## PUBLIC UTILITIES: ELECTRICITY – LIGHT & POWER: DELINQUENT BILLS:

Municipal utilities must use reasonable methods to compel payment for services and utility service may not be disconnected other than for good cause. Op. Atty. Gen. 624c-4 (Nov. 2, 1938) superseded.

624c-4 (cr.ref. 624d-5)

## John**T. Shockley** 

**May 16,**  **2019 Page** **2**
**Courts in** **other states** **have discussed** **the methods** **municipal utilities** **may or** **may not** **use to**  **enforce the** **collection of** **fees or** **utility charges.**  **As you** **noted in** **your letter,** **the South** **Dakota Supreme**  **Court held**  **that a**  **city wrongfully**  **disconnected electrical**  **and telephone**  **service for**  **nonpayment of**  **garbage collection**  **fees because**  **garbage collection**  **was a**  **collateral matter.**  **See Owens** **v. City**  **ofBeresjord, 201** **N.W.2d 890,**  **893 (S.D.**  **1972). Similarly,**  **the Nebraska**  **Supreme Court**  **held that**  **a city**  **could not**  **attempt to**  **force collection**  **of garbage**  **fees by**  **disconnecting water**  **service. See**  **Garner v.**  **City ofAurora,**  **30 N.W.2d**  **917, 921**  **(Neb. 1948).**  **On the**  **other hand,**  **the California**  **Supreme Court**  **held that,**  **where a**  **city used**  **a single**  **bill for**  **municipal services**  **(water, sewer,**  **and garbage**  **collection), the**  **city did**  **not violate**  **due process**  **by terminating**  **all municipal**  **services for**  **failure to**  **pay the**  **garbage collection**  **portion of** **the joint**  **bill. See** **Perez v.**  **City of** **San Bruno,**  **616 P.2d**  **1287, 1296-97**  **(Cal. 1980).**  **The court**  **cautioned, however,**  **that "when** **a statutory**  **or legislative**  **scheme utilizes** **a means** **to reach** **its end** **and which**  **is unduly**  **harsh or**  **exacts a**  **penalty which**  **may be**  **deemed oppressive**  **in light**  **of the**  **legitimate objections**  **sought to**  **be achieved,**  **it may**  **be held**  **to be**  **violative of**  **constitutional due**  **process guarantees."** **Id. at**  **1297.**

**A Minnesota**  **Attorney General**  **opinion from**  **193 8**  **opined that**  **a village** **providing water,**  **heat, and**  **electricity, all**  **billed on**  **one statement,**  **may adopt**  **a regulation**  **allowing for**  **discontinuance of**  **any and**  **all services**  **for delinquency**  **of one**  **service. Op.**  **Atty. Gen.**  **624c-4 (Nov.**  **2, 1938).**  **While Attorney**  **General opinions**  **are given**  **careful consideration,**  **they are**  **not binding.**  **Village of** **Blaine v.**  **lndep. Sch.**  **Dist. No.**  **12, Anoka**  **Cty., 138**  **N.W.2d 32,**  **39 (Minn.**  **1965). Given** **the substantial** **development of** **the law**  **since 1938,** **regarding consumer** **protection, entitlements**  **to provision**  **of gas,**  **electric, and**  **water service,**  **and the**  **reasonableness of**  **terminating services**  **for nonpayment,**  **this Office**  **is not**  **confident that**  **the 193** **8 opinion**  **remains**
**an accurate**  **legal analysis**  **and expressly**  **overrules it.**  **Ultimately, whether**  **enforcement of** **a city**  **ordinance that**  **allows for**  **disconnection of** **a utility**  **service based**  **upon nonpayment**  **of another**  **service is**  **unreasonable turns**  **on specific**  **questions of**  **fact and**  **the construction**  **of any**  **local ordinance**  **or resolution**  **implementing the**  **enforcement method.**  **The Attorney**  **General does**  **not render**  **opinions that**  **require making**  **such factual**  **determinations or** **construing the** **meaning of** **terms in** **local ordinances** **or resolutions.**  **See Op.**  **Atty. Gen.**  **629a (May**  **9, 1975).**  **You did**  **not supply**  **a specific** **ordinance, rule,**  **or regulation** 

## John**T. Shockley** 

**May 16,** **2019 Page** **3 implementing** **the enforcement**  **method you**  **discussed in** **your request.**  **Given the** **breadth of** **the municipal**  **services established**  **in your**  **inquiry, however, we** **do not** **believe that** **the law**  **allows a**  **municipality to**  **disconnect utility**  **service for**  **nonpayment of** **the varied**  **and unrelated**  **municipal services** **stated in** **your letter.** 

**Enclosure:**

**114479693-vl** 

## Sincerely,
**KEITH ELLISON**  **Attorney General**  

# 1'�

**4£ t**  **>'**

**KATHERINE HINDERLIE**  **Assistant Attorney** **General (651)**  **757-1468 (Voice)**  **(651) 297-1235** **(Fax) Op.**  **Atty. Gen.**  **629a (May** **9, 1975)**  **Op. Atty.**  **Gen. 624c-4**  **(Nov. 2,**  **1938)**

# MINNESOTA **LEGAL REGISTER** 

**MAY, 1975**  

### Vol. 8, No. 5 **Page 22**  

### Opinion, **of the**  **Attorney General**  

## Hon. **WARREN SPANNAUS** 

**ATTORNEY GENERAL:**  **OPINIONS OF:**  **Proper subjects**  **for opinions**  **of Attorney**  **General discussed,**  **Thomas M.**  **Sweeney, Esq.**  **Blaine City**  **Attorney 2200**  **American National**  **Bank Building**  **St. Paul,**  **Minnesota 55101**  

### In **your letter**  **to Attorney**  **General you**  **state substantially**  **the following**  **FACTS May**  **9, 1975**  **629-a (Cr.** **Ref. 13)** 

**Warren Spannaus,** 

**At the**  **general election**  **in November**  **1974 a**  **proposal to**  **amend the**  **city charter**  **of Blaine**  **was submitted to**  **the city's**  **voters and**  **was approved.**  **The amendment**  **provides for**  **the division**  **of the**  **city into**  **three election**  **districts and**  **for the**  **election of**  **two council**  **members from**  **each district.**  **It also**  **provides that**  **the population**  **of each**  **district shall**  **not be**  **more than**  **5 percent over**  **or under**  **the average**  **popu lation**  **per di-strict,**  **which is**  **calculated by**  **dividing the**  **total city**  **population by**  **three. The**  **amendment also**  **states that**  **if there**  **is a**  **population difference**  **from district**  **to di-strict**  **of more**  **than 5**  **percent of**  **the average**  **population, the**  **char ter**  **commission must**  **submit a**  **redistricting proposal to**  **the city**  **council. The**  **Blaine Charter**  **Commission in**  **its preparation**  **aqd drafting**  **of this**  **amendment intended**  **that the**  **difference in**  **population between**  **election districts**  **would not**  **be more**  **than 5**  **percent over**  **or under**  **the average**  **population for**  **a district.**  **Therefore, the**  **maximum allowable**  **difference in**  **population between**  **election districts**  **could be**  **as great**  **as 10**  **percent of**  **the average**  **population, You**  **then ask**  **substantially the**  **following**

**QUESTION Docs**  **the Blaine**  **City Charter** **, as**  **amended, permit**  **a maximum**  **population difference**  **between election**  **districts of**  **10 percent**  **of the**  **average population**  **per district?**  **OPINION The**  **answer to**  **this question**  **depends entirely**  **upon a**  **construction of**  **the Blaine**  **City Charter.**  **No question**  **is presented**  **concerning the**  **authority to**  **adopt this**  **provision**
**or involving**  **the application**  **or interpretation**  **of ·state**  **sta tutory**  **provisions. Moreover,**  **it does**  **not appear**  **that the**  **provision is**  **commonly found**  **in municipal**  **charters so**  **as to** **be of**  **significance to**  **home rule**  **charter cities generally.**  **See Minn.**  **Stat. §**  **8.07 (1974),**  **providing for**  **the issuance**  **of opinions**  **on questions**  **of "public**  **importance."***

**• Minn** 

**. Stat.**  **§ 8.07**  **(1974) lists**  **those officials**  **to whom**  **opinions may**  **be issued.**  **That section**  **provides as follows:**  **The a** **ttorney general**  **on application**  **shall give**  **bis o** **pin ion,**  **in writing,**  **to county,**  **city, town**  **attorneys, or**  **the attorney** **s for**  **the board**  **of a**  **school district**  **or unorgani**  **zed territory**  **o n**  **questions of**  **public importance;**  **and on**  **application of**  **the commissioner**  **of education**  **be shall**  **give his**  **opinion, in**  **writing, upon**  **any question arising**  **under the**  **laws relating**  **to public**  **schools. On**  **all school matters**  **such opinion**  **shall be**  **decisive until**  **the question**  **involved be**  **decided otherwise**  **by a**  **court of**  **competent jurisdiction.**  **See also**  **Minn. Stat,**  **§§ 8,06**  **(regarding opinions**  **t o**  **the leg**  **IN THIS ISSUB 11■.,Jeet**  **O•• lfe, ATTORNEY**  **GENERAL: Opinions**  **Of, 629-a**  **5/9/76 COUNTY:**  **Pollution Control:**  **Solid Waste,**  **125a-68 5/21/76** 

**In construing**  **a charter** **provision, the**  **rules of**  **statutory construction**  **are generally**  **applicable. See**  **2 McQuillin,**  **Municipal Corporations**  **§ 9.22**  **(3rd ed.**  **1966). The**  **declared object**  **of statutory**  **construction ls**  **to- ascertain**  **and effec**  **tuate the**  **intention of**  **the legislature.**  **Minn. Stat.**  **§ 645.16**  **(1974). When**  **the words**  **of a**  **statute are**  **not explicit,**  **the legislature's**  **intent may**  **be ascertained**  **by considering,**  **among other** **things, the**  **occasion and**  **necessity for**  **the law,**  **the circumstances**  **under which** **it was** **enacted, the**  **mischief to**  **be remedied, and**  **the object**  **to be**  **attained. Id.**  **Thus, an**  **interpretation of**  **a charter**  **provision such**  **as that referred**  **to in**  **the facts would**  **require an**  **examination of**  **a number**  **of factors,**  **many of**  **which are**  **of a**  **peculiarly local**  **nature. Local**  **officials rather**  **than state**  **officials are**  **thus in**  **the mo·st**  **advantageous position**  **to recognize**  **and evaluate**  **the factors**  **which have**  **to be**  **considered in**  **con struing**  **such a**  **provision. For**  **these reasons,**  **the city**  **attor ney**  **is the**  **appropriate official**  **to analyze**  **questions of**  **the type**  **presented and**  **provide his**  **or her**  **opinion to the**  **municipal council or**  **other municipal agency.**  **The same**  **is true**  **with respect**  **to questions**  **concerning the**  **meaning of**  **other local**  **legal provisions**  **such as**  **ordinances and**  **resolu tions.**  **Similar considerations**  **dictate that**  **provisions of**  **federal law**  **generally be**  **construed by**  **the appropriate**  **federal authority.**  **For purposes**  **of summarizing**  **the rules**  **discussed in**  **this and** **prior opinions,**  **we note that**  **rulings of**  **the Attorney**  **General do**  **not ordinarily**  **undertake to:**  **(1) Determine**  **the constitutionality**  **of state**  **statutes since**  **this office**  **may deem**  **it appropriate**  **to intervene**  **and de**  **fend challenges**  **to the**  **constitutionality of**  **statutes. See**  **Minn. Stat.**  **§ 555.11**  **(1974); Minn.**  

### R. **Civ**

**. App.**  **P. 144;**  **Minn. Dist**  **Ct. (Civ.l**  **R 24.04;**  **Op. Atty.**  **Gen. 733G,**  **July 23,**  **1945. (2)**  **Make factual determinations**  **since this**  **office is**  **not equipped**  **to investigate**  **and evaluate**  **questions of**  **fact. See,**  **e.g., Ops.**  **Atty. Gen.**  **63a-11, May**  **10, 1955**  **and 121a-6,**  **April 12,**  **1948. (3)**  **Interpret the**  **meaning of** **terms in**  **contracts and**  **other agreements**  **since the**  **terms are**  **generally adopted**  **for the**  **purpose of**  **preserving the**  **intent of**  **the parties**  **and construing**  **their meaning**  **often involves**  **factual determin**  **ations as**  **to such**  **intent. See.**  **Op. Atty.**  **Gen. 629-a, July**  **25, 1973.**  **(4) Decide**  **questions which**  **are likely**  **to arise**  **in litiga**  **tion which**  **is underway**  **or is**  **imminent, since**  **our opin**  **ions are**  **advisory and**  **we must**  **defer to**  **the judiciary**  **in**

**islature and legislative**  **committees an** **d c ommissions**  **and to**  **state officials**  **and agencies)**  **and 270.09**  **(regarding opin**  **ions to**  **the Commissioner**  **of Revenue).** 

### 23

**MINNESOTA LEGAL**  **REGISTER Published**  **monthl y**  **and containing**  **all Opinions**  **of the**  **Minnesota Attorney**  **General Pnbll�bed**  **by The**  **Progrees-Regieter 200**  **Upper Midwest**  **Bldg., Mlnne11,polls,**  **Mn. 66401**  **Sold only**  **In combination**  **with The**  **Progress Register**  **(weekly) at**  **$15.00 per**  **year In**  **Min nesota..**  **Out-of-state $16.00**  **per y{'a.r.**  **Payable In**  **advance. Binder**  **and Index**  **aervlce Included,**  **Second-cla.aa poatn.ge**  **paid at**  **Minneapolis, Mn.** 

**such cases.**  **See Ops.**  **Atty. Gen.**  **519M, Oct.**  **18 ,**  **1956, and**  **196n, March**  **30, 1951.**  **(5) Decide** **hypothetical or**  **moot questions.**  **See Op.**  **Atty. Gen.**  **519M, May**  **8, 1951.**  **(6) Make**  **a general**  **review of**  **a local**  **ordinance, regula**  **tion ,**  **resolution or**  **contract to**  **determine the**  **validity thereof**  **or to**  **ascertain possible**  **legal problems,**  **since the**  **task of**  **making such**  **a review**  **is, of**  **course, the**  **re sponsibility**  **of local**  **officials. See**  **Op. Atty.**  **Gen. 477b-14,**  **Oct. 9,**  **1973. (7)**  **Construe provisions**  **of federal**  **law. See**  **textual di** **s• cussion**  **supra. (8)**  **Construe the**  **meaning of**  **terms in**  **city charters**  **and local**  **ordinances and**  **resolutions. See**  **textual discussion**  **supra. We**  **trust that**  **the foregoing**  **general statement**  **on the**  **nature of**  **opinions will**  **prove to**  **be informative**  **and of**  **guidance to**  **those requesting**  **opinions.**

**WARREN SPANNAUS,**  **Attorney General**  **Thomas G.**  **Mattson, Assist.**  **Atty. Gen.**  **MAY, 1985** 

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