38 Iowa 33 | Iowa | 1873
Lead Opinion
— The facts of the case as developed by the evidence before us are not numerous, and involve little, if any, conflict of evidence. They are as follows:
The Muscatine Western Railroad Company was incorporated May 23, 1870, for the purpose, as-shown by its charter, of constructing a railroad from Muscatine to the west line of the State. Its principal place of business was fixed at Muscatine and it is empowered by its articles of incorporation at any time “to consolidate with, or lease its road to, any corporation within or without the State, in any manner or form not inconsistent with the laws of the State of Iowa'.” The company entered into a contract with another corporation, the -Iowa Con. struction Company, for the building of its road from Muscatine to the Missouri river, to be completed as far as Pella, by September 1st, 1873. The construction company were to pay all expenses of rightof way, etc., and receive all money derived from taxes voted in aid of the road, and all donations and subscriptions, amounting to not less than $3,500 per mile, and to receive stock of the corporation to the amount of $20,000 per mile, which, as we understand the record, was to be converted into mortgage bonds of the company of a like amount.
An agreement executed between the plaintiff and the trustees of Pike township, in contemplation of the tax to be voted by the electors, the petition upon which such vote was ordered,
AGREEMENT. '
“ This agreement, made this 4th day of April, A. D., 1871, by the Muscatine Western Railroad Company, (by L. IT. Wash-burn, a Director and Secretary of said Company, duly authorized to execute this article of agreement,) with the Township Trustees of Pike township, Muscatine county, Iowa, in their official capacity, as follows: Whereas, the people of said township are about to call a special election of the voters of said township, through the Township Trustees, for the purpose of submitting to the qualified.voters of said township the question of voting a four and one-half per cent, tax upon the taxable property of the people of said township, upon the terms and special conditions, that the proceeds of said tax, if voted, shall not be paid over to said railroad company until their railroad-shall have been built and in operation, from the city of Muscatine, Iowa, to the crossing of the Burlington, .Cedar Rapids and Minnesota -Railroad, at Nichols Station, in said township; and further, that .said railroad shall be so built, on or before the first day of July, 1872.
“ Now this agreement witnesseth: that said Railroad Company doth hereby agree, that in case said tax is carried at said election to be called, they will not demand or receive the same until they have fully complied with all of the terms and conditions, as set forth in the petition and notice of election, under which such tax may be voted, and that they will fully comply with the terms of said election in all particulars.”
PETITION.
“ To the Township Trustees of the Township of Pike, in the County of Muscatine, State of Iowa:
“The undersigned, petitioners, representing'more than one-
NOTICE OR ELECTION.
“ We, the undersigned, Trustees of the township of Pike, in the county of Muscatine, and State of Iowa, having been petitioned to do so by more than one-third of the resident tax-payers of said township, do in pursuance thereof, and of an Act of the General Assembly of the State of Iowa, entitled “An act. to enable townships, incorporated towns and cities, to aid in the construction of railroads,” approved April 12th, 1870, herein give notice to the legal voters of said township, that there will be a special election held at the school house in Sub-District No. 3, known as Lacy school house, in said Pike township, in the county of Muscatine and State of Iowa, on the 4th day of May, A. D., 1871. Polls to be opened at 9 o’clock, a. m., and remain open until 6 o’clock, r. m., of the same day, foi’ the purpose of
“ Taxation” or “ No Taxation.”
Those voting in favor of said proposition shall have written or printed on their tickets the words “ Eor Taxation,” and those voting against said proposition the words “Against Taxation.”
At the election held pursuant to the order and notice of the trustees, a tax of four and a half per cent was voted, which, upon the whole property of the township, amounts to $15,-217.00.
The construction company, under the contract with the plaintiff above stated, commenced the work of constructing the road-which was in progress on the 27th day of May, 1872, when the plaintiff conveyed to the Burlington, Cedar Bapids & Minnesota Bailroad Company its road so far as it was constructed and all its other property and franchises except the taxes-voted in aid of the enterprise and subscriptions made in certain townships to the stock of the corporation. The conveyance is as follows:
“In witness whereof, the said Muscatine Western R. R. Co., by its President and Secretary, being thereunto duly authorized by an u/nanimous vote of the stockholders of said company, have hereunto signed their names and affixed the corporate seal of said company on the 27th day of May, 1872.
MUSCATINE WESTERN R. R. CO.,
Revenue By S. G-. Stein, President. .
Stamp, [seal.] L. IT. Washburn, Secretary.
The B., C. R. & M. R. R. Co., at the time the foregoing deed was made, entered into a contract with the M. W. R. R. Co., to iron the road between Muscatine and the Iowa river, which is west of Nichols Station, and put the same in operation by the first of July, 1872, and build the rest to some other point in 1873. On account of an evident mistake in the abstract before us, we are unable to determine the place intended to be named. This, however, is immaterial as no question arises upon this part of the contract. The M. W. R. R. Co. agreed to procure the right of way, to prepare the road bed, build bridges and culverts, and furnish the ties ready for the iron, and reserved and were to retain the taxes voted in aid of the enterprise, to pay for the work done by them. Upon the execution of the deed to the B., C. R. & M. R. R. Co., and the making of the agree
On the first day of July, 1872, the B., C. R. & M. R. R. Co. executed a mortgage upon the road it had thus purchased, describing it at the Muscatine extension of its railroad, for §6,000,000 to secure bonds issued to carry on the enterprise.
Under the contracts and arrangements above set out, the said road was so far completed that cars run over it to Nichols Station, on the first day of July, and since that time it has been used for the purpose of a railroad. On the same day, or soon after, cars ran to the Iowa river.- The road from Muscatine to Nichols station was not fully completed at the time named. A sufficient number of ties were not put in, and all the spikes required were not driven; the road was not ballasted and other work necessary for a completed road was not done. But, as has just been stated, it was in a condition to permit engines and cars to be run over it, and with the work above mentioned, has been rendered a fit road for the purposes it was designed. All the work of building the road to the Iowa river was done by the M. W. R. R. Oo., except the laying of the iron which was done by the B., C. R. & M. R. R. Co. There remained after the completion some unsettled' cases of right of way, which were conducted by the construction company in the name of the M. "W. R. R. Co.
The vote of the taxes involved in this case was had under the provisions of Chap. 102, of the Acts of the 13th Geni. Ass., which authorize a. majority of the electors of a township to impose a tax upon the property therein, as a gratuity to aid in the construction of any railroad. The enactment is in the most general language, and the authority and power conferred is hedged by no restrictions except as to the amount of taxes that may be thus imposed to aid any one enterprise. Upon an affirmative vote the taxes are levied and collected as other taxes, and are to be paid out by the county treasurer, to the corporation building the road upon a certificate of the trustees of the township. Chap. 2, Acts 14th Geni. Ass., provides that the taxes shall not become due, payable or collectible, except upon compliance by the railroad company with the conditions, inducements and contracts in writing under which the taxes were voted. A certificate of the trustees, the defendants in this case, to the effect that plaintiff had performed its contract firand in the agreement, petition and notice of election above set out, is the instrument which plaintiff prays in its petition the defendants may be compelled by mandamus to issue. In order to determine whether this relief may be granted, it is our duty to inquire: 1. As to the terms and conditions of plaintiff’s contract. 2. Whether they have been performed.
Defendants complain that when the people voted the tax, they expected a through road would he built from Muscatine to the Missouri river. Nut they are unfortunate in not making the building of such a road a condition, by proper writing, upon which the payment of the taxes should depend. The construction of the road farther than Nichols Station is not made such a condition and their hopes and expectations, based upon the verbal contracts of plaintiffs though they be, may be disappointed without operating to relieve them from the obligation they too readily assumed without guarding it by restrictions in the manner required by the law. It may be, too, that their just expectations are as likely to he realized in the present condition of the enterprise as to its ownership, as though the plaintiff had continued its efforts to build the road. Though the fact has nothing to do with the legal question under consideration, it may he truly said that the corporation purchasing the road is not shown'to possess less ability to construct it or less inclination in good faitb to carry out the original object of the enterprise, than the plaintiff. The tax payers, as we have seen, under the law, can compel neither corporation so to do; if done, it must he a voluntary act of the railroad company. Their condition is not made worse by the change in the ownership of the road.
The fact that defendants with evidence before them decided erroneously, or mistakenly interpreted and applied the law, does not render them liable. They were acting in a quasi judicial capacity and may not be prosecuted for errors or mistakes. The evidence fails to satisfy us that they acted willfully and there is no charge that they were guided by corrupt or malicious motives. They cannot therefore be held liable for damages to the party suffering from their erroneous acts. Had the law required of defendants absolutely a ministerial duty, and they were clothed with no right or power to adjudicate upon questions of fact or law, they could be required to respond in damages to the extent of the injury sustained by plaintiff, Amy. v. Supervisors, 11 Wall., 136, and a willful
My views upon the constitutionality of the law authorizing taxation in aid of railroads are well understood as I have heretofore announced them at length. See my dissenting opinion' in Stewart v. Board of Supervisors, 30 Iowa, 9. They have undergone no change, but have become strengthened. I now hold that the statutes, above referred to, are in conflict with the constitution; and I confidently expect to see the day when this court will return to the doctrines announced in Hanson v. Vernon, 27 Iowa, 28, holding such legislation unconstitutional. But so long as the .majority of this court hold the statutes valid, they are to be enforced as law, and I must discharge my duty as" a member of this court interpreting them as such.
My examination of these statutes satisfies me that they are not only in conflict with thg constitution, but are vicious in their policy and details. The rights of the tax payers are imperfectly guarded, and they are. easily made the victims of bad faith and unfair dealings on the part of the railroad corporations in the manner charged by defendants in this action. But the defects in the law have nothing to do with its application by the courts. The people of the township represented by defendants, having ventured to call into exergise its provisions, must be content to endure their evil effects.
The judgment- of the District Court, so far as it assesses damages against defendants, is reversed; otherwise it is affirmed, and a judgment in harmony with this opinion will be rendered hero, or, at plaintiff’s option, the cause will be remanded to the District Court for such a judgment there.
Modified and affirmed.
Dissenting Opinion
dissenting. — I am unable to concur in the foregoing opinion of the majority. In my opinion the Muscatine Western Railroad Company, to whom the tax was voted to aid in the construction of its railroad failed to fulfill the conditions upon which such tax was to become payable to it, and therefore the defendants are not required to make the certificate demanded.
The plaintiff was incorporated under the laws of this state for the purpose of consi/ruoting a railroad from Muscatine to the west line of the state, with its principal place of business in the city of Muscatine. The organization of the company took place May 23d, 1870. In the petition presented to the township trustees, asking a submission of the question to a vote of the electors, whether a tax should be levied in aid of the construction of the plaintiff’s proposed road, it is recited that the road is to “ start from the city of Muscatine, county of Muscatine, State of Iowa, and run in a westerly direction through portions of the counties of Muscatine, Johnson, Washington, Keokuk, Mahaska, and Marion, to some point on the Missouri river in the State of Iowa,” and it was therein further “ provided that the aid voted for is on the express condition that no part of the money shall be drawn from the treasury by said railroad company, until said railroad shall be built and in operation, from the city of Muscatine to the crossing of the Burlington, Oedar Rapids & Minnesota R. R., at Nichols Station in Pike township; and also on the further express condition that said railroad shall be thus built, and in operation by July 1st, 1872.”
It was also expressly agreed between the plaintiff and the trustees of Pike township that the tax about to be voted should be voted and payable “ upon the terms and special conditions that the proceeds of said tax, if voted, shall not be paid over to said railroad company until their railroad shall home been built and in operation from the city of Muscatine, Iowa, to the crossing of the Burlington, Oedar Rapids & Minnesota R. R., at Nichols Station; and further that said railroad shall be so built on or before the first day of July, 1872.” On the 27th day of May, and before the grading of the road from Muscatine to Nichols
It will thus be seen that before the plaintiff had performed the conditions upon which it was to become entitled to the tax voted, it sold and conveyed all of its property in the l’oad it had undertaken to build, and all of its rights and franchises connected therewith, thereby disabling itself from performing the conditions of its contract with the defendant. In my opinion this sale operated as a dissolution of the 'corporation to which the aid. had been voted. It was no longer a corporation for any purpose except to wind up its affairs, that is, to pay its debts and collect moneys due it. This tax had not become due and payable to the corporation when all of its property and franchises were by it transferred to another corporation, leaving it utterly powerless to go on and complete and operate its railroad to ' Nichols Station by the first day of July, 1872, which was the condition upon which it was to become entitled to the aid voted by the people of Pike township. Nor did the plaintiff pretend to thus complete its road to Nichols Station. On the contrary the grading was finished by the construction company under a contract with the Burlington, Cedar Rapids & Minnesota Railroad Company, and the road ironed and operated by the last named company, then the owner thereof.
From the time the plaintiff sold and conveyed its property and franchises to the Burlington, Cedar Rapids & Minnesota Railroad Company, the plaintiff as a corporation was dissolved and the road it had proposed to build and had commenced,
The trustees could not truthfully and lawfully certify that the plaintiff had complied with the conditions on which the tax was voted and should not he required to do so by mandamus.
I have thus briefly stated the principal grounds of my dissent from the majority opinion which in my judgment compels the people of Pike township to pay a tax in aid of a railroad which they never agreed to or proposed to assist.