Bandy v. City of Birmingham
Annotate this Case
Justia Opinion Summary
Want to stay in the know about new opinions from the Supreme Court of Alabama?
Sign up for free summaries delivered directly to your inbox. Learn More ›
You already receive new opinion summaries from Supreme Court of Alabama. Did you know we offer summary newsletters for even more practice areas and jurisdictions? Explore them here.
Plaintiffs Leroy Bandy and David Russell appealed a circuit court judgment in favor of the City of Birmingham. In 2009, Plaintiffs challenged the results of the City Council and Board of Education elections on the basis that a change in a local ordinance governing the election was unconstitutional. Plaintiffs argued that only the legislature could make changes to the local laws pertaining to elections. Plaintiffs sought an injunction to prevent the swearing in of the newly elected council members. The issue before the Supreme Court was whether the City had the authority to change its election procedure by ordinance rather than through the state legislature. Upon careful consideration of the briefs submitted and the applicable legal authority, the Supreme Court found that the trial court properly entered its judgment in favor of the City. The Court affirmed the trial court’s decision.
Download PDF
REL:06/17/2011 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 ((334) 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, 2010-2011 1091412 L e r o y Bandy and D a v i d Russell v. City Appeal WISE, Justice. The in Jefferson Circuit (CV-09-3471) Court 1 plaintiffs, f r o m a summary from o f Birmingham Leroy Bandy and David Russell, appeal judgment e n t e r e d by t h e J e f f e r s o n C i r c u i t favor of theC i t y of Birmingham ("the C i t y " ) . We Court affirm. T h i s c a s e was o r i g i n a l l y a s s i g n e d t o a n o t h e r J u s t i c e on t h i s Court. I t was r e a s s i g n e d t o J u s t i c e W i s e on J a n u a r y 2 6 , 2011. 1 1091412 Facts In No. 2009, 09-36, w h i c h elections of sixth the first Roderick Royal runoff On the general city Ordinance general Tuesday in and the board the third were after in a runoff seat the and the candidates adoption against and runoff city August Russell held the Mayor-Council City Act lost Act. prevent Circuit Council the basis 1955, and that, had of incumbent to Royal Russell in Act. No. Alabama The plaintiffs swearing 2 the of Board of adopting 452, Ala. Legislature in results Birmingham by also of ("the Court a " V e r i f i e d unilaterally the the and Relief," challenging allegedly of Bandy Jefferson City on petitioning Mayor-Council 2009, Injunctive elections to the c o u n c i l , and council i n the Birmingham relief city Bandy and 24, the without of adopted election. for 09-36, dates B a n d y was a Complaint No. Council election 09-36. plaintiffs") filed Education City fourth thereafter. for History s e c o n d T u e s d a y i n O c t o b e r and to November 2009 the mayor, the thereafter O r d i n a n c e No. the changed from the Tuesday Procedural Birmingham f o r the education Tuesday in the and to sought the Ordinance changed Acts the 1955, amend the injunctive newly elected 1091412 Birmingham hearing City on Council the request December 11, 2009. for a summary stipulation summary The that of the members. for a The court preliminary The C i t y t h e n f i l e d a m o t i o n judgment; the parties o f f a c t s ; and t h e p l a i n t i f f s injunction a on to dismiss or submitted filed ordered a a motion joint fora judgment. parties agreed that t h e f a c t s were n o t i n d i s p u t e and the only question f o r the t r i a l the law to the f a c t s . following Facts" trial Counsel "Plaintiffs' f o r the t r i a l court: c o u r t was t h e a p p l i c a t i o n f o r the p l a i n t i f f s Statement of Undisputed prepared Material 2 " ( 1 ) The A l a b a m a M a y o r - C o u n c i l A c t , A c t No. 5 5 - 4 5 2 , was a p p r o v e d b y t h e A l a b a m a l e g i s l a t u r e on S e p t e m b e r 9, 1 9 5 5 . ... "(2) On September 6, 1961, the Alabama l e g i s l a t u r e a d o p t e d A c t No. 6 1 - 6 6 3 . ... T h i s A c t sets f o r t h the requirements f o r municipal e l e c t i o n laws. ... T h e s e p r o v i s i o n s a r e now c o d i f i e d i n A r t i c l e 2, C h a p t e r 4 6 o f T i t l e 1 1 , A l a . C o d e , 1 9 7 5 . Class 1 municipalities are excluded from the p r o v i s i o n s o f t h a t A c t . (See § 11-46-20, A l a . Code, 1975). " ( 3 ) As o f 1963, t h e c i t i z e n s o f Birmingham a d o p t e d t h e M a y o r - C o u n c i l f o r m o f g o v e r n m e n t . ... Counsel f o r the C i t y also prepared "Joint Stipulated Facts." The " J o i n t S t i p u l a t e d F a c t s " p r e p a r e d b y t h e C i t y does n o t d i f f e r i n any m a t e r i a l r e s p e c t s from t h e " P l a i n t i f f s ' Statement of Undisputed M a t e r i a l Facts." 2 3 1091412 The first thereafter. city ... council and mayor are elected "(4) The City o f B i r m i n g h a m has more than 3 0 0 , 0 0 0 i n h a b i t a n t s a s o f t h e 1970 F e d e r a l decennial census. Birmingham therefore i s c l a s s i f i e d as a Class 1 municipality. Birmingham remains a Class 1 m u n i c i p a l i t y t o d a y . ... "(5) I n M a r c h 1980, t h e Alabama l e g i s l a t u r e a p p r o v e s A c t No. 8 0 - 9 4 . ... T h i s A c t amends v a r i o u s p r o v i s i o n s o f t h e Code o f A l a b a m a ' s o as t o c h a n g e a n d s e t new d a t e s f o r m u n i c i p a l e l e c t i o n s c o n d u c t e d under the p r o v i s i o n s o f A r t i c l e 2, C h a p t e r 46 o f T i t l e 1 1 , C o d e o f A l a b a m a , 1975 ' " ( 6 ) On A p r i l 1 8 , 1 9 8 0 , t h e A l a b a m a l e g i s l a t u r e a p p r o v e d A c t No. 80-243. ... A c t . No. 80-243 i s c o d i f i e d at § 1 1 - 4 6 - 5 , i n A r t i c l e 1, C h a p t e r 46 o f T i t l e 1 1 , A l a . C o d e , 1 9 7 5 . ... "(7) I n 1982, t h e Alabama l e g i s l a t u r e a p p r o v e d A c t No. 8 2 - 4 5 8 . ... A c t No. 8 2 - 4 5 8 a m e n d e d A l a . C o d e § 1 1 - 4 6 - 2 0 . ... A c t No. 8 2 - 4 5 8 p r o v i d e d ' G e n e r a l a n d s p e c i a l e l e c t i o n s i n c i t i e s and towns o f t h i s s t a t e , in a l l m u n i c i p a l i t i e s except Class 1 m u n i c i p a l i t i e s and except cities and towns organized under a commission f o r m o f g o v e r n m e n t , s h a l l be h e l d and c o n d u c t e d a t t h e t i m e s and i n t h e manner p r e s c r i b e d in this article ' "(8) I n 1985, t h e Alabama l e g i s l a t u r e a p p r o v e d A c t No. 8 5 - 9 1 9 a m e n d i n g t h e M a y o r - C o u n c i l A c t , A c t No. 55-452 including Sections 3.01 and 4.01 p e r t a i n i n g t o t i m e s o f e l e c t i o n s and d a t e o f t a k i n g o f f i c e f o r c o u n c i l and mayor. S p e c i f i c a l l y , Section 3.01 was amended to provide that the regular e l e c t i o n o f c o u n c i l m e m b e r s be h e l d on t h e s e c o n d T u e s d a y i n O c t o b e r w i t h a n y r u n o f f e l e c t i o n t o be on the t h i r d Tuesday t h e r e a f t e r . ... 4 1091412 " ( 9 ) On J u n e 1 6 , 1 9 8 7 , t h e A l a b a m a l e g i s l a t u r e a p p r o v e d A c t No. 8 7 - 1 9 1 . This Act allowed for a change t o single-member d i s t r i c t s . The A c t d i d n o t amend T i t l e 11 o f t h e A l a b a m a C o d e 1 9 7 5 . ... " ( 1 0 ) On May 2 5 , 1 9 9 3 , t h e A l a b a m a l e g i s l a t u r e a d o p t e d A c t No. 9 3 - 7 6 0 . T h i s A c t amended § 11-46-5 to a l l o w other m u n i c i p a l i t i e s , other than Class 3 m u n i c i p a l i t i e s , t o change t h e i r e l e c t i o n s d a t e s t o t h e d a t e s p r o v i d e d i n A r t i c l e 2 C h a p t e r 46 o f T i t l e 1 1 , A l a . C o d e , 1 9 7 5 . ... T h i s A c t d i d n o t r e m o v e t h e e x c l u s i o n of C l a s s 1 m u n i c i p a l i t i e s i n § 11-46-20. " ( 1 1 ) On A p r i l 1 3 , 2 0 0 6 , t h e A l a b a m a l e g i s l a t u r e a p p r o v e d A c t No. 2 0 0 6 - 3 5 4 , a m e n d i n g v a r i o u s s e c t i o n s of T i t l e 11 a n d o f T i t l e 17, A l a . Code, 1975, pertaining to e l e c t i o n s . S p e c i f i c a l l y , this Act amended § 1 1 - 4 6 - 2 1 , p r o v i d i n g f o r r e g u l a r m u n i c i p a l e l e c t i o n s on t h e f o u r t h T u e s d a y i n A u g u s t 1 9 8 4 , a n d q u a d r e n n i a l l y t h e r e a f t e r , a n d r u n o f f e l e c t i o n s on t h e s i x t h T u e s d a y t h e r e a f t e r . ... T h i s A c t d i d n o t remove t h e e x c l u s i o n o f C l a s s 1 m u n i c i p a l i t i e s i n § 11-46-20. " ( 1 3 ) On F e b r u a r y 1 7 , 2 0 0 9 , t h e B i r m i n g h a m C i t y C o u n c i l d i s c u s s e d the p r o p o s e d e l e c t i o n date change during Mayor's r e p o r t to Council at the regular B i r m i n g h a m C i t y C o u n c i l m e e t i n g . ... "(14) On February 19, 2009, election date change discussed at C o m m i t t e e o f t h e w h o l e m e e t i n g . ... the proposed City Council " ( 1 5 ) On F e b r u a r y 2 4 , 2 0 0 9 , t h e B i r m i n g h a m C i t y C o u n c i l a d o p t e d O r d . No. 0 9 - 3 6 , c h a n g i n g t h e t i m e o f h o l d i n g r e g u l a r and r u n o f f m u n i c i p a l e l e c t i o n s f o r m a y o r , c o u n c i l a n d s c h o o l b o a r d t o A u g u s t 25 a n d O c t o b e r 6, r e s p e c t i v e l y . ... 5 1091412 " ( 1 6 ) On M a r c h 3, 2 0 0 9 , t h e M a y o r s i g n e d O r d . No. 0 9 - 3 6 i n t o l a w . ... "(17) published. On M a r c h ... 10, 2009, Ord. of Birmingham No. 09-36 was " ( 1 8 ) On J u n e 2 3 , 2 0 0 9 , t h e C i t y o f B i r m i n g h a m Election Commission met and called for the Birmingham City Council and Board of Education e l e c t i o n s t o be h e l d on A u g u s t 2 5 , 2 0 0 9 , w i t h a n y r u n o f f t o be h e l d on O c t o b e r 6, 2 0 0 9 , p u r s u a n t t o O r d . No. 0 9 - 3 6 . ... "(19) published On J u n e 2 5 , 2 0 0 9 , t h e N o t i c e i n T h e B i r m i n g h a m News. ... of E l e c t i o n "(20) On A u g u s t 5, 2 0 0 9 , t h e J e f f e r s o n C o u n t y Probate Judge certified names o f d u l y qualified candidates f o r C i t y o f B i r m i n g h a m C i t y C o u n c i l and Board of Education e l e c t i o n s to Birmingham City C l e r k ; L e r o y Bandy and D a v i d R u s s e l l i n c l u d e d as qualified candidates for the District Nine Birmingham C i t y C o u n c i l seat. ... " ( 2 1 ) On A u g u s t 2 5 , 2 0 0 9 , t h e C i t y o f B i r m i n g h a m conducted the general e l e c t i o n s f o r the Birmingham City Council and B o a r d o f E d u c a t i o n . When no candidate r e c e i v e d a m a j o r i t y of the votes cast in the D i s t r i c t Nine Birmingham C i t y C o u n c i l race, a r u n o f f e l e c t i o n was d e c l a r e d b e t w e e n P l a i n t i f f L e r o y Bandy ('Bandy') and the incumbent councilor, Roderick Royal ('Royal'). R u n o f f e l e c t i o n s were also required i n c e r t a i n other c o u n c i l d i s t r i c t s . " ( 2 2 ) On O c t o b e r 6, 2 0 0 9 , t h e C i t y o f B i r m i n g h a m held runoff e l e c t i o n s , i n c l u d i n g the runoff f o r the D i s t r i c t Nine Birmingham C i t y C o u n c i l seat i n v o l v i n g Bandy and R o y a l . R o y a l was d e c l a r e d t h e w i n n e r o f t h e O c t o b e r 6, 2 0 0 9 r u n o f f e l e c t i o n . ... 6 1091412 "(23) On November 24, 2009, the City of B i r m i n g h a m swore i n t h e w i n n e r s of t h e October 6, 2009 e l e c t i o n on t h e f o u r t h T u e s d a y i n N o v e m b e r following the election, as provided by the M a y o r - C o u n c i l A c t a n d O r d i n a n c e s No. 8 9 - 4 6 a n d [ N o . ] 0 9 - 3 6 . ... " ( 2 4 ) On N o v e m b e r 2 4 , 2 0 0 9 , B a n d y a n d R o y a l filed their Verified Complaint and Motion for Temporary R e s t r a i n i n g Order s e e k i n g p r e l i m i n a r y and permanent injunctive relief to prevent the swearing-in of the e l e c t e d Birmingham C i t y Council m e m b e r s . ... " ( 2 5 ) On N o v e m b e r 2 4 , 2 0 0 9 , t h e C o u r t f o u n d t h e motion f o r temporary r e s t r a i n i n g o r d e r moot, but o r d e r e d a p r e l i m i n a r y i n j u n c t i o n h e a r i n g on D e c e m b e r 1 1 , 2 0 0 9 . ... "(26) On December 9, Birmingham f i l e d i t s Motion Summary J u d g m e n t . ... 2009, the City of to Dismiss/Motion f o r "(27) On January 12, 2010, the Alabama L e g i s l a t i v e R e f e r e n c e o p i n e d t h a t § 11-46-5 does n o t apply to the C i t y o f B i r m i n g h a m as a C l a s s 1 municipality. S p e c i f i c a l l y , the Alabama L e g i s l a t i v e R e f e r e n c e s t a t e d t h a t § 11-46-21 e x p r e s s l y e x c l u d e s Class 1 m u n i c i p a l i t i e s from the e l e c t i o n p r o v i s i o n s , s u c h a s § 1 1 - 4 6 - 5 , o f A r t i c l e 2, C h a p t e r 46 o f T i t l e 11 o f t h e C o d e o f A l a b a m a 1 9 7 5 . ... " ( 2 8 ) On F e b r u a r y 5, s t a t u s c o n f e r e n c e . ... 2010, the Court orders a " ( 2 9 ) On F e b r u a r y 2 6 , 2 0 1 0 , t h e C o u r t h e l d a S t a t u s Conference between the p a r t i e s , wherein i t was a g r e e d t h a t t h e o n l y i s s u e p r e s e n t e d i s a m a t t e r of law. The C o u r t s e t f o r t h t h e f o l l o w i n g d a t e s : M a r c h 12, 2010 t h e p a r t i e s must s u b m i t s t i p u l a t i o n s o f f a c t ; M a r c h 1 9 , 2010 t h e P l a i n t i f f s m u s t s u b m i t t h e i r response to Motion to Dismiss and/or Motion 7 1091412 f o r Summary J u d g m e n t ; a n d M a r c h 2 9 , 2010 t h e C i t y o f B i r m i n g h a m must R e p l y and R e s p o n d t o P l a i n t i f f s ' R e s p o n s e a n d / o r M o t i o n . ... "(30) From i t s a d o p t i o n o f t h e M a y o r - C o u n c i l form of government, f o r at least the past t w e n t y - f i v e years and i n a l l e l e c t i o n s h e l d b e f o r e 2009, D e f e n d a n t c o n d u c t e d i t s C i t y C o u n c i l e l e c t i o n s on t h e S e c o n d T u e s d a y i n O c t o b e r . " Ordinance No. 0 9 - 3 6 p r o v i d e s as follows: "WHEREAS, t i m e s f o r holding regular and r u n o f f e l e c t i o n s and f o r t a k i n g o f f i c e f o r t h e o f f i c e s o f mayor and c i t y c o u n c i l f o r t h e C i t y o f B i r m i n g h a m are p r o v i d e d i n t h e M a y o r - C o u n c i l A c t , A l a . Acts, 1955, A c t No. 4 5 2 , a s a m e n d e d , S e c t i o n s 3.01 a n d 4.01, as amended; and, "WHEREAS, t i m e s f o r holding regular and r u n o f f elections and f o r t a k i n g o f f i c e by c i t y council members elected by single-member district are f u r t h e r p r o v i d e d b y C i t y o f B i r m i n g h a m O r d i n a n c e No. 89-46, c o d i f i e d a t S e c . 2-2-51, e t s e q . o f t h e G e n e r a l C i t y Code o f t h e C i t y o f B i r m i n g h a m , 1 9 8 0 , p u r s u a n t t o A l a . Code, 1975, § 1 1 - 4 3 - 6 3 ; and, "WHEREAS, O r d i n a n c e No. 0 2 - 1 4 p r o v i d e s that the regular elections f o r the c i t y board of education s h a l l be e l e c t e d at the regular municipal general election and any subsequent r u n - o f f e l e c t i o n and a s s u m e o f f i c e a t t h e same t i m e a s t h e c i t y council; and "WHEREAS, p r o v i s i o n s o f A l a b a m a A c t s No. 2 0 0 6 - 3 5 4 and No. 2 0 0 6 - 5 7 0 w e r e e n a c t e d t o c o m p l y w i t h t h e H e l p A m e r i c a V o t e A c t o f 2002, P u b l i c Law 1 0 7 - 2 5 2 , i n c l u d i n g mandated p r o v i s i o n a l v o t i n g i n federal, s t a t e and l o c a l e l e c t i o n s ; and, "WHEREAS, A l a b a m a A c t No. 2 0 0 6 - 3 5 4 adopted new r e q u i r e m e n t s f o r absentee b a l l o t i n g and p r o v i s i o n a l 8 1091412 ballots, i n c l u d i n g a new s c h e d u l e for elections p r o v i d i n g f o r s i x weeks b e t w e e n a r e g u l a r e l e c t i o n and a n y n e c e s s a r y r u n o f f e l e c t i o n f o r m u n i c i p a l i t i e s other than Class 1 m u n i c i p a l i t i e s , and p r o v i d i n g t h a t p r o v i s i o n a l b a l l o t s be t a b u l a t e d s e v e n d a y s a f t e r an e l e c t i o n ; a n d "WHEREAS, the times f o r holding elections for Defendant, a Class 1 m u n i c i p a l i t y , pursuant to the M a y o r - C o u n c i l A c t a n d S e c . 2-2-52 o f t h e G e n e r a l C i t y Code p r o v i d e o n l y a t h r e e - w e e k p e r i o d b e t w e e n a r e g u l a r e l e c t i o n and any n e c e s s a r y r u n o f f e l e c t i o n a n d was n o t c h a n g e d b y t h e e n a c t m e n t o f A l a b a m a No. 2006-354; and "WHEREAS, t h r e e w e e k s b e t w e e n r e g u l a r a n d r u n - o f f elections allows insufficient time f o r absentee b a l l o t i n g according t o t h e new l a w s , due t o an additional week between an election and t h e t a b u l a t i o n of p r o v i s i o n a l b a l l o t s ; and, "WHEREAS, A l a . C o d e , 1 9 7 5 , S e c t i o n 1 1 - 4 6 - 5 provides that a m u n i c i p a l i t y having e l e c t i o n dates required by g e n e r a l o r l o c a l a c t a t a time d i f f e r e n t from t h e dates now o r h e r e a f t e r provided by A r t i c l e 2, C h a p t e r 46 o f T i t l e 1 1 , may e l e c t b y o r d i n a n c e t o h a v e t h e e l e c t i o n a t t h e same t i m e r e q u i r e d b y Article 2, p r o v i d e d that t h e e l e c t i o n made b y o r d i n a n c e does n o t have t h e e f f e c t o f c h a n g i n g t h e beginning of a term or the time f o r t a k i n g o f f i c e ; "WHEREAS, i t i s imperative that the City of Birmingham have s u f f i c i e n t time between a r e g u l a r e l e c t i o n and any n e c e s s a r y r u n o f f e l e c t i o n t o comply w i t h s t a t e and f e d e r a l r e q u i r e m e n t s f o r p r o v i s i o n a l and a b s e n t e e v o t i n g a n d p r o v i d e ample t i m e f o r t h e f u l l consideration of a l l l e g a l l y cast votes. "NOW, T H E R E F O R E , BE I T ORDAINED, t h a t t h e d a t e s f o r e l e c t i o n s f o r t h e o f f i c e s o f mayor, c i t y c o u n c i l and b o a r d o f e d u c a t i o n s h a l l be c h a n g e d by a d o p t i n g t h e d a t e s now o r h e r e a f t e r p r o v i d e d b y t h e Code o f 9 1091412 A l a b a m a , 1 9 7 5 , A r t i c l e 2, C h a p t e r 46 o f T i t l e 1 1 , t o p r o v i d e f o r g r e a t e r time between a r e g u l a r e l e c t i o n and any f o l l o w i n g r u n o f f e l e c t i o n t o comply w i t h s t a t e and f e d e r a l r e q u i r e m e n t s r e g a r d i n g absentee and p r o v i s i o n a l b a l l o t i n g and p r o v i d e a d e q u a t e t i m e f o r a b s e n t e e v o t e r s i n r u n - o f f e l e c t i o n s as f o l l o w s : "Section 1. "Commencing w i t h t h e c i t y c o u n c i l e l e c t i o n i n 2 0 0 9 , t h e r e g u l a r e l e c t i o n f o r members o f t h e c i t y council s h a l l be h e l d on t h e f o u r t h T u e s d a y i n August, and q u a d r e n n i a l l y t h e r e a f t e r , and, when n e c e s s a r y as p r o v i d e d b y t h e G e n e r a l C i t y Code o f t h e C i t y o f B i r m i n g h a m , 1980 ( G C C ) , S e c . 2 - 2 - 5 2 , a s e c o n d o r r u n o f f e l e c t i o n s h a l l b e h e l d on t h e s i x t h Tuesday next thereafter following the regular e l e c t i o n . T h e t e r m o f o f f i c e f o r t h e c o u n c i l members so e l e c t e d s h a l l commence on t h e f o u r t h T u e s d a y i n November f o l l o w i n g t h e i r e l e c t i o n , as p r o v i d e d by GCC S e c . 2 - 2 - 5 3 a n d S e c . 3 . 0 1 , A l a . A c t s , 1 9 5 5 , A c t No. 4 5 2 , a s a m e n d e d . "Section 2. "Commencing w i t h t h e m a y o r a l e l e c t i o n i n 2011, t h e r e g u l a r e l e c t i o n f o r m a y o r s h a l l b e h e l d on t h e fourth Tuesday in August, and quadrennially t h e r e a f t e r , a n d , when n e c e s s a r y a s p r o v i d e d b y S e c . 4.01, A l a . A c t s , 1 9 5 5 , A c t No. 4 5 2 , a s a m e n d e d , a s e c o n d o r r u n o f f e l e c t i o n s h a l l be h e l d on t h e s i x t h Tuesday next thereafter following the regular e l e c t i o n . T h e m a y o r s o e l e c t e d s h a l l , on o r b e f o r e the f o u r t h T u e s d a y o f November o f t h e y e a r o f s u c h e l e c t i o n , q u a l i f y b y m a k i n g o a t h t h a t he i s e l i g i b l e f o r s a i d o f f i c e a n d w i l l e x e c u t e t h e d u t i e s o f same a c c o r d i n g t o t h e b e s t o f h i s knowledge and a b i l i t y . "Section 3. "Commencing with t h e 2009 regular general municipal e l e c t i o n , t h i s ordinance s h a l l also apply 10 1091412 t o e l e c t i o n s f o r s c h o o l b o a r d members e l e c t e d b y district pursuant to Ordinance No. 02-14. Such s c h o o l b o a r d members s h a l l be e l e c t e d a t t h e r e g u l a r general municipal election and any subsequent run-off election, i f necessary as p r o v i d e d in O r d i n a n c e No. 0 2 - 1 4 , § 1, i n t h e same m a n n e r , a s s u m e o f f i c e a t t h e same t i m e , a n d s e r v e t h e same t e r m o f o f f i c e a s t h e members o f t h e B i r m i n g h a m C i t y C o u n c i l as p r o v i d e d b y § 1 o f t h i s ordinance. " S e c t i o n 4. A l l ordinances or parts of ordinances h e r e t o f o r e adopted by t h e C o u n c i l o f t h e C i t y o f Birmingham regarding the times at which e l e c t i o n s are t o be h e l d w h i c h a r e i n c o n s i s t e n t w i t h t h e p r o v i s i o n s of t h i s ordinance are hereby repealed. " S e c t i o n 5. I f any s e c t i o n , s e n t e n c e , clause or p h r a s e o f t h i s o r d i n a n c e i s f o r any reason h e l d t o be i n v a l i d o r u n c o n s t i t u t i o n a l b y d e c l a r a t i o n o f a n y court of competent j u r i s d i c t i o n , such d e c l a r a t i o n shall not a f f e c t the v a l i d i t y of the remaining portions of t h i s ordinance. " S e c t i o n 6. T h i s o r d i n a n c e s h a l l become e f f e c t i v e upon p u b l i c a t i o n as r e q u i r e d by l a w . T h i s ordinance shall n o t be enforced until i t i s precleared p u r s u a n t t o S e c t i o n 5 o f t h e V o t i n g R i g h t s A c t , 42 U.S.C. § On A p r i l 1973c." 23, 2010, t h e t r i a l court conducted a hearing the p a r t i e s ' summary-judgment m o t i o n s . trial court entered A f t e r the hearing, the the f o l l o w i n g order: " T h i s a c t i o n c o m m e n c e d when t h e p l a i n t i f f s f i l e d s u i t s e e k i n g t o e n j o i n t h e i n d i v i d u a l s c h o s e n as members of the Birmingham City Council i n the election o c c u r r i n g on A u g u s t 25, 2009 (and t h e s u b s e q u e n t r u n - o f f on O c t o b e r 6, 2 0 0 9 ) f r o m a s s u m i n g office. Their b i d f o r a preliminary injunction f a i l e d when t h e new c o u n c i l was s w o r n i n b e f o r e 11 on 1091412 t h e i r m o t i o n c o u l d be c o n s i d e r e d . The a c t i o n t h e n t u r n e d t o w h e t h e r t h e e l e c t i o n i s t o be v o i d e d as c o n t r a r y to s t a t e law. " T h i s m a t t e r i s b e f o r e t h e C o u r t on t h e p a r t i e s ' c r o s s m o t i o n s f o r summary j u d g m e n t . The q u e s t i o n p r e s e n t e d by t h e s e motions i s whether the C i t y of B i r m i n g h a m had t h e a u t h o r i t y u n d e r A l a . Code 1975, §§ 11-46-5 and 11-46-21, to adopt an ordinance changing the date of i t s c i t y council election. B e c a u s e no m a t e r i a l f a c t s a r e i n d i s p u t e , t h e i s s u e is purely one of statutory interpretation and summary judgment may therefore be properly considered. "The p l a i n t i f f s c o n t e n d t h a t a n y c h a n g e i n t h e m u n i c i p a l e l e c t i o n d a t e m u s t come f r o m l e g i s l a t i o n to amend t h e M a y o r - C o u n c i l A c t -an ordinance p a s s e d by t h e C i t y C o u n c i l i n F e b r u a r y 2009 c a n n o t l e g a l l y e f f e c t u a t e such a change. I n response, the d e f e n d a n t a r g u e s t h a t A l a . Code 1975, § 1 1 - 4 6 - 5 , p r o v i d e s t h e C o u n c i l w i t h t h e a u t h o r i t y t o do s o . "This Court recognizes that ' [ i ] n determining the meaning of a s t a t u t e t h i s Court l o o k s to the plain meaning of the words as written by the legislature.' T o l a r C o n s t r . , LLC v. Kean E l e c . Co., 944 So. 2 d 1 3 8 , 149 ( A l a . 2 0 0 6 ) . Further, multiple s t a t u t e s ' s h o u l d be c o n s t r u e d i n h a r m o n y w i t h o t h e r statutes in effect, so f a r as is practical.' S i e g e l m a n v . F o l m a r , 432 So. 2d 124 6, 124 9 ( A l a . 1983). "Ala. Code following: 1975, § 11-46-5(a), provides "'The g o v e r n i n g body of a municipality having a general municipal election or runoff election required by g e n e r a l or local act at a time d i f f e r e n t from the d a t e s now o r h e r e a f t e r p r o v i d e d b y A r t i c l e 2, C h a p t e r 46 o f T i t l e 1 1 , may elect by 12 the 1091412 o r d i n a n c e to have the e l e c t i o n at t i m e r e q u i r e d by A r t i c l e 2 ' "Elections in the City h i s t o r i c a l l y been g o v e r n e d by the same of Birmingham the M a y o r - C o u n c i l have Act. "The a n a l y s i s t h e n t u r n s t o A l a . Code 1975, § 11-46-21. Found i n A r t i c l e 2 o f T i t l e 11, chapter 46, t h i s s t a t u t e s p e c i f i e s t h e t i m e f o r municipal elections: " ' ( a ) The r e g u l a r m u n i c i p a l e l e c t i o n s i n c i t i e s a n d t o w n s s h a l l be h e l d on the fourth Tuesday in August 1984, and quadrennially thereafter, and, when n e c e s s a r y as p r o v i d e d i n s u b s e c t i o n (d) o f Section 11-46-55, a second or runoff e l e c t i o n s h a l l be h e l d on t h e s i x t h T u e s d a y next thereafter following the regular election.' " I f t h e a n a l y s i s w e r e l i m i t e d t o t h e s e two s t a t u t e s , t h e r e w o u l d c l e a r l y be no p r o b l e m w i t h c h a n g i n g t h e date of Birmingham council elections by local ordinance. "The p l a i n t i f f s , however, base t h e i r case on A l a . Code 1975, § 11-46-20, w h i c h has historically c a r v e d o u t B i r m i n g h a m (a C l a s s 1 m u n i c i p a l i t y ) f r o m t h e s c o p e o f A r t i c l e 2's requirements: " ' G e n e r a l and s p e c i a l e l e c t i o n s i n c i t i e s and towns of this state, in a l l municipalities except Class 1 m u n i c i p a l i t i e s and e x c e p t c i t i e s and towns organized under a commission form of g o v e r n m e n t , s h a l l be h e l d a n d c o n d u c t e d a t t h e t i m e s and i n t h e manner p r e s c r i b e d i n t h i s a r t i c l e , and t h e e x p e n s e s and costs incident to the conduct of a l l such e l e c t i o n s s h a l l be p a i d o u t o f t h e t r e a s u r y of the c i t y or town h o l d i n g the e l e c t i o n . ' 13 1091412 "(Emphasis added). "Considering the i n t e r p l a y of t h e s e statutes requires some r e v i e w o f s t a t u t o r y h i s t o r y . Ala. Code 1975, § 11-46-5, o r i g i n a l l y a p p l i e d to only Class 3 m u n i c i p a l i t i e s . The s t a t u t e was a m e n d e d i n 1993 to d e l e t e t h i s q u a l i f y i n g language. Now, the statute contains no explicit limitation of its applicability. The p l a i n t i f f s w o u l d h a v e t h i s C o u r t f a s h i o n an i m p l i c i t e x c l u s i o n p e r t a i n i n g t o t h e C i t y of Birmingham. "Ala. Code 1975, § 11-46-20, had been law for s e v e r a l y e a r s when t h e L e g i s l a t u r e a m e n d e d § 1 1 - 4 6 - 5 to delete its applicability to only Class 3 municipalities. It must be presumed that in amending § 11-46-5, and thereby broadening its s c o p e , t h e L e g i s l a t u r e k n e w o f § 1 1 - 4 6 - 2 0 , so t h a t § 11-46-5 does s e r v e to amend t h e e f f e c t of § 11-46-20 w i t h specific regard to the timing of elections. There i s s t i l l a wide f i e l d of operation for § 11-46-20, however. I t d e a l s w i t h not o n l y the t i m i n g of e l e c t i o n s but a l s o the manner i n w h i c h such elections are held. Indeed, a review of A r t i c l e 2 shows t h a t most o f t h e s t a t u t e s therein address e l e c t i o n procedures. I t may be s a i d t h a t such s t a t u t e s still do n o t a p p l y to the C i t y of Birmingham under § 11-46-20. "Under p l a i n t i f f s ' i n t e r p r e t a t i o n of § 11-46-20, Ala. Code 1975, § 11-46-5(a), would apply to municipalities other than Birmingham and any m u n i c i p a l i t i e s under a commission form of government (which m u n i c i p a l i t i e s are g o v e r n e d by A r t i c l e 3 of T i t l e 11, c h a p t e r 4 6 ) . I n other words, i t would apply only to m u n i c i p a l i t i e s a l r e a d y covered by A r t i c l e 2. The p r o b l e m i s t h a t A l a . Code 1975, 1 1 - 4 6 - 7 4 , e n a c t e d i n 1987, already gives to A r t i c l e 2 m u n i c i p a l i t i e s the a u t h o r i t y to s w i t c h over to the t i m e t a b l e d i c t a t e d by A l a . Code 1975, § 11-46-21. 14 1091412 " T h i s C o u r t must presume t h a t t h e L e g i s l a t u r e ' i n t e n d e d a j u s t and r e a s o n a b l e c o n s t r u c t i o n and d i d n o t e n a c t a s t a t u t e t h a t h a s no p r a c t i c a l m e a n i n g , ' W e a t h e r s v . C i t y o f O x f o r d , 895 S o . 2 d 3 0 5 , 30 9 ( A l a . C i v . A p p . 2 0 0 4 ) , c i t i n g E x p a r t e W a t l e y , 708 So. 2 d 890 ( A l a . 1 9 9 7 ) , a n d E x p a r t e M e e k s , 682 S o . 2 d 423 ( A l a . 1 9 9 6 ) . G i v e n § 11-46-74, t h e r e would b e no r e a s o n f o r a m e n d i n g § 1 1 - 4 6 - 5 i n 1 9 9 3 o t h e r than to broaden i t s effect beyond Article 2 municipalities. "The p l a i n t i f f s a l s o i n s i s t t h a t i f t h e C i t y o f B i r m i n g h a m changes i t s e l e c t i o n d a t e s as a u t h o r i z e d by § 11-46-5, i t must a l s o change t h e y e a r o f t h e e l e c t i o n t o comport w i t h § 11-46-21, which would r e s u l t i n a v i o l a t i o n o f t h e l a n g u a g e i n § 11-46-5 p r o v i d i n g t h a t ' t h e e l e c t i o n made b y o r d i n a n c e s h a l l not have t h e e f f e c t o f c h a n g i n g t h e b e g i n n i n g o f a term of o f f i c e or the time f o r t a k i n g o f f i c e . ' This C o u r t d i s a g r e e s b a s e d o n S i e g e l m a n v . F o l m a r , 432 So. 2 d 1 2 4 6 , 1250 ( A l a . 1 9 8 3 ) . "The A l a b a m a Supreme C o u r t h a s b e f o r e s a i d t h a t '[o]nce a g e n e r a l e l e c t i o n has taken p l a c e and t h e people have cast their v o t e s , t h e r e must be a compelling reason before the courts w i l l v o i d that election.' G o d f r e y v . O s w a l t , 428 S o . 2 d 4 0 , 43 (Ala. 1 983). The p l a i n t i f f s h a v e f a i l e d t o make such a s h o w i n g ; t o t h e c o n t r a r y , t h e above a n a l y s i s leads to the c o n c l u s i o n that the Birmingham City C o u n c i l had t h e a u t h o r i t y t o change t h e e l e c t i o n d a t e i n 2009. "The p l a i n t i f f s ' m o t i o n f o r summary j u d g m e n t i s d e n i e d , and t h e defendant's motion i s g r a n t e d . " This appeal followed. 15 1091412 Standard The question authority election to and petitioning The of in this case change the dates any the i s whether for runoff election legislature determinative to facts Review by the the this City general ordinance amend in the case had the municipal r a t h e r than Mayor-Council are by Act. essentially undisputed. "An o r d e r g r a n t i n g o r d e n y i n g a s u m m a r y j u d g m e n t i s r e v i e w e d de n o v o , a p p l y i n g t h e same s t a n d a r d a s the t r i a l court applied. A m e r i c a n Gen. Life & A c c i d e n t I n s . Co. v . U n d e r w o o d , 886 So. 2d 8 0 7 , 811 (Ala. 2004). In a d d i t i o n , ' [ t ] h i s c o u r t r e v i e w s de novo a t r i a l c o u r t ' s i n t e r p r e t a t i o n of a statute, because o n l y a q u e s t i o n of law i s p r e s e n t e d . ' Scott B r i d g e Co. v . W r i g h t , 883 So. 2 d 1 2 2 1 , 1223 (Ala. 2003). W h e r e , as h e r e , t h e f a c t s of a case are e s s e n t i a l l y u n d i s p u t e d , t h i s C o u r t must determine whether the t r i a l c o u r t 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 p p l y i n g a de n o v o s t a n d a r d of review. C a r t e r v . C i t y o f H a l e y v i l l e , 669 So. 2d 812, 815 ( A l a . 1995). Here, in reviewing the [ e n t r y ] o f a s u m m a r y j u d g m e n t when t h e f a c t s are undisputed, we r e v i e w de n o v o t h e t r i a l court's interpretation of statutory language and our p r e v i o u s c a s e l a w on a c o n t r o l l i n g q u e s t i o n o f l a w . " Continental Nat'l I n d e m . Co. 35 "Because ( A l a . 2005). b e c a u s e we v. F i e l d s , the facts 926 are So. not 2d 1033, in dispute are p r e s e n t e d w i t h pure q u e s t i o n s of law, court's judgment Lyons v. Norris, i s accorded 829 So. 2d no 748, 16 presumption 750 (Ala. 1034¬ the and trial of c o r r e c t n e s s . " 2002). 1091412 Discussion The p l a i n t i f f s concluded that argue that the City, a the t r i a l Class 1 court erred municipality, when i t had the a u t h o r i t y , p u r s u a n t t o § 1 1 - 4 6 - 5 , A l a . Code 1 9 7 5 , t o c h a n g e b y ordinance dates i t s general- and runoff-election dates s e t i n the Mayor-Council Act to the dates from the set forth i n § 1 1 - 4 6 - 2 1 , A l a . Code 1 9 7 5 . " A l l l e g i s l a t i v e powers and o t h e r powers g r a n t e d to cities and towns shall be e x e r c i s e d by t h e council, except those powers conferred on some o f f i c e r s by law o r o r d i n a n c e . The c o u n c i l shall p e r f o r m t h e d u t i e s r e q u i r e d by t h i s t i t l e and o t h e r applicable provisions of law." § 1 1 - 4 3 - 4 3 , A l a . Code 1 9 7 5 . provides Also, § 1 1 - 4 5 - 1 , A l a . Code 1 9 7 5 , that " [ 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 t h e laws of t h e s t a t e t o c a r r y i n t o e f f e c t or d i s c h a r g e 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 o t h e r 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 t h e 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 inhabitants 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 o r d i n a n c e s . " Thus, a c i t y that c o u n c i l i s f r e e to adopt ordinances to the extent those ordinances are not i n c o n s i s t e n t 17 with e x i s t i n g law. 1091412 As i s set forth above, t h e most r e c e n t amendment t o t h e M a y o r - C o u n c i l A c t i n 1985 p r o v i d e d t h a t of municipal council Tuesday i n October on the t h i r d elections, in members would be the general held on elections the and t h a t any r u n o f f e l e c t i o n s would Tuesday thereafter. § 1 1 - 4 6 - 5 , A l a . Code With regard 1975, which second be h e l d to municipal was l a s t amended 1993, p r o v i d e s : "The g o v e r n i n g b o d y o f a m u n i c i p a l i t y h a v i n g a general municipal election or runoff election r e q u i r e d by g e n e r a l or l o c a l a c t a t a time d i f f e r e n t f r o m t h e d a t e s now o r h e r e a f t e r p r o v i d e d b y A r t i c l e 2, C h a p t e r 46 o f T i t l e 1 1 , may e l e c t b y o r d i n a n c e t o have t h e e l e c t i o n a t t h e same t i m e r e q u i r e d b y A r t i c l e 2 a n d t h e e l e c t i o n made b y o r d i n a n c e s h a l l not have t h e e f f e c t o f c h a n g i n g t h e b e g i n n i n g o f a term of o f f i c e or the time f o r t a k i n g o f f i c e . " T h e r e f o r e , we m u s t d e t e r m i n e w h e t h e r t h e C i t y was b o u n d b y t h e M a y o r - C o u n c i l A c t o r by § 11-46-5 w i t h r e g a r d t o t h e d a t e s f o r holding i t s municipal elections. "[W]e a r e g u i d e d by w e l l - e s t a b l i s h e d p r i n c i p l e s o f statutory construction. First and foremost, '[m]atters of p o l i c y a r e f o r the L e g i s l a t u r e and, whether wise or unwise, l e g i s l a t i v e p o l i c i e s are of no c o n c e r n t o t h e c o u r t s . ' M a r s h v . G r e e n , 782 S o . 2d 2 2 3 , 231 ( A l a . 2 0 0 0 ) . ' [ I ] t i s not the duty of this Court t o q u e s t i o n t h e wisdom, o r t h e l a c k t h e r e o f , used by t h e L e g i s l a t u r e i n e n a c t i n g t h e laws o f t h i s S t a t e . ' E x p a r t e T.D.T., 7 4 5 S o . 2 d 8 99, 904 ( A l a . 1 9 9 9 ) . '[T]his Court i s not at l i b e r t y t o r e w r i t e [a] s t a t u t e o r t o s u b s t i t u t e i t s judgment f o r t h a t o f t h e l e g i s l a t u r e . ' Gowens v . 18 1091412 T y s . S., a l s o Ex 2003). 948 So. 2d 5 1 3 , 522 n. p a r t e C a r l t o n , 867 So. 1 (Ala. 2d 3 3 2 , 2006); see 338 (Ala. " ' [ S ] t a t u t e s m u s t be c o n s t r u e d i n p a r i m a t e r i a i n l i g h t o f t h e i r a p p l i c a t i o n t o t h e same general subject matter.... Our o b l i g a t i o n i s to construe [ t h e ] p r o v i s i o n s " i n f a v o r o f e a c h o t h e r t o f o r m one harmonious p l a n , " i f i t is possible t o do so.' O p i n i o n o f t h e J u s t i c e s No. 334, 599 So. 2d 1166, 1168 ( A l a . 1992) (quoting Ex p a r t e Coffee County Comm'n, 583 So. 2d 985, 988 (Ala. 1991)). Because our review turns on statutory construction, that r e v i e w i s de novo. S c o t t B r i d g e Co. v . W r i g h t , 883 So. 2d 1 2 2 1 , 1223 (Ala. 2003)." Willis v. Kincaid, This legal 357 Court question (Ala. before provisions in City 2d the 1100, a of In elected of So. addressed 1 989). 1989, 983 1102-03 similar Birmingham Graffeo, city the council Mayor-Council factual v. City of members Act, 551 1987, the adopted § 1975, "which member d i s t r i c t s In March 1989, for the pursuant p r o p o s e d O r d i n a n c e No. municipalities election to § of 11-43-63, to So. 2d the had, to a t 358. Ala. establish council 2d the "established 11-43-63, 89-46, w h i c h p r o v i d e d 19 according and So. c o u n c i l members Graffeo, authorized 551 Birmingham which a staggered e l e c t i o n system." Legislature 2007). situation Graffeo, system f o r e l e c t i o n of nine a t - l a r g e c i t y Alabama (Ala. for with In Code single- members." mayor of a the Id. City single-member 1091412 districts f o r the e l e c t i o n of c i t y council adopted preclearance the of from No. the United 89-46, States the City The city obtained J u s t i c e Department, and C i t y p r e p a r e d t o i m p l e m e n t t h e new s y s t e m f o r t h e e l e c t i o n city council Before seeking, on Ordinance c o u n c i l members. t h e e l e c t i o n s were h e l d , G r a f f e o among o t h e r the merits, requested, trial members. things, injunctive relief. the t r i a l and t h e C i t y court's filed judgment, court granted appealed. reasoning This a After a the r e l i e f Court complaint Graffeo reversed as f o l l o w s : "The C i t y a r g u e s t h a t t h e t r i a l c o u r t e r r e d when i t h e l d t h a t § 1 1 - 4 3 - 6 3 [ , A l a . Code 1975,] d i d n o t amend t h e M a y o r - C o u n c i l A c t , a n d t h a t t h e t r i a l c o u r t e r r e d when i t h e l d t h a t t h e p r o v i s i o n s o f t h e Mayor-Council A c t were specific provisions that c o n t r o l l e d the general p r o v i s i o n s o f § 11-43-63. If, as t h e C i t y a r g u e s , § 11-43-63 amended t h e Mayor-Council A c t , then the t r i a l court's ruling concerning w h e t h e r t h e p r o v i s i o n s o f t h e two a c t s w e r e s p e c i f i c o r g e n e r a l was e r r o r , b e c a u s e t h o s e p r o v i s i o n s t h a t t h e t r i a l c o u r t r e l i e d on w i l l h a v e b e e n amended. "The M a y o r - C o u n c i l A c t , A l a . A c t s 1 9 5 5 , No. 452 authorized the C i t y to e s t a b l i s h the o f f i c e of at-large c o u n c i l members. That office was n o t e s t a b l i s h e d u n t i l t h e C i t y v o t e d t o change t h e form of government. C o n n o r v . S t a t e , 275 A l a . 2 3 0 , 153 So. 2 d 787 ( 1 9 6 3 ) ; R e i d v . C i t y o f B i r m i n g h a m , 27 4 Ala. 62 9, 150 S o . 2 d 735 ( 1 9 6 3 ) . The o f f i c e o f a t - l a r g e c o u n c i l members r e s u l t e d , a c c o r d i n g l y , f r o m 20 trial the 1091412 the the City's exercise of the option given l e g i s l a t u r e to create the o f f i c e . t h e C i t y by "Thirty-two years a f t e r the L e g i s l a t u r e passed the M a y o r - C o u n c i l A c t , i t p a s s e d § 11-43-63, which a u t h o r i z e s m u n i c i p a l i t i e s t o e s t a b l i s h s i n g l e member d i s t r i c t s f o r t h e e l e c t i o n o f c o u n c i l members. The l e g i s l a t u r e has t h e i n h e r e n t power t o p r e s c r i b e , a l t e r and change t h e form o f m u n i c i p a l governments. S i e g e l m a n v . F o l m a r , 432 S o . 2 d 1 2 4 6 ( A l a . 1 9 8 3 ) ; O p i n i o n o f t h e J u s t i c e s [No. 1 8 1 ] , 277 A l a . 6 3 0 , 173 So. 2 d 793 ( A l a . 1 9 6 5 ) . A m u n i c i p a l i t y may e x e r c i s e those powers t h a t a r e e x p l i c i t l y g r a n t e d t o i t by the l e g i s l a t u r e , as w e l l as t h o s e powers t h a t a r e n e c e s s a r i l y i m p l i e d f r o m an e x p r e s s g r a n t o f p o w e r . S p e a r v . W a r d , 199 A l a . 1 0 5 , 74 S o . 27 (1917). S e c t i o n 11-43-63 g r a n t s m u n i c i p a l i t i e s t h e power t o d i v i d e t h e m u n i c i p a l i t y i n t o s i n g l e member d i s t r i c t s upon a v o t e o f t h e c i t y c o u n c i l . Accordingly, § 1 1 - 4 3 - 6 3 , on i t s f a c e , a l l o w s t h e C i t y t o p a s s an o r d i n a n c e s u c h a s O r d i n a n c e No. 8 9 - 4 6 , w h i c h c h a n g e s the o f f i c e o f t h e c i t y c o u n c i l from b e i n g elected at-large to being elected in single member districts. "The t r i a l court's h o l d i n g was t o t h e e f f e c t t h a t § 3.10 o f t h e M a y o r - C o u n c i l A c t was n o t a m e n d e d b y § 1 1 - 4 3 - 6 3 a n d t h a t § 3.10 p r o h i b i t s t h e C i t y from using § 11-43-63 to enable i t to sustain Ordinance No. 89-46. Section 3.10 of the Mayor-Council Act provides: " ' S e c . 3 . 1 0 . C r e a t i o n o f new d e p a r t m e n t s o r o f f i c e s ; change o f d u t i e s . "'The council by ordinance may create, change, and a b o l i s h o f f i c e s , departments o r agencies, other than the offices, departments and a g e n c i e s e s t a b l i s h e d by t h i s a c t . The c o u n c i l b y o r d i n a n c e may assign additional functions or duties to offices, departments or agencies 21 1091412 established by this a c t , b u t may not d i s c o n t i n u e o r a s s i g n t o any o t h e r office, department o r agency any f u n c t i o n o r d u t y assigned by this act to a particular o f f i c e , department or agency.' " S e c t i o n 11-43-63 e x p l i c i t l y a l l o w s a c i t y , by the v o t e o f i t s c i t y c o u n c i l , t o change from t h e at-large election of city council members to e l e c t i o n i n single-member d i s t r i c t s . That p r o v i s i o n was e n a c t e d t h i r t y - t w o y e a r s a f t e r § 3.10 o f t h e Mayor-Council A c t was enacted, which, to some e x t e n t , i n d i c a t e s t h a t § 1 1 - 4 3 - 6 3 was i n t e n d e d t o m o d i f y t h e p r o v i s i o n s o f § 3.10. Moreover, the t r i a l c o u r t ' s h o l d i n g t h a t 1 1 - 4 3 - 6 3 d i d n o t amend t h e M a y o r - C o u n c i l A c t a n d , a c c o r d i n g l y d i d n o t amend § 3.10, d e s t r o y s , a t a p r a c t i c a l l e v e l , any p o s s i b l e e f f e c t i v e n e s s o f § 11-43-63. " U s i n g t h e t r i a l c o u r t ' s a n a l y s i s , § 3.10 w o u l d f o r e v e r be a b a r t o t h e C i t y p a s s i n g an o r d i n a n c e p u r s u a n t t o § 11-43-63. Why w o u l d t h e L e g i s l a t u r e enact § 11-43-63, i f i t d i d n o t mean f o r the p r o v i s i o n t o have any e f f e c t ? Even G r a f f e o himself c o n c e d e s t h a t i f O r d i n a n c e No. 8 9 - 4 6 h a d b e e n made e f f e c t i v e f o r t h e 1991 c i t y c o u n c i l e l e c t i o n s , t h e n he w o u l d h a v e no b a s i s t o s u s t a i n a n a c t i o n t o enjoin the e f f e c t s of the ordinance. Accordingly, c o n s i d e r i n g o u r e n t i r e d i s c u s s i o n , we h o l d t h a t t h e t r i a l c o u r t e r r e d when i t h e l d t h a t § 1 1 - 4 3 - 6 3 d i d n o t amend t h e M a y o r - C o u n c i l A c t . " City o f Birmingham v. G r a f f e o , Similarly, § 11-46-5 e x p l i c i t l y a vote of i t s governing general long 551 S o . 2 d a t 3 6 0 - 6 1 . municipal allows b o d y , t o c h a n g e t h e d a t e s on w h i c h i t s e l e c t i o n s and r u n o f f as t h e b e g i n n i n g a m u n i c i p a l i t y , by of a term 22 elections are held, of o f f i c e so and t h e time f o r 1091412 taking office So. 2d 1246, terms, are not changed. 1250 ( A l a . 1983) See Siegelman (noting [the previous v e r s i o n that, o f ] § 11-46-5 m u n i c i p a l i t y having a m a y o r - c o u n c i l form election to date d i f f e r e n t elect second and by ordinance to amended remove language municipalities Therefore, that the pursuant to having Before § the 2, C h a p t e r elections on Act. In the -- to was recent the i n 1980 to elections, to to of 3 amending the from Class government. later municipalities to vary to amendment i t s application form an 11-46-21 date passed to the C i t y ' s choose City at a time those council i t s election by e n a c t i n g and gave by § and 3 § authority, the election i n the Mayor-Council A c t . 2009, 2009, specified mayor-council that, 11-46-5, elections in Article a legislature established runoff limited 432 "[b]y i t s express of government t h e most Act pertaining i t appears 11-46-5, after Folmar, a l l o w s any c l a s s S e c t i o n 11-46-5 i n 1993, the Mayor-Council the date advance Tuesday i n J u l y " ) . was dates from v. elected, held different 46 o f T i t l e the dates governing by i t s general 11 from of i n the the adopting Ordinance 23 the dates -- s p e c i f i c a l l y , set forth body municipal provided i t held Mayor-Council City No. and -- 09-36, the city to hold 1091412 the e l e c t i o n s a t t h e same t i m e -- t h e f o u r t h T u e s d a y i n A u g u s t and the sixth Tuesday thereafter -- required by Article The o r d i n a n c e d i d n o t c h a n g e t h e b e g i n n i n g o f a t e r m o f or the time f o r t a k i n g complied with it changed runoff the p l a i n language the dates plaintiffs specifically Article o f § 11-46-5 f o r i t s general note provides that that § the the C i t y when, municipal argue that, because related to precedence over § i n 2009, elections Class 11-46-5, applied mayor-council removed form only 1 and Class provisions of Class general 3 municipalities and t h a t "any C l a s s 1 municipalities set forth i n A r t i c l e 24 2. provision i t provision § 11-46-5 having assert 3 municipality" t o remove from takes a those r e s t r i c t i o n s the p l a i n t i f f s 11-46-5, the l e g i s l a t u r e d i d not i n t e n d exclusion a in Therefore, is a specific is 1975, set forth They a l s o c o n t e n d t h a t However, the phrase dates municipalities, which of government i n 1993. when i t r e m o v e d to A l a . Code 1 municipalities. § 11-46-20 r e l a t e d t o "a m u n i c i p a l i t y . " originally 11-46-20, election 2 do n o t a p p l y t o C l a s s directly were Thus, i t appears t h a t office elections. The they office. 2. the Therefore, that, from § i t s previous election-date they conclude 1091412 that the legislature municipalities The and City from the operation argues unambiguous; intended that that dates of i t sgeneral of § the language § 11-46-5 municipal to the dates provided to the term or that, Class 3 of although the § i t now c l a s s or form "[T]he title intent: time 11-46-5 municipalities government, i n § 11-46-5 i s plain i t t o change applies having Act taking office. originally a It applied mayor-council brief, a t p. also only form to of to a l l m u n i c i p a l i t i e s , regardless of government. to of that t h a t the C i t y not change No. Finally, 93-760 i t argues: manifests clear "'To amend S e c t i o n s 11-46-5, ... o f t h e Code o f A l a b a m a , 1975, t o a u t h o r i z e a l l m u n i c i p a l i t i e s having a general municipal e l e c t i o n or r u n - o f f e l e c t i o n r e q u i r e d by general or l o c a l act at a time d i f f e r e n t f r o m t h e d a t e s now o r h e r e a f t e r p r o v i d e d b y A r t i c l e 2, C h a p t e r 4 6 , T i t l e 11 o f t h e C o d e of Alabama 1975, t o e l e c t by o r d i n a n c e t o have the e l e c t i o n a t t h e same t i m e as r e q u i r e d b y A r t i c l e 2. ...'" (City's the i n § 1 1 - 4 6 - 2 1 , A l a . Code 1975; and i n § 1 1 - 4 6 - 5 was argues 1 e l e c t i o n s and r u n o f f e l e c t i o n s only r e s t r i c t i o n office Class 11-46-5. authorized the of exclude 26.) 25 1091412 Title Articles. 2 11, Article addresses of of the 1 sets forth Form of in Certain Government." Title 46 "Elections Mayor-Council "Elections Chapter in Code Certain 2. Section Section Cities Government." Cities into "General P r o v i s i o n s . " or 11-46-5 i s included 11-46-21(a), 3 three Article Towns Article o r Towns H a v i n g 1 1 , C h a p t e r 4 6 ; §§ 1 1 - 4 6 - 2 0 a n d Article i s divided Having addresses Commission Form in Article 1 of 11-46-21 a r e i n c l u d e d i n A l a . Code 1975, provides: "The r e g u l a r m u n i c i p a l e l e c t i o n s i n c i t i e s a n d t o w n s s h a l l be h e l d on t h e f o u r t h T u e s d a y i n A u g u s t 1984, a n d q u a d r e n n i a l l y t h e r e a f t e r , a n d , when n e c e s s a r y a s provided i n subsection (d) o f S e c t i o n 1 1 - 4 6 - 5 5 , a s e c o n d o r r u n o f f e l e c t i o n s h a l l be h e l d on t h e s i x t h Tuesday next thereafter following the regular election." Section 11-46-20(a), A l a . Code 1975, provides: " G e n e r a l and s p e c i a l e l e c t i o n s i n c i t i e s and towns of t h i s s t a t e , i n a l l m u n i c i p a l i t i e s except C l a s s 1 m u n i c i p a l i t i e s and e x c e p t c i t i e s and towns o r g a n i z e d u n d e r a c o m m i s s i o n f o r m o f g o v e r n m e n t , s h a l l be h e l d and conducted at the times and i n the manner p r e s c r i b e d i n t h i s a r t i c l e , and t h e e x p e n s e s and c o s t s i n c i d e n t to the conduct of a l l such e l e c t i o n s s h a l l be p a i d o u t o f t h e t r e a s u r y o f t h e c i t y o r town h o l d i n g t h e e l e c t i o n . " (Emphasis The generally added.) plaintiffs excludes correctly argue Class municipalities 1 26 that § 11-46-20(a) from the 1091412 requirements of A r t i c l e 2, i n c l u d i n g t h e r e q u i r e m e n t s o f § 1 1 ¬ 46-21. exclusion, this is Based Court hold directly therefore related on that that related to Class would have i s a specific provision § 11-46-20 the p l a i n t i f f s that 1 municipalities and t h a t i t t a k e s p r e c e d e n c e over § 11-46-5, a g e n e r a l t o "a m u n i c i p a l i t y . " provision However, "[t]he fundamental rule of statutory c o n s t r u c t i o n i s t o a s c e r t a i n and g i v e e f f e c t t o t h e intent of the l e g i s l a t u r e i n enacting the statute. Words u s e d i n a s t a t u t e must be g i v e n t h e i r n a t u r a l , plain, ordinary, and commonly u n d e r s t o o d meaning, and where p l a i n l a n g u a g e i s u s e d a c o u r t i s b o u n d t o interpret that l a n g u a g e t o mean e x a c t l y w h a t i t says. If the language of the statute i s unambiguous, then there i s no r o o m f o r j u d i c i a l c o n s t r u c t i o n and t h e c l e a r l y e x p r e s s e d i n t e n t o f t h e l e g i s l a t u r e must be g i v e n e f f e c t . " IMED C o r p . v . S y s t e m s E n g ' g A s s o c s . C o r p . , (Ala. 1992). Section excepts from cities and 11-46-20 i s w r i t t e n i n m a n d a t o r y l a n g u a g e , b u t i t i t s provisions towns government." "Class organized under More p a r t i c u l a r l y , special elections excepted shall forth 602 S o . 2 d 3 4 4 , 346 in cities be c o n d u c t e d inArticle 2. 1 municipalities a commission i trequires and towns i n accordance that other with and ... form of general than those the terms s e t A l t h o u g h § 11-46-20 does n o t r e q u i r e 27 and that 1091412 Class 1 municipalities elections in prohibit Class such accordance 1 as with the City Article municipalities 2, conduct i t also from their does choosing, not i f so authorized, to schedule e l e c t i o n s i n accordance with the dates set forth in Article Furthermore, that, of the plain language of municipality, municipalities, are required held at a d i f f e r e n t governing ordinance, Article to without taking elections As for by a g e n e r a l o r l o c a l of the the municipality elections at the the C i t y argues, time i s used language t o mean language of the s t a t u t e for judicial a exactly court what i s bound i t says,' construction required by and effect or the time f o r used in § specifically "'[W]here interpret ... that ' [ i ] f t h e n t h e r e i s no and t h e c l e a r l y 28 to 2, by the language i s unambiguous, a c t t o be "not have t h e i s c l e a r and unambiguous, and i t does n o t language 1 elect, exclude C l a s s 1 m u n i c i p a l i t i e s from i t s p r o v i s i o n s . plain Class in Article may the b e g i n n i n g of a term of o f f i c e office." 11-46-5 provides exception 2, s o l o n g a s t h e o r d i n a n c e d o e s of changing § time than the time set f o r t h body have an 11-46-5 and r u n o f f i f the general m u n i c i p a l e l e c t i o n s a the 2. the room expressed intent of 1091412 the legislature Great Blue must S o u t h e r n R.R., Cross & Blue be given 788 So. effect.'" 2d 886, S h i e l d v . N i e l s e n , 714 parte Alabama ( A l a . 2000) 889 Ex (quoting So. 2d 293, 296 (Ala. 1998)). Section exception 11-46-5 for their general times set not accordance reject Class t o do 1 e l e c t i o n s and of 2. Also, Article 2, choose although i t does Class 1 conduct not that § prohibit a plaintiffs applies, Article in the 2. did 200 9 was by plaintiffs § "not argue not Specifically, August required City next that, comply they with Ala. Code after 1975. with its § 11-46-5. § 11-46-5 of f o u r t h Tuesday 1 984," as Therefore, argue: " [ T ] h e e l e c t i o n s p r o v i d e d b y ... O r d i n a n c e No. 0 9 - 3 6 c o u l d n o t be a t t h e same t i m e as p r o v i d e d i n A r t i c l e 29 we specific requirements contend t h a t the 'quadrennially' 11-46-21(a), the i f in from Therefore, more even does them 11-46-20, municipalities, is the elections s t a t u t e t h a t t a k e s p r e c e d e n c e o v e r t h e more g e n e r a l The conduct § 11-46-20 so i n a c c o r d a n c e w i t h § 1 1 - 4 6 - 5 . argument to an r u n o f f e l e c t i o n s at m u n i c i p a l i t i e s to plaintiffs' exclusion m u n i c i p a l i t i e s , without m u n i c i p a l i t i e s , to in Article with the 1 municipal forth require choosing Class authorizes is the 1091412 2 w i t h o u t a f f e c t i n g t h e t e r m o f t h e o f f i c e h o l d e r s -¬ t o f u l l y comply w i t h t h e § 11-46-5 r e q u i r e m e n t t h a t the change not a f f e c t the b e g i n n i n g of the terms of the o f f i c e h o l d e r s , the terms of the c i t y council m e m b e r s w o u l d h a v e b e e n c u t s h o r t b y o v e r one y e a r i f t h e e l e c t i o n had b e e n h e l d i n 2008 and extended by t h r e e y e a r s i f t h e e l e c t i o n had been h e l d i n 2012." (Plaintiffs' 46-21(c), take Ala. office election, officers brief, Code on the but would which was the these date Ordinance on the f o u r t h the i n Graffeo, supra, Pursuant members so elected Tuesday i n November to have following the the their provides their that the Tuesday i n November, that the Act. City For did not No. and 89-46, w h i c h starting in is 1989, districts Mayor-Council Act, office election. language quadrennial year 30 officers single-member taken 09-36, i n c o m p l i a n c e w i t h the p l a i n change e i t h e r 11- 11-46-5. c o u n c i l members f r o m years. § following Mayor-Council conclude of § that municipal 09-36 the enactment of Ordinance council not that argue i n November No. p r o v i d e d by requirements in detail four Monday the p l a i n t i f f s the C i t y e l e c t e d every They f u r t h e r requires take o f f i c e comply w i t h the discussed 29.) 1975, first that reasons, Following a t p. on the the fourth Ordinance No. of § 11-46-5, d i d of the elections, and 1091412 therefore taking the b e g i n n i n g of the term of o f f i c e , office. The plaintiffs apparently read made b y o r d i n a n c e beginning in § than shall of a term 11-46-5 quadrennial taking or the time f o r years office the time contrast, to n o t have of o f f i c e require be t h e t i m e set forth the City argues the effect or the time that calculated the phrase the from "the e l e c t i o n of changing the f o r taking elections 1984 a n d t h a t be office" held the time f o r s e t f o r t h i n § 11-46-21(c), in the that § Mayor-Council 11-46-5 in rather Act. provides In f o r the a d o p t i o n o f t h e d a y s o f t h e e l e c t i o n s -- t h e f o u r t h T u e s d a y i n August and t h e s i x t h Tuesday t h e r e a f t e r -- s e t f o r t h i n § 1 1 - 4 6 - 2 1 ( a ) b u t n o t t h e y e a r -- 1984 a n d q u a d r e n n i a l l y -- set forth i n § thereafter 11-46-21(a). "In interpreting statutes, the underlying consideration i s t o u n d e r s t a n d and e f f e c t u a t e t h e intent of the Legislature as e x p r e s s e d i n the statutes. Employees' Retirement System o f Alabama v. Head, 369 So. 2d 1227 ( A l a . 1 9 7 9 ) ; C h a m p i o n v . M c L e a n , 2 6 6 A l a . 1 0 3 , 95 S o . 2 d 82 ( 1 9 5 7 ) . fl "... [ I ] f p o s s i b l e , t h e l e g i s l a t i v e i n t e n t must be d e r i v e d f r o m t h e e x p r e s s i o n i n t h e s t a t u t e . Town of Loxley v. Rosinton Water, Sewer and Fire Protection Authority, I n c . , 376 S o . 2 d 705 ( A l a . 19 7 9 ) ; E m p l o y e e s ' R e t i r e m e n t S y s t e m o f A l a b a m a v . 31 1091412 H e a d , 369 So. 2 d 1227 ( A l a . 1979). Where more t h a n one s t a t u t e i s i n v o l v e d , h o w e v e r , t h e y s h o u l d be c o n s t r u e d i n harmony w i t h o t h e r s t a t u t e s i n e f f e c t , so far as is practical. Waters v. City of B i r m i n g h a m , 282 A l a . 1 0 4 , 209 So. 2 d 388 (1 9 6 8 ) ; S t a t e e x r e l . R i c h a r d s o n v . M o r r o w , 27 6 A l a . 3 8 5 , 162 So. 2 d 480 (1 9 6 4 ) ; G u l f S t a t e s S t e e l Co. v. Justice, 204 A l a . 577 , 87 So. 211 (1 920 ) ; B.F. G o o d r i c h Co. v . B u t l e r , 56 A l a . A p p . 6 3 5 , 324 So. 2 d 7 7 6 , c e r t . q u a s h e d , 295 A l a . 4 0 1 , 324 So. 2 d 788 ( A l a . C i v . App. 1 9 7 5 ) . In c o n s t r u i n g a s t a t u t e , the c o u r t must l o o k not o n l y t o t h e l a n g u a g e of the s t a t u t e , however, b u t a l s o t o t h e p u r p o s e and o b j e c t o f t h e e n a c t m e n t , and i t s r e l a t i o n t o o t h e r laws and c o n d i t i o n s w h i c h may a r i s e under i t s p r o v i s i o n s . S t a t e ex r e l . R i c h a r d s o n v. Morrow, s u p r a . " Siegelman We Folmar, agree Rather than office that v. with 432 So. the requiring 2d City's that at 1248-49. interpretation the terms and of times c o m p l y w i t h § 1 1 - 4 6 - 2 1 , i t i s more l o g i c a l the legislature intended to allow § cities 11-46-5. of to and change the days of the g e n e r a l m u n i c i p a l e l e c t i o n s taking conclude towns and runoff e l e c t i o n s , but to leave i n p l a c e the years the e l e c t i o n s occur See and the Siegelman, times 432 the So. council 2d at members 1250 ("By 11-46-5 allows any ... municipality form of government and an date specified by its election date election date the second 32 take i t s express having § 11-46-21 t o e l e c t by to would a would office. terms, § mayor-council different ordinance Tuesday to in from to the advance July. The 1091412 Legislature, that some in passing municipalities elections at a 11-46-21."). 11-46-5], have different qualification not continued from supra. the date effect T h e r e f o r e , we reject their p r o v i d e d by run a f o u l "the of of the election changing the § the office." plaintiffs' w i t h the requirements of 11-46-5. Because 6, conduct or the time f o r t a k i n g argument t h a t the C i t y d i d not comply § the to i n § 11-46-5 t h a t have of a term of o f f i c e Siegelman, apparently recognized other i n t e r p r e t a t i o n would ordinance shall beginning See date Any plain-language made b y [§ 2009, conclude that the August elections plaintiffs' ordering we new were argument not that void, the we 25, 2009, and need trial court not October address erred in the not elections. Conclusion On 1975, No. February a majority 09-36. precleared the on August 2009, pursuant of the c i t y After election dates. 09-36 24, the 11-46-5, A l a . Code c o u n c i l v o t e d to adopt Ordinance United ordinance, the to States City § Justice implemented Department the E l e c t i o n s were h e l d p u r s u a n t t o O r d i n a n c e 25, 2009, and 33 October 6, 2009. For new No. the 1091412 reasons set forth herein, authority under ordinance the days runoff third the elections Tuesday sixth properly affirm § of the second the t r i a l summary court's 1975, Tuesday to change elections i n October Tuesday Accordingly, judgment the C i t y had the municipal to the fourth thereafter. a that A l a . Code the general thereafter entered conclude 11-46-5, from Tuesday we and and t h e i n August the t r i a l f o r the City, by and court and we judgment. AFFIRMED. Cobb, C . J . , and W o o d a l l , Shaw, a n d M a i n , Stuart, J J . , concur. 34 B o l i n , Parker, Murdock,
Some case metadata and case summaries were written with the help of AI, which can produce inaccuracies. You should read the full case before relying on it for legal research purposes.
This site is protected by reCAPTCHA and the Google Privacy Policy and Terms of Service apply.
