Title: DENNING CADY v MISSOULA STUDY CO

State: montana

Issuer: Montana Supreme Court

Document:

No. 13531 IN THE SUPREME COURT OF THE STATE OF MONTANA 1977 DELOY DENNING and LEW CADY, Petitioners, MISSOULA CITY AND COUNTY LOCAL GOVERNMENT STUDY COMMISSION et al., Respondents. Appeal from: District Court of the Fourth Judicial District, Honorable E. Gardner Brownlee, Judge presiding. Counsel of Record: For Petitioners: Robert L. Deschamps 111, County Attorney, Missoula, Montana Fred C. Root, Missoula, Montana Milodragovich, Dale & Dye, Missoula, Montana For Respondents: Garnaas, Hall, Riley and Pinsoneault, Missoula, Montana For Amicus Curiae: Mae Nan Ellingson, Missoula, Montana Submitted on briefs. Submitted: May 11, 1977 Mr.Justice Gene B. Daly delivered the Opinion s f the Court. Appeal from judgment of the d i s t r i c t court, Missoula County. O n M a y 11, 1976, the Missoula City and County Local Government Study Commission contracted with the Kathleen Walford Senior Citizen's Center t o conduct a voter attitude survey a f t e r the June 1, 1976 election and authorized an expenditure of $1,000 for t h i s purpose. The proposal submitted by the study commission was defeated in the June 1 election. O n June 15, 1976, Deloy Denning and Lew Cady, respondents here, secured a w r i t of prohi- bition directing the study commission t o desist from proceeding further with t h i s survey which would result i n the $1,000 ex- penditure. O n June 28, 1976 a show cause hearing was held. O n July 21, 1976, the d i s t r i c t court entered judgment making the w r i t of prohibition permanent. From t h i s judgment the study commission appeals. Respondents f i l e d no brief and no o r a l argument was had, The only issue on appeal i s whether the study commission had the authority to contract before the election t o spend $1,000 for a voter attitude survey to be taken a f t e r the election a t which the proposed charter was defeated. Y e t - , t h i s was not a consideration when the contract was entered into. Respondents contend the $1,000 expenditure by the study commission is unlawful i n that the purpose of the expenditure is not s e t out i n section 16-5104, R.C.M. 1947, and the spending of such funds are not authorized by section 16-5105, R.C.M. 1947. Statutes governing local government study commissions were enacted by the Montana Legislature in 1974 by the passage of approximately 35 new sections to implement the creation of the study commissions. Respondents claim section 16-5105 granted the study com- mission the power t o submit one proposal t o the electors and when t h i s proposal had been submitted the cornmission's job was over. This interpretation, however, is i n direct conflict with section 16-5108, R.C.M. 1947, which specifically states: " A l l study commissions s h a l l terminate June 30, 1977." 'I* * * I n the construction of a statute the intention of the legislature is t o be pursued i f possible; and when a general and particular provision are inconsistent, the l a t t e r is para- mount to the former. So a particular intent w i l l control a general one that is inconsistent with it. (Section 93-401-16, R.C.M. 1947) . I 1 City of Billings v. Smith, 158 Mont. 197, 211, 490 P.2d 221. Therefore, the study commission's powers did not end a t the election on June 1, 1976, but terminated June 30, 1977. Section 16-5115.9 gives the study commission permissive power t o prepare additional reports as a supplement t o its report, which is the proposed alternate form of government. Under t h i s section a study commission would have jurisdiction t o conduct a survey t o determine the reasons why the electorate defeated o r approved a proposed alternate+form of government t o establish the features of the existing foam of government with which the electorate is satisfied and those with which it i s dissatisfied. Such a survey i s , a s one study commissioner put it, rather like an autopsy, it does not benefit the deceased, but may shed light on similar problems i n the future. Section 16-5112(4), R.C.M. 1947, provides: ''The study commission may contract and cooperate with other agencies, public or private, a s it con- siders necessary for the rendition and affording of such services, f a c i l i t i e s , studies and reports t o the study commission a s w i l l best a s s i s t it t o carry out the purposes for which the study commission was- es- tablished.* * *I1 (Emphasis added.) Section 16-5112(5) , provides : "The study commission may do any and a l l other things as are consistent with and reasonably required t o perform i t s function under t h i s act." The information gained from a voter attitude survey, whether before or a f t e r the approval or rejection of an alternative form of government would be consistent with the commission's authority granted by Ch.51, T i t l e 16, R.C.M. 1947, i f reasonable and not an abuse of discretion. Since the sole purpose of the 1972 Montana Constitutional provision on local government was t o improve the delivery of local government services t o the people, any reasonable attempt t o ascertain voters' dissatisfaction with current or proposed governmental structure should be within the commission' s jurisdiction. I n conformity with the foregoing interpretation, the judgment of the d i s t r i c t court is reversed and the cause remanded with instructions t o dismiss the w r i t of prohibition. Aust ice &/ / ~ h y e f Just ice