Opinion ID: 2615788
Heading Depth: 1
Heading Rank: 5

Heading: The prime objective

Text: We may properly assume that §§ 2-131 and 2-134 of the charter were written with the doctrine of the Kadderly case in mind and with no intent to avoid  or circumscribe its application. When we examine § 2-131 of the city charter in its entirety, we find that it is one of procedure. It relates to the method for the enactment of two types of city legislation, which are the only types that can be adopted by the city's legislative body. The first type is all ordinances other than emergency ordinances. The second type is emergency ordinances. For the first type three public readings are required with a session interval between two of the prescribed readings. Other delaying procedures are indicated before final passage. As to emergency ordinances, the restraints imposed upon the passage of the first type are waived and, as a substitute therefor, the council is required to include within such ordinance not only a statement that an emergency exists but specify with distinctness the facts and reasons constituting such emergency. 4. It is clear to us from a reading of § 2-131 that its over-all objective was to induce and secure as nearly as possible temperate and considerate legislative action, whether it be emergency or otherwise, and that was the prime purpose expected to be attained thereby. The charter mandate is a time-tested device taken from the book of human experience. It is but a present-day and practical application of a trait common to all men, that is, he who must write of the fact compelling his action and who must memorialize his reasons in justification for his course usually pauses to reflect well before making such record, deliberates upon and ponders his facts and reconsiders his reasons for the act which follows. The contrary is too often true when there is no printed or written record of accountability to haunt the careless or the indifferent legislator. The obligation imposed upon the city council to include in the ordinance a statement of facts and reasons,  rather than rest alone upon a declaration that an emergency exists, as can be done by the state legislature, tends to give more than a modicum of assurance that the ordinance has received considered action. In this respect it is analogous in purpose, if not identical in method, to the three readings required of an ordinance not emergency in character and, we believe, equally as efficacious in result. The required readings on the one hand and the statement of facts and reasons on the other have a common end in that they are natural impediments to impetuous, impulsive, capricious or arbitrary legislation. They stand as bars to precipitantness and place a premium upon laws born of cautious inquiry and sober reflection. The inclusion of a statement of the facts and reasons for the legislative action gives no absolute guarantee, any more than do three public readings, that the final result will be received with universal acceptance and acclaim. It does, however, attest that the act in question was preceded with a pause provocative of the kind of consideration which the public has a right to expect from responsible lawmakers. A further safeguard against imprudent action is found in § 2-131 of the city charter which requires:    The unanimous vote of all members of the council present, and of not less than four (4) members shall be required to pass an emergency ordinance.