23 P. 680 | Ariz. | 1890
Lead Opinion
The plaintiff herein applies to this court for a peremptory writ of mandamus to compel the defendant, as territorial treasurer, to pay the amount of a certain warrant drawn by the territorial auditor in favor of plaintiff, as authorized by subdivision 15 of section 1 of an act commonly known
Said section is part of the organic law of the territory. It is proper to consider, therefore, the relation which the organic act, and other acts of Congress amendatory or supplementary thereto, bear to the government of the territory. It was argued at the hearing of this case that Congress had granted to the legislature of a territory certain limited powers, and
In construing the constitutional provision that the general assembly shall not remain in session longer than fifty days, Justice Somerville in that case said: “I am satisfied that ‘fifty days’ means fifty legislative working days, exclusive of the Sundays and other days upon which the senate and house concur in refusing to sit by joint resolutions of adjournment. This question has been repeatedly considered by the judiciary committees of the senate and house of representatives at successive sessions of the general assembly since the adoption of the constitution; and other reports concurring in this view have in each instance been adopted by those bodies. Even if we regard the question a doubtful one, we would hesitate to depart from this settled' legislative construction of the fundamental law, especially in view of the serious consequences which would necessarily flow from it. ’ ’
But, aside from the legislative construction, we think a consideration of the subject-matter, as well as the evident purpose and intent of the act of 1880, warrants the interpretation we put upon it. Congress certainly contemplated that emergencies might arise that would render legislation between fixed dates practically impossible. At any rate, that upon Sundays and holidays no legislation could or would be done. If the purpose was to include these, other language more clearly expressing this intent would very probably have been used. A distinction should be made between statutes which restrict the number of days upon which acts may be performed and those which merely fix the ulterior limit of time within which a ^single matter may be transacted. In the former, Sundays and other days when labor or business cannot be transacted are usually excluded; in the latter, these are usually included, unless expressly excepted. Thus it has been held that Sundays, not being judicial days, are not to be considered as days of a term of court. Read’s case, 22
Were we in doubt as to the correctness of the above construction, what would be the duty of the court in the premises? The legislative assembly, a co-ordinate branch of the government of the territory, acting under like solemn obligations and responsibilities with ourselves, has passed the act, the validity of which is in question, which act has been approved by the governor, who has taken a like oath to support the constitution and laws of Congress, and now are we to declare it invalid? If we believe that the legislature, in attempting to legislate after March 21st, clearly, palpably, and plainly violated the fundamental law of the territory, then most unquestionably it is our duty to so declare. While this is true, we must bear in mind that among the fundamentals of the law almost, is the proposition that “we can declare an act of assembly void only when it violates the constitution (or organic law) clearly, palpably, plainly, and in such manner as to leave no doubt or hesitation on our minds.” Sharpless v. Mayor etc., 21 Pa. St. 164, 59 Am. Dec. 759. In Adams v. Howe, 14 Mass. 345, 7 Am. Dec. 216, the court say-. “We must premise that so much respect is due to any legislative act solemnly passed and admitted into the statute-book that a court of law which may be called upon to decide its validity will presume it to be constitutional until the contrary clearly appears, so that hi any case of the kind substantially doubtful the law would have its force. The legislature is in the first instance the judge of its own constitutional powers, and it is only when manifest assumption of authority or misapprehension of r; shall appear that the judicial power will refuse to execute it.” In Kentucky it has been held that if it be doubtful or questionable whether the legislature has exceeded its limit! the judiciary cannot interfere, though it may not be satisfied that the act is constitutional. City of Louisville v. Hyatt, 2 B. Mon. 178, 36 Am. Dec. 594. To the same effect, among others, are the following eases: City of Lexington v. McGuillan’s Heirs, 9 Dana,
In view of this well-settled rule recognized in the foregoing cases, apart from the view we take of the organic law,—viz., that the legislature is limited in its sessions to sixty working or legislative days, and not to sixty consecutive days, as contended,—we would hesitate before holding that the legislature had in this instance transcended its powers, and violated the fundamental law of the territory, especially when we consider that this, in effect, would be to annul many of the laws now in force, and thus disturb and unsettle the public credit, destroy private rights, and bring disaster upon the territory. Prom the foregoing considerations, we hold that, the appropriation bill passed by the fifteenth legislative assembly, and approved April 10, 1889, is a valid law, and that the plaintiff is entitled to his writ. The writ will issue.
Kibbey, J., concurs.
Dissenting Opinion
dissenting.—The court, in the majority opinion, rightly hold that section 1852 of the United States Revised Statutes, as amended, is mandatory in its terms; but the opinion holds that, when Congress said in said section that the sessions of the said legislative assemblies of the various territories should “be limited to sixty days’ duration,” it meant sixty legislative working days, and not sixty consecutive days. We are unable to concur in this view; and we now proceed to analyze this section, and endeavor to show that the language employed by Congress necessarily limits sessions of territorial legislative assemblies to sixty consecutive days; and therefore that the fifteenth legislative assembly of this territory, having begun its session on the twenty-first day of January, 1889, was not, and could not have been, without permission of Congress, in legal session on the tenth day of April, 1889. There is no dispute as to the facts. The said fifteenth legislative assembly having begun its regular session at the time fixed by law, viz., on the twenty-first day of January, 1889, sixty consecutive days from that date expired on the twenty-first day of March, 1889; and it is-admitted that the act in question was passed on the tenth day of
The decision then construes the language to mean sixty
Now, at the outset, we say this language is so clearly mandatory that it is really surprising that any one should question its true import. It might be observed that no mandatory phrase or sentence was ever employed that was not also, in a measure at least, directory. When God said, “Let there be light,” He both directed and commanded, and the glory and blessing of that subtle agent covered the void earth. If the teacher says to the pupil, “Get your lesson,” it is both a direction and command. If the father says to the son, “Go to the stable and bring my horse, by the back gate, into the yard,” the language is also a direction and command; but if the son should bring the horse into the yard by the front, instead of the back, gate, we apprehend there would still be a substantial execution of the power or authority conferred. We mean there is quite a difference between the power conferred and the exercise of that power. The grant of power
If it had been the intention of Congress to rest any discretion; if its purpose had been that the session might be indefinite in duration, but that Congress would only, pay for ¡sixty days of it,—would not the language of the statute have been something like this: “The sessions of the territorial legislative assemblies may continue longer, but in no event will the United States pay the expenses thereof for more than sixty days ? ’ ’ And is it not in a measure a reflection upon the wisdom and intelligence of the federal law-makers to impute a doubt to the meaning of the simple, but significant, language they employed? Congress was passing a fundamental law for the guidance of one of the three co-ordinate branches of youthful governments, whose people, being of the frontier in a large measure, were not supposed to be so critical in their civilization and learning as in the older eommun
Another, and we think a potent, reason why Congress intended by the language used to limit the duration of the session of the legislative assembly to sixty days from its beginning is, that the history of the times, at and recently before the passage of the act, was rife with complaints of extravagance and reckless expenditure in more than one of these legislative assemblies; so that, construing this statute in the light of surrounding circumstances and contemporaneous history, we say that it is evident that the purpose of Congress was to absolutely control, to circumscribe, to hem in, to restrict within fixed definite limits, these legislative assemblies as to the period of their existence; and to fix beyond the line of cavil or discussion the fact that the session could only exist, endure, for sixty days from its beginning. Hence the days of its possible existence were with unerring certainty num
We fully agree with the court, in the case at bar, that, where laws have long been acquiesced in,—where substantial rights have grown up and vested under them,—it is a well-settled policy of the courts not to disturb them, though they may not have been legal or constitutional originally. This was, as we have just seen, the true reason for the decision in the Alabama case; it was also the reason for the Oregon decision. But this doctrine cannot obtain here. The acts of the fifteenth legislative assembly, passed after the expiration of the sixty consecutive days from the beginning of its session, have not been acquiesced in. The validity of those acts has been questioned ever since their passage. The contention over them has superinduced the very litigation at bar. And because it is the policy of the courts not to disturb illegal or doubtful acts, long acquiesced in, for the reason that substantial rights have vested, and evil consequences might ensue, does it follow that the courts ought to uphold illegal or doubtful acts, because substantial rights might vest in the future? We are free to say that in our opinion the various laws, passed by the first and the eleventh legislative assemblies of this territory, after the expiration of sixty consecutive days from their beginning, should not be disturbed simply be
For the first time the supreme court of this territory is called upon to put its construction upon the purview of that limitation. That construction should be according to the true tenor and effect of the statute, unaffected by past illegal acts, acquiesced in, or rights to be hereafter affected under them. This is plainly so, for all legal questions and rights, arising under the acts of the fifteenth legislative assembly, passed after the expiration of the sixty consecutive days, are still res integra. But, even to the modified extent to which the Alabama case goes, it seems, to stand alone. Every other state legislature, so far as we have been able to learn, whose sessions have been, or are, limited by their constitutions to a certain number of days, seems to have entertained no doubt that the limitation meant consecutive days. The constitution of Missouri (art. 4, sec. 16) provides that “the members of the general assembly shall severally receive from the public treasury such compensation for their services, as may, from time to time, be provided by law, not to exceed five dollars per day for the first seventy days of each session, and after that
But if the question were doubtful, if the courts had expressed or intimated views that are conflicting, we should unhesitatingly hold that the opinions of the attorney-general of the United States, delivered on the sixteenth days of March and July last, have put the question beyond the line of discussion. This is the great law officer of the government. In passing upon federal statutes, his opinions, next to the positive judicial determination by the great tribunal of final resort (the supreme court of the United States), are entitled to the highest consideration, and should have the binding force of exalted authority. In an official opinion rendered to the honorable the secretary of the interior, on the sixteenth day of July last, the Honorable W. H. H. Miller, attorney-general of the United States, referring to letters Of the governor and secretary of’ Arizona, bearing dates of June 2d and 26th, respectively, said: “I am unable to find in either any question of law which is not covered by the opinions of this department rendered to you under dates of March 16, May 29, and June 19, 1889. The first of these opinions was to the effect that, under the act of Congress, which is the organic law of the territory, the session of the legislature of Arizona is limited to sixty consecutive days. The corollary to this conclusion seems clear, that any attempted legislation after that time would be nugatory.” This language was uttered subsequently to the reception by the attorney-general of the “memorandum” of the assistant attorney-general, Shields, filed with the argument of the learned counsel for the plaintiff herein. This is apparent from the face of each. It must therefore be regarded as a reassertion and indorsement of the views expressed by the attorney-general in his opinion cf March 16, 1889, on the same subject; and as already indicated, we regard these opinions by the attorney-general as