This is a suit in equity brought in the name of the Cosmopolitan Trust Company by the commissioner of banks in possession of its property and business under G. L. c. 167, § 22, against thirteen persons as its directors for the purpose of holding them responsible for losses of the trust company. A demurrer has been filed by each defendant. It is alleged in the bill that the commissioner of banks took possession of the property and business of the trust company on September 25, 1920, and that on that date it was insolvent.
1. A most., important question is raised at the outset. The constitutionality of the statute under which the commissioner of banks is acting is assailed as infringing various provisions of the Constitution of this Commonwealth and of the Constitution of the United States. It is alleged in the bill that the Cosmopolitan Trust Company was duly organized under the law and carried on business “until September 25, 1920, when its doors were closed and its business and assets taken possession of by the commissioner of banks under authority of law given to him ... by chapter 399 of the Acts of 1910.” No specifications of reasons for closing its doors and taking possession of its business and assets are set forth. Therefore, if any one of the grounds for such act enumerated in the statute is unconstitutional, the defendants are entitled to the advantage of it, because no intendment can be made in favor of the pleader in such case. Old Dominion Co. v. Commonwealth, 237 Mass. 269, 274.
The business of banking vitally concerns the public interests. Long established usage has given its sanction to legislative supervision and regulation to a greater or less extent of the conduct of banks. The prevention and redress of the evil and damage to individuals and to the public, likely to arise from violation of their charters and of general laws and from insolvency of banks, have received the attention of the General Court at least since the enactment of St. 1838, c. 14. It is of vast importance to the commercial prosperity, the manufacturing activity, and
The commissioner of banks is authorized to close the doors of the trust company and take possession of all its assets and business by § 2 of said c. 399 (see now G. L. 167, § 22) whenever it appears to him “[1] that any bank under his supervision has violated its charter or any law of the Commonwealth, or [23 is conducting its business in an unsafe or unauthorized manner, or [33 that its capital is impaired, or [43 if it shall refuse to submit its books, papers and concerns to the inspection of said commissioner or of his duly authorized agents, or [53 if any officer of such balnk shall refuse to be examined upon oath by the commissioner or his deputies touching its concerns, or [63 if it shall suspend payment of its obligations, or [73 if from an examination or from a report provided for by law the bank commissioner shall have reason to conclude that such bank is in an unsound or unsafe condition to transact the business for which it is organized, or that it is unsafe or inexpedient for it to continue business.” It has not been argued that the several statutory grounds thus specified do not justify a suspension of the right of the trust company to conduct a banking business. Therefore, it is not necessary to examine them in detail and delimit their scope. The contention is that the establishment of some or each one of these grounds involves the exercise of the judicial faculty, that confessedly the commissioner of banks is an executive or administrative officer and not an appointee of the courts nor clothed with any judicial functions, and hence that
The validity of § 2 of c. 399, St. 1910, already quoted (see now G. L. c. 167, § 22), must be considered in connection with § 13 of said c. 399, G. L. c. 167, § 33. This later section provides for a full judicial review of the merits of the conduct of the commissioner of banks in taking possession of the business and assets of any banking corporation, to be had on application of such corporation filed in court within ten days after such taking possession, and empowers the court after finding the facts to dismiss the application or to enjoin the commissioner of banks from further proceedings and to direct him to surrender such business and property to the banking corporation. These two provisions of the statute are complementary one of the other.
The powers conferred upon the commissioner of banks are not judicial but purely administrative. His decision to take possession is not a judicial adjudication. It binds nobody. It is subject to immediate judicial inquiry. The act of the commissioner of banks is designed primarily to conserve the property of the bank for the benefit of its creditors and its stockholders. It rests upon an inquiry into facts, which may be imposed upon officers plainly possessing no judicial authority when intended to be the basis of administrative action only.
The provisions of statute here assailed were enacted before the organization of the trust company and bind it to the same extent as if inserted in a special act of incorporation, but go no further. Arlington Board of Survey v. Bay State Street Railway, 224 Mass. 463, 468. Interstate Consolidated Street Railway v. Massachusetts, 207 U. S. 79, 84. See Terral v. Burke Construction Co. 257 U. S. 529.
The power of inquiry into the condition of a bank with a view to determine the existence of contingencies, upon which the continuance in business of the bank is made to depend, may by law validly be reserved by the Legislature to itself or to administrative officers appointed under its authority. Such an inquiry into the affairs or defaults of a corporation with a view to con
There are numerous decisions of the Supreme Court of the United States to the effect that inquiry into facts may be devolved upon subordinate executive or administrative officers and that findings or decisions reached by such officers may be made conclusive without conferring judicial power or violating any guaranty secured by the Federal Constitution. See, for example, Oceanic Steam Navigation Co. v. Sirandhan, 214 U. S. 320; West v. Hitchcock, 205 U. S. 80; Zakonaite v. Wolf, 226 U. S. 272, 275; Selective Draft Law Cases, 245 U. S. 366, 389. These decisions go very far. Without intimating whether such statutes might infringe some guaranty of the Constitution of this Commonwealth, they illustrate the length to which the doctrine of executive or administrative as distinguished from judicial inquiry has been carried.
The enactment of St. 1910, c. 399, marked a significant departure in legislation in this Commonwealth. Previously it was not possible for any officer to take possession of the property or business of a banking institution except after an adjudication by a court. It is fair to assume from the similarity of provisions that in important particulars said c. 399- was modeled on the national bank act of the United States. That act authorizes the comptroller of the currency to take possession of property and all assets of a national bank (1) when it has refused to pay its circulating notes, U. S. Rev. Sts. §§ 5227, 5234; (2) when directors knowingly violate or knowingly permit officers and agents to violate any provision of the national bank act first to be ascertained by judgment of a court, 19 U. S. Sts. at Large, 63, U. S. Rev. Sts. § 5239; (3) when a creditor obtains judgment which remains unsatisfied for thirty days, 19 U. S. Sts. at Large, 63; (4) when the comptroller is satisfied of the insolvency of a national bank, 19 U. S. Sts. at Large, 63; (5) when capital stock has not been fully paid in and is thus reduced below the legal minimum and remains so for thirty days, U. S. Rev. Sts. § 5141; (6) for failure to make good lawful money reserve within thirty days after notice, U. S. Rev. Sts. § 5191. See federal reserve act of December 23, 1913, § 19; 38 U. S. Sts. at Large, 270, as amended by act of June 21,1917, § 10; 40 U. S.
These decisions of the Federal Supreme Court are strongly persuasive as to the constitutionality of the act here attacked.. There is not to be found in the Constitution of the United States, the peculiarly forceful, clear and beautiful thoughts and words, of art. 30 of the Declaration of Rights of the Massachusetts Constitution. In substance and effect, however, the Federal Constitution as it has been interpreted does not differ materially from that article. The Constitution of the United States by art. 3, § 1, vests the judicial power of government in “ one su
This court always has been most solicitous in maintaining the sharp division between the three departments of government as declared by art. 30 of the Declaration of Rights. It has declined steadfastly to exercise any functions except those strictly judicial in their nature. Case of Supervisors of Election, 114 Mass. 247. Boston v. Chelsea, 212 Mass. 127. It has refused to recognize the validity of acts where the Legislature has undertaken to perform the judicial office or to delegate that faculty to any save to the courts. Denny v. Mattoon, 2 Allen, 361. Forster v. Forster, 129 Mass. 559. Opinion of the Justices, 234 Mass. 612, 621. See Flint & Fentonville Plank-road Co. v. Woodhull, 25 Mich. 99. The present adjudication is in full accord with
These considerations lead us to the conclusion that , the statute here assailed, although drastic in operation, does not exceed constitutional bounds. The Commonwealth as represented by the General Court is the creator of the trust company and the guardian of the public interests affected by the conduct of its business. The police power is broad. Whatever reasonably may be thought to promote the general welfare within proper limits, not resting merely on expediency, if not infringing upon some specific protection of the Constitution, is permissible. We have no concern with the wisdom of a statute, as that is not within our province.
The reasons which have been stated apply with equal force to arts. 10, 11, 12 of our Declaration of Rights, and to art. 14 of the Amendments to the Constitution of the United States.
The constitutionality of acts in every essential like St. 1910, c. 399, § 2 (see now G. L. c. 167, § 22), has been upheld in Jeffries v. Bacastow, 90 Kans. 495; Montgomery Bank & Trust Co. v. Walker, 181 Ala. 368; McDavid v. Bank of Bay Minette, 193 Ala. 341; LeMonte v. Lurich, 86 N. J. Eq. 26, affirmed in 86 N. J. Eq. 251; Davis v. Moore, 130 Ark. 128; Carnegie Trust Co. v. Kress, 215 N. Y. 706; Cartmell v. Commercial Bank & Trust Co. 153 Ky. 798, and American Southern National Bank v. Smith, 170 Ky. 512. The validity of similar statutes was assumed without discussion as to constitutionality in Wisconsin Trust Co. v. Cousins, 172 Wis. 486; Ward v. Oklahoma State Bank of Atoka, 51 Okla. 193; Aetna Casualty & Surety Co. v. Moore, 107 Wash. 99.
The present statute cannot in our opinion be said to transcend the constitutional power of the General Court. Lorando v. Gethro, 228 Mass. 181. Holcombe v. Creamer, 231 Mass. 99, and cases there reviewed. Opinion of the Justices, 234 Mass. 597, and cases there reviewed. Noble State Bank v. Haskell, 219 U. S. 104, 575. State Savings & Commercial Bank v. Anderson, 238 U. S. 611, affirming S. C. 165 Cal. 437. Title Guaranty & Surety Co. v. Allen, 240 U. S. 136, affirming S. C. 27 Idaho, 752. State v. State Bank & Trust Co. 31 Nev. 456, 469-472. Pacific Live Stock Co. v. Lewis, 241 U. S. 440. La Tourette v. McMaster, 248 U. S. 465. 467.
3. The question of the liability of trustees of savings banks under our laws was exhaustively examined in Greenfield Savings Bank v. Abercrombie, 211 Mass. 252. It there was said at page 256, “the savings bank and its managing officers or trustees are held to the same duty as ordinary trustees of a direct trust. . . . For honest errors of judgment, while acting with ordinary skill and prudence, measured according to the demands of the duties or business which they have taken upon themselves, they are not to be held liable; .but they cannot excuse themselves from the consequences of their misconduct or of their ignorance or negligence by averring that they have failed merely to exercise ordinary skill, care and vigilance. ... As was said by Beas
There is thus adopted and made applicable to the trustees of savings banks the rule governing the liability of trustees under wills and other written instruments. The standard by which their conduct is measured is good faith and sound discretion as those terms ought to be understood by reasonable men of wise judgment. Kimball v. Whitney, 233 Mass. 321, 331. Harvard College v. Amory, 9 Pick. 446, 461.
This rule prevails in other jurisdictions and does not differ essentially from that of the federal courts. It was succinctly stated in Kavanaugh v. Commonwealth Trust Co. of New York, 223 N. Y. 103, 105, that “directors in financial institutions . . . are summoned to the same degree of care and prudence that men prompted by self-interest generally exercise in their own affairs.”
The law of this Commonwealth is settled by Greenfield Savings Bank v. Abercrombie, 211 Mass. 252. It is that trustees of savings banks are subject to the same fiduciary obligations as technical trustees of specific trust property.
4. The standard of liability established by Greenfield Savings Bank v. Abercrombie, 211 Mass. 252, applies to the directors of the trust company who here are defendants. The trust company in question had a savings department, for which were prescribed under the law many of the safeguards previously established for savings banks. Commissioner of Banks, petitioner, in re Prudential Trust Co. 240 Mass. 478. The relation of the directors to this trust company with its savings department was fiduciary in the same sense as is that of. trustees to a savings bank. There are numerous expressions in our decisions that directors of business corporations occupy a fiduciary relation to the corporation. Elliott v. Baker, 194 Mass. 518, 523. United Zinc Co. v. Harwood, 216 Mass. 474. Allen-Foster-Willett Co. petitioner, 227 Mass. 551. A critical examination of the meaning of those expressions and an analysis of the extent and limits of those cases is not here pertinent. It is enough to say that the present defendants fall within the principles of liability established for trustees of savings banks.
5. The circumstance, that directors of the trust company managed it in behalf of stockholders for profit and as a bank of deposit and discount as well as a banking institution for savings department depositors, makes no difference in respect to their liability. To a greater or less degree all the assets of the
It follows that a suit in equity may be maintained to enforce the liability of directors and that the remedy at law is not exclusive. That point was settled for this Commonwealth in Warren v. Para Rubber Shoe Co. 166 Mass. 97, where it was held that, in view of the fiduciary relation to the corporation, a bill in equity could be maintained by the corporation against an officer guilty of a breach of that fiduciary duty as well as an action at law. That decision has been followed and applied to various states of facts as well as in Greenfield Savings Bank v. Abercrombie, 211 Mass. 252. United Zinc Co. v. Harwood, 216 Mass. 474, and cases cited at 476. Allen-Foster-Willett Co. petitioner, 227 Mass. 551. Jurisdiction in equity has frequently been upheld for the ascertainment of the liability of bank directors. Hornor v. Henning, 93 U. S. 228. Martin v. Webb, 110 U. S. 7. Briggs v. Spaulding, 141 U. S. 132. Bowerman v. Hamner, 250 U. S. 504. Bates v. Dresser, 251 U. S. 524. Curtis v. Connly, 257 U. S. 260. Williams v. Brady, 232 Fed. Rep. 740. Cockrill v. Cooper, 29 C. C. A. 529 (86 Fed. Rep. 7, 14). That jurisdiction rests on the existence of the fiduciary relation. Rolikatis v. Lovett, 213 Mass. 545. In re Hallett’s Estate, 13 Ch. D. 696, 710. It also is supported by the considerations that multiplicity of suits will be avoided, that the inquiries of necessity will involve complicated accounts, and that the relief afforded by equity is better adapted to the working out of justice between all parties. Bliss v. Parks, 175 Mass. 539.
6. It is not necessary to analyze or to narrate in detail the allegations of the bill. It is plain that they set out loans made to individual borrowers far beyond the statutory limit, G. L. c. 172, § 40; c. 168, § 54, cl. 9, (a) (b), loans made while the reserves were below the statutory requirement, G. L. c. 172, § 76, loans from the savings department funds on paper with less than three responsible names, and otherwise in violation of law. The bill also sets out loans to persons without credit, without business reputation and without financial resources, and being other
7. There are averments that the defendants as directors did not exercise due diligence and were guilty of gross negligence and were reckless and careless and violated the laws of the Commonwealth in authorizing and approving loops and investments and in managing the affairs of the trust company, accompanied by many specifications as to particulars. The allegations are sufficient to the effect that the losses which depleted the resources of the trust company followed as the direct result of these failures to exercise prudence, sound discretion and good judgment in the management of its affairs as the proximate causes. If participation on the part of the several directors is proved as alleged, there are facts warranting a finding of breach of the duty resting on them "and each of them. While some of the defendants were not directors during the entire period for which recovery is sought, losses are alleged to have occurred while each was in office. The precise extent of the responsibility of each is matter of proof rather than of pleading.
8. There are adequate details and sufficient certainty in the statement of the several loans alleged to have been made in violation of duty. It is not necessary in a case of this nature that the specific connection of each defendant with each investment be particularized in the pleadings. It would be impracticable in advance to separate those events which well may be somewhat blended. Ginn v. Almy, 212 Mass. 486. Almy v. Almy, Bigelow & Washburn, Inc. 235 Mass. 227. The case at bar is distinguishable in this respect from Price v. Coleman, 21 Fed. Rep. 357.
Manifestly no one of the defendants can be held liable for anything save the results of his own misconduct. It is not necessary, however, in pleading to point out as to each bad loan the individual directors who participated in negligently causing that particular loss. Their conduct may be so intermingled that it would be impossible conveniently to separate the facts in advance of an investigation. The general but definite averments are sufficient. Attorney General v. Pelletier, 240 Mass. 264, 304-306.
10. The bill is not multifarious. While there are numerous different subjects, and some of the defendants are not interested in all of them, these factors are not decisive. There is no inflexible gouge by which to test multifariousness, and each case must depend largely upon its own circumstances. Reno v. Cotter, 236 Mass. 556, 563. “It is not indispensable that all the parties should have an interest in all the matters contained in the suit; it is sufficient if each party has an interest in some matters in the suit, and that they are connected with the others.” Lenz v. Prescott, 144 Mass. 505, 513. Lovejoy v. Bailey, 214 Mass. 134, 151. Coram v. Davis, 209 Mass. 229, 249. The case at bar is well within the authority of Raynes v. Sharp, 238 Mass. 20, and the decisions there collected.
What has been said disposes either categorically or by necessary implication of all the numerous points urged in behalf of the several defendants.
Demurrers overruled.