Court Opinion

ID: 9529781
Source: CourtListenerOpinion
Date Created: 2023-08-07 03:54:12.712911+00
Date Added: 2024-06-11T13:27:54.813290
License: Public Domain

THOMAS, Justice,
specially concurring.
The majority opinion holds that:
1. The State Engineer has no express statutory authority to approve a change in use, a change in the place of use, a change in the point of diversion and a change in the means of conveyance with respect to a water permit.
2. The State Engineer has no implied authority to approve a change in use, a change in the place of use, a change in the point of diversion and a change in the means of conveyance with respect to a water permit arising out of his statutory authority to amend permits. Section 41— 4-514(a), W.S.1977.
a. Such an implication would be contrary to the intent of the legislature manifested in the statutory scheme providing for the appropriation of water to beneficial use.
b. Such an implication would be contrary to the policy of the State of Wyoming relating to the appropriation of water to beneficial use.
c. Such an implication would be contrary to the recognized precept of statutory interpretation which we style ejus-dem generis.
With all of these holdings I agree.
This concurring opinion is motivated by the conclusion of the majority to treat as moot the questions which relate to the appropriate roles of and the relationship between the State Engineer and the Board of Control. These were treated as issues of import by the state authorities in connection with this case. Since a resolution, at least in part, of these questions provides an additional ground for affirming the trial court, I would treat with them in this way. A comparison of Art. 8, § 2 of the Constitution of the State of Wyoming1 with Art. 8, § 5,2 suggests to me that the Constitutional Convention intended that the State Engineer should be the chief administrative officer in connection with the supervision of the waters of the state and the officers connected with its distribution. As such he is a member of the Board of Control, which is the state agency to which is granted discretionary authority with respect to the supervision of the waters of the state and of their appropriation, distribution and diversion, and of the officers connected therewith.
*356Turning then to the statutory provisions relating to the State Engineer, found in §§ 9-1-901, et seq., W.S.1977, and comparing those with the statutes relating to the Board of Control found in §§ 41-4r-201, et seq., W.S.1977, I am persuaded that the suggestion made by the Constitutional Convention has been effectuated by the legislature. An examination of the manner in which our statutory scheme relating to the beneficial use of the waters of the state functions leads to the conclusion that discretionary authority is afforded only to the Board of Control. The functions of the State Engineer are essentially administrative and ministerial in nature. The State Engineer has no discretionary authority relating to the waters of the state except for whatever discretion may be exercised in determining the manner in which his ministerial functions will be performed. For this additional reason I would hold that the State Engineer had no authority to approve a change in use, a change in place of use, a change in the point of diversion and a change in the means of conveyance for water permits because such authority would require the exercise of discretion which I conclude the legislature has not afforded to the State Engineer. This approach is consistent with the Constitution of the State of Wyoming.
I would agree that the Board of Control did not have jurisdiction to review the purported decision of the State Engineer pursuant to § 41-4-517, W.S.1977. Obviously this case does not fit within the language of that particular statute. I would, however, use that statute as an example of a legislative manifestation of the roles which I have ascribed to the State Engineer and the Board of Control. The language of § 41-4-517, W.S.1977, fits neatly into a management scheme in which the State Engineer exercises only ministerial functions, and discretion is exercised by the Board of Control. At this juncture I must sound one discordant note with respect to the majority opinion. Since I am persuaded that the discretionary authority which the appellants ascribe to the State Engineer resides, if anywhere, in the Board of Control, I find error in the action of the district court in entertaining the appeal from the order of the State Engineer. That order lacks the requisite administrative finality to vest the district court with jurisdiction to review.

. Art. 8, § 2, Wyoming Constitution, provides:
“There shall be constituted a board of control, to be composed of the state engineer and superintendents of the water divisions; which shall, under such regulations as may be prescribed by law, have the supervision of the waters of the state and of their appropriation, distribution and diversion, and of the various officers connected therewith. Its decisions to be subject to review by the courts of the state.” (Emphasis added.)

. Art. 8, § 5, Wyoming Constitution, provides:
“There shall be a state engineer who shall be appointed by the governor of the state and confirmed by the senate; he shall hold his office for the term of six (6) years, or until his successor shall have been appointed and shall have qualified. He shall be president of the board of control, and shall have general supervision of the waters of the state and of the officers connected with its distribution. No person shall be appointed to this position who' has not such theoretical knowledge and such practical experience and skill as shall fit him for the position.” (Emphasis added.)