Opinion ID: 2608890
Heading Depth: 2
Heading Rank: 3

Heading: Definition of Qualified Electors

Text: In light of our conclusion that the petitions were untimely filed and are now null and void, the two remaining issues presented are moot for this particular case. On occasion, however, we consider issues that are moot if significant questions of public importance are presented and are likely to recur. See Fraternal Order of Police v. Phoenix Employee Relations Bd., 133 Ariz. 126, 127, 650 P.2d 428, 429 (1982); see also Camerena v. Department of Public Welfare, 106 Ariz. 30, 31, 470 P.2d 111, 112 (1970). Local elections and the rules governing them are of considerable public interest and justify departure from the usual mootness rule. Further, the remaining issues concerning the definition of qualified electors and the proper method of calculation of valid signatures recur and are the subject of differing interpretations. The issues were thoroughly briefed and presented in an adversarial fashion by the parties and by amicus, giving this court the benefit of the opposing arguments and considerations. For these reasons, we exercise our discretion to determine the merits of the two remaining issues notwithstanding the fact that those issues are moot in this particular case. The trial court ruled that, for local initiative purposes, qualified electors under Ariz. Const. art. 4, pt. 1 means the entire number of persons eligible to vote at the last city election, rather than those who actually voted. As noted previously, the Arizona Constitution reserves the initiative power to qualified electors of cities, towns and counties. Ariz. Const. art. 4, pt. 1, § 1(8). Fifteen percent of the qualified electors within the municipality may propose local initiative measures. Id. Until provided by general law, said cities and towns may prescribe the basis on which said percentages shall be computed. Id. Based on Adams v. Bolin, 74 Ariz. 269, 247 P.2d 617 (1952), the City argues that the constitutional requirement of fifteen percent must be applied to all electors eligible to vote. Adams involved a legislatively proposed referendum which, if approved by the voters, would have repealed an initiative measure. The constitution provides that the power of the legislature, to repeal ... shall not extend to initiative ... measures approved by a majority vote of the qualified electors. Ariz. Const. art. 4, pt. 1, § 1(6). In Adams, the court rejected the argument that approved by a majority vote of the qualified electors meant approved by a majority of the qualified electors voting thereon because it is all too clear that the constitution makers knew the difference between the two. 74 Ariz. at 273-74, 247 P.2d at 620. The City's reliance on Adams is misplaced. For purposes of this case involving local initiatives, the constitution provides that qualified electors may be defined by municipalities until defined by general law. See Ariz. Const. art. 4, pt. 1, § 1(8). Accordingly, we first examine the general laws of the state to determine if the legislature has defined qualified electors for local initiative purposes. For local referendum purposes, A.R.S. § 19-142(A) expressly defines qualified electors as those voting in the preceding mayoral election. However, no general law defines qualified electors for local initiative petition purposes. With this void in the general law, we turn first to the City Charter. See generally 186-011 Op. Att'y Gen. 2 (1986) (where legislature fails to make provisions in general laws, cities free to choose basis to compute percentage of qualified electors for initiative petitions). However, as we have previously noted in connection with our discussion of filing deadlines, art. 10, § 1 of the Flagstaff City Charter refers us back to the state constitution and general state laws. Turning back to state law, A.R.S. § 19-141(C) again provides a gap-filler in the absence of controlling local law and mandates that local initiative procedures be as consistent as possible with state initiative procedures. Therefore, we turn to the provisions relating to statewide initiative petitions. Ariz. Const. art. 4, pt. 1, § 1(7) provides: The whole number of votes cast for all candidates for Governor at the general election last preceding the filing of any initiative ... petitions on a state ... measure shall be the basis on which the number of qualified electors required to sign such petitions shall be computed. Accordingly, we conclude that, in the absence of controlling local law to the contrary, the number of qualified electors required to sign a local initiative petition is fifteen percent of the entire vote cast for all candidates for mayor at the last preceding general municipal election. [3] In so holding, we are aware that in 1988 and 1989, the legislature considered, but did not pass, legislation that would expressly adopt a formula analogous to the one set forth in the constitution. See, e.g., S.B. 1249, 39th Legis., 1st Sess. (1989) (bill held in committee); H.B. 2236, 38th Legis., 2d Sess. (1988) (bill stricken). The City notes that the legislative history and historical background of an enacted statute provides guidance in ascertaining the intent of the legislature. Dupnik v. MacDougall, 136 Ariz. 39, 42, 664 P.2d 189, 192 (1983); State v. Barnard, 126 Ariz. 110, 112, 612 P.2d 1073, 1075 (Ct.App. 1980). Citizens correctly point out that this principle has no application to proposed, but unenacted, legislation. Rejection by the house or senate, or both, of a proposed bill is an unsure and unreliable guide to statutory construction. See Allen v. Retirement Sys., 769 P.2d 1302, 1306 (Okla. 1988) (bills falling short of passage never probative of legislative intent). Indeed, one could also argue that the legislature considered the proposed legislation unnecessary. We will not speculate on the intent of the legislature in failing or refusing to adopt clarifying amendments on this issue. Absent constitutional infirmities, we are required to apply statutes as written. In re Pima County Juvenile No. 74802-2 (Ariz. Apr. 4, 1990).