59 Barb. 169 | N.Y. Sup. Ct. | 1871
The constitutional amendment known as the new judiciary article; was adopted subject to'the limitation (as. to the time of its taking effect) imposed by section 5, article 14, of the proposed constitutional amendment. (The People v. Real, 42 N. Y. 270.) It is as if that limitation had been expressed in, and made part of, the article in question. By its own limitation, therefore, the amended judiciary article, though adopted at the annual election of 1869, was of no effect before the 1st day of January, 1870. Until that day the judiciary article of the constitution of 1846 was of full force and effect. Under its provisions, at the annual election of 1869, the defendant was duly elected to the office of county judge of Wayne county, for the term of four years, to commence on the 1st day of January, 1870. The will of the people in his election, and in the adoption of the constitutional amendment, was simultaneously expressed.
Section 15 of the amendment provides: “ The existing county courts are continued, and the judges thereof in office at the adoption of this article shall hold their office until the expiration of their respective terms. Their successors shall be chosen by the electors of the counties for six years.” It is contended on the part of the relator that the defendant was not in office “ at the adoption of the article;” that the provision above quoted did not therefore apply to him, but to the incumbent of the office, whom he was elected to succeed; that the election of the defendant was thereby rendered nugatory, and that the successor of the judge in office at the time of the adoption of the article must be thereafter elected for the term of six years; that'the relator was so elected at the annual election of 1870, and therefore that he, and not the defendant, is entitled to the office in question.
But nevertheless, it is clear, I think, that such construction cannot be given to the words as they occur in the provision now under consideration. Constitutional and legislative enactments are to be so construed as to give effect to the evident intention of those who enact them. “That intention is to be deduced from a view of the whole and of every part of the enactment, taken and compared together. The real intention, when actually ascertained, will always prevail over the literal sense of terms, and the reason and intention of the law giver will control the strict letter of the law, when the latter would lead to palpable injustice, contradiction and absurdity.” (1 Kent's Com. 462.)
It was the evident intention of the framers of the provision in' question, and of the people in adopting it, not only that the county courts should be continued, but that judges of those courts should be continued in office in all the counties of the State in which such courts existed, and that without interregnum or suspension.
It will be found impossible to give uniform effect to this intention, except by construing the words “ at the adoption of this article,” to mean at the time of its taking effect.
In Wayne county, and in three other ■ counties of the State, the term of office of the county judge in office at the time of the election and canvass of 1869, expired on-the 31st day of December of that year. In all the other
It was clearly not the intention of those who enacted the constitutional provision, to make an exception in the case of the counties whose election of judges chanced to take place in 1869, but to continue judges in office in those counties as well as in the other counties of the State. If, therefore, a judgé is continued in office in Wayne county, to what judge did the provision apply? It could not apply to him whose term expired before the provision took effect; it could only apply to him whose term commenced concurrently with the operation of the provision in question.
To construe the words “ at the adoption of this article” to mean at the time of its taking effect, gives to the provision considered an effect reasonable, uniform and consistent with the evident intention of its enactors; to construe it as contended- for by the- relator, gives it an effect anomalous, absurd, partial and contrary to its evident intention. The elementary rules of constitutional
I. The article of the constitution in question was adopted when and as soon as the board of State canvassers had declared the result of the election. (Real v. The People, 42 N. Y. 270, and the cases there cited.) This took place before the 1st of January, 1871.
If the views above expressed are correct, the defendant is entitled to hold the office in question. Having been duly elected in 1869, and having duly qualified within fifteen days after notice of his election, his term commenced with the 1st day of January, 1870. He was in office at the moment when the constitutional amendment took effect; and by its provisions, as I have construed them, he was continued in office during the term for which he was elected.
From the judgment entered upon this decision the plaintiffs appealed.
III. The relator has been chosen as the successor of the judge in office at the time of the adoption of this constitution, (Mr. McLouth,) and as such is entitled to hold the same.
IV. The new judiciary article of the constitution was in-force from and including the 1st day of January, 1870, and not previously. It was in force every instant of said 1st day of January. (The People v. Real, 42 N. Y. 270.) Its adoption took place previous to said first day of January. It could no more be in full force without a previous adoption, than a law could be in force without a previous enactment.
V. Section 15 of the new judiciary article provides for the election of all the successors of the county judges in office at the time of its adoption. It necessarily follows that these successors must be elected under its provisions, and while it is in force, and that no one could be the successor of any county judge in office at its adoption, unless he should be elected under its provisions.
VI. The mandate of § 15 of the new judiciary article is, that these successors shall be chosen; that is, that they shall be chosen at a future time. The mandate of this section also requires these successors to be chosen for the term of six years ; that their terms shall be six years, and the electors shall have the opportunity of voting for them with reference to that term.
VII. Charles McLouth was in and held the office of county judge of Wayne county at the time of the adoption of the new judiciary article, his term commencing the day before the general election in 1869, and ending with the year 1869. The defendant not having been in
VIII. The relator is entitled to the' office of county judge of Wayne county, having, by the greatest number of votes, been elected thereto at the general election in 1870, and a vacancy having then existed therein, required to be filled at said general election. (Const, art. 10, § 5. Sess. Laws of 1849, ch. 28 as amended, ch. 45. 1 R. S. 415, 5th ed. Laws of 1847, ch. 240. 1 R. S. 420, 5th ed.)
IX. By all the acknowledged rules of interpretation and construction, § 15 of the new judiciary article must be upheld in its literal signification. 1. Section 15 is in no respect obscure, uncertain or ambiguous in its import or signification, and is not properly the subject of construction or interpretation. It construes and interprets itself. “ Where words are plain and clear, and the sense distinct and perfect arising on them, there is generally no necessity to have recourse to other means of interpretation.” (1 Story on the Const. 384, § 401.) “ Where words are plain, clear and determinate, they require no interpretation.” (Id. 387, § 405. See also p. 383, § 400, et seq.) 2. If § 15 is held to be open to interpretation or construction, it is proper to examine it with reference to the objects sought to be attained by it. To examine it with reference to the principles which are presumed to have governed its enactors in its formation and adoption. To compare the words and expressions used in i't with the same words and expressions used elsewhere in the judiciary article. To endeavor to ascertain the intention of its enactors, from the whole judiciary article. To look at the history of its formaation, consideration and perfecting. 3. The object of the change in the constitution in relation to the county courts, was to elevate their character and relieve the Supreme Court, by drawing business to the countycourts. So the jurisdiction of these courts was made almost equal to that of the Supreme Court, the term of the judges extended from four to six
X. Under the alteration of the 15th section, which the judge would make, Horton could not take the office. He was not in office at the time the new judiciary article took effect. In order to enable Horton to be' in office when the new article took effect, Horton must first be in office, and the new article must take effect afterwards. The article was in full force and effect the first instant, the first point of .time in the year 1870. Horton was not in office before that. If Horton took office and the judiciary article took effect at the same point of time, Horton was not in office when the article took effect, nor did the article -take effect when Horton was in office.
XI. The judgment and order dismissing, the complaint should be reversed, and. judgment entered that the defendant is not entitled to the office of county judge of Wayne county, and that he be ousted therefrom, and that said William Clark is entitled to and that he be put in possession of the same.
The election of the defendant to the office of county judge, at the general election in 1869, was regular and valid, under the constitution of 1846, and the laws then in force. 1. The constitution provides as follows: “ There shall be elected in each of the counties of this State, except the city and county of New York, one county judge, who shall hold his office for four years.’-’ (Const. art. 6, § 14. 1 R. S. 53, Edm. ed.) 2. In October, 1869, George W. Cowles was county judge of Wayne county, and between the 15th day of that month and the 1st day of November following, he resigned that office; his resignation was duly accepted, and the office became vacant. (Const. of 1846, art. 10, § 8. R. S. 122, § 34, sub. 2, Edm. ed. p. 112.) 3. On the 1st day of November the Governor appointed Charles McLonth to that office, such appointment expiring at the end of the year 1869. “ The legislature shall provide for filling vacancies in office, and in case of elective officers, no person appointed to fill a vacancy, shall hold his office, by virtue of such appointment, longer than the commencement of the political year next succeeding the first annual election after the happening of the vacancy.” (Const. art. 10, § 5. R. S. 61, Edm. ed.) The legislature complied with this direction, so far as the office of county judge is concerned, (there having been before no provision of law on that subject,) by the act of February 3d, 1849, as follows:
“Whenever vacancies shall exist or shall occur in any of the offices of this State, where no provision is now made by law for filling the same, the Governor shall appoint some suitable person who may be eligible to the office so vacant or to become vacant, to execute the duties thereof until the commencement of the political year next sue-, ceeding the first annual election, after the happening of the vacancy, at which such officer could be by law elected.” (Laws of 1849, ch. 28, p. 26.) The political year begins on
The statute appointing the first election of judicial officers, under- the constitution of 1846, expressly provides that “no such election shall be invalid by reason of the omission to give any such notice.” (Laws of 1847, ch. 276, § 6, p. 307.) The- relator in this case is in no position to object to the election of the defendant on account of want of notice. Ho notice, official or other, appears to have been given in his case, and it is a fair inference from the facts, that the matter was managed artfully, as only 138 votes were cast, and those in only one out of fifteen towns in the county. At the election at which the defendant was' chosen, although no official notice, was given, it is obvious that full actual notice was given, as over 8000 votes were cast for the office, of which the defendant received a majority of over 900. The defendant, therefore, was duly elected to the office of county judge, and was
II. The new judiciary article of the constitution confirms the right of the defendant to hold the office “ until the expiration of the term” for which he was elected. (Const. art. 6, as amended, § 15. Voorhees’ Code, 10th rev. ed. p. 764.) The language of the section, so far as it bears upon this question, is quoted in the opinion of Judge Dwight. It is difficult to add anything to the argument in favor of the judgment appealed from, contained in that opinion. The absurdity, injustice and inconvenience which would result from the plaintiff’s intepretation of the constitution, shows that it cannot be the true interpretation, as such could not have been the intention of its framers. The true meaning of the expression, “ at the adoption of this article,” unquestionably is, “ at the adoption of this article as a part of the constitution of the State,” which did not occur until January 1,1870, at which time the defendant was “in office.” (The People v. Real, 42 N. 7. 270.) Prior to that time the people had not adopted the article in question as a part of their constitution ; they had merely voted that they would adopt it, as such, on that day. In one sense, the 'vote on the 2d of November may properly be called an adoption; but in a sense equally natural, if not equally literal, the adoption of the article by the people, as a part of their constitution, took place on the 1st of January, 1870. ’ The expression “ in office at the adoption of this article,” in section 15, has, in my judgment, the same meaning as the words “ now in office,” in section 6: Taking those words in the latter section literally, and looking at the time when the declaration was made, the expression would apply only..to the justices of the Supreme Court in office on the
The question on which this case turns is, whether there was a vacancy in the office of county judge of Wayne county, at the general election in November, 1870.
The defendant was regularly elected to that office, at the annual election in 1869, under and according to the constitution and laws then existing and in force. The office of county judge in that county included the office of surrogate of the county also, and the term of office for each was four years. He was elected to fill the vacancy which would otherwise happen, on and after the 31st day of December, of that year, by the expiration of the previous term, and of the office of the then incumbent, to the end that there might he no vacancy in the office, and no interruption to the exercise of the powers and functions pertaining to that court.
On the 18th of December, 1869, the defendant took and subscribed the oath of office, in due form, which was duly filed, and executed the bond required to be executed for the faithful performance of the duties of surrogate of said county, which was duly approved and filed. On the first of January, 1870, he entered upon the duties of the offices
The relator and appellant claims the office by virtue of' an election thereto at the annual election in 1870, and insists that the office was then, in law, vacant. If the office was then vacant, it is conceded that he is entitled to it by virtue of such election. If not vacant, the election, so far as that office is concerned, was a nullity. The present constitution provides that “ the existing county courts are continued, and the-judges thereof, in office at the adoption of this article, shall hold their offices until the expiration of their respective terms.” (Art. 6, § 15.) By the same section it is provided that their successors shall be chosen for the term of six years, and further, that “the county court shall have the powers and jurisdiction they now possess, until altered by the legislature.” What is the meaning of this term “adoption,” as here used, and to what period does it relate ? Does it relate to the time when the articles should become a part of the constitution of the State, or to a time prior to- that, when it could have no voice, or force, or effect whatever, when the ¿lectors decided that it should form part of their constitution, and become of force at a future day. To any mind, this is exceedingly clean The terms used in this section, “the existing county courts,” “ at the adoption of this article,” and “the jurisdiction they now possess,” all speak of, and refer to, the same period precisely, to wit, when the. sixth article should become of force as part of the organic law. This, it seems to me, is susceptible of demonstration beyond all reasonable doubt. When this article became of force as organic law, has been happily settled by the court of last resort, and is no longer open to question or controversy. Section 5 of article 14 of the ■ constitution, as adbpted by the convention, and proposed by that body for adoption by the electors, was as follows: “ This constitu
It is claimed on behalf of the appellant, that it was decided, in that case, that article 6 was adopted when the votes of the electors had been cast, and the result declared by the board of canvassers. But no such thing was determined, and no such question was before the court. All they decided was as to when it became of force, and they refused to give it any retroactive effect. They did not hold that “its adoption.by the people,” mentioned in section 5 of the rejected article 14, had the same meaning, and referred to the same period, and condition of the instrument, as “the adoption of this article,” in the several sections of article 6. As I understand the decision, it is rather the reverse of this. The court certainly held that it was not adopted so as to become a part of the constitution, until the first of January, 1871; and that before that time .it had no authoritative voice, or control over the action of the judges, which was regulated and controlled solely by the constitution and laws in force up to that time. Looking at all the provisions of article 6, no one can doubt that the general plan and intention, both of the convention which framed, and of the electors who ratified and accepted, was to have no change.in the term of the office, until the incumbent holding such office at the time the article became operative and in force, should have served out the
The language of section 15 more particularly under consideration has already been quoted, and it is equally plain that the terms there used, “at the adoption of this article,” “the powers and jurisdiction they now possess,” refer to the same time. “How,” as there used, must be held to mean the time when the article became operative and in force, and could speak with authority. And “ at the adoption of this article,” refers, undoubtedly, as I think, to the same time, when the article should be fully and completely adopted as a part of the constitution. This interpretation of this last sentence is, it seems to me, placed beyond all doubt or cavil, by reference to section 25, which provides that “ surrogates ” and other inferior officers there mentioned, “in office when this article shall take effect, shall hold their respective offices until the expiration of their terms.” In many .counties of this State, of which Wayne, county is one, the county judge is both judge and surrogate, and holds and exercises the duties and functions belonging and pertaining to both offices. It would lead to. a most gross absurdity to hold that the ° convention, or the electors, intended, by using this phrase, “ shall take effect,” to divorce the two offices, in a case like the one under consideration, and allow the county judge elect, when the article should “ take effect,*1 to hold the office of surrogate through the term, and not the office of judge. Yet such would certainly be the result, upon
The electors had decided to discard the former judiciary article in the constitution, and to put the present one in its place at a future day. Time would ripen this into the complete thing—adoption consummate. And it is adoption consummated and completed, and not inchoate and imperfect, which the article and section in question speak of. They speak what they mean,' of the time when they should take the place of the discarded article, and have the same right and authority. - Until then, adoption was not a thing in esse ; ñor could it be, until the stranger had in fact and law become heir. And this is so, not by any loose or strained definition of words, or interpretation of terms, but. by giving them their primary and common meaning and force. The interpretation contended for by the relator and appellant is the one that is loose and
I conclude, therefore, that there was no vacancy in the office of county judge of Wayne county at the time of the general election of 1870. The office was then filled. The then incumbent had been regularly elected for the term of four years, to the offices of county judge and surrogate, and was entitled to take such offices on the first day of January previous, and did take them. He went into office at the same moment with the adoption of the article, as, and in place of, the fogmer article on the same subject. He entered upon the offices simultaneously with the.adoption of the article, and was in at such adoption, and must consequently hold his offices until the expiration- of the term for which he was elected.
I have not found it necessary, in the view I have taken, to invoke the aid of any of the rules and canons of interpretation for making the words agree with, and express, the real intention of the law maker, where, in their literal sense and meaning, the words chosen fail to express fully and completely such intention. To my mind' the words chosen are most apt and fitting to express the sense and intention of the convention and of the electors, in regard to the time the article should speak with authority.
I do not perceive that the alteration of sections by the convention, or of the phraseology of some of them, brought to our attention by the appellant’s counsel, has any significance or bearing whatever upon the question we have been considering. There is nothing to show that any im-. portance was attached to either by the convention in this respect. If it can have any bearing, it would seem to me to be rather against, than in favor of, the appellant’s position.
For the foregoing reasons, I have come to the conclusion that the relator and appellant is not entitled to the
Talcott, J., having been elected to the office of justice of the Supreme Court, at the judicial election in 1869, expressed no opinion.
Judgment affirmed.
Mullin, P. J., and Johnson and Talcott, Justices.]