JONES HERRIOTT v JUDGE

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No. 14206 IN THE SUPREME COURT OF THE STATE OF MONTANA 1978 LEWIS R. JONES, RALPH L. HERRIOTT et al., Plaintiffs and Petitioners, HON. THOMAS L. JUDGE, Governor of the State of Montana et al., Defendants and Respondents. Original Proceeding: Counsel of Record: For Petitioners: Ralph L. Herriott argued, Hysham, Montana John L. Adams, Jr. Billings, Montana Douglas Y. Freeman, Hardin, Montana Weymouth D. Symrnes, Billings, Montana Hon. Judge Charles B. Sande, argued, ~illinqs,Montana For Respondents: Hon. Mike Greely, Attorney General, Helena, Montana Mike NcGrath, Assistant Attorney General, argued, Helena, Montana Hon. Judge W. W. Lessley argued, Bozeman, Montana Submitted: Filed: 'b?? . Decided: 41:3 - - Hon. P e t e r G . Meloy, D i s t r i c t J u d g e , s i t t i n g , d e l i v e r e d t h e Opinion of t h e Court. 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 from t h i s C o u r t on t h e c o n s t i t u t i o n a l i t y o f s e c t i o n 93-710, e t s e q . , R . C . M . 1947. These s t a t u t e s p r o v i d e i n p a r t t h a t i n d i v i d u a l s nominated f o r j u d i c i a l v a c a n c i e s be c o n f i r m e d by t h e S e n a t e , b u t t h a t a n o m i n a t i o n made w h i l e t h e S e n a t e i s n o t i n s e s s i o n i s e f f e c t i v e a s an a p p o i n t m e n t , u n t i l t h e end of t h e n e x t s e s s i o n . T h i s c o n t r o v e r s y a r o s e a f t e r t h e j u d i c i a l vacancy c r e a t e d by t h e a p p o i n t m e n t of Chief J u s t i c e Paul H a t f i e l d t o t h e United S t a t e s S e n a t e . The J u d i c i a l Nominating Commission a s a u t h o r i z e d by s e c t i o n 93-710, p r e s e n t e d t h e Governor w i t h t h r e e nominees. Thomas L . Judge a s Governor of t h e S t a t e o f Montana s e l e c t e d one of t h r e e nominees, Frank I . H a s w e l l , t o f i l l t h e o f f i c e of Chief J u s t i c e of t h e Supreme C o u r t a s a u t h o r i z e d by S e c t i o n 93-71 1 . The a p p o i n t m e n t o f J u s t i c e Haswell a s C h i e f J u s t i c e c r e a t e d a vacancy on t h e Supreme C o u r t which r e q u i r e s t h e same p r o c e d u r e s a s used i n f i l l i n g t h e vacancy f o r Chief J u s t i c e . P e t i t i o n e r s a r e Lewis R . J o n e s , Ralph R . H e r r i o t t and C h a r l e s B . S a n d e , r e g i s t e r e d v o t e r s i n T r e a s u r e and Y e l l o w s t o n e C o u n t i e s who d e s i r e and i n t e n d t o v o t e i n t h e n e x t p r i m a r y and n e x t g e n e r a l e l e c t i o n s i n t h e S t a t e of Montana. Respondents f i l e d a motion t o d i s m i s s and t h e C o u r t d i s m i s s e d t h e a c t i o n a s t o r e s p o n d e n t s Mike G r e e l y , John C . H a r r i s o n , L a r r y E l i s o n and " a l l o t h e r p e r s o n s r e c e n t l y i n v o l v e d a s c a n d i d a t e s o r a s p i r a n t s t o t h e a p p o i n t m e n t t o t h e o f f i c e of Chief J u s t i c e of t h e Supreme C o u r t of t h e S t a t e o f Montana and A s s o c i a t e J u s t i c e of t h e Supreme C o u r t of Montana." The m o t i o n t o d i s m i s s a s t o t h e o t h e r r e s p o n d e n t s was h e a r d a t t h e t i m e o f t h e h e a r i n g o n t h e m e r i t s o n M a r c h 3 1 , 1978. It i s petitioners' contention t h a t individuals appointed t o f i l l j u d i c i a l vacancies must r u n f o r o f f i c e a t the n e x t succeeding primary. The' c r u x o f p e t i t i o n e r s ' a r g u m e n t i s t h a t A r t i c l e VII, S e c t i o n 8, 1972 Montana C o n s t i t u t i o n , i s ambiguous. The t h r u s t o f t h e c o m p l a i n t i s t h a t s e c t i o n s 9 3 - 7 1 0 and 93-711 a r e u n c o n s t i t u t i o n a l . The b a s i s f o r t h e c o n t e n t i o n s i s considered l a t e r i n t h i s Opinion. Respondents i n i t i a l l y c o n t e n d p e t i t i o n e r s l a c k s t a n d ing t o invoke the j u d i c i a l power o f t h i s C o u r t . r e s p o n d e n t s c o n t e n d t h e mandates of A r t i c l e V I I , I n addition, S e c t i o n 8, as t o j u d i c i a l v a c a n c i e s a r e unambiguous and t h e r e f o r e n o t s u b j e c t t o any c o n s t r u c t i o n by t h i s C o u r t . The f i r s t i s s u e i s w h e t h e r p e t i t i o n e r s h a v e s t a n d i n g t o invoke the Court's j u d i c i a l power. The r u l e i s w e l l - e s t a b l i s h e d i n M o n t a n a t h a t o n l y t h o s e who a r e a d v e r s e l y a f f e c t e d b y a s t a t u t e w i l l b e h e a r d t o question i t s v a l i d i t y . Mont. 520, Chovanak v . Matthews, (1948), 120 188 P.2d 582. Chovanak s t a t e d t h a t a s a g e n e r a l r u l e , private c i t i z e n s may n o t r e s t r a i n o f f i c i a l a c t s when t h e y f a i l to a l l e g e a n d p r o v e damages t o t h e m s e l v e s d i f f e r i n g i n c h a r a c t e r f r o m t h a t s u s t a i n e d by t h e general p u b l i c . The r i g h t t o v o t e , constitutional right. however, i s a p e r s o n a l and A l t h o u g h s t a t u r e as an e l e c t o r w i l l g e n e r a l l y n o t a l l o w an i n d i v i d u a l t o b r i n g an a c t i o n i n v o k i n g t h e j u d i c i a l power, a n e l e c t o r who i s d e n i e d t h i s r i g h t i s s u f f i c i e n t l y affected t o invoke the j u d i c i a l power t o c h a l l e n g e t h e v a l i d i t y o f t h e A c t which d e n i e s him t h e r i g h t . The s e c o n d i s s u e i s w h e t h e r t h e j u d i c i a l nominating p r o c e s s as e s t a b l i s h e d i n Montana i s c o n s t i t u t i o n a l . VII, S e c t i o n 8, 1972 Montana C o n s t i t u t i o n , i n t o three subsections. Article i s divided Subsection (1) provides f o r the n o m i n a t i o n and a p p o i n t m e n t t o f i l l j u d i c i a l v a c a n c i e s and i s the constitutional b a s i s f o r s e c t i o n s 93-71 0 and 93-71 1 . S u b s e c t i o n s ( 2 ) and ( 3 ) p r o v i d e t h e manner of f i l l t h e vacancies. v. Smith, (1976), 828, and Yunker v. 285, 33 S t . the election t o P e t i t i o n e r s r e l y on t h e l a n g u a g e i n K e l l e r Mont. Murray, 553 P . 2 d 1 0 0 2 , 33 S t . (1976), Rep. , 554 P . 2 d Mont. Rep. 8 5 6 , w h i c h d e a l w i t h s u b s e c t i o n s ( 2 ) a n d ( 3 ) and t h e meaning o f t h e word " i n c u m b e n t " . P e t i t i o n e r s argue t h a t because o f a s o - c a l l e d " a m b i g u i t y " i n s u b s e c t i o n s ( 2 ) and ( 3 ) t h a t s u b s e c t i o n ( 1 ) i s a l s o ambiguous. W do n o t e agree. Article VII, part: S e c t i o n 8, subsection ( I ) , states i n " E a c h n o m i n a t i o n s h a l l be c o n f i r m e d b y t h e s e n a t e , but a n o m i n a t i o n made w h i l e t h e s e n a t e i s n o t i n s e s s i o n s h a l l b e effective a s an a p p o i n t m e n t u n t i l t h e end o f the next session." There i s n o t h i n g anbiguous about t h i s language. When t h e w o r d s o f a s t a t u t e a r e p l a i n , u n a m b i g u o u s , d i r e c t a n d certain, i t speaks f o r i t s e l f and t h e r e i s n o t h i n g f o r t h e court t o construe. (1929), S t a t e ex r e l . 8 6 M o n t . 2 0 0 , -28'2 P . 202, P u b l i c S e r v i c e Comm. v . B r a n n o n , 209. The t e r m s m u s t be g i v e n t h e n a t u r a l and p o p u l a r m e a n i n g i n w h i c h t h e y a r e u s u a l l y understood. S t a t e ex r e l . Hinz v . Moody, ( 1 9 2 4 ) , 71 Mont. 4 7 3 , 230 P . 5 7 5 ; Cashman v . V i c k e r s , ( 1 9 2 4 1 , 69 Mont. 5 1 6 , 223 P . 8 9 7 . T h e s e , same p r i n c i p l e s a p p l y i n t h e i n t e r p r e t a t i o n of t h e C o n s t i t u t i o n . C r u s e v . F i s c h l , ( 1 9 1 8 ) , 55 Mont. 2 5 8 , 1 7 5 P . 8 7 3 ; M a r t i e n v . P o r t e r , ( 1 9 2 3 ) , 6 8 Mont. 4 5 0 , 219 P . 8 1 7 . The l a n g u a g e o f t h e C o n s t i t u t i o n i s u n e q u i v o c a l l y c l e a r s o t h a t when a j u d i c i a l v a c a n c y e x i s t s , a n o m i n a t i o n made when t h e s e n a t e i s n o t i n s e s s i o n i s e f f e c t i v e a s an a p p o i n t m e n t u n t i l t h e end o f t h e n e x t s e s s i o n . The h o l d i n g i n K e l l e r v . S m i t h , s u p r a , t h a t t h e word " i n c u m b e n t " i n A r t i c l e V I I , S e c t i o n 8 i s a m b i g u o u s h a s no b e a r i n g on t h e c l a r i t y o f a n y o t h e r l a n g u a g e i n t h i s s e c t i o n . P e t i t i o n e r s u s e o f Yunker v . M u r r a y , s u p r a , i s s i m i l a r l y inappropriate. B e c a u s e t h e l a n g u a g e i s unambiguous t h e r e i s nothing f o r t h e Court t o construe. The s t a t u t e s c o m p l a i n e d o f a r e d e r i v e d d i r e c t l y from t h e unambiguous l a n g u a g e o f t h e 1 9 7 2 Montana C o n s t i t u t i o n . P e t i t i o n e r s p o i n t o u t t h a t a t t h e t i m e of t h e of t h e a d o p t i o n / j u d i c i a l a r t i c l e i n 1 9 7 2 , t h e l e g i s l a t u r e met i n a n n u a l s e s s i o n s and t h a t s u b s e q u e n t l y t h e C o n s t i t u t i o n was amended t o p r o v i d e b i e n n i a l s e s s i o n s . From t h i s e v e n t p e t i t i o n e r s seem t o c o n t e n d t h e j u d i c i a l a r t i c l e i s n o t what t h e p e o p l e d e s i r e a t t h i s time. To a c h i e v e t h e r e s u l t t h a t p e t i t i o n e r s d e s i r e , t h i s C o u r t would h a v e t o i n s e r t l a n g u a g e i n t o s u b s e c t i o n ( 1 ) of t h e j u d i c i a l a r t i c l e . T h i s C o u r t h a s no s u c h a u t h o r i t y . N e i t h e r can t h i s Court a c c e p t p e t i t i o n e r s ' c o n t e n t i o n t h a t t h e j u d i c i a l appointment process i s v i o l a t i v e of and r e p u g n a n t t o t h e f o l l o w i n g p r o v i s i o n s o f t h e 1 9 7 2 Montana C o n s t i t u t i o n : A r t i c l e 11, Section 1 ; A r t i c l e 111, S e c t i o n 1 ; and A r t i c l e V , S e c t i o n 1 3 . A r t i c l e 11, Section 1 , provides: " P o p u l a r S o v e r e i g n t y . A l l pol i t i c a l power i s v e s t e d i n and d e r i v e d f r o m t h e p e o p l e . All government of r i g h t o r i g i n a t e s with t h e p e o p l e , i s f o u n d e d upon t h e i r w i l l o n l y , and i s i n s t i t u t e d s o l e l y f o r t h e good o f t h e w h o l e . " A r t i c l e 111, S e c t i o n 1 , provides f o r t h e s e p a r a t i o n o f t h e powers o f t h e g o v e r n m e n t i n t o t h r e e d i s t i n c t b r a n c h e s , and A r t i c l e V , S e c t i o n 1 3 , g o v e r n s t h e impeachment p r o c e s s . The C o n s t i t u t i o n m u s t be c o n s i d e r e d a s a w h o l e . S t a t e ex r e l . L i v i n g s t o n e v . M u r r a y , ( 1 9 6 0 ) , 137 Mont. 5 5 7 , 354 P . 2 d 5 5 2 . All o f t h e p r o v i s i o n s of t h e C o n s t i t u t i o n b e a r i n g upon t h e same s u b j e c t m a t t e r a r e t o r e c e i v e a p p r o p r i a t e a t t e n t i o n and be c o n s t r u e d t o g e t h e r . Cottingham v . S t a t e Board o f E x a m i n e r s , ( 1 9 5 8 ) , 1 3 4 Mont. 1 , 3 2 8 P.2d 9 0 7 . The p r o v i s i o n s c o n t a i n e d i n A r t i c l e 11, S e c t i o n 1 ; A r t i c l e 111, S e c t i o n 1 ; a n d , A r t i c l e V , S e c t i o n 13 a p p l y only g e n e r a l l y t o t h e j u d i c i a l nominating process a s e s t a b l i s h e d i n Montana, w h e r e a s t h e p r o v i s i o n i n A r t i c l e V I I , S e c t i o n 8 r e l a t e s s p e c i f i c a l l y t o t h e f i l l i n g of j u d i c i a l v a c a n c i e s . I n t h e c o n s t r u c t i o n o f c o n s t i t u t i o n s , b r o a d and g e n e r a l p r o v i s i o n s which t e n d i n some m e a s u r e t o c o n f l i c t w i t h t h e s p e c i f i c o n e s a r e c o n t r o l l e d by t h e s p e c i f i c provision. B r i t i s h - A m e r i c a n O i l P r o d u c i n g Co. v . S t a t e Board o f E q u a l i z a t i o n , ( 1 9 3 6 ) , 101 Mont. 2 9 3 , 54 P.2d 1 2 9 , a f f i r m e d 299 U.S. 1 5 9 , 57 S . C t . 1 3 2 , 81 L Ed 9 5 ; S t a t e ex r e 1 - C o r r y v . Cooney, ( 1 9 2 4 ) , 7 0 Mont. 3 5 5 , 225 P . 1 0 0 7 . The e s t a b l i s h e d p r o c e d u r e s f o r f i l l i n g j u d i c i a l v a c a n c i e s i n Montana a r e c o n s t i t u t i Comp l a i n t i s d i s m i s s e d . - - ing /I b' - District Court. ~ c t i n gChief Justice Justice Judqes s i t t i n g wizh thk

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