Opinion ID: 1908722
Heading Depth: 1
Heading Rank: 7

Heading: Private Right of Action Under Article 14

Text: A private right of action for violation of Article 14 may lie because it is a self-executing constitutional provision. [7] Whether a constitutional provision is self-executing, so as to make it enforceable judicially, is an issue addressed by the U.S. Supreme Court in Davis v. Burke, 179 U.S. 399, 21 S.Ct. 210, 45 L.Ed. 249 (1900). The Supreme Court set forth the elements and characteristics of a self-executing constitutional provision: It supplies a sufficient rule by means of which the right given may be enjoyed and protected, or the duty imposed may be enforced; and it is not self-executing when it merely indicates principles, without laying down rules by means of which those principles may be given the force of law ... it is self-executing only so far as it is susceptible of execution. Davis, 179 U.S. at 403, 21 S.Ct. at 212, 45 L.Ed. at 251 (quoting Thomas McIntyre Cooley, A Treatise on the Constitutional Limitations which Rest upon the Legislative Power of the States of the American Union 99 (6th ed. 1890)). When a provision is so complete, it may be enforced by the courts without the need of further legislative authority or direction. Id. We applied this analysis to a claim brought under Article 15 of the Declaration of Rights. In Leser v. Lowenstein, 129 Md. 244, 250, 98 A. 712, 714 (1916), this Court found some of the provisions of Article 15 to be prohibitory and self-executing, and require no act of the Legislature to make them effective. One such clause prohibited the levy of a poll tax. Another was the provision declaring that paupers ought not be assessed for the support of government. The Court also found two provisions not to be self-executing because legislation was required to give effect to the provisions: the provision declaring the method to be used to set future levies for taxes and the provision charging the General Assembly to set uniform rules providing for separate assessment of land and classifications as it deems proper. Leser, 129 Md. at 250, 98 A. at 714 (quoting Article 15 of the Declaration of Rights). This Court also has determined other constitutional and statutory provisions to be self-executing. See e.g., Casey Development Corp. v. Montgomery County, 212 Md. 138, 150, 129 A.2d 63, 70 (1957) (finding a tax law self-executing); Hammond v. Lancaster, 194 Md. 462, 476, 71 A.2d 474, 480 (1950) (finding Article XVI of the Maryland Constitution (referendum power reserved to the people of Maryland) self-executing); Harris v. State, 194 Md. 288, 295, 71 A.2d 36, 40 (1950) (finding Article 21 of the Maryland Declaration of Rights self-executing) overruled on other grounds, Stewart v. State, 282 Md. 557, 386 A.2d 1206 (1978). We conclude that Article 14 is self-executing. Article 14 of the Declaration of Rights provides that no aid, charge, tax, burthen or fees ought to be rated or levied, under any pretense, without the consent of the legislature. If action is taken in contravention of Article 14, then the action is voidable by a court. No further legislative action is required to effectuate Article 14. Furthermore, the provision supplies a sufficient rule by means of which the right to be free from aids, charges, taxes, burdens, and fees levied without the Legislature's consent may be enjoyed and protected. Courts may enforce Article 14 by declaring such charges invalid. Its provisions are not merely a statement of principles. It is a directive capable of execution. Also, our conclusion that its terms are self-executing is in harmony with the scheme of the Declaration of Rights, particularly when read with Article 8 (separation of powers) and Article 15 (describing some of the duties of the Legislature regarding the levy of taxes). Therefore, Benson and Dean, all other things being equal, could assert private claims under Article 14 of the Declaration of Rights.