Case Name: The City of Dayton, Appellant, v. The State of Ohio, Appellee
Court: Supreme Court of Ohio
Jurisdiction: Ohio
Decision Date: 2017-07-26
Citations: 151 Ohio St. 3d 168
Docket Number: No. 2015-1549
Parties: The City of Dayton, Appellant, v. The State of Ohio, Appellee.
Judges: O’Connor, C.J., and Baldwin, J., concur.
Reporter: Ohio State Reports, Third Service
Volume: 151
Pages: 168–193

Head Matter:
The City of Dayton, Appellant, v. The State of Ohio, Appellee.
2017-Ohio-6909.]
(No. 2015-1549
Submitted January 10, 2017
Decided July 26, 2017.)

Opinion:
Fischer, J.
{¶ 1} In this case, we address whether three statutes regulating local authorities' use of red-light and speed cameras qualify as general laws, such that the statutes do not offend the home-rule powers granted to a municipality in Article XVIII, Section 3 of the Ohio Constitution. We hold that R.C. 4511.093(B)(1), which requires that a law-enforcement officer be present at the location of a traffic camera, infringes on the municipality's legislative authority without serving an overriding state interest and is therefore unconstitutional. We also hold that R.C. 4511.0912, which prohibits the municipality from issuing a fine to a driver who is caught speeding by a traffic camera unless that driver's speed exceeds the posted speed limit by 6 m.p.h. in a school or park zone or 10 m.p.h. in other areas, unconstitutionally limits the municipality's legislative powers without serving an overriding state interest. Finally, we hold that R.C. 4511.095, which directs the municipality to perform a safety study and a public-information campaign prior to using a camera, unconstitutionally limits the municipality's home-rule authority without serving an overriding state interest.
I. FACTUAL BACKGROUND AND PROCEDURAL POSTURE
{¶ 2} Plaintiff-appellant, the city of Dayton, is an Ohio municipality governed by charter. In 2002, Dayton enacted an ordinance permitting its police department to institute a program using traffic cameras to civilly enforce red-light traffic violations to conserve police resources and to reduce traffic violations and accidents. Prior to installing the traffic cameras, Dayton conducted studies to identify those intersections that had a high number of traffic accidents. Almost immediately after installing the traffic cameras, the number of violation-related accidents decreased. Because of the success Dayton had with the red-light cameras, Dayton enacted an amended ordinance in 2010 to use traffic cameras to reduce speeding violations.
{¶ 3} Under Dayton's program, cameras take both video and still pictures of vehicles. A police officer then reviews the camera images to confirm that a traffic violation occurred before issuing the owner of the vehicle a "notice of liability." Dayton Ordinances 70.121(D). In part, a "notice of liability" contains the location, date, and time of the traffic violation, copies of the photographs or video of the vehicle, the vehicle's speed if applicable, and the amount of the civil penalty imposed. The vehicle owner then has 30 days to appeal the notice of liability, and an independent hearing officer reviews the appeal.
{¶ 4} After Dayton established its program using red-light and speed cameras, a new state law became effective in March 2015, 2014 Am.Sub.S.B. No. 342 ("S.B. 342"). S.B. 342 adopted and amended several Revised Code provisions regulating local authorities' use of automated traffic-enforcement programs. It authorizes local authorities to use photo-monitoring devices for traffic-law violations, subject to certain conditions and regulations. The new law defines a "local authority" as "a municipal corporation, county, or township." R.C. 4511.092(D). R.C. 4511.094(A)(1) and (2) require a local authority using traffic cameras to post signs at its jurisdictional borders and at each location where a traffic camera is present notifying motorists that cameras are used or are present. R.C. 4511.096 requires a law-enforcement officer to examine camera footage to determine whether a traffic violation occurred; if so, the local authority, or a designee, may send a violation notice to the registered owner of the vehicle within 30 days of the violation. R.C. 4511.097 requires that certain information be included on a violation notice sent to a vehicle owner and limits the amount a local authority can levy as a fine for a violation.
{¶ 5} S.B. 342 goes beyond establishing procedures for local authorities choosing to use traffic cameras; it also establishes procedures applicable to citizens and entities receiving traffic-camera violations as .well as to insurance companies and camera manufacturers. For example, once the registered owner receives notice of a traffic-camera violation, R.C. 4511.098 and 4511.099 establish that the owner can pay the civil fine, submit an affidavit stating that the owner was not driving the vehicle at the time of the infraction, or request an administrative hearing. R.C. 4511.099(G) authorizes an appeal of the administrative decision to either a municipal or county court with jurisdiction over the location where the violation occurred. R.C. 3937.411 prohibits insurance companies from considering violations when issuing policies and establishing rates. And R.C. 4511.0911 requires the manufacturers of the photo-monitoring devices to provide mainte nance records to local authorities upon request and to attest to the accuracy of the devices annually.
{¶ 6} Only three of these many provisions in S.B. 342 are at issue in this case: (1) R.C. 4511.093(B)(1), the officer-present provision, (2) R.C. 4511.0912, the speeding-leeway provision, and (3) R.C. 4511.095, the study and notice provisions.
{¶ 7} R.C. 4511.093(B)(1) requires the presence of a full-time law-enforcement officer at each traffic camera: it states that "[a] local authority shall use a traffic law photo-monitoring device to detect and enforce traffic law violations only if a law enforcement officer is present at the location of the device at all times during the operation of the device." See also R.C. 4511.092(C) (defining "law-enforcement officer").
{¶ 8} R.C. 4511.0912 provides that local authorities shall not issue a ticket for a speeding violation unless "the vehicle involved in the violation is traveling at a speed that exceeds the posted speed limit by not less than" 6 m.p.h. in a school zone or park area or 10 m.p.h. in other locations.
{¶ 9} Finally, R.C. 4511.095(A)(1) requires local authorities to "[c]onduct a safety study of intersections or locations under consideration for placement of fixed traffic law photo-monitoring devices." Safety studies "shall include an accounting of incidents that have occurred in the designated area over the previous three-year period and shall be made available to the public upon request." Id. In addition, local authorities must conduct "a public information campaign to inform motor vehicle operators about the use of traffic law photo-monitoring devices at system locations prior to establishing any of those locations." R.C. 4511.095(A)(2). Local authorities must publish a notice in an area newspaper informing the public of the location of the system prior to establishing any of those systems. R.C. 4511.095(A)(3). Local authorities must also abide by a 30-day "public awareness warning period" after installing the traffic camera before levying fines. R.C. 4511.095(A)(4).
{¶ 10} Prior to the effective date of S.B. 342, Dayton filed a verified complaint against defendant-appellee, the state of Ohio, seeking declaratory and injunctive relief and challenging the constitutionality of all of S.B. 342 on home-rule grounds. Dayton and the state filed cross-motions for summary judgment. The trial court denied the state's summary-judgment motion and granted in part Dayton's summary-judgment motion. The trial court held that only R.C. 4511.093(B)(1) and (3), 4511.095, and 4511.0912 are unconstitutional because they violate the third and fourth prongs of the "general law" test set forth in Canton v. State, 95 Ohio St.3d 149, 2002-Ohio-2005, 766 N.E.2d 963. The trial court enjoined enforcement of those three specific provisions but did not hold any of the remaining provisions of S.B. 342 unconstitutional. The state appealed, and the Second District Court of Appeals reversed the trial court's judgment. The Second District determined that S.B. 342 satisfies the third and fourth prongs of the Canton test and that Dayton failed to meet its burden to establish the unconstitutionality of any provision of S.B. 342 beyond a reasonable doubt.
{¶ 11} This court accepted Dayton's discretionary appeal addressing whether R.C. 4511.093(B)(1), 4511.095, and 4511.0912 (collectively, "the contested provisions") violate the Home Rule Amendment and whether courts are required to analyze the contested provisions individually to determine their constitutionality under the Home Rule Amendment, as opposed to only analyzing the legislation as a whole.
II. ANALYSIS
{¶ 12} Dayton argues that the Second District erred in reversing the trial court's summary-judgment ruling, which held that the contested provisions of S.B. 342 violate the Home Rule Amendment of Ohio's Constitution. This court reviews a ruling on summary judgment de novo. Grafton v. Ohio Edison Co., 77 Ohio St.3d 102, 105, 671 N.E.2d 241 (1996). When considering the constitutionality of a statute, this court "presume[s] the constitutionality of the legislation, and the party challenging the validity of the statute bears the burden of establishing beyond a reasonable doubt that the statute is unconstitutional." Wilson v. Kasich, 134 Ohio St.3d 221, 2012-Ohio-5367, 981 N.E.2d 814, ¶ 18. Plaintiffs have a "heavy burden" when attempting to overcome the presumption of constitutionality. Rocky River v. State Emp. Relations Bd., 43 Ohio St.3d 1, 10, 539 N.E.2d 103 (1989).
{¶ 13} Article XVIII, Section 3 of the Ohio Constitution, the Home Rule Amendment, provides that "[mjunicipalities shall have authority to exercise all powers of local self-government and to adopt and enforce within their limits such local police, sanitary and other similar regulations, as are not in conflict with general laws." The Home Rule Amendment provides independent authority to Ohio's municipalities with regard to local police regulations. W. Jefferson v. Robinson, 1 Ohio St.2d 113, 115, 205 N.E.2d 382 (1965). Nevertheless, a municipal ordinance must yield to a state statute if "(1) the ordinance is an exercise of the police power, rather than of local self-government, (2) the statute is a general law, and (3) the ordinance is in conflict with the statute." Mendenhall v. Akron, 117 Ohio St.3d 33, 2008-Ohio-270, 881 N.E.2d 255, ¶ 17.
{¶ 14} The Dayton ordinances in this case are an exercise of police power. See Marich v. Bob Bennett Constr. Co., 116 Ohio St.3d 553, 2008-Ohio-92, 880 N.E.2d 906, ¶ 14 (determining that "the regulation of traffic is an exercise of police power that relates to public health and safety as well as the general welfare of the public"). Moreover, neither party argues to this court that the Dayton ordinances do not conflict with S.B. 342. Therefore, the sole issue in this case is whether the contested provisions of S.B. 342 qualify as general laws.
{¶ 15} In determining whether a statute constitutes a "general law" for purposes of the Home Rule Amendment, this court has consistently applied the four requirements laid out in Canton, 95 Ohio St.3d 149, 2002-Ohio-2005, 766 N.E.2d 963. See, e.g., Am. Fin. Servs. Assn. v. Cleveland, 112 Ohio St.3d 170, 2006-Ohio-6043, 858 N.E.2d 776, ¶ 32; Mendenhall at ¶ 20; State ex rel. Morrison v. Beck Energy Corp., 143 Ohio St.3d 271, 2015-Ohio-485, 37 N.E.3d 128, ¶ 19 (lead opinion). To qualify as a general law under the Canton test, a statute must
(1) be part of a statewide and comprehensive legislative enactment, (2) apply to all parts of the state alike and operate uniformly throughout the state, (3) set forth police, sanitary, or similar regulations, rather than purport only to grant or limit legislative power of a municipal corporation to set forth police, sanitary, or similar regulations, and (4) prescribe a rule of conduct upon citizens generally.
Canton at syllabus. If a statute meets the Canton general-law test, then the statute takes precedence over any conflicting municipal ordinances. However, if the general-law test is not satisfied, then the statute is "an unconstitutional attempt to limit the legislative home-rule powers" of municipalities. Id. at ¶ 10. Dayton challenges the contested provisions under the third and fourth prongs of the Canton test. Because we determine that the contested provisions are unconstitutional under the third prong of the Canton test, our analysis will focus solely on that prong. We recognize, however, that the contested provisions may also be unconstitutional under the fourth Canton prong, as asserted in the opinion concurring in judgment.
A. The Third Canton Prong: Limiting Municipal Authority
{¶ 16} The third prong of the Canton general-law test requires courts to consider whether the statute sets forth police regulations or whether it merely grants or limits municipalities' legislative power to set forth police regulations. Id. at ¶ 33. In undertaking this analysis, " 'a statute which prohibits the exercise by a municipality of its home rule powers without such statute serving an overriding statewide interest would directly contravene the constitutional grant of municipal power.' " Id. at ¶ 32, quoting Clermont Environmental Reclamation Co. v. Wiederhold, 2 Ohio St.3d 44, 48, 442 N.E.2d 1278 (1982). Dayton argues that the Second District erred in analyzing S.B. 342 as a whole under the third Canton prong, instead of analyzing each of the contested provisions individually.
{¶ 17} In Canton, the court considered whether R.C. 3781.184, which related to the zoning of property for manufactured homes, violated the Home Rule Amendment. R.C. 3781.184(C) provided that political subdivisions must allow manufac tured homes to be placed in areas where single-family residences were permitted. R.C. 3781.184(D) created an exception to division (C) that allowed private-property owners to prohibit manufactured homes on their land by way of restrictive covenants in deeds. The court determined that "R.C. 3781.184(C), on its face, appears to serve an overriding state interest in providing more affordable housing options across the state." Canton at ¶ 33. It then determined, however, that "the exception contained in R.C. 3781.184(D) defeats this purpose." Id. According to the court, R.C. 3781.184(C) would have "very little, if any, impact in areas of development having effective deed restrictions or active homeowner associations. Instead, the statute [would] effectively apply only in older areas of the state, i.e., cities where residential areas no longer have effective deed restrictions or no longer have active homeowner associations." Id. at ¶ 30. Because the statute did not serve an overriding state interest, the Canton court determined that R.C. 3781.184(C) "purports only to grant or limit the legislative power of a municipal corporation to set forth police, sanitary, or similar regulations." Id. at ¶ 33.
{¶ 18} This court confronted the third prong of the Canton test in Ohioans for Concealed Carry, Inc. v. Clyde, 120 Ohio St.3d 96, 2008-Ohio-4605, 896 N.E.2d 967. In Ohioans for Concealed Carry, the court considered whether a municipal ordinance that prohibited licensed gun owners from carrying a concealed gun within a city's parks was constitutional under the Home Rule Amendment. The municipal ordinance conflicted with a state statute that allowed a licensed gun owner to carry a gun anywhere in the state, subject to several exceptions that did not include municipal parks. In analyzing the third prong of the Canton general-law test, the court determined that the statute went beyond preventing cities from enacting conflicting legislation because the statute "provide[d] a program to foster proper, legal handgun ownership in this state." Id. at ¶ 50. The court determined that "[t]he statute therefore represents both an exercise of the state's police power and an attempt to limit legislative power of a municipal corporation to set forth police, sanitary, or similar regulations." Id.; see also Mendenhall, 117 Ohio St.3d 33, 2008-Ohio-270, 881 N.E.2d 255, at ¶ 24 (determining that R.C. 4511.21 "has extensive scope and does more than grant or limit state powers").
{¶ 19} This court confronted the third prong of the Canton test again in Cleveland v. State, 138 Ohio St.3d 232, 2014-Ohio-86, 5 N.E.3d 644. The city of Cleveland sought a declaration that former R.C. 4921.25, 2012 Am.Sub.H.B. No. 487, was unconstitutional under the Home Rule Amendment. Former R.C. 4921.25 vested the Public Utilities Commission of Ohio ("PUCO") with the authority to regulate towing entities as for-hire motor carriers, but the second sentence of the statute provided that "[s]uch an entity is not subject to any ordinance, rule, or resolution of a municipal corporation, county, or township that provides for the licensing, registering, or regulation of entities that tow motor vehicles." Cleveland challenged the second sentence of the statute as unconstitutionally infringing on local authorities' abilities to regulate towing companies. This court determined that the statute, when read as a whole, did not merely limit the legislative power of municipalities to set forth police, sanitary, or similar regulations, Cleveland at ¶ 13; nevertheless, the court isolated the second sentence of the statute, analyzed it separately, and determined that it was unconstitutional, id. at ¶ 16-17. According to the court, "[u]nlike the first sentence of R.C. 4921.25, which subjects towing entities to PUCO regulation, the second sentence fails to set forth any police, sanitary, or similar regulations." Id. at ¶ 16.
{¶ 20} Under this court's precedent, so long as a statute serves an overriding state interest with respect to police, sanitary, or similar regulations, then the third prong of the Canton general-law test is satisfied, even if the statute limits the legislative authority of municipalities. However, when a statute expressly grants or limits the legislative power of a municipal corporation to set forth police, sanitary, or similar regulations, without serving an overriding statewide interest, then the statute, or a portion of it, violates the Home Rule Amendment. As demonstrated in Cleveland, the analysis under the third Canton prong requires consideration of the individual statutory provisions. See id. Therefore, we agree with Dayton's contention that under the third Canton prong, this court must not merely examine S.B. 342 as a whole but must analyze the contested provisions individually, a task that we now undertake.
1. The Officer-Present Provision (R.C. 1511.093(B)(1))
{¶ 21} Under the officer-present provision, R.C. 4511.093(B)(1), "[a] local authority shall use a traffic law photo-monitoring device to detect and enforce traffic law violations only if a law enforcement officer is present at the location of the device at all times during the operation of the device." R.C. 4511.093(B)(1) tells municipalities how to use their law-enforcement resources when enforcing their traffic laws, thereby limiting municipalities' legislative power. As to whether R.C. 4511.093(B)(1) serves an overriding statewide interest, the state contends that R.C. 4511.093(B)(1) represents a legislative compromise: it is not an outright ban on traffic cameras, but it establishes cameras as secondary enforcement tools so that the officers do not have to stop every violator.
{¶22} However, requiring an officer's presence at a traffic camera directly contradicts the purpose of a traffic camera—to conserve police resources. Moreover, R.C. 4511.093(B)(1) does not require that an officer witness the violation, so the traffic camera is still the primary enforcement tool under the statute; it is not a secondary tool as the state contends. Because the officer-present requirement in R.C. 4511.093(B)(1) infringes on municipalities' home-rule authority without serving an overriding state interest, under Canton, it is unconstitutional.
2. The Speeding-Leeway Provision (R.C. 4-511.0912)
{¶ 23} Under R.C. 4511.0912, a local authority is prohibited from relying on a photo-monitoring device to issue a ticket unless a vehicle exceeds the posted speed limit by 6 m.p.h. or more in a school zone or park or recreation area or, in all other areas, the vehicle exceeds the posted speed limit by 10 m.p.h. or more. R.C. 4511.0912 dictates how municipalities must enforce speed limits within their territories, thus limiting their legislative power. With regard to whether R.C. 4511.0912 serves an overriding state interest, the state contends that the speeding-leeway provision accounts for errors in the driver's speedometer or a traffic camera's measuring device, and also creates amnesty for minor speeding infractions. We find the state's arguments unpersuasive. As an initial matter, the state's arguments seemingly contradict its contention that the cameras should be a secondary enforcement tool supplementing police officers. Second, S.B. 342 provides motorists with an opportunity to challenge violations in which they can contest issues such as speedometer and traffic-camera malfunctions. See R.C. 4511.098 and 4511.099. Third, the speeding-leeway provision in R.C. 4511.0912 would operate as a de facto increase in speed limits in the limited areas covered by a traffic camera. Because R.C. 4511.0912 prohibits the exercise of home-rule powers without also serving an overriding state interest, under Canton, it is unconstitutional.
3. The Study and Notice Provisions (R.C. 4511.095)
{¶ 24} The last of the contested provisions, R.C. 4511.095, requires local authorities to (1) conduct a safety study prior to placing a photo-monitoring device at a location, (2) conduct a public-information campaign about the use of traffic-monitoring devices, (3) inform the public through a local newspaper prior to installing a photo-monitoring device, and (4) once a device is installed, observe a 30-day warning period before issuing a violation.
{¶ 25} R.C. 4511.095 contains no requirement that the placement of the traffic cameras be instructed by or connected in any way to the results of the traffic study. Thus, the statute does not serve the purpose of directing that the devices be placed in spots where authorities have safety concerns. Nor does the statute restrict the number of cameras in a specified area to serve the purpose of avoiding overconcentration.
{¶ 26} Moreover, the public-information campaign, 30-day warning period, and requirement to publish in a local newspaper are of limited scope and duration. The public traveling through municipalities includes motorists who are not members of the local community targeted by the public-information campaign and local-publication requirement. Thus, the statute's requirements do not serve the purpose of ensuring that the public traveling in the area has notice.
{¶ 27} Because the statute's alleged purpose is not served by the requirements it creates, R.C. 4511.095 does not serve an overriding statewide interest. As a result, R.C. 4511.095 does not set forth state police, sanitary, or similar regulations but instead merely limits a municipality's legislative power to set forth those regulations. Accordingly, the statute fails the third prong of the Canton test and is not a general law.
B. The Continued Viability of Canton
{¶ 28} The second dissenting opinion suggests that we should abandon the Canton test and analyze home-rule issues by determining first whether the municipal ordinance in question involves a police power and then whether the exercise of the police power conflicts with the state's exercise of that power in the corresponding statute. Although the dissent sets forth a different approach to home-rule issues, now is not the time for us to reformulate our home-rule analysis.
{¶ 29} Home-rule disputes require us to reconcile two competing constitutional provisions. First, Article II of the Ohio Constitution vests legislative power in the General Assembly. Second, the Home Rule Amendment, Article XVIII, Section 3 of the Ohio Constitution, grants municipalities the authority to exercise certain powers of local self-government. The Canton test is the means by which this court reconciles those two provisions and determines whether a statute is a general law pursuant to Article XVIII, Section 3.
{¶ 30} "It is the policy of courts to stand by precedent and not to disturb a point once settled." Clark v. Snapper Power Equip., Inc., 21 Ohio St.3d 58, 60, 488 N.E.2d 138 (1986). While we have noted that the doctrine of stare decisis is less important in the constitutional context than in cases involving the common law or statutory interpretation, Rocky River, 43 Ohio St.3d at 6, 539 N.E.2d 103, we should be careful to revisit settled precedent only when necessary.
{¶ 31} The viability of the Canton test is not at issue in this appeal. Neither Dayton nor the state offers any developed argument that the Canton test should be modified or overruled. The parties accept the Canton test for good reason: we have applied the test in numerous cases during the nearly 15 years since the decision in Canton was announced, and no justice has questioned the viability of the Canton test until now. In fact, four years after the announcement of the test, the only dissenting justice in Canton conceded that the test is now the law: "I was not a supporter of the four-part test set forth in Canton v. State, 95 Ohio St.3d 149, 2002-Ohio-2005, 766 N.E.2d 963, for determining whether a statute constitutes a general law. Id. at ¶ 42 (Pfeifer, J., dissenting). But the Canton test is the law and has been relied upon by the majority in this case." Am. Fin. Servs. Assn. v. Cleveland, 112 Ohio St.3d 170, 2006-Ohio-6043, 858 N.E.2d 776, ¶ 105 (Pfeifer, J., dissenting). Furthermore, the citizens of Ohio have not exercised their constitutional right to amend the language of the Home Rule Amendment in light of Canton and its progeny. This provides additional support to the conclusion that there is no general belief that the Canton test should be altered.
{¶ 32} Each home-rule case involves unique facts because no two statutes are exactly alike. When analyzing home-rule issues, we apply the Canton test to the statute at issue, which results in a conclusion that is unique to that particular statute. The fact that our conclusions in these fact-intensive cases may vary does not mean that we are being inconsistent or that the Canton test is unworkable but rather that varying facts applied to varying statutes compel varying outcomes.
{¶ 33} Because neither party has raised a well-developed challenge to the Canton test and there is no compelling reason to revisit the test at this time, we will continue to apply the Canton test when analyzing home-rule issues.
III. CONCLUSION
{¶ 34} We determine that the officer-present provision in R.C. 4511.093(B)(1) fails the general-law test in Canton, and we hold that this statute violates Dayton's home-rule authority as provided by Article XVIII, Section 3 of the Ohio Constitution. Therefore, we sever the officer-present provision in R.C. 4511.093(B)(1) and leave intact R.C. 4511.093(B)(2) and (B)(3). See R.C. 1.50; Cleveland, 138 Ohio St.3d 232, 2014-Ohio-86, 5 N.E.3d 644, at ¶ 19, citing Geiger v. Geiger, 117 Ohio St. 451, 466, 160 N.E. 28 (1927). Similarly, we hold that the speeding-leeway provision in R.C. 4511.0912 is unconstitutional, and we strike the entire statute. Finally, we hold that, under Canton, the study and notice provisions of R.C. 4511.095 do not constitute a general law and are unconstitutional, and we strike the statute. We do not address in this appeal the many remaining provisions of S.B. 342.
{¶ 35} Accordingly, under Canton and its progeny, we reverse the judgment of the Second District Court of Appeals as to R.C. 4511.093(B)(1), 4511.0912, and 4511.095, and the permanent injunction imposed by the trial court is reinstated with respect to those three provisions.
Judgment reversed.
O'Connor, C.J., and Baldwin, J., concur.
French, J., concurs in judgment only, with an opinion joined by Kennedy, J.
O'Neill, J., dissents, with an opinion.
DeWine, J., dissents, with an opinion joined by O'Neill, J.
Craig R. Baldwin, J., of the Fifth District Court of Appeals, sitting for O'Donnell, J.
. R.C. 4921.25 was previously numbered R.C. 4921.30. The language at issue was first enacted in R.C. 4921.30, Am.Sub.H.B. No. 87,150 Ohio Laws, Part I, 59.157-158.