Opinion ID: 884137
Heading Depth: 3
Heading Rank: 2

Heading: Language of prohibition

Text: Respondents additionally argue the absence of any explicit language in § 50-2-116(1)(i), MCA, prohibiting local boards of health from regulating sanitation in subdivisions with parcels containing fewer than twenty acres creates an ambiguity as to whether the Legislature intended to so limit their regulatory authority. Although § 50-2-116(1)(i), MCA, precisely mandates that local boards of health regulate sanitation in those subdivisions not regulated by the state pursuant to Title 76, chapter 4, it is utterly silent with respect to whether local boards have discretionary authority to regulate those subdivisions, such as Green Acres, which are in fact regulated by the state. Thus, § 50-2-116(1)(i), MCA, neither prohibits local boards of health from regulating subdivisions with parcels containing fewer than twenty acres, nor does it explicitly empower them to do so. In support of its argument, Skinner Enterprises points to that canon of statutory construction pursuant to which this Court is simply to ascertain and declare what is in terms or in substance contained within the statute, but is not to insert what has been omitted, or to omit what has been inserted. Section 1-2-101, MCA. It is not this Court's office, Skinner Enterprises asserts, to insert what the Legislature did not, and to construe § 50-2-116(1)(i), MCA, as providing local boards of health with discretionary authority to regulate subdivisions already regulated by the state. Skinner Enterprises maintains that § 50-2-116(1)(i), MCA, expressly retains regulation of all subdivisions comprised of parcels with fewer than twenty acres, with the state. Indeed, interpreted in a vacuum, the plain language of § 50-2-116(1)(i), MCA, does not, on its face, explicitly empower local boards of health to promulgate regulations regarding sanitation in subdivisions with parcels containing fewer than twenty acres. Neither does the language explicitly prohibit local boards of health from adopting sanitation regulations for subdivisions with parcels containing fewer than twenty acres. Thus the ambiguity, argue respondents. Respondents further urge against an interpretation which would deprive local boards of this regulatory authority because it takes into account neither the statutory context in which § 50-2-116, MCA, appears, nor its legislative history. Initially, with respect to legislative history, the parties agree that, prior to 1991, local boards of health had authority to regulate sanitation in all subdivisions, including those with parcels containing fewer than twenty acres. In 1991, however, the Montana Legislature amended § 50-2-116, MCA, to include the provision at issue in this case. Section 50-2-116(1)(i), MCA. By adding the following language to § 50-2-116(1), MCA, the Legislature specifically mandated that local boards: (i) adopt necessary regulations that are no less stringent than state standards for the control and disposal of sewage from private and public buildings that is not regulated by Title 75, chapter 6, or Title 76, chapter 4. The parties vigorously dispute the implications of this 1991 amendment. Skinner Enterprises argues the amendment effectively diminished the regulatory authority held by local boards of health, in fact divesting them of their longstanding power to regulate sanitation in subdivisions otherwise regulated by the state pursuant to Title 76, chapter 4. In contrast, respondents argue the 1991 amendment to § 50-2-116(1)(i), MCA, actually expanded local board of health regulatory authority. Respondents note the amendment commands local boards of health to adopt regulations for those subdivisions containing parcels with more than twenty acres, because those subdivisions are not regulated by the state pursuant to Title 76, chapter 4. Respondents additionally argue, however, that § 50-2-116(1)(i), MCA, continues to permit, but does not mandate, local boards of health to regulate those subdivisions containing parcels with fewer than twenty acres which are regulated by the state pursuant to Title 76, chapter 4. Respondents point to the absence of specific language divesting local boards of their authority to regulate subdivisions also regulated by the state, and argue that had the Legislature intended to so diminish local board of health regulatory authority, it would have done so with specific language to that effect. Although respondents argue § 50-2-116(1)(i), MCA, is clear on this point, they alternatively urge that the absence of explicit statutory language divesting local boards of their authority at a minimum renders § 50-2-116(1)(i), MCA, ambiguous. We conclude the absence of specific language either granting or prohibiting local boards from regulating subdivisions with parcels containing fewer than twenty acres renders § 50-2-116(1)(i), MCA, ambiguous, and therefore compels us to investigate the legislative history to derive the precise intent of the Legislature. Indeed, review of pertinent legislative history indicates that for us to construe § 50-2-116(1)(i), MCA, as prohibiting local boards of health from regulating those subdivisions with parcels containing fewer than twenty acres, would be for us to reach a result clearly not intended by the Legislature. In relying on evidence of legislative history to accurately interpret § 50-2-116(1)(i), MCA, we are, of course, aware that [o]ur function in construing and applying statutes is to effectuate the legislature's intent. To determine legislative intent, we first look to the plain meaning of the words used in the statute. If the legislature's intent can be determined by the plain language of the words used, we may not go further and apply other means of interpretation. It is only when the intent cannot be determined from the language of the statute that we will examine legislative history. Thomas Brothers v. Cargill, Inc. (1996), 276 Mont. 105, 110, 915 P.2d 226, 229 (quoting Gulbrandson v. Carey (1995), 272 Mont. 494, 500, 901 P.2d 573, 577) (citations omitted). With respect to statutory construction, we have identified defining the objectives the legislature sought to achieve as our prime consideration. Hern Farms, Inc. v. Mutual Benefit Life Insurance Co. (1996), 280 Mont. 436, 441, 930 P.2d 84, 87. In the present case, the legislative history of § 50-2-116(1)(i), MCA, clearly reveals an intent on the part of the Legislature to expand, rather than diminish, the authority held by local boards of health with respect to regulating sanitation in subdivisions. In 1991, neither the state, pursuant to Title 76, chapter 4, nor local governing bodies, pursuant to the Montana Subdivision and Platting Act, had statutory authority to regulate subdivisions comprised of parcels with more than twenty acres. [4] Thus, pursuant to the statutory scheme in effect prior to 1991, no one entity was required to regulate sanitation in those subdivisions comprised of parcels with more than twenty acres each. As a result of a continued increase in residential development, Montana was facing a potentially serious health problem. Many septic systems were being installed without being subject to any regulation whatsoever. In response to this problem, the Legislature enacted H.B. 162, to fill in the gaps and mandate that local boards of health regulate those subdivisions not otherwise regulated by the state. The title of House Bill 162, pursuant to which the Legislature enacted the 1991 amendments to § 50-2-116(1)(i), MCA, is: An act requiring the Board of Health and Environmental Sciences to establish minimum standards for the control and disposal of sewage from private and public buildings; requiring local boards of health to adopt regulations that are no less stringent than state standards for the control and disposal of sewage from private and public buildings; providing for appeal of a local variance to the Department of Health and Environmental Sciences; amending sections 50-2-16 and 75-5-305, MCA; and providing an applicability date. As a rule, the Legislature titles a bill to reflect what the bill does. The title of H.B. 162 says nothing about divesting from local boards of health their discretionary authority to regulate sanitation in subdivisions also regulated by the state pursuant to Title 76, chapter 4. Moreover, the statement of intent attached to H.B. 162 provides in pertinent part that: Following the adoption of minimum state standards, local boards of health shall adopt regulations for new septic and sewage disposal systems that are no less stringent than state standards. Local governments are not required to regulate septic and sewage disposal systems that the department of health and environmental sciences reviews and regulates under the requirements of Title 75, chapter 6, pertaining to public water systems or the requirements of Title 76, chapter 4, pertaining to subdivisions. As with the title of H.B. 162, the statement of intent says nothing about diminishing or taking away local board of health authority to regulate sanitation in subdivisions. Rather, that portion of the statement of intent which provides that [l]ocal governments are not required to regulate septic and sewage disposal systems otherwise regulated by the state pursuant to Title 76, chapter 4, clearly evidences the Legislature's intent that local government authority to regulate those systems be discretionary. There is simply nothing in the legislative history of H.B. 162 that even hints that the Legislature intended to remove from local boards of health the authority to adopt sanitary regulations in all subdivisions. To give effect to the intent of the Legislature and to avoid reaching an absurd result, we hold that § 50-2-116(1)(i), MCA, confers upon the board discretionary authority to regulate sanitation in the Green Acres subdivision. Although we do so by way of a different analysis, we conclude, as did the District Court, that local boards of health have statutory authority to regulate subdivisions, regardless of size.