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No. 13052 I N T E SUPREME C U T O THE STATE OF M N A A H OR F OTN 1975 BOARD O PUBLIC EDUCATION OF THE F STATE OF MONTANA, Plaintiff, THOMAS L. J U D G E , Governor of t h e S t a t e of Montana, Defendant. ORIGPNAL PROCEEDING : For P l a i n t i f f : G a r l i n g t o n , Lohn and Robinson, Missoula, Montana Sherman V. Lohn argued, Missoula, Montana F o r Defendant : Hon. Robert L. Woodahl, Attorney General, Helena, Montana Lon Maxwell, A s s i s t a n t A t t o r n e y General, argued, Helena, Montana Cannon and G a r r i t y , Helena, Montana Donald G a r r i t y argued, Helena, Montana P a t r i c k E. Melby, Helena, Montana Submitted: June 1 6 , 1975 L Decided : A L Filed : AjJL $ ;$I$ 8 1975 ez Mr. J u s t i c e Wesley C a s t l e s d e l i v e r e d t h e Opinion of t h e C o u r t . T h i s i s an o r i g i n a l p r o c e e d i n g s e e k i n g a d e c l a r a t o r y judgment a s t o t h e c o n s t i t u t i o n a l i t y of a n enactment, C h a p t e r 434, of t h e F o r t y - F o u r t h L e g i s l a t i v e Assembly e f f e c t i v e on J u l y 1, 1975. T h i s C o u r t p e r m i t t e d t h e f i l i n g of a c o m p l a i n t by t h e Board of P u b l i c E d u c a t i o n a g a i n s t t h e Governor of t h e S t a t e . answer was f i l e d , b r i e f s f i l e d , and o r a l argument had. An Defendant admitted t h e n e c e s s i t y f o r t h i s o r i g i n a l proceeding, but denied t h e c h a l l e n g e d l e g i s l a t i v e a c t was u n c o n s t i t u t i o n a l . By t h e c o m p l a i n t and answer, t h r e e i s s u e s a r e p r e s e n t e d : (1) Do t h e p r o v i s i o n s of C h a p t e r 434, Laws of 1975, which d e s i g n a t e t h e S t a t e Board of E d u c a t i o n a s t h e S t a t e Board of V o c a t i o n a l E d u c a t i o n v i o l a t e t h e p r o v i s i o n s of A r t i c l e X , Sect i o n 9 , 1972 Montana C o n s t i t u t i o n ? (2) I f t h e f i r s t i s s u e i s answered i n t h e a f f i r m a t i v e , a r e t h e p r o v i s i o n s of C h a p t e r 434, which d e s i g n a t e a new execut i v e o f f i c e r f o r v o c a t i o n a l e d u c a t i o n , v a l i d and s e v e r a b l e from t h e i n v a l i d p o r t i o n s of t h e Act? (3) I f a l l o r any p o r t i o n o f C h a p t e r 434 i s u n c o n s t i t u - t i o n a l , i s t h e appropriation f o r vocational education contained i n H.B. 286 i n o p e r a t i v e ? A r t i c l e X , S e c t i o n 9 , 1972 Montana C o n s t i t u t i o n , e s t a b l i s h e s t h r e e d i s t i n c t b o a r d s concerned w i t h s t a t e e d u c a t i o n . The p e r - t i n e n t provisions are: "(1)There i s a s t a t e board of e d u c a t i o n composed of t h e board of r e g e n t s of h i g h e r e d u c a t i o n and t h e board of p u b l i c e d u c a t i o n . I t i s r e s p o n s i b l e f o r long-range p l a n n i n g , and f o r c o o r d i n a t i n g and e v a l u a t i n g p o l i c i e s and programs f o r t h e s t a t e ' s educational systems. * * * " ( 2 ) ( a ) The government and c o n t r o l of t h e Montana u n i v e r s i t y system i s v e s t e d i n a board of r e g e n t s of h i g h e r e d u c a t i o n which s h a l l have f u l l power, r e s p o n s i b i l i t y , and a u t h o r i t y t o s u p e r v i s e , c o o r d i n a t e , manage and c o n t r o l t h e Montana u n i v e r s i t y system and shall supervise and coordinate other public educational institutions assigned by law. " (3) (a) There is a board of public education to exercise general supervision over the public school system and such other public educational institutions as may be assigned by law. Other duties of the board shall be provided by law." Prior to enactment of Chapter 434, the general supervision and control of vocational education was vested in the Board of Public Education under sections 75-5617(1) and 75-7702, R.C.M. 1947. In enacting Chapter 434, the legislature attempted to take this responsibility away from the Board of Public Education by transferring it to the State Board of Education. It accomplished this by designating the State Board of Education, the board established by Article X, Section 9(1), 1972 Montana Constitution, as the State Board of Vocational Education. (Chap. 434, section 75-7702, R.C.M. 1947) and requiring it to adopt policies: " * * * to effect the orderly development of a system of vocational education that is adaptable to changing needs, controlled to prevent unnecessary duplication, co-ordinated with federal guidelines and requirements for vocational education, and funded to ensure growth and quality programming." The law then provides specific areas which such policies must cover, including standards for courses, instructor qualifications, criteria for courses, apportionment of appropriated moneys both state and federal, and authorizes the adoption of any other policies not inconsistent with law and which are deemed necessary for the proper operation of the system. Chapter 434, section Under Chapter 434, the governor is required to appoint from the State Board of Education, designated the Vocational Education Board, five persons, three from the Board of Public Education and two from the Board of Regents, designating this board as an administrative committee, which is to have the responsibility f o r t h e a d m i n i s t r a t i o n of t h e p o l i c i e s a d o p t e d . S e c t i o n 75-7702. T h i s committee i s t o s e l e c t a n e x e c u t i v e o f f i c e r who " * * * shall a d m i n i s t e r f o r t h e a d m i n i s t r a t i v e committee a l l s t a t e and f e d e r a l laws r e l a t e d t o v o c a t i o n a l e d u c a t i o n . " , prescribed duties. S e c t i o n 75-7703, i n addition t o other R.C.M. 1947. C h a p t e r 434 a l s o p r o v i d e s f o r t h e assignment of c e r t a i n powers and d u t i e s p r o v i d e d by law t o t h e Board of V o c a t i o n a l Education. S e c t i o n 75-5617, R.C.M. 1947. I n e f f e c t , C h a p t e r 434 t r a n s f e r s s u p e r v i s i o n and c o n t r o l of v o c a t i o n a l e d u c a t i o n from t h e p l a i n t i f f h e r e t o t h e S t a t e Board of E d u c a t i o n , and from t h a t Board t o a n a d m i n i s t r a t i v e committee and an e x e c u t i v e o f f i c e r . C h a p t e r 434, Laws 1975, c o n s i s t s of 17 s e c t i o n s ; t h e f i r s t 1 6 amend v a r i o u s e x i s t i n g s t a t u t e s . S e c t i o n 17 p r o v i d e s a s e v e r - a b i l i t y clause. The 1975 L e g i s l a t u r e a l s o e n a c t e d House B i l l 286, "AN ACT APPROPRIATING M N Y TO VARIOUS STATE AGENCIES F O R THE B I E N N I U M OES E N D I N G J U N E 30, 1977." A s o r i g i n a l l y p a s s e d by t h e House of R e p r e s e n t a t i v e s , House B i l l 286, pp. 1 6 , 1 7 , c o n t a i n e d t h e f o l l o w i n g a p p r o p r i a t i o n s t o t h e S u p e r i n t e n d e n t of P u b l i c I n s t r u c t i o n : "From t h e g e n e r a l fund: Five vocational technical centers Vocational secondary & postsecondary e d u c a t i o n From t h e earmarked 3,616,319 4,245,790 * * * r e v e n u e fund * * * 02900 Vo-tech c e n t e r s t u i t i o n : ERA 123,585 144,734" T h i s l a n g u a g e was d e l e t e d from t h e b i l l by t h e S e n a t e Committee on F i n a n c e and Claims, which i n s e r t e d t h e f o l l o w i n g language a t pp. 1 4 , 1 5 of t h e e n r o l l e d b i l l : " I f House B i l l 566, f o r t y - f o u r t h l e g i s l a t u r e , becomes law, t h e f o l l o w i n g f u n d s a r e t r a n s f e r r e d from t h e S u p e r i n t e n d e n t of P u b l i c I n s t r u c t i o n ' s o f f i c e t o t h e S t a t e Board of V o c a t i o n a l E d u c a t i o n . "STATE BOARD O VOCATIONAL EDUCATION F E d u c a t i o n a l s e r v i c e s program From t h e g e n e r a l fund From t h e f e d e r a l and p r i v a t e r e v e n u e fund vocational education account D i s t r i b u t i o n of p u b l i c f u n d s program From t h e g e n e r a l fund 165,805 175,217 360,709 393,671 123,585 144,734 Five vocational technical centers Vocational secondary and p o s t s e c o n d a r y education From t h e earmarked r e v e n u e fund 02900 Vo-Tech c e n t e r s t u i t i o n ERA :. Total 4,946,248 5,701,827" W e s h a l l n o t r e v i e w h e r e t h e g e n e r a l p r i n c i p l e s t o be f o l l o w e d i n c o n s i d e r i n g c o n s t i t u t i o n a l i t y of a n e n a c t m e n t , b u t w i l l r e f e r t o recent cases. , No11 v . C i t y of Bozeman, 534 P.2d 880, 32 St.Rep. Mont . 415; S t a t e e x r e l . Cashmore v . Anderson, 160 Mont. 175, 500 P.2d 921. W e now t u r n t o t h e h i s t o r y of t h e law which C h a p t e r 434 s e e k s t o amend. I n t h e 1889 Montana C o n s t i t u t i o n A r t i c l e X I , Sec. 11, o n l y one board was e s t a b l i s h e d t o d e a l w i t h s t a t e e d u c a t i o n a l i n s t i t u t i o n s , it p r o v i d e d : "The g e n e r a l c o n t r o l and s u p e r v i s i o n of t h e s t a t e u n i v e r s i t y and t h e v a r i o u s o t h e r s t a t e e d u c a t i o n a l i n s t i t u t i o n s s h a l l be v e s t e d i n a s t a t e board of e d u c a t i o n , whose powers and d u t i e s s h a l l be p r e s c r i b e d and r e g u l a t e d by law. * * *." P r i o r t o t h e a d o p t i o n of t h e 1972 Montana C o n s t i t u t i o n , rhe s t a t e l e g i s l a t u r e v e s t e d c o n t r o l and s u p e r v i s i o n o f t h e s t a t e ' s v o c a t i o n a l e d u c a t i o n s y s t e m i n t h e Board of E d u c a t i o n . 73-7702, R.C.M. Section 1947. T h i s t h e n w a s t h e s i t u a t i o n when t h e C o n s t i t u t i o n a l Convention convened--one Board of E d u c a t i o n w i t h f u l l r e s p o n - s i b i l i t y under t h e C o n s t i t u t i o n f o r a l l s t a t e e d u c a t i o n a l systems, including v o c a t i o n a l education. A r t i c l e X , S e c t i o n 9, 1972 Montana C o n s t i t u t i o n , c l e a r l y sets up t h r e e b o a r d s : (1) The Board of Regents of h i g h e r e d u c a t i o n , t o s u p e r - v i s e t h e Montana u n i v e r s i t y system; w i t h t h e r e s e r v a t i o n t h a t o t h e r d u t i e s c o u l d be p r e s c r i b e d by law. (2) The Board of P u b l i c E d u c a t i o n , t o e x e r c i s e g e n e r a l supervision over t h e p u b l i c school system, w i t h t h e r e s e r v a t i o n t h a t o t h e r d u t i e s c o u l d be p r e s c r i b e d by law. (3) two Boards. The S t a t e Board of E d u c a t i o n , c o n s i s t i n g of t h e f i r s t The p r o v i s i o n c a r e f u l l y d e l i n e a t e s t h a t " I t i s re- s p o n s i b l e f o r long-range p l a n n i n g , and f o r c o o r d i n a t i n g and e v a l - u a t i n g p o l i c i e s and programs f o r t h e s t a t e ' s e d u c a t i o n a l s y s t e m s . " The d e b a t e on A r t i c l e X , S e c t i o n 9 , i n t h e 1972 C o n s t i t u t i o n a l Convention c e n t e r e d around t h e i s s u e o f whether t h e r e s h o u l d be a s i n g l e board a s i n t h e 1889 C o n s t i t u t i o n , o r two b o a r d s , one f o r t h e u n i v e r s i t y system and o n e f o r t h e p u b l i c s c h o o l system. T h i s i s c l e a r from a r e a d i n g of t h e t r a n s c r i p t of p r o c e e d i n g s of t h e C o n s t i t u t i o n a l Convention, Vol. 8 , b e g i n n i n g a t page 6 2 6 6 . The c o n c e p t of two b o a r d s p r e v a i l e d . The t h i r d b o a r d , t h e S t a t e Board of E d u c a t i o n , made up of t h e o t h e r two, was o r i g i n a l l y cons i d e r e d from t h e s t a n d p o i n t of a u n i f i e d budget and was o n l y t o r e v i e w m a t t e r s of mutual i n t e r e s t . long-range p l a n n i n g , T h e r e a f t e r , t h e language f o r c o o r d i n a t i n g and e v a l u a t i n g was added. I n c o n s i d e r i n g t h e r e s p o n s i b i l i t i e s of t h e t h i r d b o a r d , o r t h e S t a t e Board of E d u c a t i o n , i t was proposed t h a t t h e word " a d m i n i s t r a t i o n s " be i n s e r t e d s o t h a t t h e Board would have r e s p o n s i b i l i t y ' f o r c o o r d i n a t i n g and e v a l u a t i n g p o l i c i e s , programs and a d m i n i s t r a t i o n s f o r t h e s t a t e ' s e d u c a t i o n a l system." T h i s was s p e c i f i c a l l y r e j e c t e d w i t h t h e f e a r b e i n g e x p r e s s e d t h a t s u c h a p r o v i s i o n might alloh7 t h e t h i r d board t o o v e r r i d e t h e d e c i s i o n s of t h e o t h e r two. I t was c l e a r l y t h e i n t e n t of t h e Convention t o m a i n t a i n a two board system w i t h t h e t h i r d board t o have no e x e c u t i v e o r a d m i n i s t r a t i v e powers o t h e r t h a n t h o s e e x p r e s s e d i n p l a n n i n g , c o o r d i n a t i n g and e v a l u a t i n g . I n t h e c o n v e n t i o n p r o c e e d i n g s , v o c a t i o n a l e d u c a t i o n and v o - t e c h a r e r e f e r r e d t o many t i m e s i n t h e d i s c u s s i o n of A r t i c l e X, Section 9. The t e r m s were used i n t e r c h a n g e a b l y . The f a c t i s , v o c a t i o n a l e d u c a t i o n i s i n c l u d e d i n t h e c u r r i c u l u m of n e a r l y e v e r y h i g h s c h o o l i n Montana w h i l e v o - t e c h g e n e r a l l y r e f e r s t o t h e s e p a r a t e c e n t e r s l o c a t e d i n major Montana communities. There was no q u e s t i o n b u t t h a t i t was i n t e n d e d t h a t v o c a t i o n a l e d u c a t i o n was t o be a r e s p o n s i b i l i t y of t h e Board of P u b l i c E d u c a t i o n . A s an example, i n Volume 8 , p . 6 3 4 0 of t h e t r a n s c r i p t , t h i s exchange occurs : "DELEGATE DAHOOD: * * * t e l l u s under which board-t h e board o f p u b l i c e d u c a t i o n o r t h e board of regents--you would p l a c e t h e v o c a t i o n a l e d u c a t i o n program of Montana? "DELEGATE CHAMPOUX: tion, * * *". The board of p u b l i c educa- Moreover, t h e r e p o r t of t h e E d u c a t i o n and P u b l i c Lands Committee o r d e r e d f i l e d a t p. 2180, Volume 4 of t h e T r a n s c r i p t of Proceedi n g s , c o n t a i n s a t page 30 t h i s e x p l a n a t i o n : "Under e x i s t i n g l a w , v o c a t i o n a l - t e c h n i c a l c e n t e r s w i l l remain w i t h i n t h e p u b l i c s c h o o l system and t h u s under t h e j u r i s d i c t i o n of t h e Board o f P u b l i c E d u c a t i o n . W i t n e s s e s from t h e 'Vo-Tech' f i e l d a s s u r e d t h e Committee t h a t t h i s was t h e i r p r e f e r ence a t t h e p r e s e n t t i m e . However, t h e language of t h i s s e c t i o n and of t h e new s e c t i o n 1 a l l o w s 1 s u f f i c i e n t f l e x i b i l i t y so t h a t , should conditions change, t h e s e i n s t i t u t i o n s c o u l d be accommodated i n t h e system o f h i g h e r e d u c a t i o n . " The c l e a r c o n t e m p l a t i o n of t h i s r e p o r t i s t h a t t h e r e s p o n s i b i l i t y f o r v o c a t i o n a l e d u c a t i o n c o u l d be t r a n s f e r r e d t o t h e Board of Regents from t h e Board of P u b l i c E d u c a t i o n , b u t t h e r e i s no i n d i c a t i o n it c o u l d be t r a n s f e r r e d t o t h e Board of E d u c a t i o n . I t s h o u l d be n o t e d t h a t i n A r t i c l e X , Section 9(2) ( a ) , t h e f r a m e r s o f t h e 1972 C o n s t i t u t i o n , a f t e r p r o v i d i n g t h a t t h e Board of Regents was t o have g e n e r a l s u p e r v i s i o n of t h e U n i v e r s i t y s y s t e m , added t h e s e words: " * * * and s h a l l s u p e r v i s e and c o o r d i n a t e other public educational i n s t i t u t i o n s assigned by law. I' Likewise i n A r t i c l e X , S e c t i o n 9 ( 3 ) ( a ) , a f t e r p r o v i d i n g t h a t t h e Board of P u b l i c E d u c a t i o n s h o u l d e x e r c i s e g e n e r a l s u p e r v i s i o n o v e r t h e p u b l i c s c h o o l s y s t e m , t h e s e words were added: " * * * and such o t h e r p u b l i c e d u c a t i o n a l i n s t i t u t i o n s a s may be a s s i g n e d by law. Other d u t i e s of t h e board s h a l l be p r o v i d e d by l a w . " I t i s o b v i o u s t h e f r a m e r s of t h e C o n s t i t u t i o n f e a r e d a s u p e r board and d e s i r e d t h a t t h e a u t h o r i t y of t h e S t a t e Board of E d u c a t i o n be l i m i t e d t o long-range p l a n n i n g , c o o r d i n a t i o n and evaluation. Now, examining C h a p t e r 434, i t i s c l e a r t h a t it f l a t l y p r o v i d e s f o r "ADMINISTERING VOCATIONAL EDUCATION" as e x p r e s s e d i n t h e t i t l e of t h e Act. This i s c o n t r a r y t o t h e expressed w i l l o f t h e f r a m e r s of t h e 1972 C o n s t i t u t i o n . Chapter 434, Laws of 1975, i s u n c o n s t i t u t i o n a l . The second i s s u e i s whether t h e Act i s s e v e r a b l e . That i s , d e f e n d a n t a r g u e s t h a t even i f t h e d e l e g a t i o n of power t o t h e s t a t e hoard of e d u c a t i o n and t h e a d m i n i s t r a t i v e committee i s i n v a l i d , t h e s e p a r a t e l y o p e r a t i v e remainder of t h e A c t , p a r t i c u l a r l y Section 2 i s s e v e r a b l e and t h u s v a l i d . Defendant u r g e s t h a t i f t h e a d m i n i s t r a t i v e committee i s i n v a l i d , t h e n t h e power of a p p o i n t i n g t h e e x e c u t i v e o f f i c e r f o r v o c a t i o n a l e d u c a t i o n would f a l l t o t h e governor under A r t i c l e V I , S e c t i o n 8 , 1972 Montana C o n s t i t u t i o n , which p r o v i d e s f o r appointment by t h e g o v e r n o r , i f n o t o t h e r w i s e provided f o r . Defendant u r g e s t h a t S e c t i o n 2 of t h e Act ( t h e amendment t o s e c t i o n 75-7703) and s u c h o t h e r p o r t i o n s of the Act that relate to the executive offl c e r for vocatiorlal education are severable and should be upheld. However, from whdt we have set forth heretofore, it is clear that if the State Board of Education does not have the powers contemplated by the Act, all other provisions are dependent thereon. The Act then must fall. House Bill No. 286 is the general appropriations bill of the legislature for the biennium ending June 30, 1977. Section 12 sets forth the general headings of various departments and the sums appropriated. Under the heading "SUPERINTENDENT OF PUBLIC INSTRUCTION'S OFFICE" this language appears: "If House Bill 566, forty-fourth legislature, becomes law, the following funds are transferred from the Superintendent of Public Instruction's office to the State Board of Vocational Education. " "STATE BOARD OF VOCATIONAL EDUCATION" [The appropriations are then listed]. It is obvious the funds are appropriated to the Superin- tendent of Public Instruction. The transfer is plainly contingent on the Act, Chapter 434, becoming effective. effective because of our holding here. It has not become Accordingly, the funds are not transferred and remain with the saperintendent's office. To summarize, we hold Chapter 434, Laws of 1975, an unconstlcutional law. The provisions are not severable and the provisions for a new executive officer are invalid. The appro- priation contained in House Bill 286 to the Superintendent of Public Instruction is operative. This opinion shall constitute a declaratory judgment. ! Y .Chief Justice Justice
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