Court Opinion

ID: 9538451
Source: CourtListenerOpinion
Date Created: 2023-08-07 07:36:37.396865+00
Date Added: 2024-06-11T14:57:52.936682
License: Public Domain

CONCURRING AND DISSENTING OPINION OF
KIDWELL, J.
I join without reservation in most of what is said in the court’s opinion, but am unable to agree that either the amendatory language appearing in Article III, Section 10 of the constitution as revised by the Convention, or the amendments purportedly presented under Question No. 34, were approved at the general election as required by Article XV, Section 2 of the constitution.
The procedure for amending the constitution provided by Article XV, Section 2 gives no effect to the proposal of amendments by a convention unless they are submitted to the electorate for approval. I do not dispute the proposition that submission of proposed amendments may be accomplished without placing the text of the amended constitution physically before each voter in the polling place. The opinion analyzes the steps taken to inform the voters prior to the election with respect to the effect of the proposed amendments, on the premise that those steps constituted a part of the process of submission of the amendments, rather than only a process designed to acquaint the voters with what was submitted. This is, in my opinion, an incorrect view of what was taking place.
The definitive action of the Convention, by which it settled upon the proposed amendments and determined the manner of their submission, was the adoption of Resolution No. 30. By this resolution the Convention resolved:
That the proposed amendments to the Constitution be submitted to the people of the State of Hawaii in the form *347of the ballot attached hereto for ratification or rejection at the general election to be held on the 7th day of November, 1978. . . . Such submission shall be by ballot and shall be conducted and the results thereof determined in conformity with Section 2, Article XV of the Constitution. The ballot for such submission .... shall be substantially in the form hereto attached .... (Emphasis added)
The form of ballot attached to Resolution No. 30 contains this significant communication to each voter:
Please read instructions and information in the booklet which is part of this ballot. The full text of the proposed amendments on the ballot numbered 1-34, inclusive, is available for inspection in your voting unit.
Resolution No. 30 was presented to the Convention by a report of its Committee on Submission and Information, which report was adopted by the Convention. The report recited that the amendments were too complex and lengthy to be listed on the ballot, and stated:
The numbers and the proposed amendments will be keyed to an explanatory booklet which will accompany the ballot card and also to a complete text of Constitutional changes displayed in each voting unit.
The report also stated that “full texts of the Constitution will be placed at the voter unit, thereby enabling voters who are not completely prepared an adequate opportunity to examine arid review the proposed amendments and the revised Constitution as a whrile.”
The committee report proposed a public information program of the nature of that which was in fact conducted and which is described in the court’s opinion. Authorization to conduct this informational program was given to the committee by adoption of the committee report. However, nothing in the committee report suggests authorization to change the manner of submission of the amendments to the voters which is provided in Resolution No. 30.
For reasons which are not significant to our present inquiry, the procedure prescribed in Resolution No. 30 for *348submission of the proposed amendments to the electorate was not followed precisely. The full text of all of the proposed amendments was not made available in the polling places. Instead, copies of the newspaper supplement which had been published on October 29, 1978 were distributed to and were available for examination in each of the polling places. Notwithstanding the representation made in the supplement that it contained the full text of the proposed amendments, the text of the amendments which are now in question was omitted and was not available for voter inspection. I am unable to dismiss this as an immaterial departure from the manner of submission which was determined upon by the Convention. Had the text of none of the amendments been made available to the voters at the polling places, the departure from the prescribed manner of submission would have been striking and difficult to disregard. Yet as to each of the amendments the text of which was omitted from the material delivered to the polling places the departure is equally striking. I am forced to the conclusion that, as to those amendments, a submission to the voters in a manner determined by the Convention did not take place and those amendments did not receive voter approval.
The mechanical test which I would apply to determine which amendments became a part of the constitution may appear to elevate form over substance. The effort of the majority to find a different solution, however, places us in an uneasy position of uncertainty as to the precise wording of our fundamental law. The court’s opinion makes the effect of the affirmative vote on Question No. 34 a question for inquiry whenever the meaning of the constitution is sought. I would avoid that result, and place our determination on what I consider to be a sounder rationale, by holding that voter approval extended only to the amendments contained in full text in the newspaper supplement.
*349APPENDIX “A”

*350APPENDIX “B”

*351VOTING INSTRUCTIONS
Vote only in Part A or Part B of your Constitutional Convention Ballot. DO NOT VOTE IN BOTH PARTS OF THE BALLOT.
PART A: Vote YES in Part A if you approve of ALL the amendments proposed by the Constitutional Convention.
OR
Vote NO in Part A if you disapprove of ALL tiie amendments proposed by the Constitutional Convention.
PART B: Vote in Part B if you approve of some amendments but disapprove of other amendments proposed by the Constitutional Convention. Select those amendments that you disapprove of and vote NO on those selections. Your vote on all other questions will be counted as YES.
AMENDMENTS 1-34 PROPOSED BY CONSTITUTIONAL CONVENTION
1.12 MEMBER JURY; CIVIL CASE AMOUNT (Article I. Section 13 and 14)
II adopted, this amendment provides
♦ a person am have a jury trial in a civil case where the amount in question is $1,000 or more rather than $100 or more as it now reads.
• a person shall have* 12 member jury in a criminal jury trial.
2.INDEPENDENT GRAND JURY COUNSEL (Article I, Section II)
If adopted, this amendment provides:
• an independent lawyer to advise the grand jury.
• a way to choooe thoee lawyers, and requires that the legislature aet their pay and how long they shall work.
3.RIGHT TO PRIVACY. (Anide I, Section 8)
H adopted, this amendment
• adds a new section on the right to privacy for people to do certain personal things, and controls the use of some personal information •bout themsetvas.
• directs the legislature to carry out this section.
4.OPEN PRIMARY ELECTION. (Article It, Section 4)
If adopted, tilts amendment
• allows a person to vote in any election without letting anyone know what party he or she prefers.
• keeps each person's party preference a secret.
5. RESIGNATION OF CANDIDATES FOR PUBLIC OFFICE. (Article I!, Section 7)
if adopted, this amendment:
• makes any elected public officer who wants to run for another office quit before running for any other office If the terms of office are not tiie same.
6. ELECTIONS; PARTIAL PUBLIC FINANCING; SPENDING AND CONTRIBUTION LIMITS. (Article (f, Sections 5,6 and 8)
If adopted, this amendment provides that tiie legislature shall:
• create a campaign fund to pay part of the cost of state and local political campaigns for public office.
• set a spending limlt-for all candidates.
• limit the amount a person may give to any candidate or legal campaign
• require primary election to precede general election by 45 or more
7. LEGISLATIVE TERMS, FUNCTIONS AND PROCEDURES; SALARY COMMISSION (Article til, Sections 9.12 and 15; Article XVIII, Section 2; Article IV, Sections 6 and 7)
If adopted, this amendment:
• requires the appointment of a legislative salary commission on November 30,1978 and every 8 years from then on to ^et legislative satanes which wit! go into effect for the following legislature unless tiie governor or the legislature disapproves.
• makes the legislature set a deadline for all bilis to be introduced and also requires a recess after the deadline of not less than 5 days between the 20th and 40th session day.
• opens to the public all decision making meetings of legislative committees.
• increases the waiting period required between the time when the pnnted bill is distributed and its third or final reading from 24 hours to 48
• staggers the terms of office for senators starting from the 1978 general election so that about half of the senators will be elected at each genera) election.
• provides for placement of holdover senators and method of keeping the staggered terms for the senate upon ^apportionment.
8.REAPPORTIONMENT PROCEDURES. (Article IV, Sections 1,2 and 8)
If adopted, this amendment:
• increases'the time'between the changing of boundaries for voting area from 8 to 10 years beginning in
• allows the commission 30 more days (from 120 to 1 SO days) in which to file its reappomonment
• requires the reapportionment commission to also reapportion the United States Congressional districts.
9.EXECUTIVE DEPARTMENTS; TERM LIMITS. (Article V,.Sections 1.2 and 6. Article XVIII, Section 4)
If adopted, this amendment;
• limits the governor and lieutenant governor to two terms in a row beginning tins year.
• puts units with similar purposes and functions in the same executive department.
*35210.COURTS; JUOICIAL SELECTO*; DISCIPLINE. (Ariete VI, Section 1.2,3. 4 and 5, Ariete XVII!, Section 5)
H adopted, this amendment:
• creates an Intermediate court of appeals, and makes «Sstrict courts a constitutional rather than legislative
• makes courts Until the time they have to finish their cases.
• removes minimum salaries for judges from the constitution and creates a salary commission.
• requires judges to be Stale of Hawaii residents and citizens of the State and the United Slates who are licensed attorneys.
• adds a judicial selection commission to recommend judges for the supreme court, court of appeals or circuit court who are then picked by the governor and approved by (he senate, or judges for district courts who are picked by the chief justice of the supreme court.
• gives the supreme court more power to disdpitnti-judges and starts a judicial discipline commission.
11.STATE SPENDING LIMIT; TAX REFUND. (Ariete VII, Sections 4, S, 6.8 and 9; Ariete VIII, Section 5)
If adopted, this ameridment:
• limits State general fund .spending to the estimated rats of growth of tits State's economy and applies the bmit to the governor’s budget and legislative appropriations.
• gives taxpayers a refund or credit whenever the general fund balance is more than five percent of general fund revenues for two years in a
• prohibits defic<t spending unless the governor says that the pubic health, safety or welfare is threatened.
• requires the State to share In the cost of any new programs or Increased services which the legislature requires that counties
12.DEBT LIMITATION; EXCLUSIONS. (Article VII, Sections 11 and 13)
If adopted, this amendment:
• limits the principal and interest on State debt to a percentage of general fund revenues.
• keeps the legislature from approving more bonds than are allowed under the debt limit.
• requires that each general obligation bond be repaid within twenty-five
• excludes certain bonds from the State and county debt limits
• automatically cancels appropriations financed by general obligation bonds or general funds if not under contract or spent within three years.
13.8PECIAL PURPOSE REVENUE BONDS. (Article Vlh Sections 12 and 13)
If adopted, this amendment:
• allows the legislature, by a two-thirds vote of each house, )o pass enabSng legislation to authorize issuance of special purpose revenue bonds If the issuance of such bonds is found to be in the public Interest by the legislature.
• allows the issuance of special purpose revenue bonds for manufacturing, processing or industrial enterprises, utilities serving the general public, health care facilities provided to the public by non-profit corporations, and low and moderate income government housing programs.
• requires a second two-thirds vote of each house of the legislature before bonds can be issued for any project or program.
• requires that State credit cannot be used directly or indirectly and State shall not be hable for repayment of bonds.
• allows the legislature to authorize tiw counties to issue such bonds but requires a two-thirds vote of the county council before such bonds may be issued.
• excludes such bonds from the State or county debt fimfts.
14.REVENUES; BUDGET; POST-AUDIT. (Ariete VII, Sections 7,8 and 10)
If adopted, this amendment:
• establishes a council on revenues to prepare State revenue estimates and requires the governor and legislature to consider such estimates in developing the State budget and making appropriations.
• provides for direct submission by the judiciary of its budget to the legislature.
• clarifies State author's duty to include post-audits of programs and peiformance of State agencies.
15.TAX REVIEW AND TAX CONFORMANCE. (Ariete VII, Sections 2 and 3)
If adopted, this amendment:
• allows the legislature to conform all or any portion of the State income tax laws to the federal income tax
• establishes a tax review commission to evaluate the State's tax structure and recommend revenue and tax
16.COUNTY POWER TO TAX REAL PROPERTY. (Article VIII. Sections 3 and 5. Article XVIII, Section 6)
If adopted, this amendment
• grants the counties the exclusive power to exercise all functions, powers and duties relating to the taxation of real property
• includes a transitional section which provides (1) for effective date on July 1,1981, (2) for uniform policies and methods of assessing real property by agreement of a majority ol the counties or, in the absence of such agreement, by general law, and (3) for dedications of land for specific use, for assessment at its value In such use, and for real property tax exemptions, both of which shall not be altered for a (period of eleven years, except that increases for either may be granted by agreement of a majority of the counties.
17.PUBLIC HEALTH AND WELFARE. (Article IX, Sections 2,3,4, 7, 8,9 and 10)
If adopted, this amendment:
• allows flexibility in programs for care ol handicapped.
• gives the legislature power to establish eligibility standards for public assistance.
• deletes the power to conserve and develop natural beauty which is shifted to Article on Conservation and Development of Resources.
• authorizes tee State to provide for (1) public safety, (2) security of tee elderly, (3) preservation of cultural resources, and (4) promotion of a healthful environment.
10. POPULATION GROWTH . MANAGEMENT. (Article IX, Section 6)
If adopted, this amendment:
• requires tee State and its counties to plan and manage the growth ol the population except that each county may plan and manage their growth in a more restrictive manner than the State
19. BOARO OF EDUCATION. (Article X, Sections 2 and 3; Article XVIII, Section 7)
If adopted, this amendment:
• beginning with the 1980 general elections, members of the board of education will be elected In a nonpartisan manner from two at-large school board districts, one district for Oahu and the second district for the neighbor islands Each school board district wit! consist of several departmental schopl districts.
• provides that at least one member of the board of education live in each departmental school district.
• provides that the board of education has junsdiction, subject to general laws, over the internal organization and management of the public school system
20. EDUCATION; HAWAIIAN STUDIES. (Amele X, Sections 1 and 4)
If adopted, this amendment’
• prohibits discrimination in public educational institutions on the basis
*353• provides for the promotion of Hawaiian history, culture, and language and a Hawaiian education program.
21.UNIVERSITY BOARD OF REGENTS. (Article X. Section 6)
If adopted, this amendment:
• clarifies the board of regents' exclusive jurisdiction, subject to statewide laws, over the internal organization and management of the University of Hawaii.
22.WATER RESOURCES: PROTECTION AND CONTROL (Article XI, Section 7)
If adopted, this amendment:
• obligates the State to protect, control, and regulate the uses of Hawaii's water resources for the benefit of the* people of Hawaii.
• requires the legislature to insure that there Is a water resources agency to help protect, control, and regulate the water.
23.ENVIRONMENT AND RESOURCE PROTECTION. (Article XI, Sections 1 and 9)
If adopted, tills amendment:
• requires the State and counties to conserve and protect the natural beauty and natural resources of Hawaii.
• requires the State to promote the development and use of these resources in a manner consistent with conserving these resources and promoting the self-sufficiency of the State.
• requires the State to hold all public natural resources in trust for the benefit of the people of Hawaii.
• gives each person the nght to a clean and healthful environment as defined by law.
• gives each person the right to sue to enforce this right but the legislature may limit and regulate this nght in a reasonable manner.
24.LAND MANAGEMENT; AGRICULTURAL LAND. (Article XI, Sections 3 and 4)
If adopted, this amendment:
lands will be available
• requires the State to Identify which agricultural lands are needed to promote the future of agnculture.
• requires that lands identified as important for agriculture shall not be used for any other purpose unless certain standards and entena set by the legislature are met and approved by a two-thirds vote of the governmental body which Is to approve changes in the use of the
• permits the State to acquire interests in real property in order to control development and land use; deems exercise of such power to be for a public use and purpose.
25.CONTROL OF MARINE RESOURCES. (Article XI, Section 6)
If adopted, this amendment:
• gives the State the power to manage and control the ocean waters and lands which are located within the boundaries of tire Stale
• reserves to the State the right to manage and control ocean waters and lands which are located outside the boundanes of the State as long as federal or International law does not prevent the State from doing so.
• adds to the list of areas not open to the public, those areas where a state-licensed manculture operation is operating but-requires the legislature to establish guidelines for maricuiture operations to protect the public's use and enjoyment of the
26.RESTRICTIONS ON NUCLEAR ENERGY. (Article XI, Section 8)
If adopted, this amendment
• requires anyone wishing to construct a nuclear fission power plant or dispose of radioactive material to receive the approval of two-thirds of the members of each house of the legislature.
27.DEPARTMENT OF HAWAIIAN HOME LANDS. (Article XII, Section 1; Hawaiian Homes Commission Act 1920, as amended, Sections 204,212,213 and 221)
If adopted, this amendment:
• requires the legislature to fund the Department of Hawaiian Home
• guarantees that traditional funding continue.
• allows Department more flexibility.
28.OFFICE OF HAWAIIAN AFFAIRS. (Altele XII, Sections 4,5 and 6)
If adopted, this amendment.
sets forth the trust corpus and benefician es of the Admission Act.
• establishes an Office of Hawaiian Affairs with an elected board of trustees and provides for an effective date
29.TRAOITIONAL AND CUSTOMARY RIGHTS. (Article XII, Section 8)
If adopted, this amendment.
• allows descendants of native Hawauans. subject to state regulation, to exercise rights that have been customanly and traditionally exercised.
30.CODE OF ETHICS. (Article XIV)
If adopted, this amendment:
• extends ethics codes to constitutional convention delegates and employees.
• provides that ethics codes must require previsions for financial disclosure.
• requires an independent commission to supervise ethics
• requires lobbyist registration.
• requires candldates'for political office to file financial disclosures
31.PREAMBLE; STATE BOUNDARIES AND MOTTO. (Preamble, Article XV. Sections 1,4 and 5)
If adopted, this amendment:
• revises the Preamble.
• affirms that the State's boundanes Include the waters around all the State's islands.
• picks a State motto and official languages of English and Hawaiian.
32.LIMITS ON ADVERSE POSSESSION; (Article XVI, Section 12)
If aáopteo, this amendment
• eliminates the acqumng of title to real property by adverse possession, except that five acres or less may be claimed by adverse possession, but not more than once in 20 years.
33.MISCELLANEOUS REVISIONS. (Article XVI, Sections 3 and 13: Article XVII. Section 2)
If adopted, this amendment.
• would keep persons convicted (not just accused) of subversive activities from holding public office.
• says that governmental wntmg must be in plain language.
• clarifies the time when voters must be asked if they want to have another constitutional convention.
• lets the next constitutional convention start a month earlier giving them 5 months before the genera) election instead of 4.
34.TECHNICAL AND STYLE CHANGES.
If adopted, this amendment:
• changes the Constitution where the subject may now be unconstitutional or unnecessary under the Constitution of the United States.
• changes style and language
• replaces words which sound like they apply to only men or women by words which apply to everyone.
• makes small changes which are related to the main purposes of the other amendments