Opinion ID: 1333326
Heading Depth: 1
Heading Rank: 5

Heading: Multiple Filing Fees in Cases with Multiple Plaintiffs

Text: Cable argues that the circuit court erred in finding that the clerk of the circuit court properly refused to file Cable's complaint against Marrowbone. First, Cable contends that by refusing to file the complaint, the circuit clerk improperly exercised discretion not vested in him. Cable argues that it is widely settled that the clerk of a court does not have discretion to determine the sufficiency, validity or legal effect of documents lawfully presented to the clerk for filing. Second, Cable contends that the proper filing fee was tendered, pursuant to W.Va. Code § 59-1-11(a) (1990) (Cum.Supp.1995). [10] Therefore, the court clerk had no justification for refusing to file the complaint. Cable acknowledges that several counties have imposed the requirement of separate filing fees in lawsuits involving multiple plaintiffs. However, he submits that those counties have published general orders or local rules providing notice of the requirement. He complains that Mingo County had no general order or published local rule proving notice of the filing fee requirement. Furthermore, Cable argues that the cause of action asserted by each of the sixteen plaintiffs is identical. Thus, the determination of whether the lawsuits should have been severed under this circumstance, Cable argues, was properly within the discretion of a judge, not a court clerk. Marrowbone responds that the circuit clerk properly refused to file the complaint; therefore, the petition for writ of mandamus was properly dismissed. [11] Marrowbone notes that the first two elements required for the issuance of a writ of mandamus, a clear legal right in the petitioner to relief and a legal duty on the part of the respondent, are not present in this case. Marrowbone argues that the circuit clerk was justified in refusing to file the complaint because Cable failed to tender the proper filing fees, which, under W.Va.Code § 59-1-11(a), shall be paid in advance. Marrowbone also asserts that Stevens v. Saunders, 159 W.Va. 179, 220 S.E.2d 887 (1975), is similar to the case at bar. In Stevens, the necessary bond for service of process was not received by the circuit clerk until after the running of the statute of limitations. [12] In response to the defendant's motion to dismiss on the ground that the action was not commenced within the statute of limitations, the plaintiff argued that it was the duty of the circuit clerk to provide a proper bond and that the clerk's failure should not inure to the plaintiff's detriment. This Court rejected the plaintiff's argument, stating that a plaintiff or his attorney bears the responsibility to see that an action is properly instituted and that bonds are properly filed. Finally, Marrowbone contends that the circuit clerk did not pass on the validity or sufficiency of the complaint by refusing to file it when the proper filing fee was not paid and the West Virginia Rules of Civil Procedure were not followed. Marrowbone submits that a court clerk has the authority and discretion to reject documents for filing that do not comport with the applicable court rules relative to form. Citing Bowman v. Eighth Judicial Dist. Court, 102 Nev. 474, 728 P.2d 433 (1986); Thompson v. Cortese, 41 Pa.Commw. 174, 398 A.2d 1079 (1979). We conclude the plain language of W. Va.Code § 59-1-11(a) (1996) (Repl.Vol.1997) requires the circuit clerk to file a complaint when the statutory filing fee has been tendered. We have repeatedly recognized that: `Courts always endeavor to give effect to the legislative intent, but a statute that is clear and unambiguous will be applied and not construed.' Syllabus Point 1, State v. Elder, 152 W.Va. 571, 165 S.E.2d 108 (1968). Syllabus Point 1 of State v. Boatright, 184 W.Va. 27, 399 S.E.2d 57 (1990). Syl. pt. 2, West Virginia Dept. of Health and Human Resources ex rel. Wright v. David L., 192 W.Va. 663, 453 S.E.2d 646 (1994). See also Syl. pt. 3, Michael v. Marion County Bd. of Educ., 198 W.Va. 523, 482 S.E.2d 140 (1996) (`Where the language of a statute is clear and without ambiguity the plain meaning is to be accepted without resorting to the rules of interpretation.' Syl. Pt. 2, State v. Elder, 152 W.Va. 571, 165 S.E.2d 108 (1968).); Syl. pt. 1, Personnel Temp. Servs., a Div. of Personnel, Inc. v. West Virginia Div. of Labor Contractor Licensing Bd., 197 W.Va. 149, 475 S.E.2d 149 (1996) (When a statute is clear and unambiguous and the legislative intent is plain the statute should not be interpreted by the courts, and in such a case it is the duty of the courts not to construe but to apply the statute. (internal quotations and citations omitted)). West Virginia Code § 59-1-11(a) (1996) (Repl.Vol.1997) states: The clerk of a circuit court shall charge and collect for services rendered as such clerk the following fees, and such fees shall be paid in advance by the parties for whom such services are to be rendered: For instituting any civil action under the rules of civil procedure, ... seventy-five dollars: Provided, That the fee for instituting an action for divorce shall be one hundred five dollars. This language clearly mandates that, when presented with a civil complaint in an action other than a divorce action, the clerk shall collect a filing fee specifically designated to be seventy-five dollars (previously seventy dollars). [13] This fee must be received by the clerk prior to instituting any civil action under the rules of civil procedure. Thus, before the circuit clerk can institute a civil action by filing the complaint, see Rule 3, W.Va.R.Civ.P. ([a] civil action is commenced by filing a complaint with the court), [14] the clerk must collect a fee expressly specified by the legislature to be seventy-five dollars. This statute makes no distinction regarding the number of plaintiffs joining a particular suit. Our rules of civil procedure permit multiple plaintiffs to join in a single action, under the appropriate circumstances. See W.Va. R.Civ.P., Rule 20(a) (All persons may join in one action as plaintiffs if they assert any right to relief jointly, severally, or in the alternative in respect of or arising out of the same transaction, occurrence, or series of transactions or occurrences and if any question of law or fact common to all these persons will arise in the action.). Increasingly, numerous parties will join in an action as authorized by Rule 20. The mass litigation [15] that can result imposes a significant burden, financial and otherwise, on circuit clerks' offices. However, the West Virginia Rules of Civil Procedure are silent with regard to the filing fee to be charged when multiple parties choose to join in one action. Nevertheless, the parties to this appeal do not dispute the circuit court's authority to assess additional filing fees in multiple plaintiff cases. Indeed, we have previously stated: Courts have inherent authority to require necessary resources, such as sufficient funds for operating expenses, work space, parking space, supplies, and other material items. In order for a court to invoke use of its inherent power to require resources, the court must demonstrate that such resources are reasonably necessary for the performance of its responsibilities in the administration of justice. Although courts must be cautious not to reach beyond the power of the judicial branch, it is crucial for the judiciary to be able to invoke such power as is reasonably necessary to maintain itself as an independent and equal branch of our government. Syl. pt. 3, State ex rel. Lambert v. Stephens, 200 W.Va. 802, 490 S.E.2d 891 (1997). A circuit court's administrative powers, which are exercised through the circuit judge, or chief judge where there is more than one circuit judge, also derive from the West Virginia Constitution. W.Va. Const. Article VIII, § 6 (Under the direction of the chief justice of the supreme court of appeals, the judge of the circuit court, or the chief judge thereof if there be more than one judge of the circuit court, shall be the administrative head of the circuit court and all magistrate courts in the circuit.). Furthermore, we have explained that the administrative powers of the circuit judge or chief judge exist to the extent that they are not contrary to explicit direction from this Court. Rutledge v. Workman, 175 W.Va. 375, 381, 332 S.E.2d 831, 836 (1985) (At the county level, except to the extend that the circuit courts are given explicit direction by the Supreme Court of Appeals, the power to control the local affairs of the circuit is placed in the circuit judge or the chief circuit judge.). Consequently, we hold that a circuit judge or chief judge of a circuit with more than one judge, shall have the authority to enter an administrative order governing when separate filing fees are required and may require additional filing fees in multiple plaintiff cases until such time as a statewide rule governing filing fees in multiple plaintiff cases is promulgated. While we recognize the circuit court's authority to assess multiple filing fees for multiple plaintiffs, we do not believe this authority imposes a corresponding duty on the part of the circuit court clerk to reject an otherwise valid complaint where such additional filing fees are not initially tendered. This Court recently established a Mass Litigation Panel to, inter alia, develop and implement case management and trial methodologies for mass litigation. See Rule XIX(b)(1), W.Va. T.C.R. for Trial Courts of Record. This panel became fully operational on July 1, 1998. Due to its recent commencement, the panel obviously has not yet had the opportunity to address issues such as the one presently before us. In the absence of the adoption of a relevant rule proposed by the mass litigation panel, our decision must be guided by W.Va.Code § 59-1-11(a). As explained above, W.Va.Code § 59-1-11(a) requires, in mandatory language, the circuit clerk to collect only seventy-five dollars prior to filing a complaint in a civil action other than an action for divorce. We therefore hold that when a circuit court clerk receives a complaint, which lists multiple plaintiffs, complies with the West Virginia Rules of Civil Procedure and is accompanied by the seventy-five dollar filing fee mandated by W.Va.Code § 59-1-11(a) (1996) (Repl.Vol. 1997), the clerk must file the complaint. Once such a complaint has been filed, the circuit judge to whom the case has been assigned must determine whether the requirements, if any, that have been administratively established by the chief judge of that circuit under Syllabus point 3 of this opinion, are met such that additional filing fees should be assessed. [16] C.