Opinion ID: 2083527
Heading Depth: 1
Heading Rank: 3

Heading: Constitutionality of R.S. 38:23-1:

Text: The defendant first contends that R.S. 38:23-1 is unconstitutional in that it constitutes a donation of public money to private individuals in violation of N.J. Const. 1844. Art. I, par. 19, or its counterpart, N.J. Const. 1947, Art. VIII, Sec. III, par. 2. The courts will incline to a construction favoring the validity of a statute unless its invalidity plainly appears. Everson v. Board of Education, 133 N.J.L. 350 ( E. & A. 1945). Was the statute in question enacted for a private or public purpose? That seems to be the proper test. The Government is calling for troops, and, in addition to voluntary individual action is drafting men to duty with the armed forces. National Guard, Army, Navy and Air Force organized reserve units, Marine Corps organized reserve battalions, and many individuals in the other reserve components of the armed forces have been called to active duty and many are now engaged in field operations. At the same time other National Guard, Army, Navy, Air Force and Marine Reserve units are being maintained and more are being activated in order to provide that support necessary to the defense of the nation. Such is our present situation. It did not exist in 1931 (as before noted, R.S. 38:23-1 was originally enacted as L. 1931, c. 347, secs. 1, 2) except in the intelligence and foresight of those in whose custody rested the welfare of the people. Its remoteness in that year rendered the need for trained, organized reserve military and naval forces no less important  and individuals were sought to fill the ranks of those units. It was a known fact that the organized reserves and militia (such as the National Guard) would be the first to leave their homes in an emergency. All alike, whether liable to military duty or not, were interested in the maintenance of the Government to support which armies are raised. The State of New Jersey, as an organized political community, was interested in supporting the Federal Government and strengthening its armies. It is sufficient for the court to say that the statute now under consideration was designed to provide for expenditures of money for the protection of the person, property and rights of the residents of the municipality as well as of every other citizen of the State. This was for a public purpose. State, Ruckman v. Demarest, Collection of Harrington, 32 N.J.L. 528, 540 ( E. & A. 1866), writ of error declared abated by death of the parties, 110 U.S. 400, 28 L.Ed. 191 (1884). Compare City of Camden v. South Jersey Port Commission, 4 N.J. 357, 367-369 (1951); Everson v. Board of Education of Ewing Township, 133 N.J.L. 350, 353, 355 ( E. & A. 1945), affirmed 330 U.S. 1, 91 L.Ed. 711 (1947), reh. den. 330 U.S. 855, 91 L.Ed. 1297 (1947). Next the defendant argues that the statute in question, now R.S. 38:23-1, is special legislation in contravention of N.J. Const. 1844, Art. IV, Sec. VII, par. 11, and its counterpart, N.J. Const. 1947, Art. IV, Sec. VII, par. 9, clause (13), in that it constitutes regulation of the internal affairs of municipalities. The law of this State is settled to the contrary. Where the statute in question as the one before us has general application to all municipalities, or to a properly classified group of municipalities, the regulation by the Legislature effected by that statute concerning the internal affairs of municipalities, including performance of duty by police officers, is constitutional. Borough of Jamesburg v. Hubbs, 6 N.J. 578, 584 (1951). The defendant's argument on this point includes the premise that the effect of the statute is to increase the compensation of all reserve officers in public (state or municipal) service who voluntarily return to active duty in the Army for training and therefore is special legislation because it relates only to reservists. We find no merit in this latter premise. As we have read the statute it applies to leave required for field training. It is general in its application and does not increase the pay of the reservist-employee. On the contrary, the enactment maintains the level of compensation paid by the state public body. The effect adverted to by the defendant is caused by additional pay received by the employee as a member of the armed services on active duty. As a practical matter the statute merely designates an instance in which the municipality shall grant leave of absence with pay, leaving other instances to the determination of the municipality under R.S. 40:46-32, which has application to all municipal employees, and R.S. 38:23-3, supra, which applies to reservists, or others entering military service, when on duty with the armed forces of the nation for duty other than field training, and statutes of like effect (some of which are discussed ante ). The final constitutional attack on the statute made by the defendant is that the legislation is violative of N.J. Const. 1844, Art. IV, Sec. VII, par. 11, and N.J. Const. 1947, Art. IV, Sec. VII, par. 9, clause (8) because it is a grant of exclusive privilege to individuals. The defendant overlooks the fact that the constitutional inhibition is applicable only to special legislation and expressly permits general legislation. In R.S. 38:23-1 the privilege is granted to all state and municipal employees who as reservists enter upon active duty with their military or naval reserve units for field training. This classification is sufficiently broad to constitute general legislation. Defendant contends that the statute discriminates against reservists not in public service. This argument fails to consider the fact that the State is acting in its proprietary capacity as an employer. The defendant's argument in effect is that no right may be accorded a state or municipal employee that is not accorded an employee of a private citizen or corporation. Such a contention is entirely unsound and without merit.