48 N.J.L. 457 | N.J. | 1886
Lead Opinion
By an ordinance enacted by the mayor and common council of the city of New Brunswick,, constituting a police department, it was provided that such officers should be appointed by the common council and should hold “ their respective offices during good behavior.” Subsequently, on the 23d of May, 1870, another ordinance was-passed, repealing, in express terms, the foregoing regulation, of the tenure of these officials, and declaring, to use its own language, “ that every person who shall be appointed to any office under the provisions of the said ordinance shall continue-in office until the office for which he shall have been appointed shall have been declared vacant, or until another person shall be appointed to succeed him and shall enter upon the duties-of his office.”
On the 6th day of July, 1885, the common council of New Brunswick passed a resolution declaring that the offices of chief of police aud of the policemen be declared vacant, and proceeded to appoint others in their stead. This removal was-not for cause, but was brought about by the mere volition of the council.
The question to be decided is whether such act be legal.
The solution of the inquiry depends altogether on the construction, to be given to the statute approved March 25th,. 1885, entitled “An act respecting police departments of cities, and regulating the tenure and terms of office of officers and men employed in said departments.” That this statute, if it has legal efficacy, did prohibit the act of the city council im question is- too plain to admit of discussion.
The contention is that this law is unconstitutional, and it is-challenged, in this respect, on two grounds, it being urged, in the first place, that it rests on an incomplete classification, in-
In the Supreme Court, so far as this point was concerned, the subject was disposed of on the ground that this classification had been so repeatedly recognized in judicial decisions and in acts of legislation as not to be open to further discussion, but that it was to be treated as res adjudicóla. In that view this court entirely concurs.
But in the second place it was insisted that the statute referred to was special, and therefore unconstitutional, in this respect: that it created differences in the terms of office of the police, and in the power to remove them, in the various cities of the state.
It is plain that as these departments of police are common to all cities, any law that affects to regulate them must, by force of our legal system, be a general one. A particular legislative plan, prescribing the official terms of such functionaries or the mode of their supersedure, whether such results be effected by the modification of existing regulations or by the introduction of new ones, applicable to certain cities only, would be clearly illegitimate. The reason of this is that such a law would be based on an imperfect classification, as it has to do with a subject matter that is- common to all cities, while its operation is confined to a few of them.
And in my opinion the provision contained in the first clause of section 1 of this act now under consideration falls under the condemnation of this principle. That regulation is in these words, viz.: “ That in the several cities of the state, the officers and men employed by municipal authority in the police department of any city shall severally hold their respective offices and continue in their respective employment as such municipal officers and employees during good behavior, efficiency and residence in such city, except where, by statute, the term of office of any such officer and employee is determined and fixed, and does not depend upon .the pleasure of
It will be observed that by this passage variant tenures of office in this branch of the public service are established in the different cities. In some, where the tenure of .office has been created for a fixed period by a city ordinance, the tenure is converted into an indefinite holding—that is, during the good behavior of the incumbent; and in others, where the same fixed term of office exists, under similar conditions, by force of a statute, such office-holders are not affected by this legislative regulation, but retain their offices only for the period limited at their appointment. In other words, this clause, by force of the regulation that it introduces, and the exception by which such regulation is limited, has the effect of giving to some cities a police force the members of which would hold office quam bene se gesserint, and to other cities a body of policemen who would continue in office only during a fixed period. Such a law is obviously special, as neither of its establishments appertains to all the cities of the state, its defect being that it proceeds on an imperfect classification.
But it is not conceived that the other provisions of this statute are liable to a similar impeachment, and it is such latter provisions that are applicable to the present case.
The second clause of the section, part of which has been quoted above, is as follows, viz.: “ No person shall be removed from office or employment in the police department of any city, or from the police force of any city, for political reasons, or for any other cause than incapacity, misconduct, nonresidence or disobedience of just rules and regulations established or which may be established for the police force or police department of such city; provided, that any member of the police force of any city who shall be absent from duty, without just cause, for the term of five days, shall, at the expiration of said five days, cease to be a member of such police force.” And section 5 of the act reiterates this declaration, and prescribes the mode in which, for just cause, all removals from office shall be effected.
The other objections taken in the brief of counsel have been duly considered, but being deemed plainly unsustainable, their discussion seems unnecessary.
The action of the common council, being in contravention of the prohibition of the statute above expounded, was properly nullified by the Supreme Court, and that judgment must be affirmed.
Dissenting Opinion
(dissenting.) By an ordinance of the city of New Brunswick, passed in 1870, it is provided that every person appointed under the provisions of the ordinance to establish and regulate the police department of the city shall continue in office until the office for which he shall have been appointed shall be declared vacant, or until another person shall be appointed to succeed him and shall enter upon the duties of his office. On the 6th of July, 1885, the common council, by the vote of a majority, declared the offices of chief of police and of patrolmen of the city vacant, and then, by like vote, appointed other persons to the offices thus declared vacant.' 'The validity of their action in these matters was called in question by proceedings in certiorari in the Supreme Court, which resulted in a judgment declaring the action invalid. The ground upon which the judgment was based is that the common council was, by the act entitled “An act respecting police departments of cities, and regulating
But apart from this objection, it seems to me quite clear that the act is in contravention of that provision of the constitution which prohibits the passing of private, local or special laws regulating the internal affairs of towns and counties. That by the first clause of its first section it affects the internal affairs of certain cities only, is obvious. Such are the terms of that clause. It applies, not to all cities indiscriminately, but only to those in which the terms of office of policemen depend upon the pleasure of the appointing power. The object of the act is manifestly to deprive the appointing-power in those cities of the power -which they possessed, at the passage of the act, of removing policemen at will. That this is a regulation of the internal affairs of those cities, is too obvious for remark.
But it is argued that the cities in which the policemen hold office at will constitute, by reason of the peculiarity of such tenure of office, a class for legislation, so far as the subject of the tenure of office of such policemen is concerned. A similar proposition was rejected in this court, in Hammer v. State, 15 Vroom 667. In that case this court condemned as unconstitutional a law which provided that in any city in this state where a board of assessment and revision of taxes existed at the passage of the act, the board should thereafter consist of four members, resident electors of the city, to be chosen in a certain way designated in the act, and that in all cities where
The fact that some policemen hold office at will no more constitutes them a class for separate legislation than would the circumstance that they receive their pay monthly while other policemen receive theirs quarter-yearly. "While policemen in general constitute a class for legislation, the differences in the tenure of their office do not create legitimate classes for separate legislation. The legislature cannot say to one city, “Inasmuch as your policemen hold their offices for terms fixed by statute, we will deal with them as a class, and change the tenure of their office, and provide that they shall hold only at the will of the common council,” and to another city, “ Inasmuch as your policemen hold at will, we will, dealing with them as a class, provide that they shall hold their offices for life.” In either case the legislation would be a special interference with the internal affairs of the city. And yet that is precisely what is done by the law in question. The legislature may say that all policemen, (and perhaps all policemen in cities,) shall hold their offices by the same or like tenure. If the distinction in tenure of office constitutes legitimate ground for separate legislation in reference to the police force in cities, it would do so, also, in reference to other municipal officers. The difference in the tenure of office of mayors and aldermen and other city officials would, upon the same reasoning, constitute classes for1 separate legislation in respect to such offices. The only difference between such legislation and the old method of special legislation would be that under the old system the legislation might have been directed to the individual case, while under the new it must be directed to the so-called class. In the opinion of the Supreme Court in this case, the classification was held to be a false one, but it was held that part of the first section, (the first clause,) might be disregarded, and the rest be sustained as constitutional, on the ground that it provides that no person
I am of opinion that the judgment of the Supreme Court should be reversed.
For affirmance—The Chief Justice, Dixon, Knapp, Magie, Parker, Yan Syckel, Cole—7.
For reversal—The Chancellor, Brown, Clement, McGregor, Paterson, Whitaker—6.