Title: McCabe v. Kane

State: rhode-island

Issuer: Rhode Island Supreme Court

Document:

221 A.2d 103 (1966) Raymond A. McCabe v. Walter J. KANE. Appeal No. 49. Supreme Court of Rhode Island. June 27, 1966. *104 Aram A. Arabian, for plaintiff. Factor, Chernick & Hillman, William C. Hillman, for defendant. PER CURIAM. This complaint for declaratory and injunctive relief was heard by a justice of the superior court on the pleadings and on an agreed statement of facts. The case is before this court on the plaintiff's appeal from a judgment entered by the trial justice adjudging the defendant to be the duly-qualified clerk of the supreme court of this state and presently entitled to that office. The question squarely presented for our determination is whether defendant, a state senator who has been appointed clerk of the supreme court by the governor, confirmed by the senate, taken the oath of office and filed a proper bond, is lawfully entitled to such office. We hold that he is. *105 The question is raised by the following agreed facts: The only other evidence is defendant's exhibit A, which is a certified copy of page 74 of the "Personnel Supplement to the so-called Annual Appropriation Act, Chapter 232 of the Public Laws of 1965, for the Fiscal Year ending June 30, 1966." The plaintiff has briefed and argued his appeal under two main points. Under the first he raises the issue of incompatibility. He argues in substance that the office of clerk of the supreme court was created by and is subject to the control of the legislature and he contends that this necessarily and logically results in an incompatibility between that office and membership in the state senate. If there be merit in his position it arises not from any constitutional, legislative, or judicial principle prohibiting the same individual from simultaneously holding two public offices but from the common-law rule which prevails in this state and which inhibits the holding of incompatible offices by the same person. State v. Brown, 5 R.I. 1 (1857); State ex rel. Metcalf v. Goff, 15 R.I. 505, 9 A. 226 (1887); In re Election of Sheriff, 41 R.I. 79; Opinion to the Governor, 67 R.I. 197, 21 A.2d 267. *106 What constitutes incompatibility is settled and the tests were aptly put many years ago in State ex rel. Metcalf v. Goff, supra at pages 506-507, 9 A. at page 226 where we said: Applying these basic tests in a case involving one who was both a clerk of a municipal court and a legislator the court in People ex rel. Ryan v. Green, 58 N.Y. 295, found no incompatibility and said at page 304: It is also clear that a conflict of interest as distinguished from one of duties does not create an incompatibility. This is important in this case because while there may be a conflict in interests between our clerk and a member of the legislature there is in our judgment none in their duties. The distinction between the two as they may reflect upon a determination of the existence of incompatibility is clearly pointed out in Reilly v. Ozzard, 33 N.J. 529, where at 549, 166 A.2d 360, at 370, 89 A.L.R.2d 612 the court said: We come now to the question of whether the office of the clerk of this court is incompatible with membership in the general assembly. While clearly there is no inherent inconsistency or repugnancy between the duties of the two offices there *107 are questions of whether their nature and duties, State v. Brown, supra, or their character and the relation of each to the other, State ex rel. Metcalf v. Goff, supra, are such as to make the clerk subordinate to the legislature. It is, of course, the fact that the office of clerk is legislatively created, G.L. 1956 § 8-4-1, that the method of his appointment and the term of his office are legislatively established, § 8-4-2, and that some of his duties are legislatively prescribed, § 8-4-8. We are unable to perceive however, that such legislative action subordinates the office of the clerk of this court to the legislature so as to render incompatible the occupancy thereof by a member of the general assembly. Conceding that the legislature does prescribe certain obligations ministerial in nature to be performed by the incumbent of the office and the manner and mode in which it shall be filled, such action is clearly a proper exercise of the legislative power, that is, action designed to provide for an orderly, uniform administration of the over-all government of the state. However, in determining whether this results in incompatibility, it is necessary to consider that the basic work of the clerk is to participate in the judicial function, to the end that effect may be given to the court's determinations through the doing of things judicial in character, as, for example, the issuance of process or the entry of orders. Such duties constitute the essential function of the office and under the concept of the separation of powers clearly are matters beyond the control and direction of the legislature. It is our opinion that the legislature has recognized this distinction of function and the dual character of the office by expressly providing in § 8-4-8 that the clerk "shall do and perform all other things which by law or the rules of the court shall appertain to their office," and by specifically authorizing the chief justice of this court in § 8-4-12 to appoint a clerk pro tempore in the place and stead of the incumbent in the event of his refusal to carry out such duties appertaining to his office as may have been delegated or assigned to him by this court. (italics ours) Clearly the legislature may properly order the clerk of this court to perform specific ministerial functions in the interest of orderly government and just as clearly, whether because of our inherent power or in the exercise of our rule-making power, it is within our exclusive province to direct him in the performance of his judicial duties. Were the legislature to attempt to regulate or control those of his obligations which are judicial in nature it would exceed its powers under the constitution and trespass upon those of a coordinate branch of the government. G. & D. Taylor & Co. v. Place, 4 R.I. 324. In the performance of his duties so far as they appertain to the exercise of his judicial power the clerk is completely under the control and direction of this court. In the light of our conclusion that the clerk of this court is subject to our supervision and control in the performance of his judicial as distinguished from his ministerial duties we hold that the office is not subordinated to membership in the state senate and that there is no incompatibility between the two offices. The plaintiff next contends that irrespective of the question of incompatibility, defendant is ineligible by virtue of the provisions of P.L. 1964, chap. 23, sec. 2 (now G.L. 1956, § 36-1-13, as amended), to assume the office of clerk. The statute reads as follows: The plaintiff argues that because of the language of § 36-1-13 defendant cannot assume the office in question until ten days subsequent to the election and qualification of his successor as a member of the general assembly. The plaintiff bases his argument on the ground that the use of the word "shall" and the clause "whichever shall occur later" indicates a legislative intent that the provisions of the statute are mandatory. We would agree with plaintiff's contention if the offices involved in the case at bar were incompatible, as was the situation discussed in Opinion to the Governor, supra. Moreover in In re Election of Sheriff, supra, the justices had rendered an opinion that a member of the general assembly remains a member thereof until his successor is elected and qualified. This statute was enacted for the convenience of a member of the general assembly who, while a member thereof, might be elected or appointed to other public service. It merely extends the time within which he shall deliver to the secretary of state a certificate of his election or appointment. With respect to offices which are not incompatible it is clearly permissive legislation, authorizing the delivery of such certificate within either period of time. Under point II plaintiff contends that he has tenure to the office of clerk of the supreme court and therefore may not be replaced summarily. He relies on G.L. 1956, § 36-4-59, as amended, the pertinent portion of which provides as follows: The plaintiff argues in substance that under § 36-4-59 he has acquired permanent tenure as clerk of the supreme court until he reaches the age of sixty years. In our judgment the statute does not give plaintiff such status. Assuming arguendo that his salary is not specified by statute, the "full status" acquired by him after having twenty-five years of service credit in the state employees retirement system as specified in the agreed facts entitles him to tenure "in the position he shall be holding at the time of obtaining such twenty-five (25) years of service credit," namely, the five-year term of office he was holding at that time, during which he could not be removed except for cause. That term has expired and so has the protection afforded plaintiff by § 36-4-59. In view of this conclusion we do not reach the question whether plaintiff is excluded by the provisions of § 36-4-59(d). On this record we are constrained to conclude that the defendant is the duly-qualified clerk of the supreme court of this state and that he is presently entitled to that office. For the reasons stated the plaintiff's appeal is denied and dismissed, the judgment appealed from is affirmed, and the cause is remanded to the superior court for further proceedings. KELLEHER, J., not participating.