Opinion ID: 1974504
Heading Depth: 2
Heading Rank: 3

Heading: In Rhode Island

Text: a writ of mandamus will issue only where the petitioners have a clear legal right to have the act done which is sought by the writ; and where the respondents have a ministerial, legal duty to perform such act without discretion to refuse; and where the petitioners have no plain and adequate remedy at law. Gormally v. Cannon, 119 R.I. 771, 776, 383 A.2d 582, 585 (1978). See also O'Neill v. Carr, 522 A.2d 1213, 1214-15 (R.I. 1987) (citing Buckley v. Affleck, 493 A.2d 828 (R.I. 1985); Kritz v. Cianci, 474 A.2d 1248 (R.I. 1984); Bionomic Church of Rhode Island v. Gerardi, 414 A.2d 474 (R.I. 1980)). It is well settled that mandamus will issue to compel a public officer, board, or commission to perform a ministerial duty. Aniello v. Marcello, 91 R.I. 198, 202, 162 A.2d 270, 272 (1960) (citing Newman v. Mayor of Newport, 73 R.I. 435, 57 A.2d 180 (1948); McLyman, ex rel. Hogan v. Holt, 51 R.I. 96, 151 A. 1 (1930)). A housing authority may be compelled to perform a ministerial duty. McKinnon v. Housing Authority of Pawtucket, 114 R.I. 686, 688, 338 A.2d 517, 518 (1975). However, it should be noted that [t]he writ will not issue to compel a public officer to perform an act the performance of which rests within his discretion. Id. (citing Izzi v. Warwick School Committee, 82 R.I. 76, 105 A.2d 818 (1954)). The plaintiff correctly argues that the payment of a valid judgment against LHA is not discretionary but rather a ministerial duty. Like the Alabama public housing authority, a Rhode Island housing authority has been given the power by the Legislature to sue and be sued. G.L. 1956 (1991 Reenactment) § 45-25-15(1). Adler's claim against LHA is a liquidated judgment. This judgment became final when this court denied and dismissed defendants' second appeal on April 26, 1990. Welsh Manufacturing, Division of Textron, Inc. v. Pinkerton's, Inc., 494 A.2d 897, 898 (R.I. 1985). This final judgment gave Adler a clear legal right to her awarded damages. In Richmond v. Kettelle we specifically held that the town treasurer was bound to take notice of these judgments and to proceed to provide for their payment. 42 R.I. at 211, 106 A. at 299. Clearly LHA had a ministerial duty to pay this valid judgment and chose to ignore it. Upholding the trial justice's denial of mandamus in situations in which the housing authority is exempt from execution on its property could make suits against a housing authority futile and contradict § 45-25-15(1), which specifically allows such suits. Notwithstanding Adler's persuasive argument that mandamus should issue, a practical limitation does exist on this extraordinary remedy. This court has ruled that [t]o warrant the issuance of a writ of mandamus, it must appear that the writ will be effectual as a remedy. Buckley v. Affleck, 493 A.2d 828, 830 (R.I. 1985) (citing Aniello v. Marcello, 91 R.I. 198, 202-03, 162 A.2d 270, 272 (1960); McLyman, ex. rel. Hogan v. Holt, 51 R.I. 96, 98-99, 151 A. 1, 2 (1930)). According to LHA, it is operating at a deficit and unable to pay the judgment, making mandamus ineffectual. Although inability to pay may be a valid defense to mandamus, it is not considered in a vacuum. Adler relies on § 45-27-1, which specifically grants LHA the power to issue bonds, from time to time in its discretion, for any of its corporate purposes, in her argument that inability to pay alone is not a valid defense to mandamus. The Superior Court has the authority to order LHA to raise revenue by issuing bonds to pay the judgment when issuing a writ of mandamus. Such an order would only be proper when it relates to a ministerial duty. The question remains, however, of whether such an order to issue bonds would impinge upon LHA's discretionary functions. It appears from the language of § 45-27-1 that the power to issue bonds is purely discretionary. Thus a writ of mandamus ordering the issuance of such bonds would ordinarily be an improper intrusion on discretionary authority. In circumstances in which a clear abuse of discretion is evident, however, a writ of mandamus may be proper even when the duty in question is purely discretionary. The writ of mandamus is most frequently used to compel the performance of some ministerial duty on the part of a public officer, board or commission. If the performance of the duty involves the exercise of discretion or judgment, the writ will not be issued except in cases where there has been an abuse of discretion. McLyman, ex rel. Hogan v. Holt, 51 R.I. at 98, 151 A. at 2. Relying on Hawthorne v. La-Man Constructors, Inc., 672 S.W.2d at 259, Adler argues that mandamus is justified to order LHA to exercise its discretionary authority to raise revenue because LHA has abused its discretion in not paying the judgment or making any attempt to do so. Adler's assertion that mandamus should issue when there is an abuse of discretion is compatible with this court's previous findings. This court has noted that [a]lthough the public officer may exercise a discretionary function, that discretion may not be so boundless and uncontrolled as to allow the official to negate and nullify a statutorily established merit system. Parente v. Southworth, 448 A.2d 769, 772 (R.I. 1982) (citing State ex rel. Alford v. Willoughby Civil Service Commission, 58 Ohio St.2d 221, 390 N.E.2d 782 (1979)). In addition, this court has stated that mandamus may be used to require the reasonable exercise of discretion. Newman v. Mayor of Newport, 73 R.I. at 436, 57 A.2d at 181. Although Adler's argument on LHA's abuse of discretion is persuasive, it is not conclusive on the effectiveness of the proposed writ. This defendant's further contention that it is prohibited by the federal government from obtaining loans under its Consolidated Annual Contribution Contract (CACC) adds yet another layer of ambiguity on the question of mandamus. It appears however, that § 422 of the CACC is not a blanket prohibition on LHA's ability to secure loans but rather requires prior federal-government approval for loans relating to projects other than those provided for under the CACC. Having only part of the CACC in this record makes determination of the constraints on LHA's authority inconclusive. The supplemental procedures of §§ 9-28-1 and 9-28-3 to which the trial justice referred are not available to Adler because of LHA's exemption from judicial process under § 45-27-14. Thus the motion for issuance of a writ of mandamus is properly before this court. Whether LHA actually has reachable assets or the authority to issue bonds or obtain loans under the constraints of the CACC is a factual issue that remains to be resolved. If LHA does not have reachable assets or the authority to issue bonds or to obtain loans, then the issuance of a writ of mandamus would be ineffectual and improper. For these reasons the plaintiff's appeal is sustained, the trial court's denial of the issuance of the writ of mandamus is vacated, and the case is remanded to the Superior Court for a hearing to determine whether the issuance of a writ of mandamus would be effectual.