Court Opinion

ID: 9792472
Source: CourtListenerOpinion
Date Created: 2023-08-31 02:29:49.638589+00
Date Added: 2024-06-11T07:37:43.047687
License: Public Domain

CAMERON, Justice,
dissenting:
I dissent for two reasons. First, I believe that under the statute involved that the state is a person and must comply with the county claims statute.
As the majority cites:
Since, in common usage, the term “person” does not include the sovereign, statutes employing the phrase are ordinarily construed to exclude it. But there is no hard and fast rule of exclusion. The purpose, the subject matter, the context, the legislative history, and the executive interpretation of the statute are aids to construction which may indicate an intent, by the use of the term, to bring state or nation within the scope of the law.
United States v. Cooper Corp., 312 U.S. 600, 604-05, 61 S.Ct. 742, 743-44, 85 L.Ed. 1071 (1941) (holding that the use of the words “any person” was insufficient, under “the ordinary dignities of speech” to authorize an action by the federal government for treble damages under the Sherman Act).
A.R.S. § 11-622 requires a person who has a claim against the county to present the claim within 6 months after the last charge accrues. The board of supervisors is not to consider any claims unless this procedure is followed. As the majority pointed out, A.R.S. § 11-622 has been in effect for 100 years. Cases addressing this statute all have a common theme: claims against the county must be submitted according to the statute. See, e.g., Cochise County v. Wilcox, 14 Ariz. 234, 236-37, 127 P. 758, 760-61 (1912); Physical Therapy Assoc. Inc. v. Pinal County, 154 Ariz. 405, 406-07, 743 P.2d 1, 2-3 (Ct.App.1987). To date, there have been no exceptions. Based on the long standing history of A.R.S. § 11-622, I believe that the state is a person within the statutory framework. Because the state is a person, it should have complied with the statute by filing its demand 6 months after the last charge accrued.
Second, I believe the doctrine of laches applies. The state sought restitution for the cost of hospitalizing a county prisoner for psychiatric care. The state sued the county 6 years after the prisoner was discharged and the last charge accrued. Mere lapse of time, however, will not bar a claim *81for restitution. Cauble v. Osselaer, 150 Ariz. 256, 259, 722 P.2d 983, 986 (Ct.App. 1986). Restitution will be denied due to laches only if the complainant failed to pursue a remedy without adequate reason, causing the other party to suffer a loss they would not otherwise have suffered if the action had been brought with promptness. Restatement of Restitution § 148 (1937).
There are two elements to the defense of laches. First, one party must lack diligence in pursuing a claim. Second, the first party’s lack of diligence must cause an injury or hardship to a second party. Arizona Laborers, Teamsters, etc. v. Hanlin, 148 Ariz. 23, 29, 712 P.2d 936, 942 (Ct.App.1985); Western Cas. & Surety Co. v. Evans, 130 Ariz. 333, 337, 636 P.2d 111, 115 (Ct.App.1981). Here, the state waited 6 years before suing the county for the hospitalization charges. Restatement of Restitution § 148 comment (b) lists specific reasons for delay that may excuse the complainant:
The fact that the respondent stood in a fiduciary or confidential relationship to the complainant who, because of that, hesitated to begin proceedings; the fact that the respondent was in a superior economic position to the complainant as where he was a complainant’s creditor or employer; the fact that the complainant could not secure proper advice or that he was ignorant and did not understand his rights; the fact that the respondent fraudulently concealed facts; the fact that the conduct of the respondent delayed proceedings, as where he could not be located, or where he sought to prevent action or caused delay by promises of satisfaction; or the fact that evidence was not available.
Restatement of Restitution § 148 at 590-91.
The state offers as its only excuse for not filing a claim under the guidelines of A.R.S. § 11-622, that it is not a “person” under the statute. Because I believe that the state is a person for purposes of A.R.S. § 11-622, I do not believe a valid excuse for the 6-year delay existed. Moreover, the state does not meet any of the specific excuses provided by the Restatement. The majority assumes that because this is the first case attempting to subject the state to the 6-month time requirement, the county’s present position has not been favored. The statute’s history, however, indicates the contrary. This statute has been in effect for 100 years. A more valid assumption, therefore, is that the state has, with the exception of the present case, complied with the statute’s time of claim requirement.
The second element to the laches defense requires an injury or hardship to the county due to the state’s lack of diligence. Both the court of appeals and the majority of this court discuss the purposes of A.R.S. § 11-622 as identified in Norcor of America v. Southern Ariz. Int’l Livestock Ass’n, 122 Ariz. 542, 543, 596 P.2d 377, 378 (Ct.App.1979). The purposes identified are: (a) to prevent county revenue from being consumed in litigation, the county must first have an opportunity to discharge or adjust the obligation before facing the costs of a lawsuit; (b) to give the county prompt notice of any claim allowing the board of supervisors to investigate claims while evidence is still fresh and witnesses are available; and (c) to prevent public officials from depleting the public treasury. Id. at 543, 596 P.2d at 378.
Here, lengthy litigation, spanning three and one-half years, is unnecessarily consuming the county’s revenue. The initial action occurred in 1980-81, and the state did not file suit until 6 years later. The evidence became stale during this time. Witnesses are no longer available to aid the board of supervisors in its investigation of the state’s claim. The legislature enacted the statute to prevent exactly these hardships. Id. A.R.S. § 11-622 requires presentment of a claim within 6 months after the last chargeable items have accrued, in order to effectuate these purposes. To date, anyone having a claim against the county must follow the presentment requirement. Because of the state’s unreasonable lack of diligence and resulting hardship to the county, laches should bar the state’s claim.
Moreover, in Maricopa City v. Cities & Towns of Avondale, Etc., 12 Ariz.App. 109, 113, 467 P.2d 949, 953 (1970), the court *82reasoned that “where two [public bodies] are the interested parties there is no good reason why public policy should require that the people of one [public body] be penalized for the laches of the ... other. The law should, as far as possible, protect both, without preference to either.” Maricopa, 12 Ariz.App. at 113, 467 P.2d at 953 (citing State ex rel. O’Connor v. Clay County, 226 Iowa 885, 894, 285 N.W. 229, 235 (1939)). Here, the state apparently has complied with the county claims statute in the past but, due to some error, it did not file this particular claim until 6 years after all charges accrued. We should not penalize the county for the laches of the state. Maricopa 12 Ariz.App. at 113, 467 P.2d at 953.
The county has met both of the elements necessary for the defense of laches. Also, considering that as between two public bodies the reasons for denying laches dissipates, I believe laches bars the state’s claim.