Opinion ID: 2514089
Heading Depth: 1
Heading Rank: 3

Heading: State Competitive Bidding Law Violation

Text: Chappell requests that this court conclude that the first charge of his recall petition is legally and factually sufficient. 1. Factual Sufficiency We have previously specified the substantive standards for establishing factual sufficiency: Factually sufficient means the petition must comply with the specificity requirements of RCW 29.82.010. As noted in Herron [ v. McClanahan, 28 Wash.App. 552, 625 P.2d 707 (1981)] at 560 [625 P.2d 707], `these statutory requirements ensure that both the public electorate and the challenged elective official will make informed decisions in the recall process.' Factually sufficient indicates that although the charges may contain some conclusions, taken as a whole they do state sufficient facts to identify to the electors and to the official being recalled acts or failure to act which without justification would constitute a prima facie showing of misfeasance, malfeasance, or a violation of the oath of office. Chandler, 103 Wash.2d at 274, 693 P.2d 71. In addition, when a petition charges that the elected official has violated the law, the petitioners must show that they at least have knowledge of facts which indicate an intent to commit an unlawful act. In re Recall of Wade, 115 Wash.2d 544, 549, 799 P.2d 1179 (1990). Kast suggests that the first charge is not factually sufficient because the charge does not specify the date upon which he allegedly made a motion and voted to unlawfully split the culvert ditch project into two separate jobs. RCW 29.82.010 requires that [t]he charge shall state the act or acts complained of in concise language, give a detailed description including the approximate date, location, and nature of each act complained of. However, the recall statutes are to be construed in favor of the voter. Pearsall-Stipek, 141 Wash.2d at 765, 10 P.3d 1034. Thus, we agree that a petition should not fail for a mere technical violation of RCW 29.82.010 if the electorate has sufficient information to evaluate the charge and the elected official has sufficient notice to respond to the charge. See Skidmore v. Fuller, 59 Wash.2d 818, 823-24, 370 P.2d 975 (1962) (holding that a charge in a recall petition was factually sufficient even though it failed to state the exact date upon which the allegedly unlawful agreement was entered into). Moreover, we may look to supporting affidavits to determine whether a petition is factually sufficient. Beasley, 128 Wash.2d at 427, 908 P.2d 878. Because the approximate date (summer 1998) was provided in the supporting affidavits, we conclude that the first charge does not fail based on a technical violation of RCW 29.82.010. We conclude that the first charge is factually sufficient because the petition provides sufficient information regarding the nature of the charge to both the electorate of the fire district and to Kast. RCW 52.14.110 provides that fire districts shall use a competitive sealed bid process, whenever practicable, to purchase materials or to contract for labor that will cost more than $2,500. Chappell has alleged that Kast made a motion and voted to unlawfully divide a project into two parts and thus create two jobs that would cost less than $2,500. Furthermore, Chappell has explained that Kast completed his breach of state competitive bidding laws by hiring Jerry Iverson Trucking to complete the labor on the culvert ditch project. In his report, the state auditor confirmed that this division of the project was unlawful and that the board members, including Kast, were aware of the state competitive bidding law. Finally, Chappell has also offered evidence regarding Kast's intent to violate the law: Kast made statements that he knew that the project exceeded the $2,500 threshold and that he knew that he was breaking the law. Based on these assertions, we conclude that the first charge is factually sufficient. 2. Legal Sufficiency This court has also specified the substantive standards for establishing legal sufficiency: Legally sufficient means that an elected official cannot be recalled for appropriately exercising the discretion granted him or her by law. To be legally sufficient, the petition must state with specificity substantial conduct clearly amounting to misfeasance, malfeasance or violation of the oath of office. Chandler, 103 Wash.2d at 274, 693 P.2d 71 (citations omitted). However, we have also recognized that a charge is legally insufficient if the conduct is insubstantial or if the elected official acted with a legal justification. Greco v. Parsons, 105 Wash.2d 669, 671-72, 717 P.2d 1368 (1986). We conclude that the first charge is legally sufficient. Kast suggests that making a motion is insubstantial conduct that cannot be the basis of recall. See In re Recall of Call, 109 Wash.2d 954, 958, 749 P.2d 674 (1988). However, although a motion by itself may be considered insubstantial conduct, Kast also voted to adopt that motion and to hire a contractor in violation of the state competitive bidding law. His actions were substantial. Kast also asserts that a violation of RCW 52.14.110 does not result in a civil fine or a criminal penalty and is not, therefore, `malfeasance' as that term is defined in RCW 29.82.010(1)(b). In re Recall of Hurley, 120 Wash.2d 378, 381, 841 P.2d 756 (1992). Nevertheless, his conduct would still be considered malfeasance under section (1) because his violation of the law was wrongful conduct and because his conduct interfere[d] with the performance of official duty by failing to promote the best interests of the fire district. RCW 29.82.010(1). As a result of his conduct, the fire district could not be sure that it had received the best value or price for the culvert ditch project. [2] Finally, Kast concludes that whether a competitive sealed bid will be used in relation to a construction project is a matter within the discretion of the board. He notes that RCW 52.14.110 requires the competitive bid process to be used [i]nsofar as practicable. However, Kast has not offered any evidence that the use of competitive sealed bids was not practicable in the case of the culvert ditch project. Chappell concedes that the fire district might have avoided the competitive bid requirement if the board had declared an emergency in relation to the culvert ditch project. Nevertheless, no such emergency was declared, and the record does not support the conclusion that such an emergency existed. Because the fire district, and Kast specifically, did not exercise its discretion in a reasonable manner, we conclude that the first charge is legally sufficient.