PERKS (WILLIAM T.) IV, D.C. VS. BYERS-ABSTON (TERRI J.) D.C.
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RENDERED: JANUARY 28, 2011; 10:00 A.M.
NOT TO BE PUBLISHED
Commonwealth of Kentucky
Court of Appeals
NO. 2009-CA-001655-MR
WILLIAM T. PERKS IV, D.C.
v.
APPELLANT
APPEAL FROM FRANKLIN CIRCUIT COURT
HONORABLE THOMAS D. WINGATE, JUDGE
ACTION NO. 09-CI-00849
TERRI J. BYERS-ABSTON, D.C.
APPELLEE
OPINION
AFFIRMING
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BEFORE: LAMBERT AND STUMBO, JUDGES; SHAKE,1 SENIOR JUDGE.
LAMBERT, JUDGE: William Perks, IV, appeals from the Franklin Circuit
Court’s September 2, 2009, order denying his motion to reconsider the trial court’s
August 10, 2009, order dismissing his complaint. After careful review, we affirm
both of the trial court’s orders.
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Senior Judge Ann O’Malley Shake sitting as Special Judge by assignment of the Chief Justice
pursuant to Section 110(5)(b) of the Kentucky Constitution and Kentucky Revised Statutes
(KRS) 21.580.
On April 8, 2009, the Governor of Kentucky, Steven L. Beshear,
appointed William T. Perks, IV, D.C. (Dr. Perks) as a member of the Kentucky
State Board of Chiropractic Examiners (the Board). Dr. Perks’s appointment was
entered as Executive Order 2009-344, which was published in the Executive
Journal and signed by the Secretary of State. Dr. Perks’s term was to expire on
March 29, 2012. On April 13, 2009, Dr. Perks received his formal commission,
signed by Governor Beshear, the Secretary of State, and bearing the seal of the
Commonwealth of Kentucky, along with a letter from the Governor commending
him for his service.
On April 22, 2009, Dr. Perks swore his oath of office and filed it in
the Executive Journal. On that same day, Governor Beshear entered Executive
Order 2009-383, in which he amended Executive Order 2009-344 and appointed
Terri J. Byers-Abston (Dr. Byers-Abston) to the Board. The order stated that Dr.
Byers-Abston should have been appointed and that Dr. Perks was inadvertently
named to the Board previously.
Dr. Perks filed the instant case in the Bullitt Circuit Court on April
28, 2009, against Dr. Byers-Abston. Dr. Perks sought damages from Dr. ByersAbston and a declaration of his rights in connection with their respective seats on
the Chiropractic Board. Dr. Byers-Abston immediately moved for a transfer of
venue to Franklin Circuit Court, which was granted by the Bullitt Circuit Court on
May 19, 2009. Dr. Byers-Abston then filed a motion to dismiss the action, which
was granted by the Franklin Circuit Court on August 10, 2009.
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In its order dismissing the complaint, the trial court held that (1) Dr.
Perks failed to state any legal basis for his claim for damages; (2) an office
established and held for the public good is not a contract, nor is its tenure secured
by any binding contract; and (3) Dr. Perks failed to join an indispensable party
(Governor Beshear). Further, the trial court held that there was no practical reason
for joining Governor Beshear, because the claim for damages no longer remained
pending for adjudication, and Dr. Perks’s declaratory action lacked sufficient
substance to which a joined party could respond.
Dr. Perks filed a motion to reconsider, which the trial court denied on
September 2, 2009. This appeal now follows.
We review a trial court’s order dismissing a cause of action de novo.
See Morgan v. Bird, 289 S.W.3d 222, 226 (Ky. App. 2009). “The [trial] court
should not grant the motion unless it appears the pleading party would not be
entitled to relief under any set of facts which could be proved in support of his
claim.” Pari-Mutuel Clerks’ Union v. Kentucky Jockey Club, 551 S.W.2d 801, 803
(Ky. 1977).
While a plaintiff is afforded considerable latitude in pleading claims
under Kentucky’s notice pleading standards, the claims must actually contain all
necessary elements and must be set forth clearly in order to provide notice to the
defendant of what has been pleaded. See Dalton v. First Nat. Bank of Grayson,
712 S.W.2d 954, 957 (Ky. App. 1986) (“[S]ome minimum standard in the art of
pleading must be met.”); see also Cabbage Patch Settlement House v. Wheatley,
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987 S.W.2d 784, 786 (Ky. 1999) (“Despite the informality with which pleadings
are nowadays treated, and despite the freedom with which pleadings may be
amended, the central purpose of pleadings remains notice of claims and defenses.”)
(Internal citations omitted).
The trial court held that Dr. Perks failed to state any legal basis for his
claim for damages against Dr. Byers-Abston. Before the trial court, Dr. Perks
argued that KRS 446.070 authorizes anyone injured due to a violation of a statute
to recover against the offender such damage as they received due to the violation.
Dr. Perks argued that under KRS 446.070, he was due damages for a violation of
KRS 63.080. KRS 63.080(1) states:
Except as provided in subsection (2) of this section and
otherwise provided by law, any person appointed by the
Governor, either with or without the advice and consent
of the Senate, may be removed from office by the
Governor for any cause the Governor deems sufficient,
by an order of the Governor entered in the executive
journal removing the officer.
The trial court held that Dr. Perks’s reliance on KRS 446.070 was erroneous
because application of the statute is limited to where the underlying statute is penal
in nature, or where by its terms the statute does not prescribe the remedy for its
violation. See Grzyb v. Evans, 700 S.W.2d 399, 401 (Ky. 1985). Because KRS
63.080 is not a penal statute, any remedy under KRS 446.070 is prohibited.
Furthermore, the trial court noted that even assuming that KRS 63.080
was an appropriate statute in the context of KRS 446.070, Dr. Byers-Abston was
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not the proper party to whom relief for damages could be had. The trial court
properly noted that it was the Governor, who exercised the power of removal under
KRS 63.080, who allegedly caused Dr. Perks’s injury. Because Dr. Perks did not
name the Governor as a defendant in his complaint, any claim for damages against
Dr. Byers-Abston caused by the Governor must fail.
We also note that in his complaint and on appeal to this court, Dr.
Perks concedes that the Governor can make a replacement to the Board by virtue
of his powers under KRS 63.080(1), but argues that the statute explicitly states that
there is an exception to the Governor’s power when there are alternate provisions
provided by law. Dr. Perks then references KRS 312.045, which states the grounds
under which a member of the Board may be suspended. Dr. Perks argues that he
has not committed any of the grounds for which he may be properly suspended
from the Board, and thus the Governor’s executive order was in error. Dr. Perks’s
argument fails to address the fact that he was inadvertently named to the Board and
was not suspended, but instead was permanently removed. On appeal, Dr. Perks
argues that the terms “suspended” and “removed” are interchangeable. We
completely disagree. These words have different common meanings with
suspension being temporary and removal or replacement being permanent. See
City of Worthington Hills v. Worthington Fire Protection Dist., 140 S.W.3d 584,
591 (Ky. App. 2004) (words in a statute should be given their common meaning).
Thus, because it deals with suspension, and Dr. Perks was not suspended, KRS
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312.045 is not in any way applicable to the case at bar, and Dr. Perks’s reliance on
it is in error.
Dr. Perks argues for the first time on appeal that he is entitled to
damages incident to a quo warranto claim. Our review of the record indicates that
Dr. Perks did not plead any claims or damages under the theory of quo warranto in
his complaint, nor were any arguments under this theory presented to the trial
court. Accordingly, we will not address such arguments for the first time on
appeal. See Regional Jail Auth. v. Tackett, 770 S.W.2d 225, 228 (Ky. 1989). We
note that even if we were to address Dr. Perks’s quo warranto arguments on
appeal, he concedes that no Kentucky Court has found it proper to award damages
in a quo warranto suit relating to a statutory office, such as the Board. Dr. Perks
cites Commonwealth v. Kentucky Jockey Club, 238 Ky. 739, 38 S.W.2d 987, 100809 (1931); however that former Court of Appeals decision actually supports the
absence of damages in such a proceeding, holding that “[a] majority of the court is
of the opinion that no substantial fine may be imposed in a quo warranto
proceeding to forfeit the charters of corporations.”
Dr. Perks cites to cases from other jurisdictions in support of his
argument that quo warranto supports his claims, however those cases simply state
that the salary or other monetary advantages of the office may be awarded pursuant
to a quo warranto proceeding in certain instances. However, Dr. Perks’s
complaint is devoid of any allegation that the Board members are compensated or
that there is any monetary benefit to the Board members.
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On appeal, Dr. Perks also argues that Governor Beshear is not a
necessary party to his claim for declaratory judgment. We disagree. In his
complaint, Dr. Perks does not state that Dr. Byers-Abston did anything wrong,
instead the complaint speaks only in terms of the Governor’s actions. To argue
that the Governor does not have an interest in the validity of his own executive
appointment or the validity of an Executive Order strains credulity. To be sure, the
statutory scheme governing declaratory judgment actions could not be clearer:
“When declaratory relief is sought, all persons shall be made parties who have or
claim any interest which would be affected by the declaration, and no declaration
shall prejudice the rights of persons not parties to the proceeding.” KRS 418.075;
see also CR 19.01. Thus the trial court properly determined that Dr. Perks
mistakenly filed his complaint against Dr. Byers-Abston, when he should have
sought declaratory relief in regard to and made any claims for damages against
Governor Beshear, the only person he alleges caused him any “injury.” However,
this is moot, in light of the trial court’s determination that the complaint did not
allege sufficient grounds to which the Governor could respond, were he properly
named as a party.
In his motion for reconsideration of the trial court’s order dismissing
his claims, Dr. Perks mistakenly relied on CR 76.38, and thus his motion was
procedurally flawed. That rule governs only proceedings before this Court as an
appellate court. See CR 76.38(1) (“Unless otherwise directed, all orders of an
appellate court. . . .”) (Emphasis added); see also PHILLIPS, et al., KY. PRAC., R. CIV.
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P. ANN. § 76.38(1) (“This Rule governs orders of appellate courts. . . .”). However,
a review of the record reflects that Dr. Perks also failed to demonstrate that he was
entitled to reconsideration under the proper rules, CR 59.05 or CR 60.02.
CR 59.05 authorizes the trial court to “alter or amend a judgment, or
to vacate a judgment and enter a new one” on a motion properly filed by a party
within ten days after entry of a final judgment. Recognizing the scope of the
power accorded trial courts by CR 59.05, the Kentucky Supreme Court has stated
that “a trial court has ‘unlimited power to amend and alter its own judgments.’ ”
Gullion v. Gullion, 163 S.W.3d 888, 891-92 (Ky. 2005), citing Henry Clay Mining
Co. v. V & V Min. Co., 742 S.W.2d 566 (Ky. 1987). In Gullion, the Kentucky
Supreme Court cited favorably the four grounds recognized by the federal courts in
construing the federal counterpart, Federal Rule of Civil Procedure 59(e):
There are four basic grounds upon which a Rule 59(e) motion
may be granted. First, the movant may demonstrate that the
motion is necessary to correct manifest errors of law or fact
upon which the judgment is based. Second, the motion may be
granted so that the moving party may present newly discovered
or previously unavailable evidence. Third, the motion will be
granted if necessary to prevent manifest injustice. Serious
misconduct of counsel may justify relief under this theory.
Fourth, a Rule 59(e) motion may be justified by an intervening
change in controlling law.
Id. at 893 (internal citation omitted). A trial judge's ruling pursuant to CR 59.05 is
reviewed by an appellate court under the abuse of discretion standard. Id. at 892.
A review of the record indicates that while Dr. Perks concedes that he
should not have cited KRS 446.070 as a basis for his claims, he has not shown how
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the trial court made a manifest error of law or fact in the dismissal of his claims.
As one assignment of error, Dr. Perks argues that the trial court mistakenly relied
on Johnson v. Laffoon, 257 Ky. 156, 77 S.W.2d 345 (1934), as a basis for its
determination that he had no legal right to assert his interest in the title to the
membership seat on the Board he claims was improperly held by Dr. ByersAbston. Dr. Perks argues that the case at bar is fundamentally different from
Johnson, contending that the plaintiff in Johnson filed suit against the Governor on
the basis that the Governor removed him from office on unconstitutional grounds.
To be sure, Dr. Perks then states, “This suit does not question the constitutionality
of the Governor’s actions. This suit merely seeks to obtain a determination against
the usurper of Dr. Perks’s seat because she is not rightfully holding her
membership to the [Board].” To the contrary, all of Dr. Perks’s allegations involve
not Dr. Byers-Abston’s conduct, but Governor Beshear’s, and the trial court
properly cited Johnson as authority for its ruling that Dr. Perks had no legal right
to assert his interest in the title to the membership seat on the Board held by Dr.
Byers-Abston.
Dr. Perks’s continued insistence that the Governor is not a proper party to a
declaratory judgment action does not address the fact that entry of the relief he is
seeking would necessarily result in a finding that the Governor’s Executive Order
appointing Dr. Byers-Abston is invalid. In fact, the only allegations of active
conduct in the complaint reference the Governor and Dr. Perks. This clearly gives
the Governor—and the Commonwealth—an interest in these proceedings. Thus,
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the trial court’s finding that the Governor was a necessary party was not an abuse
of discretion and was supported by the record.
In his motion to reconsider, Dr. Perks also cited KRS 415.030 for the first
time. As stated above, “[a] party cannot invoke CR 59.05 to raise arguments and
to introduce evidence that should have been presented during the proceedings
before the entry of the judgment.” Gullion, 163 S.W.3d at 893-94. Even if the
argument was properly before the Circuit Court, it does not change the Governor’s
interest in ensuring that his Executive Orders are carried out and that his choices as
to membership of state boards are effectuated. Because the Governor was not
named in the complaint or joined as a party, the complaint failed to state a
cognizable claim for declaratory relief upon which relief may be granted. See KRS
418.075.
Taking the remaining recognized grounds under which a trial court may
grant a CR 59.05 motion in turn, it is clear that Dr. Perks failed to provide a reason
under which the motion to reconsider could be granted. The motion is not based
upon newly discovered evidence or previously unavailable evidence; Dr. Perks
does not allege that the motion is necessary to prevent manifest injustice; and the
motion is not justified by an intervening change in controlling law. Thus, the trial
court properly denied the motion to reconsider had it been properly filed under CR
59.05.
We review denial of a CR 60.02 motion for an abuse of discretion also. See
Baze v. Commonwealth, 276 S.W.3d 761, 765 (Ky. 2009). As with the analysis
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under CR 59.05, Dr. Perks’s failure to invoke the proper rule in his motion to
reconsider is enough to defeat attempts to apply it. See Berry v. Cabinet for
Families & Children, 998 S.W.2d 464, 467 (Ky. 1999) (“The extraordinary
reasons required by Section (f) of [CR 60.02] must be clearly stated in a written
motion or petition in order to benefit by it.”). Even if the rule was invoked,
however, CR 60.02 relief in this instance was not merited by the circumstances, as
there is no showing of mistake, inadvertence, surprise or excusable neglect; newly
discovered evidence which by due diligence could not have been discovered in
time to move for a new trial under Rule 59.02; perjury or falsified evidence; fraud
affecting the proceedings; the judgment is not void; or any other reason of an
extraordinary nature justifying relief. See CR 60.02. Thus, the trial court properly
denied Dr. Perks’s motion for reconsideration, were it to be considered under the
procedural framework of CR 60.02.
In summation, the trial court properly dismissed Dr. Perks’s complaint
for failure to state a claim for which relief can be granted and for failure to name
an indispensable party. Upon reconsideration, the trial court properly denied Dr.
Perks’s motion to reconsider mistakenly filed pursuant to CR 76.38. Even
considering the motion to reconsider under the framework of CR 59.05 and CR
60.02, the motion to reconsider was properly denied. Accordingly, we affirm the
Franklin Circuit Court’s order dismissing Dr. Perks’s complaint entered on August
10, 2009, and the order denying his motion to reconsider entered on September 2,
2009.
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ALL CONCUR.
BRIEF FOR APPELLANT:
BRIEF FOR APPELLEE:
Jonathan Davis Boggs
Elizabethtown, Kentucky
Philip A. Martin
Louisville, Kentucky
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