Opinion ID: 2514921
Heading Depth: 2
Heading Rank: 2

Heading: purpose of a conclusive presumption

Text: ¶ 20 An examination of the general nature of conclusive presumptions supports the conclusion that a statute providing for a conclusive presumption is not a statute of limitations. A presumption requires the trier of fact, in the absence of evidence . . . on that question, to assume the existence of an ultimate fact from underlying basic facts. Pilcher v. Pilcher (In re Pilcher's Estate), 114 Utah 72, 197 P.2d 143, 150 (1948) (Wade, J., concurring) (emphasis omitted). Where the presumption is conclusive, what is said to be the basic facts are in reality the ultimate facts and they have the same effect as though what is said to be the ultimate facts did exist. Id. ¶ 21 Commentators examining conclusive presumptions have also stated that [a] conclusive or irrebuttable presumption is not a presumption at all; it is a substantive rule of law directing that proof of certain basic facts conclusively provides an additional fact which cannot be rebutted. 29 Am. Jur.2d Evidence § 184 (2007). Also, [w]herever from one fact another is said to be conclusively presumed, in the sense that the opponent is absolutely precluded from showing by any evidence that the second fact does not exist, the rule is really providing that where the first fact is shown to exist, the second fact's existence is wholly immaterial for the purpose of the proponent's case. . . . 9 Wigmore, Evidence § 2492 (Chadbourn rev.1981). ¶ 22 Most often, presumptions operate to give one party an opening advantage as to the burden of proof, an advantage that can be lost by a showing of contrary facts by the opposing side. In the case of a conclusive presumption, however, there is no opportunity for rebuttal. The decision to make a presumption conclusive rests upon grounds of expediency or policy so compelling in character as to override the generally fundamental requirement of our system of law that questions of fact must be resolved according to the proof. United States v. Provident Trust Co., 291 U.S. 272, 281-82, 54 S.Ct. 389, 78 L.Ed. 793 (1934). Legal presumptions set up by statute are established. . . as a matter of public policy. Buhler v. Maddison, 109 Utah 267, 176 P.2d 118, 122 (1947). When the Legislature includes a conclusive presumption in a statute, they are stating that the objective promoted by the conclusive presumption is of greater importance than the opportunity to present facts challenging the presumed fact. ¶ 23 Section 10-2-422 is not the only Utah statute where the Legislature has made such a choice. Several other statutes also create conclusive presumptions. See, e.g., Utah Code Ann. § 7-1-602(1) (2006); id. § 34A-2-702(5)(c)(i) (Supp.2008). Conclusive presumptions also occur frequently in statutes regarding decisions of government entities. See, e.g., id. § 10-2-122 (2007) (providing a conclusive presumption in favor of the incorporation of a city); id. § 17B-1-217 (Supp. 2007) (providing a conclusive presumption in favor of the lawful creation of a local district); id. § 17C-1-504 (Supp.2007) (providing conclusive presumptions that bonds were issued for their stated purpose and that the plans for bonded urban renewal projects were formed, adopted, planned, located, and carried out as required by statute). ¶ 24 The feature common to all of the statutes providing conclusive presumptions in favor of governments is the finality they give to the government's decision. By conclusively presuming the government action is valid, these statutes express the Legislature's choice to further the goal of having an unassailable final decision over the goal of permitting relief to parties who may have been harmed by procedural flaws. Such a legislative decision gives governments confidence when moving forward with activities such as providing city services. Once the conditions are met, they can make expenditures without fear that the decision the spending is based on will be overturned. The conclusive presumption in section 10-2-422 shares the attribute of providing finality for government action found in other statutes conclusively presuming the validity of government decisions. ¶ 25 Mr. Davis's characterization of the conditions in section 10-2-422 as a mechanism for leaving the annexation open to challenge indefinitely is at odds with the goal of providing finality to government actions through conclusive presumptions. Additionally, his argument that section 10-2-422 is a statute of limitations is also at odds with the purposes of a statute of limitations.