i o n must be c o n s i d e r e d a s a whole. S t a t e ex r e l . L i v i n g s t o n e v . Murray, ( 1 9 6 0 ) , 137 Mont. 557, 354 P.2d 552. All of t h e p r o v i s i o n s of t h e C o n s t i t u t i o n b e a r i n g upon t h e same s u b j e c t m a t t e r a r e t o r e c e i v e a p p r o p r i a t e a t t e n t i o n and be c o n s t r u e d t o g e t h e r . Cottingham v . S t a t e Board of Examiners, ( 1 9 5 8 ) , 134 Mont. 1 , 328 P.2d 907. The p r o v i s i o n s c o n t a i n e d i n A r t i c l e 11, S e c t i o n 1 ; A r t i c l e 111, S e c t i o n 1 ; a n d , A r t i c l e V , S e c t i o n 13 a p p l y o n l y g e n e r a l l y t o t h e j u d i c i a l nominating p r o c e s s a s e s t a b l i s h e d i n Montana, whereas t h e p r o v i s i o n i n A r t i c l e V I I , S e c t i o n 8 r e l a t e s s p e c i f i c a l l y t o t h e f i l l i n g of j u d i c i a l v a c a n c i e s . In t h e c o n s t r u c t i o n of c o n s t i t u t i o n s , broad and g e n e r a l p r o v i s i o n s which tend i n some measure t o c o n f l i c t w i t h t h e s p e c i f i c ones a r e c o n t r o l l e d by t h e s p e c i f i c p r o v i s i o n . British-American Oil Producing Co. v . S t a t e Board of E q u a l i z a t i o n , ( 1 9 3 6 ) , 101 Mont. 293, 54 P.2d 129, a f f i r m e d 299 U.S. 159, 57 S . C t . 1 3 2 , 81 L Ed 95; S t a t e ex re1 Corry v . Cooney, ( 1 9 2 4 ) , 70 Mont. 355, 225 P . 1007. vaca Comp The e s t a b l i s h e d procedur n c i e s i n Montana a r e c o n s t i t u t i l a i n t i s d i s m i s s e d . e s f o r f i l l i n g j u d i c i a l - - - ing / I ~ c t i n g Chief Justice b' J u s t i c e - D i s t r i c t J u d q e s s i t t i n g w i z h thk Court.