Opinion ID: 2612398
Heading Depth: 2
Heading Rank: 1

Heading: Propriety of Review

Text: Deannexation proponents [2] assert that, for purposes of challenges under the Arizona Constitution, art. 4, pt. 2, § 19(20), the legislature, not the courts, is the sole judge of whether a general law can be made applicable, citing Valley Nat'l Bank v. Glover, 62 Ariz. 538, 159 P.2d 292 (1945); Prescott v. O'Sullivan, 46 Ariz. 551, 53 P.2d 69 (1935). They argue that the legislature is the appropriate governmental branch to decide which form economic regulation will take, especially where policy decisions involving compromise and line-drawing are involved. Accordingly, deannexation proponents claim, courts must not arrogate to themselves such a legislative function. Goodyear counters that the court's enforcement of the special/local law prohibitions does not equate with the court's sitting as a superlegislature. Judicial scrutiny and control are clearly appropriate where legislative favoritism might impair rights guaranteed to municipalities. In this case, the court may properly review the constitutionality of the deannexation statute. Although we recognize the legislature's role and generally will defer to the legislature on decisions regarding whether a general law will apply, the court's role is to evaluate whether a statute has a valid legislative purpose, is arbitrary, or whether the legislature abused its discretion. See, e.g., Hernandez v. Frohmiller, 68 Ariz. 242, 257-58, 204 P.2d 854, 864-65 (1949); Glover, 62 Ariz. at 560, 159 P.2d at 301. A strong presumption in favor of a statute's constitutionality exists. Eastin v. Broomfield, 116 Ariz. 576, 570 P.2d 744 (1977). In doubtful cases, courts generally defer to legislative determinations of policy. 2 N. Singer, Sutherland Statutes & Statutory Construction § 40.09, at 233 (4th ed. 1986) (hereafter Sutherland's ). Nonetheless, courts will not refrain from declaring a legislative act an unconstitutional special or local law when the facts so require. See Petitioners for Deannexation v. City of Goodyear, 160 Ariz. at 472, 773 P.2d at 1031, and citations therein. An act, even though general in form, will be treated as a special act if that is its effect. Sutherland's § 40.02; see also 2 E. McQuillan, The Law of Municipal Corporations § 4.50, at 125 (3rd ed. 1988) (Whether a statute is general or special depends on its substance and practical operation, rather than on its title, form or phraseology.). The deannexation statute, as amended, affected a limited class for a limited period of time. This calls into question the constitutionality of the statute and review by this court is therefore proper.