REL:
10/23/2009
Notice: T h i s o p i n i o n i s s u b j e c t t o f o r m a l r e v i s i o n b e f o r e p u b l i c a t i o n i n t h e advance
s h e e t s o f Southern R e p o r t e r . R e a d e r s a r e r e q u e s t e d t o n o t i f y t h e R e p o r t e r o f D e c i s i o n s ,
A l a b a m a A p p e l l a t e C o u r t s , 300 D e x t e r A v e n u e , M o n t g o m e r y , A l a b a m a 3 6 1 0 4 - 3 7 4 1 ( ( 3 3 4 ) 2 2 9 ¬
0 6 4 9 ) , o f a n y t y p o g r a p h i c a l o r o t h e r e r r o r s , i n o r d e r t h a t c o r r e c t i o n s may b e made b e f o r e
t h e o p i n i o n i s p r i n t e d i n Southern R e p o r t e r .
SUPREME COURT OF ALABAMA
OCTOBER TERM,
2009-2010
1071500
Nicholas Madaloni
and M.A.
Publishing Syndicate, a
corporation
v.
The C i t y
Appeal
SMITH,
of Mobile
from Mobile C i r c u i t
(CV-05-3394)
Court
Justice.
This
statutory
action
concerns
challenges
a
variety
Mobile
Ordinance
of constitutional
t o A c t No. 2 0 0 4 - 3 8 2 , A l a . A c t s
c o d i f i e d a t §§ 1 1 - 5 4 B - 4 0 t h r o u g h
of
et a l .
and
2 0 0 4 , now
- 5 8 , A l a . Code 1 9 7 5 , a n d C i t y
no. 50-39-2005
by p l a i n t i f f s
Nicholas
1071500
Madaloni
No.
a n d M.A.
2004-382
Publishing Syndicate,
authorized the C i t y
a corporation.
of Mobile
to enact
Act
Ordinance
no. 50-39-2005, w h i c h c r e a t e d a s e l f - h e l p b u s i n e s s - i m p r o v e m e n t
district
("BID")
Syndicate
i s an A l a b a m a c o r p o r a t i o n l o c a t e d i n downtown
within
the
Publishing
BID,
and
downtown
Mobile.
Madaloni
is
appeal
a n d M.A.
from
a
summary
judgment
the
Corporation,
the
(collectively
"the defendants").
Downtown
City
Facts
definition
e x c l u s i v e procedure
and
No.
maintain
for
Publishing
owner
Mobile
of
M.A.
Mobile,
§
plaintiffs")
i n favor
the
the
and
Management
of
State
and P r o c e d u r a l
Alabama
affirm.
History
[No.
2004-382]
i s intended
b y w h i c h a C l a s s 2 m u n i c i p a l i t y may
3.
of
District
We
"[A]ct
i s defined
which a s p e c i a l
property
of
entered
Mobile
a self-help business
2004-382,
district"
sole
P u b l i s h i n g Syndicate ("the
defendants,
By
the
M.A.
Syndicate.
Madaloni
now
in
A
No.
business
2004-382
as
the purposes of p r o v i d i n g supplemental
2
area
Act
improvement
"[a]n area
a s s e s s m e n t may b e l e v i e d on t h e o w n e r s o f
l o c a t e d w i t h i n the geographical
the
create
improvement d i s t r i c t . "
"self-help
i n Act
as
in
real
of the d i s t r i c t
s e r v i c e s w i t h i n the
1071500
district
and p r o m o t i n g
district."
Act
1
t h e e c o n o m i c and
p a t t e r n e d a f t e r A c t No.
11-54B-1
through
the
2004-382,
No.
g e n e r a l w e l f a r e of
Act
2004-382
was
c o d i f i e d at
§§
§
2.
94-677, A l a . A c t s
-39,
Ala.
exclusive
procedure
for
ordinances
to
Code
1975,
Before
the
Act
No.
the
proposed
once
2004-382,
a
for
Bill
146
legislature,
3,
act
week
Senate
May
i n t r o d u c t i o n of
and
i n the
was
which
establishes
the
i t was
i n the
a p p r o v e d and
Mobile
weeks
passed
a
s i g n e d by
adopt
became
synopsis
of
Press-Register
in
both
to
which
146,
Legislature,
consecutive
ultimately
municipalities
Senate B i l l
Alabama
published
four
1
1975,
BIDs.
create
Class
No.
January
houses
2004.
of
the governor
2
the
on
2004.
A c t No. 2 0 0 4 - 3 8 2 p r o v i d e s t h a t " [ a ] C l a s s 2 m u n i c i p a l i t y ,
b y o r d i n a n c e , may p r o v i d e f o r t h e c r e a t i o n a n d m a i n t e n a n c e o f
one o r m o r e s e l f - h e l p b u s i n e s s i m p r o v e m e n t d i s t r i c t s
pursuant
to
this
article."
§ 3 (emphasis
added).
If a Class
2
municipality
adopts
an
ordinance
to
create
a BID,
that
"ordinance
...
shall
provide
that
a l l costs
of
the
supplemental
services provided
in
a
self-help
business
i m p r o v e m e n t d i s t r i c t s h a l l be f i n a n c e d t h r o u g h t h e l e v y b y t h e
m u n i c i p a l i t y o f a s p e c i a l a s s e s s m e n t on t h e o w n e r s o f t h e
nonexempt r e a l p r o p e r t y l o c a t e d w i t h i n the g e o g r a p h i c a l a r e a
of the d i s t r i c t
"
A c t No.
2004-382, § 8 (emphasis
added).
1
2
The
t e x t of
the
notice i s provided
3
infra.
1071500
A f t e r Act
No.
owned p r o p e r t y
city
council
create
l o c a t e d i n downtown M o b i l e
for
a BID.
2004-382,
2004-382 became e f f e c t i v e ,
the
City
of
Mobile
to
the
procedures
Pursuant
the
individuals
" M o b i l e Downtown B u s i n e s s
they
desired
improve
the
presented
of
a
maintenance,
recruitment
and
retention
subsequently
the
BID
May
10,
2005,
in
i n downtown M o b i l e .
2005.
BID,
The
city
adopt
the
BID
in
the
the
to
out
i n Act
council
downtown
and
area.
the
services
Mobile
district
One
The
week a f t e r
council
enacted
the
finance
associated with
District
would provide
The
to
supplemental
d e c l a r i n g A c t No.
Specifically,
the
the
a BID,
city
the
a
geographic
costs
of
and
to
this
2004-382 and
plaintiffs
action
no.
asserted
4
the
the
that
on
50-39¬
of
the
property
Downtown
entity
that
district.
seeking
O r d i n a n c e no.
create
supplemental
designated
as
council
area
the
s e r v i c e s w i t h i n the
brought
to
hearing,
Ordinance
Corporation
Management
plaintiffs
with
retail/office
imposed a s p e c i a l a s s e s s m e n t upon owners of r e a l
within
No.
Mobile
a proposed ordinance
designated
ordinance
set
that
ordinance
an
city
parking,
h e l d a h e a r i n g on
the
requested
who
Improvement P l a n , " which s t a t e s t h a t
creation
safety,
individuals
a
judgment
50-39-2005 v o i d .
the
Act
and
the
1071500
Ordinance
Art.
violate
XII, §
Recomp.).
382
223,
A r t . I V , §§
of
the Alabama
The p l a i n t i f f s
and O r d i n a n c e
41-16-50,
Ala.
Municipal
Public
45,
no.
104,
further asserted
1975,
conflict
and
Improvements
105, and
C o n s t i t u t i o n of
50-39-2005
Code
89,
with
§§
et
In
a
the t r i a l
summary
defendants'
plaintiffs
P.,]
summary
judgment
case
the p a r t i e s f i l e d
The
trial
summary-judgment
t h e n moved
judgment
Thereafter,
court,
court
have been
11-99A-
and
i n an
court
cross-motions
granted
motions without
"pursuant
to
the t r i a l
motion
the
1975.
judgment.
f o r the
of
and
seq., A l a .
Code 1975, and t h e Alabama Improvement D i s t r i c t A c t , §
1 e t s e q . , A l a . Code
2004¬
39-2-2
sections
11-48-1
and
1901 ( O f f .
t h a t A c t No.
various
Act, §
106,
rule
to Rule
on
to enter
the
court
denied
order
that
adjudicated."
Standard
The
54(b)[,
order
motion
in this
" a l l issues
plaintiffs
The
for
cause."
summaryin
appeal.
of Review
"'This
court
reviews
de
novo
a
trial
court's
i n t e r p r e t a t i o n of a s t a t u t e , because only a question
of law i s p r e s e n t e d . '
S c o t t B r i d g e Co. v . W r i g h t ,
883 S o . 2 d 1 2 2 1 , 1223 ( A l a . 2 0 0 3 ) . W h e r e , a s h e r e ,
the f a c t s of a case are e s s e n t i a l l y undisputed,
this
Court
must
determine
whether
the
trial
court
5
the
A l a . R. C i v .
the p l a i n t i f f s '
stated
of
an o p i n i o n .
plaintiffs'
a final
each
for
this
1071500
m i s a p p l i e d the law to the u n d i s p u t e d f a c t s ,
a de n o v o s t a n d a r d o f r e v i e w . "
Continental
1034-35
Nat'l
Indem.
( A l a . 2005).
Co.
v.
Fields,
926
applying
So.
2d
Likewise,
"'[o]ur
review
of
constitutional
challenges to
legislative
enactments
i s de n o v o . '
R i c h a r d s v.
Izzi,
819
So.
2d
25,
29
n.3
(Ala.
2001).
A d d i t i o n a l l y , a c t s of the l e g i s l a t u r e are presumed
constitutional.
S t a t e v . A l a b a m a Mun.
Ins. Corp.,
730 So. 2 d 1 0 7 , 110 ( A l a . 1 9 9 8 ) .
See a l s o D o b b s v .
S h e l b y C o u n t y E c o n . & I n d u s . Dev. A u t h . , 749 So. 2 d
425,
428
(Ala.
1999)('In
reviewing
the
c o n s t i t u t i o n a l i t y of a l e g i s l a t i v e a c t , t h i s Court
will
s u s t a i n the act "'unless i t i s c l e a r
beyond
reasonable
doubt
that
i t is violative
of
the
fundamental law.'"
W h i t e v. R e y n o l d s M e t a l s Co.,
558
So. 2 d 3 7 3 ,
383
( A l a . 1 98 9 ) ( q u o t i n g
Alabama
S t a t e F e d ' n o f L a b o r v . M c A d o r y , 246 A l a . 1, 9, 18
So.
2d
810,
815
(1944)).').
We
approach
the
q u e s t i o n of the c o n s t i t u t i o n a l i t y of a l e g i s l a t i v e
act
'"'with
every presumption
and
intendment
in
f a v o r o f i t s v a l i d i t y , and seek t o s u s t a i n
rather
than
strike
down t h e e n a c t m e n t
of a c o o r d i n a t e
branch of the government.'"'
Monroe v. H a r c o , I n c . ,
762 So. 2 d 8 2 8 , 831
( A l a . 2000) ( q u o t i n g Moore v.
M o b i l e I n f i r m a r y A s s ' n , 592 So. 2 d 1 5 6 , 159 ( A l a .
1 9 9 1 ) , q u o t i n g i n t u r n M c A d o r y , 246 A l a . a t 9, 18
So. 2 d a t 8 1 5 ) .
"Moreover, i n o r d e r t o overcome the p r e s u m p t i o n
of
constitutionality,
... t h e p a r t y a s s e r t i n g t h e
u n c o n s t i t u t i o n a l i t y o f t h e A c t ... b e a r s t h e b u r d e n
'to
show t h a t
[the Act] i s not
constitutional.'
Board of T r u s t e e s of Employees' Retirement Sys. of
M o n t g o m e r y v . T a l l e y , 291 A l a . 3 0 7 , 3 1 0 , 280 So. 2 d
5 5 3 , 556 ( 1 9 7 3 ) . See a l s o T h o r n v . J e f f e r s o n C o u n t y ,
375 So. 2 d 7 8 0 , 787 ( A l a . 1 9 7 9 ) ( ' I t i s t h e l a w , o f
c o u r s e , t h a t a p a r t y a t t a c k i n g a s t a t u t e has t h e
6
1033,
1071500
burden
of
overcoming
constitutionality
' ) . "
State
ex
r e l . King
v.
the
Morton,
955
presumption
So.
2d
1012,
of
1017 ( A l a .
2006).
Discussion
A principal
382
is a
between
the
issue
i n this
"general law" or a
Alabama
Constitution
i s whether
"local
a g e n e r a l law and a l o c a l
power o f t h e l e g i s l a t u r e
IV,
case
places
The
certain
to enact l o c a l
1901
IV, § 110, o f t h e Alabama
because
limitations
laws.
2004¬
distinction
law i s s i g n i f i c a n t
§§ 1 0 4 , 1 0 5 , a n d 1 0 6 , A l a . C o n s t .
Article
law."
A c t No.
on t h e
See, e.g., A r t .
( O f f . Recomp.).
Constitution
o f 1901
( O f f . R e c o m p . ) , a s a m e n d e d b y A m e n d m e n t s No. 375 a n d No. 3 9 7 ,
defines
the terms
" g e n e r a l l a w " and " l o c a l
l a w " as
follows:
"A g e n e r a l l a w i s a l a w w h i c h i n i t s t e r m s a n d
e f f e c t a p p l i e s e i t h e r t o t h e w h o l e s t a t e , o r t o one
o r more m u n i c i p a l i t i e s o f t h e s t a t e l e s s t h a n t h e
whole i n a c l a s s . A g e n e r a l law a p p l i c a b l e t o such
a c l a s s o f m u n i c i p a l i t i e s s h a l l d e f i n e t h e c l a s s on
the b a s i s of c r i t e r i a
reasonably related
to the
purpose of the law, p r o v i d e d that the l e g i s l a t u r e
may
also
e n a c t and change from t i m e t o time a
g e n e r a l s c h e d u l e o f n o t more t h a n e i g h t c l a s s e s o f
m u n i c i p a l i t i e s b a s e d on p o p u l a t i o n a c c o r d i n g t o a n y
d e s i g n a t e d f e d e r a l d e c e n n i a l census, and g e n e r a l
l a w s f o r a n y p u r p o s e may t h e r e a f t e r b e e n a c t e d f o r
any s u c h c l a s s . Any l a w h e r e t o f o r e e n a c t e d w h i c h
complies with the p r o v i s i o n s of t h i s s e c t i o n
shall
be c o n s i d e r e d a g e n e r a l l a w .
7
1071500
"No
general
law
which
at
the
time
of
its
e n a c t m e n t a p p l i e s t o o n l y one m u n i c i p a l i t y o f
the
state
shall
be
enacted,
unless
notice
of
the
i n t e n t i o n to a p p l y t h e r e f o r s h a l l have been
given
and
shown
as
provided
in
Section
106
of
this
C o n s t i t u t i o n f o r s p e c i a l , p r i v a t e or l o c a l
laws;
provided,
t h a t s u c h n o t i c e s h a l l n o t be d e e m e d t o
c o n s t i t u t e such law a l o c a l
law.
"A s p e c i a l o r p r i v a t e l a w i s one w h i c h a p p l i e s
to
an
individual,
a s s o c i a t i o n or
corporation.
A
l o c a l law i s a law w h i c h i s not a g e n e r a l law or a
s p e c i a l or p r i v a t e
law."
Alabama
law
is
well
arises
over whether a law
court
is
established
general
obligated,
Jefferson
(Ala.
2001)
503
(Ala.
1990));
Revenue
&
Road
(1935)
("We
statute
should
that
"an
see
also
firmly
not
be
reasonable
as
a
c o u n t y m u s t be
that
State
231
held
and
be
County,
ex
the
813
to
the
163
law,
and
clearly
as
intended
a local
8
562
its
act."
a
844,
So.
So.
2d
of
345,
that
348
a
i t s terms,
i t
may
be
constitutionality
Court
to
a
Board
v.
w h e r e , by
as
2d
proposition
local,
this
law
County,
21,
dispute
So.
r e l . Conrad
18,
a
i n nature,
construction,
However,
construed
read
Mobile
Ala.
to
to
fair
general
was
v.
committed
sustained.").
act
Norton
Comm'rs,
are
interpreted
thereby
(citing
"when
i s general
possible,
Densmore v.
one."
a
or
when
849
given
is local
that
has
apply
Norton,
also
warned
to
single
a
562
So.
2d
1071500
at
227
505
(citing
S o . 2 d 396
The p l a i n
a
Opinion
specific
o f t h e J u s t i c e s No. 1 9 7 , 284 A l a . 6 2 6 ,
(1969)).
language
o f A c t No. 2 0 0 4 - 3 8 2 d o e s n o t a p p l y t o
municipality;
rather,
exclusive
procedure
by w h i c h
adopt
ordinance
to create
an
2004-382 i s a g e n e r a l
concede
brief,
as much.
p. 1
1. A r t i c l e
1901
law.
the
"any C l a s s
a
BID.
Act
out
Accordingly,
A c t No.
i n a reply
reply brief
( " A c t No. 2 0 0 4 - 3 8 2 was a g e n e r a l
brief,
to the State's
law
" ) .
I V , §§ 1 0 4 , 1 0 5 , a n d 1 0 6 , A l a b a m a C o n s t i t u t i o n o f
As a g e n e r a l
l a w , A c t No. 2 0 0 4 - 3 8 2 d o e s n o t v i o l a t e A r t .
IV,
§§ 104 a n d 1 0 5 , A l a . C o n s t .
1901, because those
are
applicable only
private,
The p l a i n t i f f s
subject
the
2 m u n i c i p a l i t y " can
The p l a i n t i f f s ,
See p l a i n t i f f s '
sets
to special,
argue,
or l o c a l
sections
laws.
3
h o w e v e r , t h a t A c t No. 2 0 0 4 - 3 8 2 i s
to the notice requirements
for local
laws
s e t out i n
S e c t i o n 104 p r o v i d e s t h a t " [ t ] h e l e g i s l a t u r e s h a l l n o t
pass a s p e c i a l , p r i v a t e , o r l o c a l law i n any o f t h e f o l l o w i n g
cases
"
S e c t i o n 105 p r o v i d e s a s f o l l o w s :
3
"No s p e c i a l , p r i v a t e , o r l o c a l l a w ... s h a l l b e
enacted
i n any case w h i c h i s p r o v i d e d
f o r by a
g e n e r a l l a w , o r when t h e r e l i e f s o u g h t c a n b e g i v e n
by
any c o u r t
of this
state;
... n o r s h a l l t h e
legislature
indirectly
enact
any such
special,
p r i v a t e , or l o c a l law by t h e p a r t i a l r e p e a l o f a
general law."
9
1071500
Art.
IV,
§
106.
Article
4
one m u n i c i p a l i t y o f t h e s t a t e "
enacted unless
notice
of the
of the Alabama
40-13,
A l a . Code
clear,
however,
law under
local
Here,
applies
of
that
§ 106
law."
1975
(same).
the
"shall
A r t . IV,
the
to only
M o b i l e was
plaintiffs
Section
The
Alabama
the
sole
106
Class
as
A l a . Const.
contend
that
of
i t s
shall
required
See
also
11¬
Constitution
is
of a
general
such
law
a
1901.
Act
No.
2004-382
they argue, the
2 municipality
enacted.
within
the
Section
City
State
11-40-
follows:
"No
s p e c i a l , p r i v a t e , or l o c a l
law s h a l l
be
p a s s e d on a n y s u b j e c t n o t e n u m e r a t e d i n s e c t i o n 104
of
this
Constitution
...
unless
notice
of
the
intention
to
apply
therefore
shall
have
been
published
... i n t h e c o u n t y o r c o u n t i e s w h e r e t h e
m a t t e r o r t h i n g t o be a f f e c t e d may
be
situated,
which
notice
shall
state
the
substance
of
the
p r o p o s e d l a w a n d be p u b l i s h e d a t l e a s t o n c e a w e e k
for
four
consecutive
weeks
in
some
newspaper
published
i n such county or c o u n t i e s
The
courts s h a l l pronounce v o i d every s p e c i a l , p r i v a t e ,
o r l o c a l l a w w h i c h t h e [ l e g i s l a t i v e ] j o u r n a l s do n o t
a f f i r m a t i v e l y show was p a s s e d i n a c c o r d a n c e w i t h t h e
p r o v i s i o n s of t h i s s e c t i o n . "
10
by
§
deemed t o c o n s t i t u t e
2 0 0 4 - 3 8 2 was
p r o v i d e s as
time
for notice
one m u n i c i p a l i t y b e c a u s e ,
o f A l a b a m a when A c t No.
4
§ 110,
given
Constitution.
requirement
n o t be
the
1901,
to only
l a w was
at
Const.
applies
§ 106,
which
Ala.
enactment
IV,
law
110,
that
Art.
"general
§
provides
be
no
IV,
1071500
12(a),
A l a . Code
1975, s e t s out t h e f o l l o w i n g
classifications
for m u n i c i p a l i t i e s :
"(a) There a r e h e r e b y e s t a b l i s h e d e i g h t c l a s s e s
of
m u n i c i p a l i t i e s based
on
the
population
as
c e r t i f i e d b y t h e 1970 f e d e r a l d e c e n n i a l c e n s u s , a s
authorized
by
Amendment
No.
375
[now
§ 110],
C o n s t i t u t i o n o f A l a b a m a o f 1 9 0 1 , as f o l l o w s :
fi
" C l a s s 2:
A l lc i t i e s w i t h a p o p u l a t i o n of
n o t l e s s t h a n 175,000 a n d n o t more t h a n 299,999
inhabitants
"
The
only
determination
Class
of whether
the C i t y
2 m u n i c i p a l i t y when A c t No.
h i n g e s on w h e t h e r t h e C i t y ' s p o p u l a t i o n
federal
decennial
census.
If
decennial
census,
with
if
the
the C i t y
that
of Mobile
falls
on
w i t h i n the Class
fall
of Birmingham,
w i t h i n the Class
2
contend
classifications
must
tabulated
by
the
1970
enacted
decennial
1970
federal
i s the only m u n i c i p a l i t y
i t i s b a s e d on t h e 2 0 0 0 f e d e r a l d e c e n n i a l
the C i t y
the
i s b a s e d u p o n t h e 1970
population
i s based
was
was
federal
The p l a i n t i f f s
the
2004-382
c e n s u s o r t h e most r e c e n t
a population
of M o b i l e ,
all
the
of Mobile
2
designation;
census,
and t h e C i t y
the C i t y
of Montgomery
designation.
that
be
§ 11-40-12(a)
based
federal
11
upon
decennial
the
provides
that
population
census
and
as
that,
1071500
therefore,
the
municipalities
classifications.
whether
§
census
or
therefore,
106,
Ala.
tied
to
2004-382
to
the
most
whether Act
Const.
the
is
most
a
In
5
11-40-12(a)
cannot
this
is tied
to
recent
No.
1901,
federal
law
that
382
to the
subject
the
2004-382
enacted.
be
case,
a
1970
or
shrink
federal
i s subject
If §
decennial
applied
out
of
determination
federal decennial
m u n i c i p a l i t y when i t was
would not
into
i s unnecessary.
recent
general
grow
to
Consequently,
decennial
census
to A r t .
and,
IV,
11-40-12(a)
census,
more
§
is
Act
No.
than
one
A c t No.
notice requirements
of
of §
2004¬
106.
This
Court
has
repeatedly
stated that §
11-40-12(a)
p r o v i d e s t h a t the c l a s s i f i c a t i o n s are b a s e d upon p o p u l a t i o n s
a s c e r t i f i e d b y t h e 1970 f e d e r a l d e c e n n i a l c e n s u s .
See,
e.g..
P h a s e I I , L L C v . C i t y o f H u n t s v i l l e , 952 So. 2d 1 1 1 5 ,
1118
(Ala.
2006)
("Class
3
municipalities
are
those
having
populations
of
'not
less
than
100,000 and
not
more
than
1 7 4 , 9 9 9 i n h a b i t a n t s ' b a s e d on
the
1970
federal decennial
c e n s u s . " ( q u o t i n g § 1 1 - 4 0 - 1 2 ( a ) , A l a . Code 1 9 7 5 ) ) ; O p i n i o n o f
t h e J u s t i c e s No.
3 6 1 , 693 So. 2 d 2 1 , 22 ( A l a . 1997)
(same);
P h a l e n v . B i r m i n g h a m R a c i n g Comm'n, 481
So. 2d 1 1 0 8 ,
1114
( A l a . 1985)
( " S e c t i o n 11-40-12 d e f i n e s C l a s s I m u n i c i p a l i t i e s
... b a s e d on t h e p o p u l a t i o n a s c e r t i f i e d b y t h e 1970 f e d e r a l
decennial census.");
S i e g e l m a n v . F o l m a r , 432 So. 2 d
1246,
1249
( A l a . 1983)
( " S e c t i o n 1 1 - 4 0 - 1 2 , Code 1975,
states that
c l a s s 3 m u n i c i p a l i t i e s are a l l c i t i e s w i t h p o p u l a t i o n s of not
less
than
100,000 and
not
more t h a n
174,999 i n h a b i t a n t s
according
to
the
1970
federal
decennial
census.").
N o n e t h e l e s s , i n L i f e s t a r R e s p o n s e of A l a b a m a , I n c . v. L e m u e l ,
908
So. 2 d 207 , 219
( A l a . 2004 ) , t h i s C o u r t t o o k
judicial
n o t i c e o f t h e 2 0 0 0 f e d e r a l d e c e n n i a l c e n s u s when d e t e r m i n i n g
the p o p u l a t i o n of a m u n i c i p a l i t y f o r the purposes of m u n i c i p a l
c l a s s i f i c a t i o n under § 11-40-12(a).
5
12
1071500
Alternatively,
decennial
Act
census,
i s tied
the p l a i n t i f f s
have
t o t h e 1970
federal
not demonstrated
that
No. 2 0 0 4 - 3 8 2 v i o l a t e s § 1 0 6 .
Section
or
i f § 11-40-12(a)
local
106 r e q u i r e s
l a w "be
consecutive
weeks
that
published
notice
at
of a s p e c i a l , p r i v a t e ,
least
once
a
i n some n e w s p a p e r p u b l i s h e d "
where t h e " t h i n g t o be a f f e c t e d " i s s i t u a t e d .
Ala.
Const.
the
proposed
Court
1901.
"substance"
The
law."
has
week
"notice
shall
state
i n the county
A r t . IV, § 106,
the substance
A r t . I V , § 106, A l a . C o n s t .
recognized
the
following
of a law f o r purposes
1901.
attributes
of public
f o r four
of
of
This
the
notice:
"'(1)
The " s u b s t a n c e " means a n
intelligible
abstract
o r s y n o p s i s o f [a b i l l ' s ]
m a t e r i a l and
substantial
elements;
(2) t h e s u b s t a n c e
may
be
sufficiently
stated
without
s t a t i n g the d e t a i l s
subsidiary
to
the
stated
elements;
(3)
the
l e g i s l a t u r e may s h a p e t h e d e t a i l s o f p r o p o s e d l o c a l
l e g i s l a t i o n by amending b i l l s
when p r e s e n t e d f o r
c o n s i d e r a t i o n a n d p a s s a g e ; a n d (4) t h e s u b s t a n c e o f
t h e p r o p o s e d a c t a s a d v e r t i s e d c a n n o t be m a t e r i a l l y
changed or c o n t r a d i c t e d . ' "
Phalen
(Ala.
v.
Birmingham
1985) ( q u o t i n g
Hoadley,
414
So.
2d
Court has emphasized
all
Racing
Comm'n,
481
So.
Birmingham-Jefferson Civic
8 95,
that
8 99
( A l a . 1 982 ) ) .
"[t]he public notice
the d e t a i l s of the b i l l ,
2d
1108, 1119
C t r . Auth. v.
Further,
this
need not s t a t e
and need n o t s e t f o r t h t h e b i l l
13
1071500
in
i t s entirety."
need
only
bill's
state
This
more
the
of
C o u r t has
the
the
will
be
noted
1991)
improve
be
or
the
"notice
of
leaving
details
by
of
the
Id.
observing
i t
that
scrutinized
t h e more d e t a i l s
likely
is
that
v.
Mobile
(citations
County,
omitted).
590
Law
So.
239,
material
bill
Ass'n
242
Further,
" [ i ] f the d e t a i l s are not p u b l i s h e d but o n l y
the
general
nature
of
i t s substantive
features,
the
p u b l i c i s p u t u p o n i n q u i r y as t o s u c h d e t a i l s ,
and
b o u n d by
a failure
to inform
itself,
continuing
t h r o u g h s u c h c h a n g e s and
a m e n d m e n t s as may
stay
w i t h i n s u c h s u b s t a n t i v e f e a t u r e s as p u b l i s h e d .
But
i f the p u b l i c a t i o n g i v e s d e t a i l s , the p u b l i c need
not pursue the i n q u i r y f u r t h e r i n r e s p e c t to such
d e t a i l s ; f o r t h e i n f o r m a t i o n i s c o m p l e t e , and i t has
t h e c o n s t i t u t i o n a l r i g h t t o assume t h a t s u c h d e t a i l s
will
not
be
m a t e r i a l l y changed
throughout
the
journey
of
the
bill
to
i t s final
passage
and
approval."
14
"a
included
Enforcement
2d
may
than
f o u n d upon c o m p a r i s o n of the a d v e r t i s e d
Deputy S h e r i f f s
the
the
in a public notice
more s t r i c t l y
more
The
synopsis
process."
details
Logically,
the
1119.
elements,
beneficial
will
at
abstract
and
that
than
enacted law."
County
2d
legislative
advertisement.
Mobile
(Ala.
during
advertisement
variances
with
shape
advertisement
a general
So.
substantive
to
burdensome
detailed
481
intelligible
and
free
proposed b i l l
in
an
material
legislature
be
Phalen,
n.3
1071500
State
38
ex
r e l . W i l k i n s v . A l l e n , 219
Ala.
590,
593,
123
So.
36,
(1929).
The
published
legal notice
of Act
No.
2004-382 s t a t e d
as
follows:
"STATE OF ALABAMA
COUNTY OF M O B I L E
"Notice
i s hereby given that a b i l l
as
described
b e l o w w i l l be
introduced
b y SENATOR V I V I A N D A V I S
FIGURES i n t h e u p c o m i n g 2004 R e g u l a r S e s s i o n , o r any
special
session
i n 2004,
of
the
Legislature
of
Alabama
and
application
for
its
passage
and
e n a c t m e n t w i l l be made:
"A B I L L TO
E N T I T L E D AN
BE
ACT
"SYNOPSIS:
R e l a t i n g to Class 2 M u n i c i p a l i t i e s ; to
p r o v i d e p r o c e d u r e s f o r any C l a s s 2 m u n i c i p a l i t y t o
e s t a b l i s h one o r m o r e s e l f - h e l p b u s i n e s s i m p r o v e m e n t
districts
to
provide
supplemental
services;
to
p r o v i d e f o r the management, o p e r a t i o n , p o w e r s ,
and
d u t i e s of the d i s t r i c t s , i n c l u d i n g the c r e a t i o n of
n o n p r o f i t c o r p o r a t i o n s t o manage t h e d i s t r i c t s ;
to
p r o v i d e c e r t a i n r e q u i r e d p r o v i s i o n s i n the a r t i c l e s
of
incorporation
of
district
management
corporations;
to
provide
for
d i s s o l u t i o n of
a
d i s t r i c t and w i t h d r a w a l o f a n o n p r o f i t
corporation's
designation
as a d i s t r i c t m a n a g e m e n t
corporation;
and t o p r o v i d e t h a t d i s t r i c t management c o r p o r a t i o n s
s h a l l h a v e no p o w e r o f e m i n e n t d o m a i n . "
The
detail
the
plaintiffs
as
not
bill's
to
be
argue t h a t
an
material
this
notice
'intelligible
elements.'"
15
was
abstract
Deputy
"so
or
lacking
synopsis
Sheriffs
in
of
Law
1071500
Enforcement Ass'n of Mobile
Phalen,
481
plaintiffs
So.
provided
by a C l a s s
that
w i t h i n t h e BID s h a l l
we
noted
legislature
at 1017.
upon
be f i n a n c e d
the
property
owners
i n the standard
of
statutes
provisions
so
as
to
services
i n t h e BID.
review,
"acts
Morton,
avoid
955 S o . 2 d
conflicts
( A l a . 2005)
267 A l a . 4 9 5 , 5 0 5 , 103 S o . 2 d 1 9 , 27
of the
"we a r e o b l i g e d
i f possible." City
L L C , 931 S o . 2 d 6 9 7 , 701
a BID
through the levy of
Alabama law i s w e l l e s t a b l i s h e d t h a t
constitutional
Todd,
way,
of the supplemental
a r e presumed c o n s t i t u t i o n a l . "
construe
Bharat,
another
2 municipality to create
a l l costs
a s p e c i a l assessment
to
Stated
i t s e l f because the n o t i c e f a i l e d t o reference
adopted
provide
As
1119).
p r o v i s i o n s o f t h e A c t , s u c h as t h e p r o v i s i o n t h a t an
ordinance
shall
at
(quoting
argue t h a t the p u b l i c n o t i c e m a t e r i a l l y v a r i e d from
A c t No. 2 0 0 4 - 3 8 2
specific
2d
C o u n t y , 590 S o . 2 d a t 242
with
o f Homewood
(citing
(1957)).
James
v.
v.
See a l s o
A l a b a m a S t a t e F e d ' n o f L a b o r v . M c A d o r y , 2 4 6 A l a . 1, 9, 18 S o .
2d
of
8 1 0 , 815
a
(1944)
legislative
question with every
validity,
and seek
("[I]n passing
a c t , the
upon
courts
the c o n s t i t u t i o n a l i t y
uniformly
approach
the
p r e s u m p t i o n and intendment i n f a v o r of i t s
to sustain
16
rather
than
strike
down t h e
1071500
enactment
of
a
coordinate
Moreover,
"[t]he
to
uphold
legislation,
a
finding
enacted
that
law
clear
the
Enforcement Ass'n
Applying
notice
of
that
106.
Act
The
of
See
owners
and
No.
than
Act
the
of
real
a
the
BID
are
not
the
Act.
levy
w i t h i n the
a
We
we
met
No.
BID.
variance"
590
the
So.
The
that
assessment
No.
17
at
242.
that
the
the
substance
requirements
§
representative
a geographic
exclusive
create
of Act
be
No.
in
2004-382
owners
of
the
to
public
substance
itself
real
2004-382 p r o v i d e s
2004-382
follow
s u b s i d i a r y to the
No.
so
districts.
must
included
area
procedures
such
municipality
upon
of
BIDs, i f a
to
Act
public
authorization
the
to
Law
i s the
provisions
a
2d
the
Sheriffs
stated
notice
within
of
between
Deputy
2004-382
required
Rather, Act
of
conclude
follow
procedures
special
i t down b e c a u s e
sufficiently
property
emphasize
be
bill.
n o t i c e because such p r o v i s i o n s are
of
seems t o
material
establishment
not
government.").
strike
County,
therefore,
of
the
modern c a s e s
our
standards,
2 0 0 4 - 3 8 2 , § 3.
detail
create
Mobile
2 m u n i c i p a l i t i e s must
Act
that
a
of
2 m u n i c i p a l i t i e s to create
request,
Class
and,
was
2004-382
substance
for Class
group
of
No.
of
advertised
these
of Act
trend
rather
there
and
branch
does
property
that
owners
1071500
of
real
plan
property
to
the
who
governing
further provides
the
desire
special
assessment
further
hearing
on
be
d e t a i l s that
ordinance
provide
in
the
BID
BID
shall
of
In s h o r t ,
was
stated
of
entirety."
must
above,
the
the
bill,
§
481
burden of
submit
and
that
such
amount o f
Act
has
supplemental
the
2004-382
held
a
then
may
an
No.
of
public
adopt
ordinance
an
shall
provided
the
through
services
by
levy
the
assessment.
details
the
to
of
substance of Act
need
So.
the
create,
public
and
BID
the
5.
a r t i c u l a t e d i n the
"[t]he
a
municipality
2
determine
financed
follow
Phalen,
their
to
and
of
may
shall include a "description
conclude that
specific
municipality
details
we
Class
municipality
BID
a special
a BID
a municipality
the
be
sufficiently
including
As
a
a
levied."
after
plan,
create
of
used
be
a l l costs
municipality
382
to
creating
that
body
t h a t the p l a n
method w h i c h w i l l
a
to
fund,
set
at
1119.
demonstrating
and
met
No.
2004-382 v i o l a t e d A r t .
of
We p r e t e r m i t a n y d i s c u s s i o n o f w h e t h e r t h e
Ordinance
no.
50-39-2005 v i o l a t e d §
106
6
18
§
106,
Ala.
bill
a
the
a l l the
in i t s
have
passage of
Const.
2
BID.
plaintiffs
not
IV,
that
Class
state
f o r t h the
The
a
2004¬
without
operate
need not
not
2d
public notice
procedures
notice
No.
1901.
Act
6
public notice
because
the
1071500
2.
Article
The
the
Alabama
next
single-subject
"[e]ach
law
45
in
that
same w o u l d n o t
S m i t h v.
(Ala.
of
be
505
(quoting
This
Bd.
2004-382
IV,
45
title
not
the
be
or
Court
has
of
requires
has
the
455
the
that
clearly
stated
person
purpose of
of A n d a l u s i a ,
This
45,
violates
'so m i s l e a d i n g
A l a b a m a E d u c . A s s ' n v.
(Ala. 1980)).
§
Court
legislator
informed of
Dev.
Art.
1901
subject, which s h a l l
"
average
No.
Section
one
o n l y t h a t the
the
of
1901.
its title
Industrial
1984)
501,
argue t h a t Act
s h a l l c o n t a i n but
requires
uncertain
C o n s t i t u t i o n of
requirement
Constitution
expressed
"[§]
2d
§ 45,
plaintiffs
Alabama
be
IV,
reading
that
and
the
enactment.'"
So.
2d
Grayson,
further
839,
841
382
So.
advised:
"'Section
45
...
should
be
liberally
and
reasonably
construed
to permit the l e g i s l a t u r e
to
operate
without
undue
strictures
on
its
prerogatives.
I t s h o u l d n o t be e x a c t i n g l y e n f o r c e d
to c r i p p l e l e g i s l a t i o n .
I t s purpose i s to prevent
f r a u d a n d s u r p r i s e on t h e l e g i s l a t u r e b y p r o h i b i t i n g
measures i n a b i l l not r e f l e c t e d i n i t s t i t l e .
This
purpose i s served
so l o n g as t h e
subject
matter
i n c l u d e d i n the b i l l i s germane t o , c o g n a t e w i t h , or
complementary to the i d e a e x p r e s s e d i n the t i t l e . ' "
Board
956
of
So.
Water
2d
plaintiffs
&
403,
d i d not
Sewer
415
Comm'rs o f
(Ala.
assert
2006)
such
19
City
of
Mobile
(quoting
a claim
i n the
v.
Opinion
trial
Hunter,
of
the
court.
1071500
Justices
No.
307,
449
of
So.
Act
2d
237,
238
( A l a . 1984)
No.
2004-382 p r o v i d e s
(citations
omitted)).
The
title
as
follows:
" R e l a t i n g to Class 2 m u n i c i p a l i t i e s ; to provide
p r o c e d u r e s f o r any C l a s s 2 m u n i c i p a l i t y t o e s t a b l i s h
one o r more s e l f - h e l p b u s i n e s s i m p r o v e m e n t d i s t r i c t s
to p r o v i d e s u p p l e m e n t a l s e r v i c e s ; to p r o v i d e f o r the
management, o p e r a t i o n ,
p o w e r s , and
d u t i e s of
the
districts,
including
the
creation
of
nonprofit
corporations
t o manage t h e
districts;
to
provide
certain
required
provisions
in
the
articles
of
i n c o r p o r a t i o n o f d i s t r i c t management
corporations;
to
provide
for
d i s s o l u t i o n of
a
district
and
w i t h d r a w a l of a n o n p r o f i t c o r p o r a t i o n ' s
designation
as a d i s t r i c t m a n a g e m e n t c o r p o r a t i o n ; a n d t o p r o v i d e
t h a t d i s t r i c t m a n a g e m e n t c o r p o r a t i o n s s h a l l h a v e no
power of eminent domain."
The
plaintiffs
contend that
provide
notice
against
property
the
title
could
i s so
of
Again
of
applying
the
have
broad
the
an
this
demonstrated
that
Act
requirement
of
Act
No.
No.
s u b j e c t — e s t a b l i s h i n g the
or
that
legislator
2004-382.
of
that
2004-382
Act
to
assessments
review
its liberal
conclude
failed
generally,
standard
§ 45.
20
and,
average person
as w e l l as
we
special
BID
Court's
§ 45,
impermissibly
of
the
e f f e c t of
of
single-subject
one
fund
that
challenges
requirements
not
to
unclear
understand
title
possibility
owners
not
constitutional
the
the
No.
for
construction
the
plaintiffs
violates
the
2004-382 has
but
exclusive
procedures
for
1071500
Class
2
municipalities
maintain
adopt
B I D s — a n d the t i t l e
the
21
sections
and
i t i s unreasonable
section.
to
o f A c t No.
ordinances
reflects
to require
create
and
subject.
Each of
r e l a t e to this
2004-382
this
to
subject,
that
the t i t l e
detail
each
7
3. The M u n i c i p a l P u b l i c I m p r o v e m e n t A c t , A l a . C o d e 1 9 7 5 , § 1 1 ¬
48-1 e t s e q . , and t h e A l a b a m a I m p r o v e m e n t D i s t r i c t A c t , A l a .
Code 1975, § 11-99A-1 e t s e q .
The
plaintiffs
Ordinance
say,
they
Public
the
no.
with
Improvement
seq.
the
This
that
Act
No.
2004-382
and
are u n c o n s t i t u t i o n a l because,
various
plaintiffs
subsumed
by
District
argument
O r d i n a n c e no. 50-39-2005
are
argue
sections
of
the
they
Municipal
I m p r o v e m e n t A c t , A l a . Code 1975, § 11-48-1 e t s e q . , and
et
First,
50-39-2005
conflict
Alabama
99A-1
next
general
A c t , A l a . Code
i s based
contend
that
on
Act
two
No.
1975,
such
as
2004-382
and
laws
the Municipal
that
Public
Improvement A c t and t h e Alabama Improvement D i s t r i c t A c t .
Art.
IV, § 105, A l a . C o n s t .
be e n a c t e d
1901
("No
...
i n any c a s e w h i c h i s p r o v i d e d
local
11-
rationales.
s h o u l d be t r e a t e d as l o c a l
acts
§
l a w ...
See
shall
f o r by a g e n e r a l
law
B e c a u s e we
c o n c l u d e t h a t A c t No.
2004-382
does not
v i o l a t e § 4 5 , we p r e t e r m i t
any d i s c u s s i o n o f w h e t h e r t h e
codification
o f A c t No.
2004-382
cured
any
legislative
infirmities.
S e e , e . g . , D e n s m o r e , 813 S o . 2 d a t 8 5 0 .
7
21
1071500
....").
fails
also
because,
general
of
See
§ 1 1 - 4 5 - 1 , A l a . Code
as
discussed
law r e g a r d l e s s
Mobile
when i t was
Second,
Ordinance
Act
This
8
No.
of whether i t a p p l i e d
argument
2004-382
only
is a
to the C i t y
enacted.
the p l a i n t i f f s
no.
above,
1975.
50-39-2005
contend
conflict
that
with
A c t No.
2004-382
the Municipal
and
Public
Improvement A c t and t h e Alabama Improvement D i s t r i c t A c t , and,
therefore,
violate
89 p r o v i d e s
that
authorize
any
inconsistent
A r t . I V , § 89, A l a . C o n s t .
"[t]he
legislature
municipal
with
the
shall
corporation
general
laws
Section
not have
to
of
1901.
pass
power
laws
state."
this
any
This
a r g u m e n t a l s o f a i l s b e c a u s e A c t No. 2 0 0 4 - 3 8 2 a n d O r d i n a n c e
50-39-2005 a r e s e p a r a t e and d i s t i n c t
from the M u n i c i p a l
2004-382
8
Section
provides
the
"exclusive
1 1 - 4 5 - 1 , A l a . Code
procedure
1975, p r o v i d e s
as
by
Act
which
follows:
" M u n i c i p a l c o r p o r a t i o n s may f r o m t i m e t o t i m e
adopt o r d i n a n c e s and r e s o l u t i o n s n o t i n c o n s i s t e n t
w i t h the laws of the s t a t e to c a r r y i n t o e f f e c t or
discharge
t h e powers and d u t i e s c o n f e r r e d
by t h e
a p p l i c a b l e p r o v i s i o n s o f t h i s t i t l e and any
other
a p p l i c a b l e p r o v i s i o n s o f law and t o p r o v i d e f o r t h e
s a f e t y , p r e s e r v e the h e a l t h , promote the p r o s p e r i t y ,
and
improve
the
morals,
order,
comfort,
and
convenience of the i n h a b i t a n t s of the m u n i c i p a l i t y ,
a n d may e n f o r c e o b e d i e n c e t o s u c h
ordinances."
22
no.
Public
Improvement A c t and t h e Alabama Improvement D i s t r i c t A c t .
No.
to
a
1071500
Class
2
municipality
business
may
improvement
create
§
provides
3.
However,
procedures
public,
and
by
support
of
District
Act
controlling
It
i s the
Improvement
may
f o r the purpose of b e n e f i t i n g the
Improvement
have not c i t e d
that
the
Municipal
Improvement
Improvement
over other
general
l a w s s u c h a s A c t No.
2004-382.
appellant's
burden
to
to
requires
that
"citations
...
have s t a t e d t h a t
78
any a u t h o r i t y i n
Alabama
refer
the argument
party's
Act
the
App.
authorities
District
connections.
i t s argument.
include
of
Act
a u t h o r i t y that supports
P.,
range
improvements to s t r e e t s , sewers, water
argument
and
a
any m u n i c i p a l i t y o r c o u n t y
the p l a i n t i f f s
the
self-help
District
the Municipal
gas m a i n s , and s e r v i c e
Moreover,
a
on p r o m o t i n g e c o n o m i c g r o w t h i n
which
concerns only municipal
and
provide
the Alabama
c r e a t e improvement d i s t r i c t s
general
maintain
to
district"
supplemental services focused
BIDs.
and
to
relied
on."
cases,
this
(citing
Act
Court
Rule 28(a)(10),
i n an
statutes,
Consistent
with
A l a . R.
[and]
Rule
brief
other
28,
court
are
legal
appellant's
i t i s not the f u n c t i o n of t h i s
legal research."
( A l a . 1992)
the
District
"[w]e
t o do a
S p r a d l i n v . S p r a d l i n , 601 S o . 2 d 7 6 ,
H e n d e r s o n v. Alabama A
23
& M Univ.,
483
1071500
So.
2d
cite
392,
392
( A l a . 1986)).
"When
an
appellant
a n y a u t h o r i t y f o r an a r g u m e n t on a p a r t i c u l a r
Court
may
neither
affirm
this
appellant's
Realty
the
judgment
Court's
legal
I n v . Co.,
duty
So.
2005
that
A c t No.
impermissibly
Improvement
will
not
issue,
to
752
2004-382
trial
to
this
for i t is
perform
an
Business
( A l a . 1998).
h a v e c i t e d no l e g a l a u t h o r i t y
conflict
the
that
issue,
C i t y o f B i r m i n g h a m v.
and
with
A c t and t h e Alabama
reverse
to
i t s function
2d 747,
Because the p l a i n t i f f s
demonstrates
nor
research."
722
as
fails
Ordinance
the
50-39¬
Municipal
Public
District
A c t , we
Improvement
court's
no.
that
judgment
as
to
these
issues.
4.
Competitive-Bid
The p l a i n t i f f s
agreement"
and
the
void
entered
Downtown
because,
provisions
Code
1975.
Laws
f u r t h e r argue that the " b a s e - l i n e - s e r v i c e s
i n t o by t h e d e f e n d a n t s
Mobile
they
argue,
i t
Mobile
Management
Corporation
is
violates
competitive-bid
s e t o u t i n §§ 3 9 - 2 - 2 , 4 1 - 1 6 - 5 0 , a n d 1 1 - 9 9 A - 1 2 , A l a .
9
Section 39-2-2(a),
part:
"Before e n t e r i n g
involving
an amount i
($50,000), the awarding
9
District
the C i t y of
A l a . Code 1975, p r o v i d e s , i n p e r t i n e n t
i n t o any c o n t r a c t f o r a p u b l i c works
n excess
of f i f t y
thousand d o l l a r s
authority shall advertise f o r sealed
24
1071500
bids."
Section
pertinent part:
41-16-50,
A l a . Code
1975, p r o v i d e s ,
in
" [ A ] l l expenditure of funds of whatever nature f o r
labor,
services,
work,
or f o r the purchase of
m a t e r i a l s , equipment, s u p p l i e s , or other
personal
property
involving
fifteen
thousand
dollars
($15,000)
o r more, and t h e l e a s e
of materials,
equipment,
supplies,
or other
personal
property
where
the lessee
i s , o r becomes
legally
and
c o n t r a c t u a l l y , bound under t h e terms o f t h e l e a s e ,
t o p a y a t o t a l amount o f f i f t e e n t h o u s a n d d o l l a r s
( $ 1 5 , 0 0 0 ) o r m o r e , made b y o r o n b e h a l f o f a n y s t a t e
trade school, state j u n i o r college, state college,
or u n i v e r s i t y under t h e s u p e r v i s i o n and c o n t r o l o f
the State Board o f E d u c a t i o n , t h e c i t y and county
boards
of
education,
the d i s t r i c t
boards
of
education
of independent
school
districts,
the
county commissions,
the governing bodies
of the
municipalities
of the state,
and t h e g o v e r n i n g
boards
of
instrumentalities
of
counties
and
m u n i c i p a l i t i e s , i n c l u d i n g waterworks b o a r d s , sewer
boards, gas boards, and o t h e r l i k e u t i l i t y
boards
and
c o m m i s s i o n s , e x c e p t as h e r e i n a f t e r
provided,
s h a l l b e made u n d e r c o n t r a c t u a l a g r e e m e n t e n t e r e d
i n t o b y f r e e a n d o p e n c o m p e t i t i v e b i d d i n g , on s e a l e d
bids, to the lowest responsible
bidder."
Section
part:
11-99A-12,
A l a . Code
1975, p r o v i d e s ,
in
pertinent
"Upon t h e m a k i n g o f t h e p r e l i m i n a r y a s s e s s m e n t ,
the
board
shall
prepare
contracts
and b i d
s p e c i f i c a t i o n s , and s h a l l b i d o r o t h e r w i s e c o n t r a c t
for the a c q u i s i t i o n , construction, or i n s t a l l a t i o n
of
a l l the improvements
as
specified
i n the
p e t i t i o n . I n g e n e r a l , a l l c o n t r a c t s s h a l l be b i d i n
a c c o r d a n c e w i t h a p p l i c a b l e s t a t e l a w . However, i f
an i m p r o v e m e n t o r a p o r t i o n o f a n i m p r o v e m e n t i s t o
be p a i d f o r e x c l u s i v e l y w i t h f u n d s p r o v i d e d
through
a s s e s s m e n t s under t h i s c h a p t e r o r by t h e owners o r
25
1071500
The
term
"base-line-services
O r d i n a n c e no. 50-39-2005
agreement"
is
defined
as " t h e c o n t r a c t b e t w e e n t h e C i t y
the
[Downtown M o b i l e D i s t r i c t Management] C o r p o r a t i o n
out
the
City
services
that
will
be
provided
and by t h e C o r p o r a t i o n . "
authorizes
the
execution
i n the
Section
of
such
an
agreement
Class
2 m u n i c i p a l i t y and t h e d i s t r i c t - m a n a g e m e n t
which
i s defined
i n A c t No.
2004-382
as
C h a p t e r 3A,
by
of T i t l e
ordinance
self-help
The
by
the
business
competitive
incorporated
improvement
plaintiffs
agreement v i o l a t e s
for
10, Code o f A l a b a m a
contend
these
bid."
the
brief,
created
designated
to
manage
a
base-line-services
pp.
not put out
65-66.
on b e h a l f o f t h e o w n e r s , a n d n o t f r o m a n y r e v e n u e s ,
taxes, or funds of the a p p o i n t i n g government, the
c o n t r a c t i n g f o r the a c q u i s i t i o n , c o n s t r u c t i o n , or
i n s t a l l a t i o n of the improvement or p o r t i o n
thereof
shall
be
exempt
from
a l l laws
relating
to the
a d v e r t i s i n g and award o f c o n s t r u c t i o n c o n t r a c t s and
purchase contracts, i n c l u d i n g , without
limitation,
T i t l e 39 a n d A r t i c l e 3 o f C h a p t e r 16 o f T i t l e 4 1 ,
a n d s h a l l be p e r f o r m e d i n t h e s o l e d i s c r e t i o n o f t h e
b o a r d . A l l c o n t r a c t s a n d b i d s s h a l l be
contingent
upon
the issuance
of a f i n a l
assessment by t h e
a p p o i n t i n g g o v e r n m e n t as h e r e i n a f t e r
provided."
26
Act,
§ 2(1).
s t a t u t e s b e c a u s e i t "was
Plaintiffs'
any
corporation,
1975, and
district."
that
between
Corporation
municipality
the
2004-382
"[a]n entity
by i n c o r p o r a t i o n under t h e Alabama N o n p r o f i t
and
setting
[BID] by
7 o f A c t No.
in
The
1071500
plaintiffs
make
11-99A-12, and
382
and
bare-bones
no.
Alabama,
Mobile
County,
provide
2004-382
expressly
supplemental
no
services
municipality
the
a
s h a l l be
special
real
property
district."
§
The
8
plaintiffs
argument,
the
of
provided
as
11-99A-12,
assessment
and
No.
2004-382.
We
f u n c t i o n of t h i s
court
28,
cannot
legal
create
undelineated
general
No.
of
the
business
l e v y by
owners
the
of
geographical
any
A l a . R.
set
39-2-2,
t o do
costs
the
presented
Rule
again
and A c t
self-help
on
The
the
area
added).
not
p r o c e d u r e " f o r t h e c r e a t i o n and
Act
a
State
Mobile.
f i n a n c e d through the
competitive-bid provisions
41-16-50,
Mobile
of
" a l l
in
(emphasis
r e q u i r e d by
2004¬
funds from the
l o c a t e d w i t h i n the
have
No.
contention,
that
41-16-50,
Downtown
City
for this
provides
improvement d i s t r i c t
nonexempt
support
the
§§
to Act
the
receives
and
that
apply
50-39-2005 because
Management C o r p o r a t i o n
plaintiffs
of
contention
3 9 - 2 - 2 , A l a . Code 1975,
Ordinance
District
of
the
authority
App.
P.,
out
at A l a .
should
trump
as
to
why
1975,
Code
the
§§
"exclusive
maintenance of BIDs s e t out
emphasize
a party's
arguments
that
legal
for
a
in
" i t is
not
the
research"
and
"we
based
on
party
p r o p o s i t i o n s u n s u p p o r t e d by
27
or
a u t h o r i t y or
1071500
argument."
Spradlin,
plaintiffs
have not
601
So.
2d
demonstrated
at
78.
that
the
a g r e e m e n t v i o l a t e s A l a . Code 1975,
Accordingly,
the
base-line-services
§ 39-2-2, § 41-16-50, or §
11-99A-12.
5.
Article
IV,
Lastly,
§ 223,
the
Alabama
plaintiffs
Constitution
argue
2005 v i o l a t e s A r t i c l e
X I I , § 223,
of
provides
1901.
Section
223
that
of
1901
Ordinance
of the Alabama
as
no.
50-39¬
Constitution
follows:
"No c i t y , t o w n , o r o t h e r m u n i c i p a l i t y s h a l l make
any a s s e s s m e n t f o r t h e c o s t o f s i d e w a l k s
or s t r e e t
p a v i n g , o r f o r t h e c o s t o f t h e c o n s t r u c t i o n o f any
s e w e r s a g a i n s t p r o p e r t y a b u t t i n g on s u c h s t r e e t o r
sidewalk
so p a v e d , o r d r a i n e d by s u c h s e w e r s , i n
excess of the i n c r e a s e d value of such p r o p e r t y
by
reason of the s p e c i a l b e n e f i t s d e r i v e d
from such
improvements."
The
plaintiffs
"fatal
for
conflict
a perpetual,
argue
with
that
...
Ordinance
§ 223
no.
i n that
the ordinance
permanent annual m u n i c i p a l
any c o r r e l a t i o n t o any f i n a l a s s e s s m e n t ,
increase
of
property
assessment."
plaintiffs
that
§
required
223
by
value
is
Rule
again
28,
brief,
failed
applicable
assessment
to
to
A l a . R.
p.
cite
28
P.
to
68.
any
Ordinance
App.
is
the
without
no.
any
municipal
However,
authority
in
provides
or c o r r e l a t i o n to
attributable
Plaintiffs'
have
50-39-2005
the
showing
50-39-2005,
as
1071500
By
the
i t sexpress
costs
of
terms,
relates
to assessments f o r
street
sidewalks,
§ 223
paving,
and
O r d i n a n c e no. 50-39-2005 " i m p o s e [ s ]
the
owners
finance
of the r e a l
the cost
property
while
assessment
a special
sewers,
upon
l o c a t e d w i t h i n t h e [BID] t o
of the supplemental
services
p r o v i d e d by t h e D i s t r i c t Management C o r p o r a t i o n
The
ordinance
that
will
i n the [BID]."
broadly defines the term "supplemental
as
" [ t ] h e p r o g r a m s a n d s e r v i c e s t o be p r o v i d e d
and
by
the Corporation w i t h i n the [BID]."
Although
may i n c l u d e m a i n t e n a n c e o f s i d e w a l k s ,
streets,
services"
those
special
assessment
collection,
litter
also
and
businesses
review
the
i n the d i s t r i c t .
of a c o n s t i t u t i o n a l
conclude
that
demonstrating
XII,
funds
Again
challenge
the p l a i n t i f f s
that
Ordinance
maintained
services
and sewers, t h e
safety-prevention
recruitment
have
and
applying
programs,
retention
of
our standard
of
to a l e g i s l a t i v e
n o t met
be
their
act,
we
burden
of
no. 50-39-2005 v i o l a t e s
Article
§ 223, A l a . Const. 1901.
Conclusion
For
of
the foregoing
t h e Downtown
City
of Mobile,
Mobile
reasons,
t h e summary j u d g m e n t
District
and t h e S t a t e
Management
of Alabama
29
i n favor
Corporation,
i s affirmed.
the
1071500
AFFIRMED.
Cobb, C . J . , and L y o n s ,
JJ.,
Woodall,
Stuart,
concur.
Parker
and Murdock, J J . , d i s s e n t .
30
Bolin,
a n d Shaw,
1071500
MURDOCK, J u s t i c e
As
1901,
t h e main
requires
"shall
state
.
As
that
that
includes
(quoting
1108,
of the proposed
opinion
further
Phalen
1119
A c t No. 2 0 0 4 - 3 8 2
(Ala.
Civic
1985),
Ctr. Auth.
Because
Court
or synopsis
o f [a
So. 3d
Comm'n, 4 8 1 S o .
i n
v. Hoadley,
the City
has
of a proposed
quoting
I believe
authorizing
improvement d i s t r i c t
that
turn
414 S o . 2 d
the provisions
of Mobile
to levy
owners t o fund t h e s e l f - h e l p
a t i s s u e was a m a t e r i a l
element
a n d b e c a u s e t h e a d v e r t i s e m e n t o f A c t No. 2 0 0 4 - 3 8 2
no
reference
to
that
dissent.
Parker,
So. 3d a t
this
of the "substance"
s p e c i a l a s s e s s m e n t s upon p r o p e r t y
contained
law."
v. Birmingham Racing
899 ( A l a . 1 9 8 2 ) ) .
of t h a t A c t ,
i t i s applicable
notes,
abstract
Const.
and s u b s t a n t i a l elements
Birmingham-Jefferson
business
IV, § 106, A l a .
to which
"'"an i n t e l l i g i b l e
at
of
Art.
any n o t i c e
a statement
material
895,
notes,
the substance
bill's]
2d
opinion
t h e main
recognized
law
(dissenting).
J.,
concurs.
31
element,
I
respectfully
