Opinion ID: 2753830
Heading Depth: 2
Heading Rank: 1

Heading: Clear Right to Relief

Text: To establish a clear right to relief, the party seeking an injunction need not prove the merits of the underlying claim, but need only demonstrate that substantial legal questions must be resolved to determine the rights of the parties. Fisher v. Dep’t of Public Welfare, 439 A.2d 1172 (Pa. 1982). Under the facts presented, resolution of this prong is based entirely upon the statutory interpretation of Section 1403(c)(1). As with any question of statutory interpretation, our standard of review is de novo, and our scope of review is plenary. Mercury Trucking, Inc. v. Pa. Pub. Util. Comm'n, 55 A.3d 1056, 1067 (Pa. 2012). In interpreting a statute, our primary goal is to ascertain and effectuate the intention of the General Assembly. 1 Pa.C.S. § 1921(a). When the words of a statute are clear and free from all ambiguity, the letter of it is not to be disregarded under the pretext of pursuing its spirit. Id. § 1921(b). Additionally, we construe every statute if possible, to give effect to all its provisions. Id. § 1921(a); see also 1 Pa.C.S. § 1922(2) (the General Assembly intends the entire statute to be effective and certain). Contrary to the Commonwealth Court’s determination, we find that SEIU demonstrated a clear right to relief because the unambiguous language of Section 1403(c)(1) prohibits the offending conduct sought to be prevented by the preliminary injunction, i.e., the closing of twenty-six Centers and the furlough of twenty-six nurse consultants. As noted, Section 1403(c)(1) provides: With the exception of the three State health centers selected for the review program established in paragraph (2) [currently expired], the department shall operate those public State health centers and provide at a minimum those public health services in effect as of July 1, 1995. Except as provided in paragraph (2) [currently expired], the department shall not [J-15-2014] - 16 enter into contracts with any additional private providers that would result in the elimination of any State health center nor reduce the scope of services currently provided nor reduce the number of centers. 71 P.S. § 1403(c)(1).16 The clear and unambiguous language of the first sentence of this provision has two mandates: (1) that the DOH operate “those public State health centers” that existed as of July 1, 1995, with the exception of three identified Centers subject to privatization under the expired pilot program; and (2) that the DOH provide “at a minimum those public health services in effect as of July 1, 1995.” 71 P.S. § 1403(c)(1).17 Contrary to the 16 For purposes of context, Section 1403 is entitled, “Duty to protect health of the people.” Subsection (a) sets forth the general duty of the DOH to protect the health of Pennsylvanians and to determine and employ the most efficient means for the prevention of disease. 71 P.S. § 1403(a). Subsection (b) directs the Secretary of the DOH to examine questions affecting the security of life and health, and provides authority to survey enumerated places throughout the state to carry out this duty. Id. § 1403(b). Subsection (c) addresses privatization of public health services and the scope of public health services to be maintained. Subsections (c)(2) and (c)(3), which set forth the privatization pilot program, expired on December 31, 1997. Significantly, when it “sunset” subsections (c)(2) and (c)(3), the General Assembly left intact subsection (c)(1), the language of which is at issue here. As noted, Subsection (c)(4), set forth supra at n.9, which was also left intact after the expiration of the provisions regarding the pilot privatization program, directs the DOH to make recommendations to the General Assembly regarding the propriety of privatization of health services and the public and private operation of all remaining health centers. Subsection (d) directs the DOH to maintain and operate a State Public Health Laboratory, and subsection (e) directs the DOH to create state dental health districts administered by a public health dentist. Id. § 1403(d), (e). 17 The dissent posits that the minimum standard established by Section 1403(c)(1) concerns the public health services available, and not the number of centers providing them. Respectfully, this interpretation is not persuasive because it ignores that the Legislature qualified “health centers” by the term “those.” See 71 P.S. § 1403(c)(1) (providing that “the department shall operate those public State health centers and provide at a minimum those public health services in effect as of July 1, 1995). The term “those” preceding “public State health centers” must have an identifiable reference, which can only be “those public State health centers” . . . “in effect as of July 1, 1995.” [J-15-2014] - 17 Executive Branch’s contention, this mandate to “operate those public State health centers . . . in effect as of July 1, 1995,” is a specific duty independent of the separate prohibition of closing Centers due to privatization, which is contained in the second sentence of the provision. As SEIU cogently notes, if we were to adopt the Executive Branch’s position that Section 1403(c)(1) prohibits only the closing of Centers due to privatization of health services, then the first sentence of the statute would be rendered meaningless in contravention of the canons of statutory construction. See 1 Pa.C.S. § 1921(a) (providing that “[e]very statute shall be construed, if possible, to give effect to all its provisions”). Notwithstanding that the portions of the statute implementing the privatization pilot program have expired, the General Assembly has never seen fit to eliminate the mandate that the DOH operate the same number of Centers and provide the same level of public health services that existed in July of 1995. This Court may not disregard the language of the statute when it is facially clear. See 1 Pa.C.S. § 1921(b). Moreover, under the Executive Branch’s interpretation, the DOH could close all state health centers (if not due to privatization) as long as “equivalent” public health services are being provided. While the DOH could readily recommend this position to the General Assembly, it cannot implement it absent new legislation. We conclude that by enacting Section 1403(c)(1), the General Assembly established the requisite number of Centers and the minimum level of public health services, and reserved to itself, not the Executive Branch, the ability to alter that system.18 18 Contrary to the dissent, we do not interpret Section 1403(c)(1) as indicating a legislative intent “to lock the state into a series of locations in perpetuity,” Dissenting Opinion at 3, or to “maintain the exact same building as a center, forever tying the taxpayers’ support to a location that has become an albatross.” Id. As noted in n.8 supra, SEIU does not contend that the sixty Centers must continue in the exact buildings where they were located in July of 1995, as it concedes readily that many of the premises (continuedN) [J-15-2014] - 18 While the Executive Branch contends that its proposed modernization plan is more cost-efficient and better serves the citizens of the Commonwealth, it is not for this Court to opine on that policy determination. Rather than acting to “handcuff the [DOH’s] ability to innovate and find new ways to combat . . . public health threats,” Brief for Appellees at 13-14, this Court’s adoption of SEIU’s position constitutes strict adherence to the mandate of the General Assembly as expressed in Section 1403(c)(1). The statute makes clear that if a radical restructuring of the provision of public health services is to occur in this Commonwealth, the General Assembly, and not the Executive Branch, must make the necessary determination. Accordingly, we conclude that the Commonwealth Court’s interpretation of Section 1403(c)(1) is erroneous as a matter of law, thereby invalidating its holding that SEIU was unlikely to succeed on the merits of its underlying action.19