Opinion ID: 2094444
Heading Depth: 1
Heading Rank: 2

Heading: Questions touching the validity of the election held in the Mount Pleasant Special School District.

Text: Questions 4(a), 4(b), and 4(c): 4. (a) Did the notice of the tax election held November 12, 1949, comply with the requirements of § 2738, Rev.Code of 1935, as amended 47 Del.Laws, Ch. 303, § 1; and if not, did such failure to comply render such election void and invalid? (b) Did the notice of the tax election held October 3, 1953, comply with the requirements of 14 Del.Code, § 1904; and if not, does such failure to comply render such election void and invalid? (c) Did the notice of the bond election held October 3, 1953, comply with the requirements of 14 Del.Code, § 2120, and if not, does such failure to comply render such election void and invalid? Plaintiff asserts that the notices given by the Board of Education of the three school elections at the Mount Pleasant District are all insufficient to comply with the statutory requirements. As concerns the election of November 12, 1949, to change the method of tax collections from a specified amount to a specified rate of 50 cents and as concerns the elections of October 3, 1953, to increase the rate to 75 cents, the applicable statutory provision for notice is found in 14 Del.C. § 1904, derived from 47 Del.L. Ch. 303, § 1: Notice of the election under section 1903 of this title shall be given by notices posted on the door of the school house where the election is to be held, at least 10 days before the day of the election and by such advertisement in newspapers of the district or county as, in the judgment of the School Board of the District, will give notice to the voters of such election. In such notice, the amount to be raised or the proposed rate of taxation and the purpose or purposes of the proposed additional taxes shall be stated. As concerns the election of October 3, 1953, to authorize the bond issue, the applicable provision for notice is found in 14 Del.C. § 2120. After requiring that advertisements be published in two newspapers of the County at certain times prior to the election, the statute provides: In all of such advertisements and notices the amount of bonds proposed to be issued and the purposes and reasons therefor shall be set forth plainly and in detail. The following is the text of the notice of the election of November 12, 1949: The purpose of the special election will be to vote on whether the Board of Education of Mt. Pleasant Special School District shall be authorized to levy and collect taxes by a specified rate instead of by a specified amount. The specified rate is to be 50 cents per $100.00 of assessed valuation which is the rate now levied to collect authorized amounts. This referendum if favorable, will supercede all previous referenda. The purpose of a change in tax collection to a specified rate is that a rate will automatically provide more income as new buildings and developments increase the total assessment valuation. More income will be needed to meet the cost of increasing population, building and operations than is now provided by the present referenda. It is said that this notice is defective in that it fails to state the purpose of the additional taxes to be levied if the change in rate should be authorized. It is to be noted that the proposal was not one to raise additional funds immediately, since the rate was not in fact to be changed. The increased revenue expected depended upon the future growth of the community, and its expenditure depended upon future needs. Hence the specification of the purpose to which the increased income was to be devoted necessarily had to be stated in the most general terms. This was done. We think that the notice was a substantial compliance with the terms of the statute. The notice of the election of October 3, 1953, to raise the rate to 75 cents provided in part as follows: Notice is hereby given that a special election will be held on October 3, A.D. 1953, in the Mount Pleasant Special School District, Brandywine Hundred, New Castle County, Delaware, pursuant to a Resolution duly adopted on September 10, 1953, by the Board of Education of said school district, in accordance with the provisions of Chapter 160, Volume 32 of the Laws of Delaware and Chapter 303, Volume 47 of the Laws of Delaware, in order to permit the voters of said school district to vote for or against an increase in the rate of taxation, said increase amounting to twenty-five cents per hundred dollars of assessment of real estate thereby making the rate of taxation seventy-five cents per hundred dollars of assessment of real estate in said district.       The income from the additional tax is to be used to finance the cost of servicing a new bond issue in the amount of $800,000.00, and for operating expenses. The notice of the second election of October 3, 1953, to authorize the bond issue, provided in part as follows: Notice is hereby given that a special election will be held on October 3, 1953, A.D., in the Mount Pleasant Special School District, Brandywine Hundred, New Castle County, Delaware, pursuant to a Resolution duly adopted on September 3, 1953, by the Board of Education of said school district in accordance with the provisions of Chapter 337 of Volume 49 of the Laws of Delaware, and Chapter 21 of Title 14 of the Delaware Code of 1953, in order to permit the voters of said school district to vote for or against an issue of bonds of said school district of the aggregate principal amount of $800,000.00.       The bonds are to be issued to finance the cost of constructing a new school building or buildings containing twenty-five classrooms, land and equipment, three cafeteria-general purpose rooms, two multi-purpose rooms, a library, and a music room. These two elections, though held under different provisions of the law, were in effect one. The primary purpose of the elections was to authorize a bond issue of $800,000 and to finance it by increasing the tax rate from 50 cents to 75 cents. It was essential that the voters receive notice, first, of a proposed increase in the tax rate; second, of the amount of the proposed bond issue and its purpose; and third, of the purpose to which the proceeds from the increased tax rate are to be devoted. Plaintiff criticises the notices for failure to spell out in more detail the allocation of the additional revenue to be raised. The notice of the bond election plainly stated that the proceeds of the bonds were to be devoted to the construction of a new school building or buildings containing a certain number of rooms to be used for specified purposes, and that the increased revenue to be derived from the increased rate was to be used to finance the bond issue and to meet operating expenses. We think these notices adequate to apprise any taxpayer of the general purpose to which the revenue was to be devoted. It would be unreasonably burdensome to require detailed financial data to be embodied in the notice. An itemized specification of proposed expenditures is not required by the statute. McComb v. Dutton, 2 W.W.Harr. 255, 32 Del. 255, 256, 122 A. 81. We hold that the notices of October 3, 1953 elections were a sufficient compliance with the applicable statutes. Questions 5(a) and 5(b) are as follows: 5. (a) Did the type and form of ballot supplied for the use of voters in the tax election held October 3, 1953, comply with the provisions of 14 Del.Code.Ch. 19, § 1908, and if not, did the failure to comply render such election void and invalid? And, further, was the voting procedure utilized at such election in violation of Article V, § 1 of the Delaware Constitution; if so, does such violation render such election void and invalid? (b) Was the type and form of ballot and voting procedure employed in the bond election held October 3, 1953, improper and in violation of the provisions of 14 Del.Code, § 2120, and Article V, § 1 of the Delaware Constitution; if so, does such violation render such election void and invalid? The form of ballot for use at tax elections held under the provisions of 14 Del.C. § 1903 is prescribed by 14 Del.C. § 1908 which reads as follows: For an election under section 1903 of this title, the vote shall be by ballot on which is written or printed: For additional tax [] Against additional tax []. The form of ballot for bond elections held under 14 Del.C. § 2120 is prescribed by that section which provides: At the election, at each voting place there shall be provided a sufficient number of ballots on which shall be written or printed the words `for the bond issue,' and an equal number of ballots on which shall be written or printed the words `against the bond issue,' and each voter shall be entitled to receive both of said ballots, one of which the voter may deposit as his ballot, but any voter may prepare his own ballot and deposit that in lieu of the ballot provided. It appears that for the purpose of the tax election of October 3, 1953, the Board of Education of the district provided two ballots. Upon one of these was printed for the additional tax, followed by a printed box; and upon the other was printed Against the additional tax, followed by a printed box. These ballots were alike in size and color. Every voter at the tax election was furnished with a copy of each. The voter then took the ballots to an enclosed booth in which pens, pencils and waste baskets were provided, and upon leaving the booth placed his or her ballot in an enclosed, locked ballot box and then left the polling place. It is said that the procedure of having two ballots instead of one was in violation of the statutory requirement, and it is further argued that the procedure is inconsistent with an implied constitutional requirement of a secret ballot at all elections. We agree with plaintiff that the statute prescribes the use of a single ballot, that is, one piece of paper, and that the action of the Board in providing two ballots was not a strict compliance with the law. Even so, it does not follow that the election is void. This is a case for the application of the rule that minor irregularities in the conduct of an election unaccompanied by fraud or unfair dealing, and not affecting the result, will not void an election otherwise valid. 18 Am.Jur. Elections § 206; McComb v. Dutton, supra. In the case of Altgelt v. Callaghan, Tex.Civ.App., 144 S.W. 1166, it appeared that two ballots instead of the one required by statute had been furnished the voters at a municipal election. Conceding that there had been a technical departure from the requirement of the statute, the court, applying the rule referred to, declined to hold the election void. We think the election should not be set aside on this ground. There is no suggestion of any fraud or unfairness in the voting, or any suggestion that the departure from the statutory mandate could possibly have affected the result. The second argument is based on the language of Art. V, § 1 of the statute relating to the conduct of general elections. It provides: The general election shall be held biennially on the Tuesday after the first Monday in the month of November, and shall be by ballot; but the General Assembly may by law prescribe the means, methods and instruments of voting so as best to secure secrecy and the independence of the voter, preserve the freedom and purity of elections and prevent fraud, corruption and intimidation thereat. Arguing that the quoted language is a declaration of public policy with respect to the secrecy of all elections in the state, plaintiff says that the use of the two ballots had the effect of destroying the secrecy of the ballot which the General Assembly is required to preserve. Once again it is to be observed that the quoted section applies only to general elections, not to school or municipal elections. For aught that is contained in the Constitution, the General Assembly might authorize a viva voce vote at a school election. Moss v. Riley, 102 Ky. 1, 43 S.W. 421. But even if we assume that the general policy of the law favors a secret ballot, plaintiff's position is not helped. Not only is there nothing to show that the use of the two ballots destroyed secrecy in voting, but on the contrary it affirmatively appears that the procedure adopted was such as to insure a secret ballot. It is also to be observed, as appears from the stipulation of facts, that two members of a group of taxpayers opposing the increase in tax rate and the proposed bond issue participated in the conduct of the election and one of them was actually in charge of the ballot box. The facts submitted leave no doubt in our minds that all reasonable precautions were taken to insure a fair and secret ballot. We are accordingly of the opinion that the election was not void on the grounds above discussed. Question 6: Did the preparation and distribution of publicity concerning the tax election and the bond election of October 3, 1953 by the Board of Education of the Mount Pleasant Special School District, as set forth in the amended complaint and answer and in the Stipulation of Facts, other than the posting and publication of notices required by 14 Del.C.1953, § 1904 and § 2120, violate 14 Del.C.1953, § 1904 and § 2120 or Article V., §§ 1 and 3 of the Constitution of the State of Delaware so as to render said elections invalid? The facts forming the basis of the plaintiff's argument under this heading are as follows: During the year 1953 and particularly in September and early October there were held various meetings of Parent-Teacher Associations of certain of the public schools, including the schools of the Mount Pleasant District. At one or more of these meetings there were discussions of the school building program, including the Mount Pleasant bond referendum, by certain school officials. Publicity was given prior to these meetings by statements in the public press, and by circulars, all of which was entirely appropriate and desirable. In addition, a letter dated October 1, 1953, addressed to Parents and Patrons on the letterhead of the Mount Pleasant School District, was prepared and sent out by the Superintendent of Schools. This letter is almost wholly factual in its nature. It contains an analysis of the financial needs of the district and of the bearing thereon of the reassessment of real estate in New Castle County. It does contain one or two statements indicating that the proposed building program should in the judgment of the Superintendent of Schools, be supported by the District. In addition a memorandum or circular urging the approval of the bond issue was prepared and circulated, and also a circular containing sketches of children and showing the need for immediate action to provide more class rooms, equipment, etc., couched in such language as to appeal to the natural desire of parents for good education for their children. A Board of Education charged with the duty of managing the public schools in its district, maintaining them in good condition, and providing for necessary improvements and expansion of the school system, is not prevented from using reasonable publicity to bring the issues before the voters. Chambers v. Board of Directors 172 Iowa 340, 154 N.W. 581. It does seem to us that some of the publicity urging support of the bond issue, such as the appeals to get out the vote, and the statement that the voters' approval of the program is a must  if they are to continue to have a good school system, went somewhat beyond the factual presentation which would have been more decorous in an official statement of the case. The expenditure of public funds in support of one side of the matter should be kept within reasonable limits. The temptation to any public official to overemphasize the importance and the urgency of a project which he sincerely believes is necessary is understandable; but overstatement and emotional appeals in circulars and other similar matter prepared and distributed at public expense are to be avoided. See the discussion of this matter in Citizens to Protect Public Funds v. Board of Education, 13 N.J. 172, 98 A.2d 673. But we do not think that any serious consequence is to be attached to the matter. There is no showing whatever that the voters were improperly influenced in any way. At the same time that the Board was circularizing the voters an organization of taxpayers opposed to the referendum was likewise conducting a campaign and was also circularizing the voters. It is a fair inference that upon the whole the issue was fairly presented and debated. We are of opinion that the election may not be set aside on this ground. Question 7: Is 14 Delaware Code, 1953, insofar as it permits persons who are not real property holders to vote at school elections, unconstitutional? The contention under this heading appears to be the direct contrary of that advanced under Question 3(b). It is here argued that the right of suffrage at school bond elections should be confined to property owners. No constitutional provision in support of this contention is cited and we know of none that could be. The argument comes to this: that it is unfair to permit non-owners of property to tax others for their benefit. It is a curious  not to say startling  argument to advance in modern times. The answer is simple. The right of suffrage is a privilege which may be granted or withheld by the General Assembly under such conditions as it may see fit to impose, subject only to constitutional provisions. Frieszleben v. Shallcross, 9 Houst. 1, 19 A. 576, 8 L.R.A. 337; DuPont v. Mills, supra. As we have already said, the Constitution does not deal with school or municipal elections and the legislature is free to provide for a suffrage limited to property owners or extended to all qualified voters, as it may see fit. From earliest times it has exercised this right. In the Code of 1852, Sec. 718, it is provided that every person residing within the district and having a right to vote for representatives in the General Assembly shall be a school voter of said district. We hold that the provisions of the school law providing the qualifications of voters are constitutional. Question 8: Has the Board of Education of Mount Pleasant Special School District denied real property holders equal protection of the law by not enacting a poll tax as authorized by 14 Del.C., § 1912 and § 2214? [2] Although couched in language appropriate to a constitutional question, the point reduces to one of statutory construction, viz., whether the school laws require a local Board in raising funds to impose a poll tax in addition to a property tax. 14 Del.C. § 1912 reads as follows: The School Board of the District in which the additional tax is to be levied shall cause to be made from the assessment records of the county in which the district is located, an assessment list containing the names of all the taxables of the district and showing the property assessed against such taxables and the assessment of such property. There may also be added a poll tax on all persons 21 years of age and upwards residing in the district of such amount as shall be determined by the Board. The deliberate antithesis in the use of the auxiliaries shall and may in the two sentences of this section is apparent. The command to prepare an assessment list is mandatory; the levying of a poll tax is permissive. Notwithstanding this plain language, plaintiff argues that the provisions of 14 Del.C. § 2114 make it mandatory for a district to provide a poll tax. That section reads as follows: The authority to issue bonds shall be construed to be authority to provide funds for the payment of the interest and annual payments on such bonds, which without further authority shall be provided for by an additional tax levy on the property subject to taxation for county purposes in the District issuing such bonds and by a poll tax on all persons 21 years of age and upward, residing in the district, of such amount as shall be determined by the School Board of the District. Plaintiff reads this section as though it were a command to levy a poll tax, notwithstanding the provisions of § 1912. Plaintiff misconceives the purpose of the section. It is designed to make clear the general authority to tax, as the introductory language clearly shows. The section directing the Board of Education to levy taxes is § 2119, which provides in part as follows: The Board of Education of any Special School District or the Board of School Trustees of any School District which has issued bonds under the authority of any former school law of this State shall levy and collect taxes to provide funds for the payment of interest on the bonds and for the retirement of the bonds as they shall fall due. This section requires the Board to levy taxes to finance any bonds it may issue; the species of tax is referable to § 1912. Reading the three sections together it is clear (1) that the Board must levy taxes to provide for payment of bonds; (2) that the Board must assess and collect a real estate tax; and (3) that it may also assess and collect a poll tax. The decision whether the poll tax shall be levied and collected is one committed to the judgment of the Board. We are of opinion that the decision of the Board not to assess or collect the poll tax is not a denial of the equal protection of laws to holders of real estate within the district.