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Kelly, P.J.
The information originally charged that defendant and Daniel Jamieson did manufacture, deliver or possess with intent to manufacture or deliver 225 grams or more but less than 650 grams of a mixture containing cocaine. MCL 333.7401(2)(a)(ii); MSA 14.15(7401)(2)(a)(ii). The prosecution’s theory of the case was that defendant aided and abetted Jamieson’s delivery of cocaine to an undercover police officer.
Following a jury trial, on April 28, 1987, defendant was convicted of possession of 225 grams or more but less than 650 grams of cocaine. MCL 333.7403(2)(a)(ii); MSA 14.15(7403)(2)(a)(ii). Jamie-son absconded while on bail and his case is not before this Court. Defendant was sentenced to a prison term of from twenty to thirty years, the statute at the time of sentencing mandating that the minimum sentence be for not less than twenty years. He appeals as of right.
i
The charge arose from the events of November 13, 1986, when an undercover police officer made a controlled buy of approximately ten ounces of cocaine from Jamieson, in Jamieson’s basement. Twice during the course of the transaction Jamie-son withdrew into an adjacent room in the basement and conferred with someone.
Once the prearranged signal for the raid was given, the police quickly entered the Jamieson residence. Within seconds of going into the home, a police officer pushed open the door to this adja cent room and found defendant sitting on a bed. This room was apparently Jamieson’s bedroom. In the room with defendant officers found, in plain view, a scale, a compound commonly used in cutting cocaine, and a mirror with residue of white powder on it and a switchblade knife next to it.
Defendant was subsequently taken to the police station and questioned about his presence at the scene. The questioning followed the police’s informing defendant of his Miranda rights. Defendant initialed a Miranda card after each separate right was explained to him and defendant signed the card at the bottom. Defendant stated at trial that the signature on the card was his and that he understood his rights.
The single officer who interrogated defendant testified that defendant explained he was at the Jamieson residence to work out. Evidently there was some sort of a weight training center in the basement of the Jamieson home. The officer stated that defendant did not at any time during the interrogation request an attorney. About midway through the interrogation defendant was allowed to call his girlfriend. The officer was present during the conversation. Picking up on what was said in defendant’s conversation with his girlfriend, the interrogating officer told defendant he did not believe his story. The officer testified that defendant then told the officer that he had taken a package to the Jamieson home, at Jamieson’s request. The officer also testified that defendant told the officer that he had looked into the package and knew it contained cocaine.
Defendant testified that he never knew the package contained cocaine; however, he admitted that he did deliver a package to the Jamieson home on the 13th.
Defendant explained that he knew Jamieson from high school; however, that was several years earlier. The two had recently met and discussed working out with each other. On November 11, 1986, defendant first went to Jamieson’s home. Jamieson resided with his parents. On that occasion the two began a weight training exercise routine and discussed meeting again on the 13th.
Defendant testified that on the 13th, while at his girlfriend’s apartment, he had a phone conversation with Jamieson and Jamieson explained to him that a friend, whom Jamieson’s father did not get along with, had a package for Jamieson. Jamieson asked if the friend could leave the package with defendant and if defendant would then deliver it to Jamieson when he came over to work out. Defendant stated that he agreed to deliver the package, and it was arranged for the package to be dropped off into defendant’s car, which was parked at his girlfriend’s apartment. Defendant was expected at the Jamieson home within ninety minutes of the telephone conversation.
Defendant stated that when he left his girlfriend’s apartment he checked his car and found a rolled up brown paper sack. Defendant retrieved the sack from the car and then walked to the Jamieson home. Defendant testified that he did not look in the sack and suspected nothing.
Defendant stated that he did not tell the interrogating officer that he looked in the bag. Defendant also testified that he requested an attorney during the interrogation but that the police officer disregarded this request and no attorney was provided. The interrogating officer disputes these claims. Defendant did not sign a written statement and no video or audio recording was made of the interrogation.
ii
Defendant’s first claim on appeal is that the trial court erred in denying his motion for a directed verdict on the charge of delivery of cocaine. Defendant argues that no rational trier of fact, on the evidence presented, could conclude that defendant knew and agreed to assist Jamie-son in the delivery of cocaine to the undercover police officer.
Relying on the prosecution’s theory that defendant was a mere aider and abettor, defendant argues that the prosecution failed to prove that defendant had the required intent necessary to support a conviction for delivery of cocaine, even as an aider and abettor. Therefore, defendant argues that the trial court erred in not directing a verdict in favor of defendant and this error requires reversal. We disagree.
In ruling on a motion for a directed verdict, the trial court must consider the evidence presented by the prosecution up to the time the motion is made, this evidence must be viewed in a light most favorable to the prosecution and the trial court must then determine whether a rational trier of fact could have found that the essential elements of the crime were proven beyond a reasonable doubt. People v Hampton, 407 Mich 354, 368; 285 NW2d 284 (1979); People v Petrella, 424 Mich 221; 380 NW2d 11 (1985).
Four elements are necessary to support a finding that a defendant possessed with intent to deliver 225 grams or more but less than 650 grams of a mixture containing cocaine: (1) the substance must be shown to be cocaine; (2) the mixture containing the cocaine must weigh at least 225 grams, but less than 650 grams; (3) it must be shown defendant was not authorized to possess the substance; and (4) it must be shown defendant knowingly possessed the cocaine with intent to deliver. People v Acosta, 153 Mich App 504, 511-512; 396 NW2d 463 (1986), lv den 428 Mich 865 (1987). Defendant here only challenges whether there was sufficient proof of the fourth element.
As defendant states, the prosecution here was based on a theory of aiding and abetting. To support a finding that defendant aided and abetted in the commission of a crime the following three elements must be shown: (1) the crime charged was either committed by defendant or some other person; (2) defendant performed acts or gave encouragement which aided and assisted the commission of the crime; and (3) it must be shown that defendant intended the commission of the crime, or had knowledge that the principal intended its commission at the time of giving aid and encouragement. Id. at 512. Only the third element is called into question here.
Viewing the evidence presented by the prosecution in a light most favorable to the prosecution, the evidence showed: that defendant knew he was delivering cocaine to Jamieson, and that Jamieson expected it within ninety minutes; that defendant remained in a separate room from where the transaction took place but, when it came time for the transaction, Jamieson retrieved the cocaine from the room defendant was in, returning from that room with a clear plastic bag containing cocaine in his hands; that, when police found and arrested defendant in the bedroom, the police also found in plain view, a scale, a compound commonly used for cutting cocaine, and a mirror with a white powder residue on it; and that the room defendant was found in was very small.
Viewing this evidence in a light most favorable to the prosecution, a rational trier of fact could conclude that defendant intended the commission of the crime, or had knowledge that Jamieson intended its commission. Here, circumstantial evidence and reasonable inferences arising from that evidence provided satisfactory proof that defendant intended the commission of the crime, or had knowledge that Jamieson intended its commission. People v Acosta, supra at 511. Therefore, we agree with the trial court. Defendant’s motion for directed verdict was properly denied.
hi
Defendant next argues that the prosecution violated his right to due process of law and his privilege against self incrimination by arguing in rebuttal that defendant’s silence and his failure to make exculpatory statements to the police provided proof of defendant’s guilt. In rebuttal argument the prosecution argued that, "if you believe that he was so adamant on insisting on his innocence to Officer Madigan and here before you, why in heaven’s name did it take him, according to his own testimony, one hour and a half to tell Officer Madigan that he took the package.” Defendant argues that this was an impermissible comment on his right to remain silent.
In support of his argument defendant relies on People v Bobo, 390 Mich 355; 212 NW2d 190 (1973), and People v Jones, 119 Mich App 164; 326 NW2d 411 (1982).
In People v Bobo, when arrested defendant exercised his constitutional right to remain silent, making no statement to the police. The prosecu tion was permitted, over objection, to ask defendant on cross-examination if he had informed police of exculpatory evidence, raised on direct examination, during his interrogation. The prosecutor was also permitted in closing argument to remark on defendant’s failure to tell the police during his interrogation of subsequently claimed exculpatory evidence.
In People v Bobo, supra at 359, the Supreme Court stated:
We will not condone conduct which directly or indirectly restricts the exercise of the constitutional right to remain silent in the face of accusation. "Nonutterances” are not statements. The fact that a witness did not make a statement may be shown only to contradict his assertion that he did.
In People v Jones, defendant was convicted of armed robbery. A Kentucky Fried Chicken outlet was robbed and the individual who later admitted to the actual robbery was one of four individuals, including defendant, who were apprehended within five minutes of the robbery while fleeing in an automobile. Defendant was found with the weapon used in the robbery tucked into her waistband.
At trial defendant testified that she saw the gun for the first time when someone in the car passed it to her when the police pulled the car over. She admitted having the gun; however, she denied having any prior knowledge of the robbery, or having anything to do with the robbery. The prosecution then questioned defendant about her failure to make a statement at the time of the arrest, other than her saying that she "didn’t know anything about the robbery.” The prosecution then argued during closing argument that if she were telling the truth, defendant would have told her full story to the police at the time of her arrest. Citing People v Bobo, the Court in Jones, supra at 170, concluded: "Defendant’s failure to make a full statement at the time of her arrest was not inconsistent with any subsequent statements which she did make.” Consequently, the Court concluded that error occurred.
The facts in Bobo and Jones are distinguishable from those presented here. Here, defendant did make an extensive statement to the police. There was conflicting testimony at trial over the content of that statement. The interrogating police officer testified that at some point well into the interrogation defendant admitted that he delivered a package to Jamieson and that he looked inside the package and realized that it contained cocaine. Defendant testified that at sometime well into the interrogation he admitted to the officer that he delivered a package to Jamieson; however, defendant claimed that he did not know or suspect the contents of the package.
"[T]he Bobo rule is designed to protect two constitutional rights enjoyed by a criminal accused: the right to remain silent and the right to due process of law.” People v Staley, 127 Mich App 38, 41; 338 NW2d 414 (1983). Defendant here freely gave up his right to remain silent, therefore the first constitutional right protected by Bobo is not called into question. Because defendant did not invoke his right to remain silent and testified that he did make a statement to the police and that he did deliver the package, it was not error or denial of due process of law for the prosecution in rebuttal argument to point out that, if defendant were telling the truth when he stated he did not know that the package contained cocaine, there was no reason for defendant not to promptly inform the police that he did deliver a package to Jamieson. We agree with the analysis of the trial court that the prosecution’s argument was not that defendant "should have said something but rather, if that in fact were the truth, it wouldn’t have taken him an hour and a half to get it out.”
A credibility contest was presented here between what defendant testified were his statements during his interrogation and what the interrogating officer testified were defendant’s statements during interrogation. Defendant did not remain silent. Bobo and Jones are inapposite. There was no error in allowing the rebuttal argument.
iv
Defendant also claims error in the charge to the jury. Defendant claims the trial court erred by instructing the jury on the separate and distinct offense of possession of cocaine. Defendant argues that this gave the prosecution the chance to win a conviction for an offense not charged and claim victory when the jury compromised on what it presumed to be a lesser included offense. Defendant contends that the only facts that support a conviction for possession arise from the time frame when defendant delivered the package to Jamie-son; however, since the information only charged defendant with the manufacture, delivery or possession with intent to manufacture or deliver which relates to the time of the sale to the undercover police officer, defendant was convicted of a crime for which he was not charged.
After the jury was instructed, including the instruction on the offense upon which defendant was convicted, the trial court asked defense counsel if he had any objection. Defense counsel replied in the negative.
A defendant has the right to have a jury pass on the evidence based on proper instructions. People v Hughes, 160 Mich App 117, 119; 407 NW2d 638 (1987). However, where defendant has not objected below, "this Court will not reverse the verdict absent manifest injustice, e.g., where the omitted instruction pertains to a basic and controlling issue.” Id.
Because defendant was charged with manufacturing, delivery or possession with intent to deliver we find no manifest injustice where defendant was convicted based on the instruction that he possessed cocaine.
v
Finally, defendant challenges his sentence as cruel and unusual punishment. Defendant was sentenced to twenty to thirty years imprisonment for his conviction of possession of 225 grams or more but less than 650 grams of a mixture containing cocaine.
Const 1963, art 1, § 16 prohibits the infliction of "cruel or unusual punishment.” In People v Lorentzen, 387 Mich 167; 194 NW2d 827 (1972), the Supreme Court established a three-prong analysis for determining whether a given punishment is cruel and unusual. The first consideration is whether the punishment is proportionate to the crime. Next, an analysis of evolving standards of decency is considered. Finally, the prospects of rehabilitation must be considered.
Here, at the time of defendant’s conviction, MCL 333.7403(2)(a)(ii); MSA 14.15(7403)(2)(a)(ii) provided for a minimum prison term of twenty years for possession of 225 grams or more but less than 650 grams of a mixture containing cocaine. Since defendant’s conviction, the Legislature has amended the statute to provide for a minimim sentence of not less than ten years, with the maximum sentence remaining thirty years. However, this amendment to the statute also gives the sentencing court discretion to depart from the minimum sentence requirement of § 7403(2)(a)(ii), "if the court finds on the record that there are substantial and compelling reasons to do so.” MCL 333.7403(3); MSA 14.15(7403X3).
Because of the Legislature’s revision which lessened the previous mandatory minimum sentence (which the trial court here was constrained to follow in sentencing defendant), we conclude that the punishment defendant received was not proportionate to the crime. In the Legislature’s revision, we find an attempt to make the punishment more proportionate to the crime and the criminal and a tacit admission that such was previously not the case. In the Legislature’s addition of § 7403(3), we also find evidence of the Legislature’s attempt to make the penalty more proportionate to the crime and the criminal and to allow the type of indeterminate sentencing found in this state for nearly every other criminal offense.
With regard to the evolving standards of decency analysis, as noted in Judge Kelly’s dissent in People v Harman, 124 Mich App 93, 104; 333 NW2d 591 (1983), lv den 417 Mich 1100.45 (1983), only five of forty-nine other states provide a minimum sentence greater than four years.
With regard to the prospects of defendant’s rehabilitation, we note the sentencing court’s statement: "What I have before me is a young man who apparently had lived the life of a model citizen until this night in November, 1986.”
Because of the actions of the Legislature, we remand to give the trial court the opportunity to resentence under the current statute.
Conviction affirmed, remanded for resentencing.
Miranda v Arizona, 384 US 436; 86 S Ct 1602; 16 L Ed 2d 694 (1966). | [
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Gribbs, J.
Defendant appeals by leave granted from the circuit court’s order affirming the district court’s denial of his motion to quash and dismiss the charge of operating a motor vehicle while under the influence of liquor (ouil), MCL 257.625(1); MSA 9.2325(1), brought against him. We affirm._
On May 15, 1985, defendant’s vehicle was stopped by Michigan State Trooper Robert Norris. After defendant refused to perform certain field sobriety tests, Norris arrested defendant for ouil. Defendant was transported to the Barry County Jail and advised of his chemical test rights. Specifically, defendant was read the following standard form:
After taking a chemical test administered at the request of a peace officer, you have a right to demand that a person of your own choosing administer a breath, blood or urine test. You are responsible for obtaining a chemical analysis of a test sample taken by a person of your own choosing. [Emphasis added.]
Defendant was asked to take a Breathalyzer test. He consented to take the test after consulting an attorney by telephone. Defendant also requested an independent blood test and he testified that it was his understanding that he could have the blood test regardless of whether he took the Breathalyzer test.
Breathalyzer operator Michael Lesick made four attempts to administer the Breathalyzer test to defendant, but a proper breath sample could not be obtained and defendant was told that his conduct constituted "a nonverbal refusal because he did not perform the test as directed.” Defendant testified that he was then informed by the arresting officer that he was denied a blood test. Defendant was allowed to call his attorney again and the attorney testified that defendant said the police were not going to allow him a blood test. Officer Lesick testified that if it were up to him he would not have allowed defendant the opportunity for a blood test. Trooper Norris said that if Lesick had not determined that defendant had refused the Breathalyzer test, he would have afforded defendant an opportunity for a blood test. While Norris’ testimony was somewhat contradictory and he could not "remember the specifics” or recall "the details,” Norris stated that he would have allowed defendant to make arrangements to have a doctor come down to the jail in spite of the fact that defendant did not take the Breathalyzer test although there is no testimony that Norris informed defendant of this.
Defendant contends that the state violated his due process rights by denying him a reasonable opportunity to obtain a timely test of his blood-alcohol level. Defendant cites a number of cases in his brief that center on the issue of reasonable opportunity to obtain a chemical sobriety test. The facts of this case do not support a finding that defendant was denied a reasonable opportunity, since he had access to a telephone and, indeed, telephoned his attorney twice.
Defendant also asserts that imposition of the requirement that defendant submit to a police-requested blood-alcohol test, as a condition precedent to obtaining his own test, placed a material obstacle to obtaining exculpatory evidence in his path in contravention of his constitutional right to due process of law. We disagree.
Both the federal and state constitutions, US Const, Am XIV; Const 1963, art 1, § 17, guarantee an individual the right to due process of law. Criminal prosecutions must comport with the prevailing notions of fundamental fairness. California v Trombetta, 467 US 479, 485; 104 S Ct 2528; 81 L Ed 2d 413 (1984). This standard of fairness requires that a defendant be afforded a meaningful opportunity to present a complete defense. Id. at 485. To protect this right, an "area of constitutionally guaranteed access to evidence” has emerged from the United States Supreme Court. United States v Valenzuela-Bernal, 458 US 858, 867; 102 S Ct 3440; 73 L Ed 2d 1193 (1982).
The Michigan courts have not decided whether submission to a police-requested test, as a prerequisite to obtaining one’s own blood-alcohol test, is a deprivation of the accused’s constitutional rights. At least one other jurisdiction has, however, opined on this question and we find its decision instructive.
In State v Zoss, 360 NW2d 523 (SD, 1985), the South Dakota Supreme Court ruled that it was not a denial of the defendant’s due process rights to deny the defendant’s request for a blood test after the defendant refused the requested Breathalyzer test. The court held that there was nothing fundamentally unfair in this procedure and that it did not deny the defendant a meaningful opportunity to present a complete defense since the state did not withhold any exculpatory evidence.
There was no assurance the blood test would be exculpatory. It may have been to the contrary. The same may be said of the requested breath test. If she had wanted possible exculpatory evidence, she could have consented to the breath test which may have been exculpatory and still had a chance of getting a possible exculpatory blood test. There is nothing fundamentally unfair in this procedure, nor did it deny her a "meaningful opportunity to present a complete defense.” In fact, she would have had two chances at getting possible exculpatory evidence. [Emphasis added. Id. at 525.]
The South Dakota Supreme Court had decided in an earlier case that due process rights are not violated unless evidence, which is both material and exculpatory, is withheld. The court concluded:
Here the State did not withhold any exculpatory evidence. The appellant withheld the evidence (her breath) under the implied consent law, not the State. [Id.]
We are persuaded that the Zoss decision is correct and we conclude that defendant’s constitutional right to due process was not violated in this case.
We also disagree with defendant’s second claim of error. Defendant contends that the ouil statute gives an accused the right to have a person of his own choosing administer a blood-alcohol test regardless of whether the accused first submits to the test requested by a police officer. Defendant’s contention is based on his interpretation of MCL 257.625a(5); MSA 9.2325(1)(5), as amended, which provides:
The tests shall be administered at the request of a peace officer having reasonable grounds to believe the person has committed a crime described in subsection (1). A person who takes a chemical test administered at the request of a peace officer, as provided in this section, shall be given a reasonable opportunity to have a person of his or her own choosing administer 1 of the chemical tests described in this section within a reasonable time after his or her detention, and the results of the test shall be admissible and shall be considered with other competent evidence in determining the innocence or guilt of the defendant. If the person charged is administered a chemical test by a person of his or her own choosing, the person charged shall be responsible for obtaining a chemical analysis of the test sample. The person charged shall be informed that he or she has the right to demand that a person of his or her choosing administer 1 of the tests provided for in subsection (1), that the results of the test shall be admissible and shall be considered with other competent evidence in determining the innocence or guilt of the defen dant, and that the person charged shall be responsible for obtaining a chemical analysis of the test sample.
Two panels of this Court have previously addressed this very same argument. In Broadwell v Secretary of State, 158 Mich App 681, 686; 405 NW2d 120 (1987), this Court held that, pursuant to the statute, the right of an accused to obtain an "independent” chemical test was conditioned upon the taking of a chemical test administered at the request of police officers. Similarly, in People v Einset, 158 Mich App 608, 612; 405 NW2d 123 (1987), lv den 428 Mich 893 (1987), this Court held that the statute, as amended, makes the right to an "independent” test contingent upon submitting to the test requested by a police officer.
We agree with the interpretation given by these two panels and we conclude that the lower court properly denied defendant’s motion to quash and dismiss the charge in this case.
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Per Curiam.
Allstate Insurance Company appeals as of right a circuit court order granting summary disposition under MCR 2.116(0(10) as to the third-party defendants, Mid-Century Insurance Company and the National Ben Franklin Insurance Company. We reverse.
A brief recitation of the facts and procedure below is helpful. On Sunday afternoon, August 26, 1984, an unidentified semitrailer truck traveled into the left-hand lane of southbound 1-75 at the Zilwaukee Bridge in Saginaw. This maneuver forced the vehicle behind the truck to suddenly stop. An unidentified driver in the chain of trafile was unable to respond in time and, as a result, there were multiple rear-end collisions down the line to the appellees’ insureds, Kirby Hull and Barbara Grossman. Both the trucker and the unidentified driver left the scene.
Robert Buda, Allstate’s insured, saw the taillights in front of him and came to a sudden stop approximately ten feet behind the unidentified vehicle. Buda then felt a slight impact from behind, but saw no contact, between his car and the oncoming motorcycles directly behind, nor could he say definitely that any motorcycle hit his vehicle. Unfortunately, as the motorcyclists attempted to stop, they collided. Plaintiffs Donald and Mafjorie McClelland were among the motorcyclists injured.
The McClellands, also insured by Allstate, and their subrogee, Greater Flint hmo, each sued Buda. Allstate, the insurer of the vehicle operated by Buda, defended against the claims. Allstate brought third-party claims against Mid-Century and National Ben Franklin, the insurers of Hull and Grossman, respectively, on a theory of joint liability under the no-fault act.
The parties filed various motions for summary disposition, agreeing, however, that the dispositive issue was whether any of the cars were sufficiently "involved” in the motorcycle collisions to trigger no-fault liability in their insurers.
After hearing a lengthy discussion on the merits and considering submitted deposition testimony, the court denied Allstate’s motion and, also, plaintiffs’ cross-motion for summary disposition against Buda. The court’s decision was premised on a finding that a question of material fact existed whether there was an impact between Buda’s vehicle and the motorcycles. This ruling is not challenged on appeal. However, on the basis of the absence of contact between the vehicles driven by Grossman and Hull, and the vehicle driven by Buda or the motorcycles, the court granted summary disposition as to third-party defendants, Mid-Century and National Ben Franklin. In essence, the court concluded that there was no evidence of any "involvement” of those vehicles. It is this ruling that is challenged by Allstate on appeal.
The no-fault act provides coverage for accidental bodily injury "arising out of the ownership, operation, maintenance or use of a motor vehicle as a mdtor vehicle.” MCL 500.3105(1); MSA 24.13105(1). Under the act, motorcycles are excluded from the definition of motor vehicles. MCL 500.3101(2)(c); MSA 24.13101(2)(c). However, §3114(5) permits a motorcyclist who suffers accidental bodily injury arising from a motor vehicle accident to claim no-fault benefits from the insurers of the motorists and vehicle owners "involved in the accident,” and sets forth a priority scheme for determining the insurers’ order of priority. "Motor vehicle accident” as used in the act "means a loss involving the ownership, operation, maintenance, or use of a motor vehicle as a motor vehicle regardless of whether the accident also involves the ownership, operation, maintenance, or use of a motorcycle as a motorcycle.” MCL 500.3101(2)(f); MSA 24.13101(2X0.
Thus, the issue to be resolved is whether the third-party defendants’ insureds’ motor vehicles might be found to have been sufficiently "involved” in a "motor vehicle accident” in which plaintiffs were injured to trigger liability under the no-fault act.
The test for determining motor vehicle "involvement” for no-fault liability purposes was set forth in Kangas v Aetna Casualty & Surety Co, 64 Mich App 1, 17; 235 NW2d 42 (1975), lv den 395 Mich 787 (1975), in the context of a pre-no-fault insurance contract:
[W]e conclude that while the automobile need not be the proximate cause of the injury, there still must be a causal connection between the injury sustained and the ownership, maintenance or use of the automobile and which causal connection is more than incidental, fortuitous or but for. The injury must be foreseeably identifiable with the normal use, maintenance and ownership of the vehicle.
Recently, our Supreme Court appeared to adopt the Kangas test for purposes of no-fault liability. Thornton v Allstate Ins Co, 425 Mich 643; 391 NW2d 320 (1986).
In this case, the court granted summary disposition as to the third-party defendants, Mid-Century and National Ben Franklin, based on the absence of physical contact between the vehicles of their insureds, Grossman and Hull, and the vehicle of Buda or the motorcycles. However, the court’s reliance on a requirement of "physical contact” is inconsistent with the Kangas test. Moreover, it is not difficult to imagine a situation in which there may be a causal nexus between a motorist’s conduct and an accidental injury quite apart from any physical contact between the insured vehicle and the other vehicles involved. See Bromley v Citizens Ins Co of America, 113 Mich App 131, 135; 317 NW2d 318 (1982) (fact that insured’s car did not actually touch plaintiffs motorcycle held irrelevant as long as the causal nexus between the accident and the car is established.)
The relevant inquiry then is whether a causal nexus can be established that would link the injuries incurred in the accident to a motor vehicle. Here, the deposition testimony supports a reasonable inference that a sudden lane change of the lead vehicle, the semitrailer truck, caused every driver in the chain of traffic, which included Gross-man and Hull, to make an emergency stop which contributed to plaintiffs’ injuries.
When according Allstate the benefits of any reasonable doubt when reviewing the record, as we must in a motion for summary disposition premised on MCR 2.116(0(10), the evidence does not preclude a finding that the trucker’s action caused everyone in the chain of traffic to react to a single hazard which, in turn, created a risk for each motorist in the line. If indeed the trier of fact would so find, then the insurer of each motorist so "involved” would share in the liability to injured plaintiffs in accordance with § 3114(5). Thus, there remains a question of fact whether the Hull and Grossman vehicles in these circumstances were sufficiently "involved” in the accident to trigger liability under the no-fault act. Accordingly, summary disposition was improper.
We note in passing that under the no-fault act fault is irrelevant, that is, the issue is not guilt or innocence but, rather, whether one fits within the protected class. Sanford v Ins Co of North America, 151 Mich App 747, 753; 391 NW2d 473 (1986), lv den 426 Mich 876 (1986).
Reversed. | [
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Per Curiam.
Respondent, Marion Springer, appeals as of right from a Wayne County Probate Court, Juvenile Division, order terminating her parental rights to her three minor children, Natashia Jewellyn Springer, born June 23, 1977, DeShaunna LaFleurette Springer, bom November 24, 1978, and Cheris Amberlaan Springer, born March 11, 1980. The children’s father, Reginald Reed, has not appealed the order terminating his parental rights. We affirm.
A neglect petition was filed on behalf of the three minor children on April 13, 1983. The petition was filed after respondent’s twenty-one-month-old twin daughters, Staci and Steffanie, died of malnutrition and neglect. Paragraph b of the petition, which was subsequently stipulated to by respondent, states:
On March 19, 1983, the mother walked into Detroit Receiving Hospital — Crisis Center, and reported that her twin daughters, Staci and Steffanie, were dead and could be found in the basement of her home (761 Marlborough, Detroit), in plastic bags. The mother stated that on March 7, 1983, at 5:00 a.m., she discovered that Staci was dead in her crib. The mother stated that on March 7, 1983, Steffanie was alive, but when she picked the child up and attempted to feed the child Kool-Aid, the child started choking and died in her arms. The mother stated that she then placed her dead children in the plastic bags in the basement until March 19, 1983, when she decided to report the children’s deaths. On March 19, 1983, the children were found dead as reported by the mother in the basement of her home. The physical condition of the children indicated that they had been dead for at least several days.
On April 29, 1983, following a preliminary hearing, the three minor children were placed in foster care. The children have continuously remained in foster care from that date to the present time.
On May 23, 1984, respondent was found guilty but mentally ill of two counts of involuntary manslaughter in Detroit Recorder’s Court. Respondent was sentenced to five years of probation with the first year to be spent at Project Transition. Respondent was also required to get psychiatric help.
On June 27, 1984, the probate court entered an order making the minor children temporary wards of the court. Additionally, respondent was directed to participate in psychiatric counseling.
After petitioner filed petitions for termination of respondent’s parental rights and permanent custody, the permanent custody hearings commenced on May 7, 1986. It was revealed that the deceased twins weighed approximately seven and nine pounds respectively at the time of their deaths. According to Dr. Herman Schornstein, M.D., those weights were extremely low for children of twenty-one months and indicated that the twins were probably starved over a long period of time.
Nancy Miller, a clinical social worker, testified that she was the children’s therapist at the time of trial. Natashia had expressed confusion, sadness, and anger about the death of the twins. Ms. Miller testified that all of the children were extremely traumatized by the twins’ deaths and indicated that such trauma could take a lifetime to repair. She believed that the children needed a safe environment where they could feel loved and nurtured. Ms. Miller further stated that the children would need to perceive their caretaker as trustworthy and consistent or else they would experience trauma in that person’s care.
Carol Hempstead, the children’s therapist from April, 1985, through January, 1986, testified that the children had behavioral problems especially after visits with respondent. All three children stated that they did not want to live with respondent. The children were afraid of respondent and indicated that respondent once locked them in a room by tying the door shut with a rope. Natashia had clear recollections of the twins’ deaths and the manner in which respondent had concealed their bodies. Ms. Hempstead testified that family therapy with respondent and the children was not appropriate and could cause the children more trauma. Ms. Hempstead believed that the children’s mental health would deteriorate if they were returned to live with respondent.
Natashia Springer testified that she did not want to live with respondent because she had killed her twin sisters. Natashia was afraid that respondent might also starve her. She recalled an incident where respondent locked her in a room by tying the door shut with a jump rope.
Cheris Springer testified that she did not want to live with respondent because she killed her little sisters. DeShaunna Springer indicated that she was not living with respondent because respondent killed the babies. DeShaunna did not want to live with respondent because she locked her and Natashia in a room by tying the door with a jump rope.
Catherine Kaufman-Schoof, the children’s foster care supervisor, testified that respondent’s visits with the children became negative after respondent was charged with the deaths of the twins. The children felt that respondent had lied to them about the disappearance of the twins and no longer trusted respondent. Respondent’s visits with the children centered around the gifts respondent brought. Natashia wanted the visits with respondent to end. Natashia thought that respondent was trying to bribe her with gifts. Ms. Schoof observed that the essential elements of a parent-child relationship were lacking in this case. She felt that respondent could not meet the emotional needs of her children or cope with their negative emotions. Ms. Schoof did not see any potential for rehabilitation within the next three to four years.
Dr. Mohammed Farrag, respondent’s psychologist, has been treating respondent since September, 1984. Dr. Farrag never observed respondent and the children together. Respondent told him that her relationship with the children was generally positive. Dr. Farrag opined that respondent would need in-the-home support to cope with the stress of having the children returned to her. He recommended family counseling with the respondent and the children for one to two years before the children could return to respondent. Dr. Far- rag further recommended one to two years of monitoring and counseling after the children were returned to respondent.
Diane Buffalin, a psychologist with the Wayne County Clinic for Child Study, performed a psychological evaluation of respondent in December, 1985. Ms. Buffalin found a significant impairment of respondent’s ability to parent. Ms. Buffalin felt that respondent does not have an adjustment disorder but that she has a severe pathology that interferes with her ability to perceive reality. She opined that respondent is probably suffering from atypical schizophrenia. Ms. Buffalin believed that respondent was emotionally abusing the children by not responding to them as individuals with their own thoughts and needs. She indicated that the problem would continue and worsen with stress if the children lived with respondent.
Dr. Herman Schornstein, M.D., a psychiatrist, evaluated respondent and her children on two occasions. Dr. Schornstein diagnosed respondent as having a schizo-affective type of schizophrenia. Dr. Schornstein testified that respondent’s mental illness could be treated if she accepted the fact that she has an illness. He indicated that respondent has not accepted her illness and the children are very uncomfortable with her. Dr. Schornstein noted that the children need treatment to work through the death of their sisters. He further noted that one child had a traumatic reaction when a dead mouse was found in her school and she smelled the odor of the mouse. Dr. Schornstein stated that the children should not be returned to respondent because respondent does not recognize her illness.
Respondent testified that she was in the hospital. for about two weeks after the twins were born. Some of the doctors suggested that she submit to psychological testing at that time but she refused. A social services worker, Al Heintzelman, threatened to take her children and make them wards of the court. Respondent received in-home help for a year and the twins were healthy. After the day care was cancelled, respondent began to have problems with one of the twins. Steffanie played games with her and would not eat her food. The twins then began to smear the contents of their diapers all over the room and it would take respondent several hours to clean it up. Respondent noticed that the twins were smaller than normal and that they were developmentally slow. She considered putting them up for adoption in the winter of 1982. In early 1983, the twins began vomiting and having diarrhea. Respondent was aware of the twins’ sickness for several days and discussed their health with her relatives. She had considered phoning a doctor to make a house call but she did not because the house was dirty and did not smell good. Also, she was concerned about her appearance because she had not bathed in a week or washed her hair for six months. Before she could take the twins to the hospital, they died on March 5, 1983. She concealed the bodies in plastic bags in the basement until she notified the authorities of the twins’ deaths on March 19, 1983. On the day the twins died, she told the other children that the doctor had taken the twins to get help.
On April 17, 1987, the probate court terminated respondent’s parental rights to Natashia, De-Shaunna, and Cheris pursuant to MCL 712A. 19a, subds (c), (d), and (f); MSA 27.3178(598.19a), subds (c), (d), and (f).
On appeal, respondent contends that the probate court’s decision to terminate her parental rights was clearly erroneous.
MCL 712A. 19a; MSA 27.3178(598.19a) provides in relevant part:
Where a child remains in foster care in the temporary custody of the court following the initial hearing provided by section 19, the court may make a final determination and order placing the child in the permanent custody of the court, if it finds any of the following:
(c) A parent or guardian of the child is unable to provide proper care and custody for a period in excess of 2 years because of a mental deficiency or mental illness, without a reasonable expectation that the parent will be able to assume care and custody of the child within a reasonable length of time considering the age of the child.
(d) A parent or guardian of the child is convicted of a felony of a nature as to prove the unfitness of the parent or guardian to have future custody of the child or if the parent or guardian is imprisoned for such a period that the child will be deprived of a normal home for a period of more than 2 years.
(f) The child has been in foster care in the temporary custody of the court on the basis of a neglect petition for a period of at least 2 years and upon rehearing the parents fail to establish a reasonable probability that they will be able to reestablish a proper home for the child within the following 12 months.
In order to terminate parental rights, the trial court must find that at least one of the statutory grounds in MCL 712A.19a; MSA 27.3178(598.19a) has been met by clear and convincing evidence. In re Tedder, 150 Mich App 688, 698; 389 NW2d 149 (1986), lv den 426 Mich 874 (1986). The state bears the burden of proving by clear and convincing evidence that termination of parental rights is warranted. In re Riffe, 147 Mich App 658, 671; 382 NW2d 842 (1985), lv den 424 Mich 904 (1986). The appropriate standard of review in cases involving termination of parental rights is whether the findings of the probate court are clearly erroneous. In re Cornet, 422 Mich 274, 277; 373 NW2d 536 (1985). A finding is "clearly erroneous” when, although there is evidence to support it, the reviewing court on the entire evidence is left with the definite and firm conviction that a mistake has been made. In re Riffe, supra.
After reviewing the record of the instant proceedings, we are convinced that the trial court’s decision to terminate respondent’s parental rights was not clearly erroneous. We find that the statutory grounds for termination of parental rights were proven by clear and convincing evidence in this case. The record indicates that, because of her continued mental illness, respondent will be unable to assume care and custody of her children within a reasonable length of time. Additionally, respondent was convicted of a felony of such a nature as to prove her unfitness to have future custody of the children. Furthermore, the children have been in foster care on the basis of a neglect petition for over two years and respondent would not be able to reestablish a proper home for them within the following twelve months. Thus, we find no error.
Respondent also argues that the Department of Social Services did not do all that it could to reunite respondent with her children. It is the policy of this state to keep children with their natural parents whenever possible. In re Brown, 139 Mich App 17, 20; 360 NW2d 327 (1984). MCL 712A.1; MSA 27.3178(598.1) provides in relevant part:
This chapter shall be liberally construed to the end that each child coming within the jurisdiction of the court shall receive such care, guidance and control, preferably in his own home, as will be conducive to the child’s welfare and the best interest of the state and that when such child is removed from the control of his parents the court shall secure for him care as nearly as possible equivalent to the care which should have been given to him by them.
Respondent contends that the Department of Social Services utilized an inappropriate treatment modality and encouraged a breakdown in the relationship between respondent and her children. However, we find that respondent’s contention is not supported by the record. Our examination of the record reveals that the Department of Social Services adequately considered the competing interests in deciding on a treatment modality to be used in this case and did not fail to provide sufficient help to respondent in attempting to reunite respondent with her children.
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Kelly, P.J.
Plaintiffs appeal as of right from a circuit court order granting summary disposition in favor of defendants. Plaintiffs originally brought a product liability action against defendants for their failure to warn or instruct plaintiff Ronnie Lee Ross’s employer regarding the installation of a coil cradle machine. The trial court found that defendants owed no duty to warn or instruct, and granted summary disposition for defendants. We affirm.
On September 27, 1983, plaintiff Ronnie Lee Ross was working at Prestige Stamping, Inc. Ross was injured while operating a production system consisting of a stamping press and a coil cradle machine. A coil cradle is an automated industrial machine which feeds metal from a coil into a stamping press. This particular coil cradle had been used at Prestige Stamping since 1972. Defendant Jaybird Automation, Inc., manufactured this coil cradle. Defendant Handling Systems Corporation sold the coil cradle to Prestige. Defendants sell coil cradles only to the metal stamping industry, and do not sell them to the general public. Handling Systems had sold a total of fourteen coil cradles to Prestige Stamping.
The coil cradle was not equipped with an electrical cord, nor did defendants sell a cord with it. Instead, the coil cradle was equipped with an electrical junction box to which the user would supply electricity in the manner best suited to the particular plant layout. Defendants did not include any instructions or warnings for wiring the coil cradles to an electrical source. The common practice in the industry for wiring these machines was to attach them to an overhead encased conductor which dropped the cord directly onto the machine.
Instead of wiring their coil cradle machine from above, Prestige’s coil cradle was wired to a 220-volt outlet on the wall, with the wire running along the floor next to the coil cradle. There was no protective conduit around this cord. The electrical cord which connected the coil cradle with the 220-volt outlet had a cut in it, which apparently came in contact with a piece of scrap steel in Ross’ work area. Ross attempted to pick up the scrap, and received a severe electrical shock which caused a loss of vision in his left eye.
Plaintiffs filed this product liability suit against defendants, alleging negligence and breach of warranty in their manufacture and sale of the coil cradle machine. The basis for plaintiffs’ allegations was defendant’s failure to instruct or warn Prestige Stamping regarding the proper installation and wiring of a coil cradle.
Defendants jointly moved for summary disposition under MCR 2.116(C)(8) on the basis that they owed no duty to warn or instruct Prestige Stamping regarding the installation of the coil cradle. The trial court found that defendant had no duty to warn or instruct an experienced user of such mechanical equipment, and granted summary disposition for both defendants. Plaintiffs appeal as of right.
First, we note that defendants moved for summary disposition pursuant to MCR 2.116(C)(8) for failure to state a claim. However, the parties actually argued this motion pursuant to MCR 2.116(0(10) on the basis that there was no genuine issue of material fact that defendants owed Prestige no duty to warn or instruct. A review of the record indicates that the trial court went outside the pleadings to determine this issue. Therefore, we review this order of summary disposition as one entered pursuant to MCR 2.116(0(10). Huff v Ford Motor Co, 127 Mich App 287, 293; 338 NW2d 387 (1983).
A seller or manufacturer is generally liable in negligence for failure to warn purchasers or users of its product about dangers associated with intended uses and foreseeable misuses. Antcliff v State Employees Credit Union, 414 Mich 624, 637; 327 NW2d 814 (1982), reh den 417 Mich 1103 (1983); Pettis v Nalco Chemical Co, 150 Mich App 294, 301; 388 NW2d 343 (1986), lv den 426 Mich 881 (1986). This standard of care includes dissemination of information, either warnings or instructions, as is appropriate for the safe use of the product; such information must be adequate, accurate, and effective. Pettis, supra, p 302. However, there is no duty to warn of known or obvious product-connected dangers where the product itself is not defective or dangerous. Antcliff, supra, p 639. Whether a manufacturer owes a duty to warn or to instruct is a question of law for the court to decide. Id., p 640.
A seller or manufacturer should be able to presume mastery of basic operations by experts or skilled professionals in an industry, and should not owe a duty to warn or instruct such persons on how to perform basic operations in their industry. Id., pp 639-641; Guaranteed Construction Co v Goldbond Products, 153 Mich App 385, 398; 395 NW2d 332 (1986).
In Antcliff, supra, pp 639-641, the Supreme Court held as a matter of law that the manufacturer of a powered scaffold did not owe a duty to warn or to instruct experienced professional painters regarding the safe rigging of the scaffold. The Court noted that the manufacturer sold its product only to professionals experienced in rigging techniques, and concluded that the facts of that case did not require the manufacturer to provide instructions or warnings for the safe rigging of its product. Id., pp 639-640. Although the Court characterized its holding as limited to the facts of the case, it also noted:
There are countless skilled operations such as the rigging of scaffolding, which involve otherwise nondangerous products in potentially dangerous situations. A manufacturer of such a product should be able to presume mastery of the basic operation. The more so when, as here, the manufacturer affirmatively and successfully limits the market of its product to professionals. In such a case, the manufacturer should not be burdened with the often difficult task of providing instructions on how to properly perform the basic operation. [Id., p 640.]
Defendants designed and sold their coil cradle for use in the metal stamping industry, and sold only to professionals in that industry. As in Ant-cliff, there were no actual defects in the coil cradle machine itself, only its installation was faulty. Defendants sold their product to Prestige Stamping, Inc., a professional in that industry which had purchased at least fourteen of these coil cradles in the past, and presumably knew how to operate and install these machines. Defendants were entitled to presume that Prestige had mastery of the basic installation of coil cradles, and over such basic procedures as the connection of electrical cords to these machines. The dangers of carelessly wiring a machine to a 220-volt wall outlet are obvious to laymen, let alone professionals experienced in the use and installation of such machines. Under these circumstances, defendants owed Prestige Stamping no duty to warn or instruct regarding the proper connection of an electrical cord to the coil cradle.
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Shepherd, J.
Defendant Daryl Daniels and codefendant Gary Clark were tried separately on charges of second-degree murder, MCL 750.317; MSA 28.549, and possession of a firearm during the commission of a felony, MCL 750.227b; MSA 28.424(2), stemming from the fatal shooting of Garland Berry by Gary Clark on July 29, 1986. A jury convicted Gary Clark of involuntary manslaughter, MCL 750.321; MSA 28.553, and the felony-firearm charge. Following a bench trial, defendant Daniels was also convicted of involuntary manslaughter and the felony-firearm charge. He was sentenced to two years’ imprisonment for the felony-firearm conviction to be followed by one to fifteen years’ imprisonment for the involuntary manslaughter conviction. The present appeal concerns only defendant Daniels’ appeal as of right. Two issues are raised, one relating to the sufficiency of the evidence identifying defendant as a participant in the shooting incident that resulted in Berry’s death and the other relating to whether defendant can be held criminally responsible for Berry’s death. While we find error in the law applied by the trial court in finding defendant criminally responsible, we conclude that the evidence was sufficient and that the court’s factual findings support the manslaughter conviction. Accordingly, defendant’s convictions are affirmed.
The fatal shooting of Garland Berry was the culmination of two encounters between defendant and his cousins, Gary and Steven Clark, on July 29, 1986. The Clarks were brothers, both residing on Lovett Street in Detroit. Garland Berry, who resided two houses down from the Clark house, did not participate in the encounters.
The first encounter occurred in the early evening hours when defendant went to the Clark house to collect $70 from Steven Clark. Defendant and Steven Clark began fighting and were soon joined by Gary Clark. During the fight, Gary Clark left to get a gun, then returned and fired it once into the ground. After Gary Clark hit defendant on the head with the gun and the fight stopped, defendant got into his blue car and drove it into a jeep parked in front of the Clark house which belonged to a friend of Steven Clark. Defendant got out of his car and ran south on Lovett Street. Steven Clark got into defendant’s car, drove it south on Lovett Street, and rolled the car into a telephone pole. Steven Clark then walked home while defendant returned to his car and proceeded back up the street towards the Clark house. As defendant neared the house,. Gary Clark stepped into the street and fired several shots at defendant’s car. Gary Clark jumped out of the way as defendant drove by, then went back into his house.
The second encounter occurred twenty minutes later when the driver of a blue car fired several shots at the Clark house. Gary Clark left his house through the back door, walked to the side of the house, and returned the gunfire. During this shootout, Garland Berry, who was washing his car outside his house, suffered a gunshot wound which caused massive hemorrhaging and resulted in his death later that night.
The trial court found that defendant was the driver of the blue car and that Gary Clark fired the shot that resulted in Berry’s death, but that defendant and Gary Clark were equally culpable for holding their shoot-out on the residential street where it was likely that other people could be shot and killed. The trial court also found that the shoot-out was mutually agreed to by defendant and Gary Clark and that defendant, at a minimum, intended to create a very high risk of death or great bodily harm with the knowledge that death or great bodily harm was the probable result of his act. Although the court found this intent sufficient to make the killing murder in the second degree, the court entered a verdict of involuntary manslaughter because the court was not satisfied that the prosecution proved that the mitigating circumstance of provocation did not exist in light of the evidence of the beating defendant underwent and the shots fired during his first encounter with the Clarks.
On appeal, defendant contends that there was insufficient evidence presented to the trial court to sustain a finding that he was the driver of the blue car who opened fire on the Clark house during the second encounter. Since defendant does not cite authority in support of his position, this issue is not properly before this Court. People v Battle, 161 Mich App 99, 101; 409 NW2d 739 (1987). In any event, a challenge to the sufficiency of the evidence in a bench trial is reviewed by considering the evidence presented in a light most favorable to the prosecution and determining whether a rational trier of fact could have found the essential elements of the crime proven beyond a reasonable doubt. People v Petrella, 424 Mich 221, 268-270; 380 NW2d 11 (1985). Here, Gary Clark identified defendant as the driver of the blue car and two other eyewitnesses to both encounters identified the car. Viewed most favorably to the prosecution, this evidence was sufficient to establish defendant’s identity beyond a reasonable doubt. The credibility of the identification testimony was a matter for the trial court, as the trier of fact, to decide. We will not resolve it anew. People v Cummings, 139 Mich App 286, 293-294; 362 NW2d 252 (1984); People v Smalls, 61 Mich App 53, 57; 232 NW2d 298 (1975), lv den 395 Mich 814 (1975).
Defendant’s second issue relating to whether he can be held criminally responsible for Berry’s death presents a more difficult question. Defendant argues that he did not fire the fatal shot and, thus, his acts were not the proximate cause of Berry’s death. The trial court rejected this argument, concluding that it did not matter who fired the fatal shot. The trial court also held that this was not a case that could be analyzed in terms of felony murder, conspiracy, or aiding and abetting. The court ultimately concluded that defendant’s role in the shoot-out was sufficient to hold defendant directly responsible for killing Berry and that the crime was involuntary manslaughter.
In reviewing the trial court’s factual findings, one of our tasks is to determine whether the trial court correctly applied the law to the facts. People v Fair, 165 Mich App 294, 297-298; 418 NW2d 438 (1987). This case presents an unusual situation where the trial court made sufficient factual findings on all the essential elements necessary for the manslaughter conviction, but applied an incorrect legal analysis.
The manslaughter statute, MCL 750.321; MSA 28.553, incorporates two common-law categories of manslaughter, involuntary and voluntary. People v Richardson, 409 Mich 126, 134, n 8; 293 NW2d 332 (1980). These categories are distinguishable, each defining crimes originating out of circumstances often quite different from the other. Id., p 136.
On the one hand, involuntary manslaughter has been defined as
"the killing of another without malice and unintentionally, but in doing some unlawful act not amounting to a felony nor naturally tending to cause death or great bodily harm, or in negligently doing some act lawful in itself, or by the negligent omission to perform a legal duty.” [People v Scott, 29 Mich App 549, 551; 185 NW2d 576 (1971), quoting People v Ryczek, 224 Mich 106, 110; 194 NW 609 (1923).]
The usual situations in which involuntary manslaughter arises are either when death results from a direct act not intended to produce serious bodily harm or when death results from criminal negligence. Richardson, supra, p 136. By contrast, voluntary manslaughter shares all the elements of murder except malice. People v Townes, 391 Mich 578, 589; 218 NW2d 136 (1974). Proof of provocation or other mitigating circumstances is necessary to return a verdict of voluntary manslaughter when there has been an intentional homicide. Townes, supra, p 589; People v Parney, 98 Mich App 571, 585; 296 NW2d 568 (1979).
In the present case, the trial court found all the essential elements of second-degree murder, but reduced the crime to manslaughter based on the proofs of provocation. Since these findings can only give rise to voluntary manslaughter, we find error in the trial court’s characterization of defendant’s crime as involuntary manslaughter. Although this unobjected-to error could not have prejudiced defendant and does not require reversal, People v Knott, 59 Mich App 105, 116; 228 NW2d 838 (1975), we will review defendant’s claims that his acts could not have been the proximate cause of Berry’s death in light of a proper characterization of his manslaughter conviction.
It is well-settled in Michigan that there must be a more direct causal connection between the defendant’s acts and a homicide charge in order to hold a defendant criminally responsible for a death than is required to hold the defendant liable in tort. Scott, supra, p 556; People v Jeglum, 41 Mich App 247, 250; 199 NW2d 854 (1972). Where the defendant was a participant in the events resulting in the death, but did not, as in this case, do the homicidal act, the question of criminal responsibility has been resolved under different legal analyses, depending in part on the nature of the offense.
When the offense is involuntary manslaughter based on criminal negligence, the question of who actually caused the death becomes a critical issue, and the standard applied to the issue of proximate causation is whether the resulting death was the natural and necessary result of the act of the defendant. Scott, supra, p 557; Jeglum, supra, p 250.
By comparison, when the homicide offense is felony murder, MCL 750.316; MSA 28.548, and subject to the limitations established in People v Austin, 370 Mich 12; 120 NW2d 766 (1963), the question of whose act actually caused the death is not a crucial issue. People v Podolski, 332 Mich 508; 52 NW2d 201 (1952), and see People v Smith, 56 Mich App 560; 224 NW2d 676 (1974); People v Moss, 70 Mich App 18, 48; 245 NW2d 389 (1976) (partial concurence of Kelly, J.), affd on other grounds in People v Tilley, 405 Mich 38; 273 NW2d 471 (1979). In Podolski, a police officer was accidentally killed by another police officer in a gun battle with robbers. One of the robbers was found guilty of felony murder despite the fact that he did not fire the fatal bullet. With regard to the underlying felony of robbery, our Supreme Court adopted the rationale in Commonwealth v Moyer, 357 Pa 181; 53 A2d 736 (1947), that it was consistent with reason and public policy to hold the defendant criminally responsible for any death which by direct and almost inevitable sequence resulted from the robbery because the robbers’ initial act of attempting to commit the robbery set in motion the chain of events that ultimately resulted in the death. Podolski, supra, pp 515-516. With regard to the gun battle, the Court stated:
When a defendant deliberately engenders an affray, deliberately using therein a lethal weapon, it must be considered to be within his intent that death should result from the affray as a natural and probable consequence of his acts, where the death is directly attributable to the affray and not resulting from some independent intervening cause. [Id., pp 514-515.]
Thus, a broad view of causation has been taken when the offense is felony murder and, despite the abolishment of the common-law rule of felony murder in People v Aaron, 409 Mich 672, 733; 299 NW2d 304 (1980), it appears that this proximate causation standard remains applicable. Aaron, supra, p 726, n 117.
At issue in this case is the offense of voluntary manslaughter. As with felony murder, the question of who actually caused the death has not been a critical issue, at least where the defendant is an active participant in the homicide. Two approaches have been taken in holding the defendant criminally responsible for his or her participation when the actual homicidal act has been committed by another willing participant.
In People v Dykes, 37 Mich App 555, 559; 195 NW2d 14 (1972), the defendant was found guilty of manslaughter for his role in engaging with another in a homicidal assault, despite the fact that the defendant did not strike the fatal blow, by reasoning that the aiding and abetting statute, MCL 767.39; MSA 28.979, rendered the participants equally liable for the actions of the other.
By comparison, in Moss, supra, this Court held in a two-to-one decision that a defendant could be held criminally responsible for his role in disarming and holding down a police officer while his companion shot the officer by reasoning that the defendant played a major part in the events ultimately resulting in the officer’s death and, thus, the defendant’s own unlawful acts were the proximate cause of the death. We, however, agree with Judge Kelly’s partial concurring opinion that the majority did not correctly analyze crucial factors, such as aiding and abetting. Id., pp 50-51. Playing a major part in a crime is precisely the type of conduct which may result in aiding and abetting liability for the crime. See People v Turner, 125 Mich App 8; 336 NW2d 217 (1983).
The general view taken is that a person who does not actually commit the homicidal act may be regarded as a participant in the homicide and, if the person encourages, assists or advises another so as to induce the unlawful act, then the person may be held criminally responsible as an aider and abettor. 40 Am Jur 2d, Homicide, § 29, p 320. Further, where the homicidal act occurs during a shoot-out between two willing participants in a public place and one of the participants shoots an innocent bystander, it has been stated that one of the participants may be held liable as a principal and the other as an aider and abettor. See 40 Am Jur 2d, supra, p 321, and State v Lilliston, 141 NC 857; 54 SE 427 (1906).
From the above, we conclude that the broad rule of proximate causation applied to the special circumstances of a felony-murder offense is inapplicable when the offense is voluntary manslaughter. Nor is there a reason to adopt such a rule since Michigan’s aiding and abetting statute, MCL 767.39; MSA 28.979, applies to all forms of assistance and provides a basis for holding a defendant criminally responsible for his participation in an offense as though the defendant directly committed the offense. We, therefore, adopt the analysis of proximate causation by Judge Kelly in Moss, supra, and hold that where parties willingly engage in a shoot-out and one of the participants shoots an innocent bystander, the other participant cannot be held criminally responsible for that homicidal act unless that participant’s own acts were sufficient to render him liable as an aider and abettor.
Here, the trial court made a specific factual finding that Gary Clark fired the fatal bullet. Based on this finding, it was error for the court to reject defendant’s argument that his acts were not the proximate cause of Berry’s death and to rule out an aiding and abetting analysis. The only proximate cause of Berry’s death was the fatal shooting by Gary Clark. This error does not, however, require reversal since the trial court made a specific ruling that defendant was criminally responsible for Berry’s death and a proper application of the law to the court’s factual findings supports the manslaughter verdict. Appellate reversal is not required when the trial court reaches the right result for the wrong reason. People v Beckley, 161 Mich App 120, 131; 409 NW2d 759 (1987), lv granted 430 Mich 857 (1988).
There are three requirements to find that defendant aided and abetted the commission of voluntary manslaughter. People v Acosta, 153 Mich App 504, 512; 396 NW2d 463 (1986), lv den 428 Mich 865 (1987). First, it must be shown that the crime was committed by defendant or some other person. Id., p 512. There can be no doubt that the court’s factual findings manifest a finding that Gary Clark committed at least manslaughter in shooting Berry. The court found that Gary Clark fired the fatal shot in a mutually agreed to shoot-out, that neither defendant nor Gary Clark had a legal justification or excuse for shooting at the other, and that defendant and Gary Clark were equally culpable. Thus, the first element was satisfied. Second, it must be shown that defendant per formed acts or gave encouragement which aided and assisted the commission of the crime. Id. Mere presence is not enough, and the aid or encouragement must induce the commission of the crime. Turner, supra, p 11. The crime here was one that could not have occurred without defendant’s intentional participation since it was determined to have resulted from the shoot-out. The trial court specifically found that defendant’s acts of returning to the Clark house and participating in the shoot-out rendered him responsible for the shooting of Berry. It follows that defendant’s actions induced Gary Clark’s homicidal act and that a correct application of this law to the court’s factual findings establishes this element. Third, it must be shown that defendant intended the commission of the crime or had knowledge that the principal intended its commission at the time of giving aid or encouragement. Acosta, supra, p 512. The trial court found that defendant had the requisite intent for the commission of the crime and, thus, this element was satisfied.
Because a proper application of the law of aiding and abetting to the trial court’s factual findings supports the trial court’s conclusion that defendant was criminally responsible for Berry’s death and that the killing was the crime of manslaughter, we affirm defendant’s conviction.
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Per Curiam.
Defendant was convicted by a jury of one count of fraudulent use of electric service, MCL 750.282; MSA 28.493. He was sentenced to three years probation, six months to be served in the county jail (thirty days to be served immediately, the remaining time to be served following probation subject to review by the trial court). This Court granted defendant’s motion to file a delayed appeal. We affirm.
i
We reject defendant’s argument that the trial court committed error mandating reversal by refusing to read the cautionary instructions regarding the prosecutor’s burden of disproving all reasonable theories of innocence when the prosecutor’s case depends entirely on circumstantial evidence. CJI 4:2:02(6), (7).
A prosecutor need not specifically disprove all theories of a defendant’s innocence. People v Doss, 122 Mich App 571, 574-575; 332 NW2d 541 (1983), lv den 417 Mich 1100.16 (1983). Use of the Michigan Criminal Jury Instructions is not required. People v Petrella, 424 Mich 221, 277; 380 NW2d 11 (1985) . Cautionary instructions need only be given when circumstantial evidence against a defendant is weak. People v Armentero, 148 Mich App 120, 132; 384 NW2d 98 (1986), lv den 425 Mich 883 (1986) . Because the circumstantial evidence against defendant in this case was not weak, the trial court did not err in declining to give the instructions.
ii
Equally without merit is defendant’s contention that his conviction is invalid because the amendment to MCL 750.282; MSA 28.493, effective April 12, 1984, elevated from an excess of $50 to an excess of $500 the amount of services which the prosecution must prove was obtained by fraudulent means in order to convict for a felony. MCL 8.4a; MSA 2.214 unambiguously provides that unless there is a specific provision voiding a former law, any actions pending on the effective date of a new law are saved. Since defendant was arraigned on March 9, 1984, the action against him was pending on the effective date of the amended statute. The Legislature’s omission in the amendment to MCL 750.282; MSA 28.493 to expressly provide for release or relinquishment of the repealed portion of the statute necessarily validates defendant’s conviction under the statute as it formerly existed. See People v McDonald, 13 Mich App 226, 229-230; 163 NW2d 796 (1968), lv den 381 Mich 795 (1968).
iii
We are unpersuaded by defendant’s argument that he was denied his constitutional right to a speedy trial. To determine whether a defendant has been denied the right to a speedy trial, this Court looks to: (1) length of the delay, (2) reasons for the delay; (3) defendant’s assertion of his right to a speedy trial; and (4) whether defendant was prejudiced because of the delay. People v Gambrell, 157 Mich App 253, 259; 403 NW2d 535 (1987); People v Collins, 388 Mich 680, 687-695; 202 NW2d 769 (1972), adopting the test of Barker v Wingo, 407 US 514, 530; 92 S Ct 2182; 33 L Ed 2d 101 (1972).
Regarding the length of and reasons for delay in this case, defendant was arrested in February of 1984 and brought to trial on May 19, 1986, a delay of approximately twenty-seven months. We note, however, that this delay cannot be attributed entirely to the prosecution, at least ten months being clearly chargeable to defendant.
Our review of this matter indicates that defendant never asserted his right to a speedy trial, his only mention of this right being a motion to quash which was filed immediately before trial. Nor has defendant shown prejudice by the delay of his trial, since (1) he was never incarcerated, (2) he did not retain new counsel in order to minimize the anxiety which may have arisen due to his counsel’s delays, and (3) the delay did not impair his defense since no witnesses were lost. Collins, supra at 694-695. If anything, it is probable that the prosecution’s witnesses would have forgotten things more helpful to the prosecution than to defendant.
Subtracting the period of time for which defendant was responsible for the delay, the total delay which should here be considered was approximately seventeen months and therefore is less than the eighteen-month time period after which a presumption of prejudice would arise. See People v Taylor, 110 Mich App 823, 828-829; 314 NW2d 498 (1981). Since prejudice to a defendant is not presumed before the eighteen-month time period has elapsed, defendant bears the burden of showing that his rights were infringed; however, his failure to assert the right to a speedy trial weighs heavily against him. Id.
From the foregoing analysis we conclude that the trial court did not clearly err when determining that defendant was not prejudiced by the delay in bringing him to trial. MCR 2.613(C).
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Per Curiam.
A Washtenaw Circuit Court jury convicted defendant of being an habitual offender, second offense, MCL 769.10; MSA 28.1082. Defendant appeals as of right claiming that his constitutional and statutory rights to be present at his trial were violated. We affirm.
Defendant was not present at his habitual offender trial. A prosecution witness testified, out side of the jury’s presence, that she contacted the control center at the Huron Valley Men’s Facility about five minutes earlier and was told that defendant could not be brought to court because he had barricaded himself in his cell and jammed the lock. She further testified that defendant was informed of the date and time for his habitual offender trial and would not come out of his cell willingly. Defense counsel declined to cross-examine, offered no evidence regarding defendant’s absence, and did not move for an adjournment. The court noted that defendant was twenty-five minutes late for his trial and that the testimony indicated that it was impossible for him to appear. The court proceeded with defendant’s trial after finding that his absence was voluntary. The court instructed the jury not to consider defendant’s absence for any reason.
The day before defendant’s habitual offender trial, the same jury convicted him of assault of a prison employee, MCL 750.197c; MSA 28.394(3). The court took judicial notice of testimony from defendant’s assault-of-a-prison-employee trial. At that trial, defendant testified that he was imprisoned at the Huron Valley Men’s Facility because of his 1979 conviction for assault with intent to commit criminal sexual conduct. Documents from defendant’s prison record, regarding his commitment to prison and identification, were admitted into evidence without objection. The supervisor of the records office at the Huron Valley Men’s Facility testified about the documents. Defense counsel cross-examined her only about the prisons in which defendant had resided.
Defense counsel presented no evidence in defendant’s habitual offender trial. He admitted defendant’s two convictions.
A criminal defendant has a statutory right to be present at his trial. MCL 768.3; MSA 28.1026. An accused’s right to be present at trial is also impliedly guaranteed by the federal and state constitutions and grounded in common law. People v Mallory, 421 Mich 229, 246, n 10; 365 NW2d 673 (1984).
A defendant may waive his right to be present by failing to appear for trial. People v Swan, 394 Mich 451, 452; 231 NW2d 651 (1975), cert den 423 US 990; 96 S Ct 402; 46 L Ed 2d 308 (1975); People v Gross, 118 Mich App 161, 164; 324 NW2d 557 (1982). A valid waiver of a defendant’s presence at trial consists of a specific knowledge of the constitutional right and an intentional decision to abandon the protection of the constitutional right. People v Travis, 85 Mich App 297, 301; 271 NW2d 208 (1978), lv den 405 Mich 831 (1979). There can be no waiver if either of these elements is missing. People v Springer (On Remand), 123 Mich App 203, 206; 333 NW2d 224 (1983).
The record in this case demonstrates that defendant’s absence at his habitual offender trial was voluntary. However, the record fails to disclose whether defendant knew that he had a constitutional right to be present at the trial. We cannot presume waiver from a silent record. Springer, supra, p 206; People v Ewing, 48 Mich App 657, 660; 211 NW2d 56 (1973). We conclude that defendant did not waive his right to be present at his trial.
Defendant relies on People v Medcoff, 344 Mich 108, 117-118; 73 NW2d 537 (1955), for the proposition that injury should be conclusively presumed from his absence at trial. Our Supreme Court overruled MedcofFs automatic reversal rule in People v Morgan, 400 Mich 527, 535-536; 255 NW2d 603 (1977), cert den sub nom Cargile v Michigan, 434 US 967; 98 S Ct 511; 54 L Ed 2d 454 (1977), reh den 434 US 1041; 98 S Ct 783; 54 L Ed 2d 791 (1978). The proper test for determining whether a defendant’s absence from a part of a trial requires reversal of his or her conviction is whether there is any reasonable possibility of prejudice. Morgan, supra, p 536; People v Kvam, 160 Mich App 189, 197; 408 NW2d 71 (1987).
The record shows that defendant was properly convicted of being an habitual offender, second offense, because he committed two felonies. MCL 769.10; MSA 28.1082. The trial court instructed the jury not to consider defendant’s absence for any reason. Defendant has failed to demonstrate any reasonable possibility of prejudice on appeal. Defendant’s absence made no difference in the result reached. Therefore, we will not reverse his conviction. Morgan, supra, p 537.
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Per Curiam.
Plaintiffs appeal as of right from an order of summary disposition entered in favor of defendant upholding an ordinance prohibiting fishing on university land.
Plaintiff Michigan United Conservation Clubs is a Michigan nonprofit corporation representing various Michigan hunting and fishing clubs. Plaintiff Ronald England is a Michigan State University student interested in stream fishing. Defendant board of trustees is a constitutionally created body with general supervision over Michigan State University. Const 1963, art 8, § 5._
On May 10, 1985, plaintiffs filed their complaint in circuit court seeking a judgment declaring Ordinance 49, promulgated by defendant, to be invalid. Ordinance 49 provides:
All lands and water under control of and governed by said Board are designated as a wildlife, fish and bird sanctuary and the shooting or taking or molesting of birds, fish or wildlife is hereby prohibited.
A portion of the Red Cedar River runs through msu property. Plaintiffs sought to prohibit defendant from enforcing the ordinance so as to preclude plaintiffs from fishing in the river from banks on msu property.
In its opinion issued on the parties’ cross-motions for summary disposition, the circuit court held that defendant had the authority to prohibit fishing from the river banks and to restrict access to the river from msu land. However, because the Red Cedar River is a navigable waterway, the court held that defendant could not regulate fishing in the river by persons who gained access off of msu land. The court also held that enactment of Ordinance 49 was neither arbitrary nor capricious, but was within the defendant’s constitutional and statutory authority and a valid exercise of control by defendant over activities on msu land.
The issues raised and arguments made on appeal are essentially identical to those before the circuit court.
Const 1963, art 8, § 5 gives defendant the power to control and manage msu property to the exclusion of all other state departments. Weinberg v The Regents of the University of Michigan, 97 Mich 246, 254-255; 56 NW 605 (1893); The William C Reichenbach Co v Michigan, 94 Mich App 323, 335; 288 NW2d 622 (1979). Defendant is an independent authority possessing power coordinate with and equivalent to the Legislature within the scope of its function. Bd of Regents of the University of Michigan v Auditor General, 167 Mich 444, 450; 132 NW 1037 (1911); Schmidt v Regents of the University of Michigan, 63 Mich App 54, 55; 233 NW2d 855 (1975), lv den 395 Mich 771 (1976). Defendant has statutory authority to manage its property to promote any of the objects for which the university is created, and has plenary power to adopt ordinances it deems necessary for the operation of msu and to promote the university’s objectives. MCL 390.106; MSA 15.1126.
The stated objectives behind Ordinance 49 are the maintenance of landscaping on the banks of the river, prevention of further erosion of the area surrounding the river, and use of the river and its banks as an educational tool. Contrary to plaintiffs’ contention, the enactment of the ordinance is within the constitutional and statutory authority given to defendant to control and manage msu property and to promote the objectives of the university.
Plaintiffs’ second argument is somewhat difficult to discern. Plaintiffs essentially challenge defendant’s determination that open fishing from the banks of the Red Cedar River on msu property would have a serious detrimental impact on the environment and upon the educational uses of the river and its surrounding area. Just as where the relation between a statute and the public welfare is debatable, courts must defer to the Legislature’s judgment. Grocers Dairy Co v Dep’t of Agriculture Director, 377 Mich 71, 76; 138 NW2d 767 (1966). The constitutional basis for the creation and independence of defendant board of trustees requires that we defer to its judgment as to the wisdom of ordinances enacted within its authority. We will interfere with university control only if the challenged action violates public policy or is unconstitutional. William C Reichenbach Co, supra.
Plaintiffs suggest that the ordinance is unconstitutional on due process or equal protection grounds, alleging that the ordinance does not bear a reasonable relation to the objectives of maintaining the natural environment and preserving an educational resource. In support of their position, plaintiffs presented the affidavit of Ned Fogle, a Department of Natural Resources biologist. Even accepting Mr. Fogle’s allegations as true, we do not believe that summary disposition was improperly granted to defendant. For plaintiffs to have succeeded on this argument, plaintiffs would have had to demonstrate that the prohibition on fishing bore no reasonable relationship to the stated objectives. People v Zimberg, 321 Mich 655, 663; 33 NW2d 104 (1948); McDonald Pontiac-Cadillac-GMC, Inc v Saginaw Co Prosecuting Attorney, 150 Mich App 52, 58-59; 388 NW2d 301 (1986), lv den 426 Mich 867 (1986), cert den — US —; 108 S Ct 86; 98 L Ed 2d 48 (1987). We are persuaded from our review of the pleadings and affidavits, including Mr. Fogle’s affidavit, that plaintiffs would not have been able to sustain their burden of demonstrating that Ordinance 49 lacked a reasonable basis.
Plaintiffs finally argue that Ordinance 49 is violative of public policy. Plaintiffs argue that Ordinance 49 violates the state public policy of encouraging open fishing in navigable waters, as embodied in MCL 307.41; MSA 13.1681. The right to fish in navigable waters, however, does not carry with it the right to trespass upon the land of a riparian owner. Delaney v Pond, 350 Mich 685, 687; 86 NW2d 816 (1957). The circuit court found that, although Ordinance 49 prohibited fishing from river banks and other access areas on msu land, the ordinance could not be used to prevent the public from fishing in the river where access had been gained off of msu land. Ordinance 49, as construed by the circuit court, promotes, rather than violates, the public policy of encouraging open fishing in navigable waters.
We also reject plaintiffs’ contention that the ordinance violates established public policy by allowing defendant to evade MCL 317.202; MSA 13.1142, which requires application to the conservation commission of the Department of Natural Resources for the dedication of lands owned by the State of Michigan for the purpose of a wildlife sanctuary. Under plaintiffs’ proposed interpretation of the statute, the Department of Natural Resources would be substituted for the board of trustees as the manager of msu land, thereby violating the exclusive control over msu land granted to defendant by Const 1963, art 8, § 5. Weinberg, supra.
Accordingly, we affirm the circuit court’s order of summary disposition in favor of defendant.
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Per Curiam.
Claimant, Carrie Jones, appeals as of right from a Wayne Circuit Court order compelling the forfeiture of Jones’ interest in $28,088 and other miscellaneous items named in a search war rant pursuant to MCL 333.7521 et seq.; MSA 14.15(7521) et seq. We affirm.
On December 10, 1985, the Wayne County Federal Task Force executed a search warrant at 459 East Euclid in Detroit. The warrant authorized the seizure of controlled substances, proceeds from the trafficking of controlled substances, paraphernalia and records related thereto, and firearms used to protect the controlled substances. In addition, the warrant authorized the seizure of items establishing the residency and control of 459 East Euclid, which was described in the warrant as a "two story two family dwelling.” The basis for the warrant was information obtained from a confidential informant on the use of 459 East Euclid to store controlled substances and proceeds and the task force’s surveillance of that address as well as two other addresses on Delmar Street, which were believed to be the distribution point for the controlled substances.
Carrie Jones was present during the search of 459 East Euclid, and it is not disputed that she resided in the lower level of that address. When executing the warrant, officers were required to break through locked iron gates at the entrance of two bedrooms on the lower level. Heroin, paraphernalia and records relating to the trafficking of controlled substances, firearms, money, and other items were seized.
The prosecutor then commenced a statutory forfeiture process against the items seized, and Jones responded by moving to quash the search warrant, suppress all physical evidence seized from her premises, and for the return of all the evidence. On April 7, 1986, the trial court denied Jones’ motion to quash the search warrant and suppress the evidence, which was argued solely on the basis of the information contained in the war rant. On February 19, 1987, the forfeiture hearing was held, with Jones’ attorney stipulating to the admission of all facts necessary for the prosecutor to establish a prima facie case of forfeiture. Jones’ attorney also asserted that he could not rebut the stipulated-to evidence because Jones declined to appear and would not testify. Based on this record, the trial court ordered the forfeiture of all items seized to the extent of Jones’ interest.
On appeal, Jones seeks the return of the property seized from her residence on the basis that the warrant was not supported by probable cause and was overly broad. The prosecutor argues that the search warrant was valid and further contests this Court’s jurisdiction and Jones’ standing in this forfeiture action. Since the jurisdictional and standing issues are preliminary to all other issues we must decide, they shall be considered first.
The prosecutor’s objection to this Court’s jurisdiction was first raised in a motion to dismiss, which was denied by a panel of this Court for lack of merit. On appeal, the prosecutor continues to argue that this Court lacks jurisdiction because, it is claimed, the order of forfeiture was executed on March 11, 1987, thereby resulting in the release of the "res.” Based on the record before us, we must disagree.
Forfeiture proceedings are in rem civil proceedings. People v United States Currency, 158 Mich App 126, 130; 404 NW2d 634 (1986). The general rule in such proceedings is that possession or control over the subject matter or res of the action is essential to the court’s jurisdiction to render a judgment. 47 Am Jur 2d, Judgments, §§ 1064-1065, pp 130-131. The judgment operates directly on the res and has no force other than that arising from the jurisdiction over the res. Id., § 1069, p 133.
Under the Michigan forfeiture statute, MCL 333.7523(2); MSA 14.15(7523)(2), the court has jurisdiction over the res, despite the possession of the res by the seizing agency, with control being retained by the court by subjecting the agency’s custody of the res to the order and judgment of the court. The court here issued a final forfeiture order under the statute and we have jurisdiction to review the order under MCR 7.203(A). Thus, contrary to the prosecutor’s contention, we do have jurisdiction. The federal cases relied on by the prosecutor, although seeming to support the notion that an execution of the judgment deprives both the lower and appellate courts of jurisdiction, are really concerned with the concept of mootness. Compare United States v $57,480.05 United States Currency, 722 F2d 1457 (CA 9, 1984), with Alyeska Pipeline Service Co v The Vessel Bay Ridge, 703 F2d 381, 384 (CA 9, 1983), cert dis 467 US 1247 (1984), cited at 722 F2d 1458. An important test for mootness in Michigan, as in Alyeska, supra, p 384, is whether an event occurs which renders it impossible for the reviewing court, if it should decide in favor of the party, to grant any relief. Schumacher v Tidswell, 138 Mich App 708, 717; 360 NW2d 915 (1984).
If, as the prosecutor claims, the judgment was properly executed, then there would be no res subject to the court’s control to return to Jones and a dismissal based on mootness would be justified. Under these circumstances, and because an appeal will not ordinarily stay the effect or enforceability of the judgment, it is incumbent upon a claimant such as Jones to obtain a stay of the judgment if she desires to seek a return of the res on appeal. See MCR 7.209.
Nevertheless, we decline to dismiss for mootness. While an issue not addressed in the trial court can be considered on appeal if necessary to a proper determination of the case, this is so only if the record contains all the facts necessary to determine the claim. Trail Clinic, PC v Bloch, 114 Mich App 700, 711-712; 319 NW2d 638 (1982), lv den 417 Mich 959 (1983). The record before us does not support the prosecutor’s allegation that the judgment was executed and no motion for remand to develop a record on the disposition of the res was made. See MCR 7.211(C)(1). Accordingly, we will consider the other issues raised on appeal.
With regard to the prosecutor’s challenge to Jones’ standing to seek the return of the seized items, we decline to consider this issue since it was not raised below and no cross-appeal was filed. Compare People v Smith, 420 Mich 1, 11, n 3; 360 NW2d 841 (1984) (standing issue addressed when raised for the first time on appeal by the appellant and necessary to a proper determination of the case), with Kordich v Butler Aviation Detroit, Inc, 103 Mich App 566, 567-570; 303 NW2d 238 (1981) (appellee’s claim not preserved for review where no cross-appeal was filed), and Burns v Rodman, 342 Mich 410; 70 NW2d 793 (1955) (appellee’s claim as to the reasons presented to, but rejected by, the trial court as support for the judgment in his favor can be considered on appeal). In passing, we point out that the Michigan forfeiture statute, MCL 333.7523(l)(b); MSA 14.15(7523)(l)(b), requires the claimant to have a personal interest in the property which is the subject of the forfeiture. The stipulated factual record in this case contains no stipulation as to the amount of Jones’ interest in any of the items seized and, thus, does not support her claim that she is entitled to the return of the property.
The sole issue raised by Jones concerns the validity of the search warrant. Jones argues that the property, particularly the money, was illegally seized and, therefore, should be returned. As the prosecutor points out, however, Jones’ attorney stipulated to the admission of the warrant at the forfeiture hearing. Further, even when property is illegally seized, it is still subject to forfeiture under MCL 333.7521; MSA 14.15(7521) if the probable cause for the seizure can be supported by untainted, admissible evidence. In re Forfeiture of United States Currency, 166 Mich App 81, 89; 420 NW2d 131 (1988). Having stipulated to the admission of sufficient facts for the prosecutor to establish a prima facie case of forfeiture, we conclude that any issue pertaining to the forfeiture has been abandoned. A party cannot concede issues at the time set for trial, then claim error based on that concession. See Kohn v Ford Motor Co, 151 Mich App 300, 310; 390 NW2d 709 (1986), lv den 428 Mich 851 (1987).
Even if this issue was properly preserved for appeal, we would not reverse. A magistrate’s finding of probable cause to issue a search warrant is based upon the facts related within the affidavit presented to the magistrate. MCL 780.653; MSA 28.1259(3); People v White, 167 Mich App 461; 423 NW2d 225 (1988). The warrant here was based on an affidavit containing information obtained from a confidential informant and an independent investigation undertaken by the task force to verify the information. The fact that the informant’s information was based on a statement made by "Chuck” does not demonstrate error since the informant had personal knowledge of the state ment. People v Kalchik, 160 Mich App 40; 407 NW2d 627 (1987). Further, we note that "Chuck” admitted his own participation in the illegal activity to the informant without any indication that "Chuck” knew that he was dealing with a confidential informant working with the police. Statements against penal interest have a high indicia of reliability. MRE 804(b)(3). We, therefore, find that the affidavit satisfied the requirements for probable cause in MCL 780.653; MSA 28.1259(3), as interpreted in People v Sherbine, 421 Mich 502; 364 NW2d 658 (1984).
We similarly reject Jones’ claim that the warrant was overly broad. Both the items to be seized and the place to be searched were described with particularity. This is so despite the fact that the place to be searched, 459 East Euclid, was described as a two-story, two-family dwelling, since it is clear from the face of the warrant that the identity of the persons residing at or in control of that address were unknown and the facts related to the magistrate showed that probable cause related to the entire premises. The magistrate’s decision to authorize a search of the entire premises was not an abuse of discretion. People v White, supra, p 463. Accordingly, even if Jones preserved this issue for appeal, we would uphold the validity of the warrant.
Affirmed._
The prosecutor argues that, even if the warrant was insufficient under MCL 780.653; MSA 28.1259(3), the evidence was admissible under the good-faith exception to the exclusionary rule set forth in United States v Leon, 468 US 897; 104 S Ct 3405; 82 L Ed 2d 677 (1984). Since this good-faith exception has not been adopted in Michigan, we do not consider this issue. People v Tanis, 153 Mich App 806, 812; 396 NW2d 544 (1986), lv den 426 Mich 877 (1986).
See MCL 780.654; MSA 28.1259(4); People v Woodward, 231 Mich 559; 204 NW 731 (1925); Maryland v Garrison, 480 US 79; 107 S Ct 1013, 1017; 94 L Ed 2d 72, 80-81 (1987). Compare People v Toodle, 155 Mich App 539; 400 NW2d 670 (1986). | [
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Per Curiam.
Defendant pled guilty to delivery of less than fifty grams of cocaine, MCL 333.7401(2)(a)(iv); MSA 14.15(7401)(2)(a)(iv). As part of the plea agreement, defendant also pled guilty to delivery of more than fifty grams of cocaine, MCL 333.7401(2)(a)(iii); MSA 14.15(7401)(2)(a)(iii), in another case before a different judge. In exchange for the pleas, the prosecutor dismissed a charge of delivery of cocaine in a third case and the supplemental information charges in all three cases. Defendant was sentenced to a prison term of from eight to twenty years in this case. Defendant appeals as of right. We affirm.
Defendant first argues that the trial court erred in denying defendant’s request to withdraw his guilty plea when defendant asserted that his plea was induced by unfulfilled promises of leniency and the ineffective assistance of counsel.
There is no absolute right to withdrawal of a guilty plea. People v Bencheck, 360 Mich 430, 432; 104 NW2d 191 (1960). When a motion for withdrawal of a guilty plea is made prior to sentencing, the trial judge’s discretion should be exercised with great liberality. Id. However, the trial court need not grant a defendant’s request for withdrawal of the plea when it is persuaded that the request is obviously frivolous. People v Zaleski, 375 Mich 71, 79; 133 NW2d 175 (1965).
In the instant case, defendant moved for withdrawal of his guilty plea at the sentencing hearing. Defendant claimed that unfulfilled promises of immunity and credit for time served were made to him in exchange for his guilty plea. After being questioned by the trial judge, defendant’s counsel denied that any such promises were made to defendant. The trial judge then denied defendant’s motion. In support of his decision, the trial judge noted that defendant had previously stated at the guilty plea proceeding that no promises outside the plea agreement were made to him in exchange for his plea. The trial judge also noted that the record did not reveal any such promises and that defendant’s counsel denied that the alleged promises were made to defendant.
On the basis of our review of the record, we find that the trial court acted within its discretion when it denied defendant’s request to withdraw his guilty plea. Thus, we find no error.
Defendant also argues that the trial court abused its discretion and denied defendant his right to allocution when the court refused to allow a prisoner being held in county jail to be brought to the sentencing hearing to speak on defendant’s behalf. We disagree.
MCR 6.101(G)(2) provides that a defendant and his attorney should be given a reasonable opportunity to advise the court of any circumstances that they believe the court should consider in imposing sentence. In the present case, defendant, defendant’s attorney, and defendant’s minister from jail, Reverend Coleman Gillian, Jr., were given a full opportunity to address the trial court prior to sentencing. Accordingly, we find that defendant was properly afforded his right to allocution and that the trial court did not abuse its discretion when it refused to allow a prisoner to speak on defendant’s behalf at sentencing. We further note that, although the trial court allowed defendant’s minister to speak on defendant’s behalf prior to sentencing, the trial court was not required to do so under MCR 6.101(G)(2).
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Per Curiam.
Pursuant to a plea agreement defendant pled nolo contendere to first-degree criminal sexual conduct, MCL 750.520b(l)(f); MSA 28.788(2)(l)(f), and was sentenced to fifteen to thirty years imprisonment. Defendant appeals from his sentence as of right. We affirm.
On appeal defendant contests the trial court’s Sentencing Information Report (sir) scoring of two points for prior record variable six — prior misdemeanor convictions. Defendant claims the trial court erred in including defendant’s prior convictions for operating a motor vehicle while under the influence of liquor (ouil) in its calculation under variable six as alcohol-related offenses are not contained in the guideline advisory committee’s list of misdemeanors properly considered under this variable.
However, we decline to rule that only those misdemeanors contained in the advisory committee’s list may be considered in calculating points for purposes of the sir. This list was compiled after our Supreme Court’s adoption of the guidelines and is not included in the newly adopted guidelines. Thus, to determine whether the trial court properly considered defendant’s prior ouil convictions, we look to the body of the guidelines themselves.
Under prior record variable six the guidelines state: "A misdemeanor refers to any offense punishable by one year or less of incarceration and directly related to one of the following crime groups: robbery, assault, esc, drug, burglary . . . .’’In the instant case the trial court included defendant’s ouil convictions finding them to be misdemeanors, punishable by one year or less of incarceration, and related to the drug-crime group:
I disagree with the guidelines advisory committee that alcohol is not a drug related offense. Alcohol is the most abused drug in this country, according to a lot of statistics. To say that marijuana and l-s-d and other controlled substances are related to a drug group and to say that alcohol is not related to a drug group is in this Court’s opinion, to ignore reality.
We agree with the trial court and find that ouil is a drug-related crime. Under article seven, the controlled substances section, of the Public Health Code our Legislature has defined "drug” to include any "substance recognized as a drug in the official United States pharmacopeia, official homeopathic pharmacopeia of the United States, or official national formulary, or any supplement to any of them;. . . .” MCL 333.7105; MSA 14.15(7105). As the official United States pharmacopeia recognizes alcohol as a drug, usp xx, July 20, 1980, p 35, we cannot say the trial court abused its discretion in finding driving while under the influence of alcohol to be a drug-related offense.
Affirmed. | [
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Per Curiam.
This case involves a dispute between petitioner Michigan Association of Public Employees (mape) and intervenor Michigan afscme Council 25 over the representation of employees of the City of Detroit’s Department of Transportation. The employees are presently represented by afscme Local 312. On February 26, 1986, mape filed with the Michigan Employment Relations Commission a petition for an election to certify mape, rather than afscme, as the representative of a bargaining unit comprised of ”all full- time and regular part-time employees employed at the Department of Transportation presently under the jurisdiction of Local 312.” Following a hearing in which the City of Detroit asserted its neutrality, merc determined that the petition did not seek an election among employees in an appropriate bargaining unit and, therefore, denied the petition. Mape appeals as of right. We affirm.
Mape contends that the determination that its election petition did not seek an election in an appropriate bargaining unit was not supported by competent, substantial, and material evidence on the whole record. See Const 1963, art 6, § 28, MCL 423.23(2)(e); MSA 17.454(25)(2)(e), and Michigan Coaches Ass’n, Warren Consolidated School Dist, Local No 1 v Warren Consolidated Schools Bd of Ed, 119 Mich App 85; 326 NW2d 432 (1982), lv den 417 Mich 1020 (1983). Substantial evidence is more than a scintilla but substantially less than a preponderance. Tocco v Marquette Prison Warden, 123 Mich App 395, 402; 333 NW2d 295 (1983).
The record in this case establishes that afscme has represented employees of Detroit’s Department of Transportation and its predecessor department since the early 1940’s. Beginning in 1966, afscme Council 77, the predecessor of afscme Council 25, began merging separate bargaining units throughout the City of Detroit into an overall city-wide collective bargaining unit. Since 1974, Local 312 has joined first afscme Council 77 and then afscme Council 25 as a signatory to their Master Agreements with the City of Detroit. Each Master Agreement since 1974, however, has included the following provision, taken from a memorandum of understanding drafted by Local 312:
Because Local . . . #312 [has] had separate contracts over the years, [it] shall have the right to negotiate supplemental agreements even as regards some areas which might be covered by the Master Agreement.
Local 312 has negotiated various supplemental agreements which differed from provisions set forth in the Master Agreements in the 1974-1977 contract, 1977-1980 contract, and 1980-1983 contract.
Pursuant to § 13 of the public employment relations act (pera), MCL 423.213; MSA 17.455(13), the "unit appropriate” for collective bargaining purposes is to be determined by merc as provided in § 9e of the Michigan labor mediation act, MCL 423.9e; MSA 17.454(10.4). Mecosta Co Bd of Comm’rs v Michigan Council 25, AFSCME, AFL-CIO, 166 Mich App 374, 378-379; 420 NW2d 210 (1988), citing Michigan Ed Ass’n v Clare-Gladwin Intermediate School Dist, 153 Mich App 792, 795; 396 NW2d 538 (1986). Section 9e provides:
The commission, after consultation with the parties, shall determine such a bargaining unit as will best secure to the employees their right of collective bargaining. The unit shall be either the employees of 1 employer employed in 1 plant or business enterprise within this state, not holding executive or supervisory positions, or a craft unit, or a plant unit, or a subdivision of any of the foregoing units. If the group of employees involved in the dispute was recognized by the employer or identified by certification, contract, or past practice, as a unit for collective bargaining, the commission may adopt that unit.
In applying an older provision similar to §9e, our Supreme Court in Hotel Olds v State Labor Mediation Board, 333 Mich 382, 387; 53 NW2d 302 (1952), stated:
We note the decision of the Massachusetts Labor Relations Commission, In re Salem Hotel Corporation d/b/a the Hawthorne Hotel and the Hotel and Restaurant Workers, Local 290, A F L, 19 LRRM 1245, decided November 20, 1946:
"In designating bargaining units as appropriate, a primary objective of the commission is to constitute the largest unit which, in the circumstances of the particular case is most compatible with the effectuation of the purposes of the law and to include in a single unit all common interests.”
The quoted statement in the Hawthorne Case is, so far as applicable to the instant case, in keeping with the directions of the cited proviso of the statute.
Consistent with this statement from the Supreme Court, the policy of merc has been to avoid the fractionalization or multiplicity of bargaining units. Michigan Coaches Ass’n, supra, p 89, citing Utica Community Schools v Utica Ed Ass’n, 1972 MERC Lab Op 804; Flint Osteopathic Hospital v Hospital Employees’ Div of Local 79, Service Employees International Union, AFL-CIO, 1971 MERC Lab Op 572; Van Buren Public Schools v Van Buren Educational Ass’n, 1973 MERC Lab Op 941; 53rd District Court (Livingston Co) v Council 11, AFSCME, AFL-CIO, 1978 MERC Lab Op 82. Further, in Eastern Michigan University Regents v Eastern Michigan University Professors, 46 Mich App 534; 208 NW2d 641 (1973), this Court noted that "[t]he touchstone of an appropriate bargaining unit is the finding that all of its members have a common interest in the terms and conditions of employment, to warrant their inclusion in a single unit to choose a bargaining agent.” 46 Mich App 537, quoting Uyeda v Brooks, 365 F2d 326, 329 (CA 6, 1966). Thus, this Court abides by the policy of merc to constitute the largest unit compatible with the effectuation of the purposes of the pera. Michigan Coaches Ass’n, supra, p 89.
In the instant case, merc found a clear intent to bring Local 312 into the city-wide bargaining unit, manifested in the relinquishment of Local 312’s independence in 1974 and its subsequent participation in joint bargaining with the other locals of afscme Council 25. We find competent, substantial, and material evidence to support that finding. At the hearing on mape’s petition, afscme Council 25 field staff coordinator Flo Walker testified that Local 312 was "accreted to the Master Agreement” during the 1974 contract negotiations and that Local 312 was a part of the overall ratification vote on the Master Agreement. The provision taken from the memo of understanding was submitted to the entire membership for ratification. Both Walker and Lloyd Simpson, a retired ex-president of both Local 312 and afscme Council 77, testified that even with the provision all supplemental agreements, including those of Local 312, required the signature and approval of the president (and later executive director) of afscme Council 25 or its predecessor afscme Council 77. Arthur Lauderdale, a member of Local 312’s grievance committee, testified that the three-member grievance committee pursued all grievances under the direction of afscme Council 25 and the local executive board. In addition, though all locals had autonomy over their funds, as with the other locals, Local 312’s budget was spent "per the international constitution.” Lauderdale and Walker also testified that Local 312 could and had hired its own attorney in the past "with council approval.”
Mape argues that the memorandum of understanding indicates that Local 312 never merged with afscme Council 25. Mape also argues that various provisions reached through supplemental agreements with the city are unique to Local 312 and demonstrate its autonomy. We disagree. Thirty-five to forty supplemental agreements were allowed among the locals of afscme Council 25, and fifteen to twenty locals actually had such supplemental agreements. The unique sickness and accident plan for Local 312 was allowed as an experiment to determine whether it was better than previous plans. Finally, Local 312’s grievance procedure, though vested with autonomy over one additional tier than other locals, was still under the direction of afscme Council 25 at the fourth and fifth tiers of the grievance process. Even were this Court to determine that it may have decided the case differently, we will not substitute our judgment as to the appropriate bargaining unit for that of merc because there has been no clear showing of error. Lansing School Dist v MERC, 117 Mich App 486, 493; 324 NW2d 62 (1982).
Mape argues that Wayne Co Bd of Comm’rs v Wayne Co Supervisory Employees Ass’n, 1983 MERC Lab Op 573, where merc permitted severance of a unit of county engineering employees from a county-wide unit, is dispositive of this case. In our opinion, merc properly distinguished the instant case from Wayne Co Bd of Comm’rs, on the basis that Local 312 had relinquished its independence. Here, unlike the situation in Wayne Co Bd of Comm’rs, Local 312 was not separately certified, Local 312 was not singled out in the Master Agreement for separate recognition, and Local 312’s classifications were not separated. Further, the Master Agreement has only the memorandum of understanding and no other separate provisions for Local 312 specifically set forth therein. Local 312 did not have a separate contract clause specifying different rights for its stewards, local officers, or chapter chairmen. Despite the long-standing history of Local 312 prior to 1974 and aspects of Local 312’s history since 1974, there was competent, substantial, and material evidence on the record as a whole to support merc’s denial of appellant’s petition seeking an election in a bargaining unit consisting only of dot employees.
Affirmed. | [
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R. L. Tahvonen, J.
Plaintiff, Mary Gillam, personal representative of the estate of Robert Gillam, deceased, appeals as of right from a directed verdict in favor of defendant Celeste Nostrand and from a jury verdict of no cause of action in favor of defendants Dennis M. Lloyd, D.O., P.C., and the Genesee County Board of Commissioners. We affirm.
Robert Gillam, plaintiff’s decedent, was an inmate at the Genesee County Jail when he died on April 11, 1982, from a perforated ulcer and resulting peritonitis. Plaintiff filed this suit in September of 1982, alleging negligence as to defendant Nostrand, Gillam’s probation officer; negligence and agency liability as to defendant Lloyd, the jail’s medical director; and maintenance of a dan gerous and defective condition in a public building as to the Genesee County Board of Commissioners.
The events leading to Robert Gillam’s death began on February 15, 1982, when Gillam was convicted by a jury of assault with a dangerous weapon. Gillam was then fifty-two years old and suffered from multiple debilitating physical conditions. Judge Robert Ransom remanded Gillam to the Genesee County Jail pending preparation of a prebail investigation report. Judge Ransom requested a medical assessment to determine whether there would be problems managing Gillam in the county jail. Jerry Hall, the physician’s assistant at the jail, performed a physical examination and determined that Gillam was suffering from congestive heart failure, pulmonary emboli (blood clots in the lung), arteriosclerotic heart disease, traumatic arthritis of the pelvis, and chronic lower back syndrome with postpelvic fracture pain. Gillam had no history of ulcer disease. Joan Beck, nursing coordinator at the jail, acting under instructions from her supervisor, Dr. Lloyd, wrote a February 16 memorandum to Judge Ransom describing Gillam’s physical problems and requesting his release because he was viewed as a "high risk” person. Judge Ransom authorized Gillam’s release from jail the next day.
Defendant Nostrand, Gillam’s probation officer, prepared a presentence report. In the report, she detailed Gillam’s medical problems and reported that the psychiatrist opined that jail would be the "worse possible thing” for Gillam. She recommended that Judge Ransom sentence Gillam to probation. On March 12, Judge Ransom sentenced Gillam to five years probation and one year in the county jail, "deferred until Tuesday, March 23, 1982, at 9:00 a.m. pending devising and approval of a community service program.” Judge Ransom stated that Gillam would not be jailed if he participated in the community service program, but if Gillam did not cooperate with the program, he would be sent to jail.
On March 19, 1982, Nostrand wrote a memorandum to Judge Ransom requesting that the March 23 jail term be held in abeyance because of difficulties in scheduling Gillam’s community service placement. In the memorandum, Nostrand advised the judge that "if Mr. Gillam is noncompliant with the volunteer work, he will immediately be escorted to the jail facility.” Judge Ransom approved the memorandum, agreeing to hold the jail term in abeyance.
Gillam was scheduled to report for his first community service placement meeting on March 25, 1982, at 9:00 a.m. Thirty minutes before the meeting, Gillam contacted Nostrand and told her that his car had broken down on the way to the program. Nostrand told Gillam that he had to make the appointment or he would be jailed. Mary Gillam testified that her husband tried for one and one-half hours to get a ride to the placement, but that he did not call a taxi. Later that morning, the director of the placement contacted Nostrand and informed her that Gillam had not kept his appointment. Nostrand took a copy of the court’s order to the jail and advised them to arrest Gillam for noncompliance. She contacted Gillam and told him that he was going to jail. Nostrand testified that she interpreted Gillam’s failure to report to the placement appointment as noncompliance with the terms of his probation, which, under the terms of her memorandum approved by Judge Ransom, required his incarceration.
Gillam was incarcerated in the Genesee County Jail on March 25. Once incarcerated, the medical staff at the Genesee County Jail was responsible for treating Gillam’s medical problems. Dr. Lloyd, as medical director of the jail, was employed under a contract with the Board of Commissioners which required his presence at the facility 37.5 hours per month. Lloyd’s contract stated that he was to supervise all nursing activities, except scheduling and salary, and was to supervise all of the activities of the physician’s assistant, Jerry Hall. Lloyd also had a statutory duty to supervise his physician’s assistant, pursuant to MCL 333.16109; MSA 14.15(16109); MCL 333.17501; MSA 14.15(17501).
On March 26, 1982, Lloyd performed an abbreviated physical examination of Gillam. Lloyd testified that the only specific complaint made by Gillam during that examination was that he was not receiving Tylenol #4, a medication prescribed by Gillam’s private physician, which Gillam had been taking for years to relieve his pain. Lloyd had taken Gillam off Tylenol #4, a narcotic drug, and prescribed Zomax, a nonnarcotic drug, because other patients might try to steal Gillam’s narcotics. Lloyd testified that Gillam complained of pain when touched in the abdomen, but that he also complained of pain in any part of his body which Lloyd touched. Lloyd stated that there were no indications that Gillam had an ulcer and that therefore he did not order any x-rays to be taken. Following the examination, Lloyd asked nurse Joan Beck to call Judge Ransom to see if Gillam could again be taken out of the jail, as Gillam was a high risk patient.
Between March 26 and April 1, Gillam refused his medication several times and objected to taking the Zomax which Lloyd had prescribed for him. Gillam was not eating regularly.
On April 1, 1982, Gillam received a complete physical examination from the physician’s assistant, Jerry Hall. Hall determined that Gillam was suffering from the same health problems which had prompted his February 16 release from jail. Hall noted on Gillam’s physical chart that during the examination Gillam rolled his eyes around and rambled. This was a new finding which Hall had not noted in his February 15 examination. Gillam complained that he could not eat solid foods because it made his "pelvis, back, and legs feel like they were set on fire.” This was also a new complaint, as was Gillam’s complaint that pain radiating from his pelvic bone to his leg caused his right knee to buckle.
Hall suspected that a preexisting nerve condition might have caused Gillam’s inability to stand, but did not order tests to confirm them. Instead, he ordered blood tests because he thought Gillam’s weakness might be caused by a potassium problem. Hall did not suspect an ulcer condition. He stated that Gillam’s vital signs were normal and that there were no indications that Gillam was suffering from acute or chronic ulcer disease, the eventual cause of his death. Hall did not recommend x-rays or gastrointestinal tests. He recommended that Lloyd review the physical.
On April 1, Lt. Thayer, an officer at the Genesee County Jail, contacted Nostrand and requested that Gillam be removed from the jail. Thayer asked Joan Beck to speak to Nostrand, whom he identified only as "Celeste,” and to see if she could persuade Nostrand to help get Gillam out of jail. Beck testified that she assumed she was speaking to Judge Ransom’s secretary, and only later found out that Nostrand was Gillam’s probation officer. Beck told Nostrand that Gillam was a high risk patient and that the medical staff feared that he would decompensate and wanted him out of jail. Beck then had Jerry Hall describe Gillam’s medical condition to Nostrand. Nostrand told Beck that she thought Gillam was exaggerating his condition and that the judge was reluctant to let him out. Beck testified that she asked Nostrand to check with the judge and to call her back.
Beck testified that Nostrand returned her call later in the afternoon. Nostrand told her that the judge was still reluctant to let Gillam out, but if his condition worsened to the extent that Gillam needed to be hospitalized, the judge would agree to release him. Although Nostrand did not specifically state that she had spoken to the judge before the second conversation, Beck assumed that Nostrand had spoken to the judge since Beck had requested that Nostrand speak to him about Gillam.
Nostrand testified that she did not speak with Judge Ransom and never intentionally gave Beck the impression that she had spoken to the judge. She also stated that Gillam’s medical condition, as described to her, was no different from when he was sentenced. Judge Ransom testified that he was not contacted by Nostrand about Gillam after she sent him the March 19, 1982, memorandum.
On April 2, Lloyd reviewed Gillam’s chart and discussed his condition with Hall. Lloyd did not examine Gillam. Lloyd and Hall thought that the burning sensation in Gillam’s stomach was caused by indigestion. April 2 was Lloyd’s last visit to the jail before his April 5 departure to Florida for a ten-day vacation. Lloyd’s contract with Genesee County required that he arrange for another physician to cover for him in his absence, at his own expense. Lloyd arranged for Dr. Steven Hartz, D.O., to be continuously available by telephone for consultation and supervision, but Lloyd made no arrangements for Hartz to visit the jail. Hartz never examined Gillam.
Dr. Dong Yoo, a psychiatrist who worked at the jail, performed a psychiatric examination on Gillam on April 2. Dr. Yoo recorded in Gillam’s chart that Gillam appeared extremely dehydrated and undernourished and was experiencing shortness of breath. Dr. Yoo did not perform a physical, but made these comments based on visual observations.
On April 8, 1982, other inmates in Gillam’s cell stated that Gillam was urinating on himself and that they feared he might die. A deputy confirmed that Gillam was urinating on himself. Hall examined Gillam on April 8. Gillam’s vital signs remained within normal limits. According to Hall, Gillam was walking normally, with minimal support. Gillam continued to complain of burning in his stomach. Hall wrote on Gillam’s chart that gastritis or ulcer disease should be ruled out, but he performed no testing or x-rays which would indicate whether Gillam had gastritis or an ulcer. Hall did not contact Dr. Hartz. Further, although Hall had authority, as did every member of the jail medical staff, to transfer any acutely ill inmate to a hospital, Hall did not believe that Gillam’s condition on April 8 warranted hospitalization.
On April 10 at 11:00 p.m., Gillam complained of pain all over his body and stated that "only a shot can help.” Nurse Susan Monroe gave Gillam a shot of salt water, a placebo. Dr. Lloyd had earlier approved the use of placebos by the jail staff.
Gillam was found dead in his cell on April 11 at approximately 7:00 a.m. Dr. Mathias Okoye, a pathologist who performed Gillam’s autopsy, testified that the cause of death was peritonitis, a secondary infection resulting from a perforated ulcer. Gillam’s stomach contained about four quarts of puss. Dr. Okoye determined that Gillam had had an ulcer for one month or more. The puss from the infection had been in his stomach for seven to eight days. Dr. Okoye also testified that a perforated ulcer causes severe pain.
Dr. Samuel Lerman testified as an expert witness for plaintiff. Lerman stated that the Genesee County Jail was not an appropriate place to house someone with Gillam’s medical problems. Lerman opined that Gillam should have been examined at least daily, in view of his medical problems. Gillam should not have been taken off Tylenol #4 and put on Zomax, because a patient in a precarious medical condition should be allowed to continue his old medications. He also stated that Zomax can cause or aggravate ulcers. Lerman opined that, in view of Gillam’s complaints during the April 1 examination conducted by Jerry Hall, Lloyd should have examined Gillam. Also, on the basis of those complaints, Gillam should have been sent to a hospital for more extensive tests. Lerman stated that, in his opinion, Gillam’s ulcer had perforated before the April 1 examination.
Dr. Larry Farr testified as an expert witness for defendant Lloyd. Farr opined that Lloyd did not breach the standard of care by failing to examine Gillam on April 1, since Gillam showed no appreciable change since the March 26 examination. Nor did the failure to send Gillam out for diagnostic tests on April 1 breach the standard of care, because there were no signs or symptoms indicating that other tests needed to be done. Farr opined that nothing in Gillam’s physical charts indicated that Gillam was suffering from an ulcer.
On appeal, plaintiff raises five issues, claiming that (1) the trial judge erred in directing a verdict for defendant Nostrand on the basis of governmental immunity, (2) the trial judge erred by instructing the jury that it should determine whether Dr. Lloyd had a duty to supervise nurses and that the negligence of the physician’s assistant and nurses had to be "reasonably anticipated” by Lloyd before he could be found liable for their conduct, (3) the trial judge erred in failing to permit plaintiff to call Max Redwine as a rebuttal witness, (4) the comments of the trial judge denied plaintiff a fair trial, and (5) the trial judge abused his discretion by admitting evidence of the details of the crime of which plaintiff’s decedent was convicted.
i
Plaintiffs first claim is that the trial court erred in granting a directed verdict for defendant, Celeste Nostrand, Gillam’s probation officer. Plaintiffs complaint alleged that Nostrand was negligent in two instances: (1) when Nostrand had Gillam incarcerated for failing to attend his community service appointment and violating his probation order and (2) when Nostrand represented to Nurse Joan Beck that she had spoken with Judge Ransom about releasing Gillam and that the judge had refused. The trial court found that Nostrand’s actions were protected by governmental immunity under Ross v Consumers Power Co (On Rehearing), 420 Mich 567; 363 NW2d 641 (1984).
Directed verdicts in civil litigation are appropriate only when no factual question exists upon which reasonable minds may differ. In reviewing the trial court’s grant of a directed verdict in favor of defendant Nostrand, we review the evidence in a light most favorable to plaintiff. Brisboy v Fibreboard Corp, 429 Mich 540, 549; 418 NW2d 650 (1988); Matras v Amoco Oil Co, 424 Mich 675, 681; 385 NW2d 586 (1986). If the evidence, viewed in a light most favorable to plaintiff, establishes a prima facie case against Nostrand and avoided governmental immunity, then a directed verdict was improperly granted. Dixon v W W Grainger, Inc, 168 Mich App 107, 110; 423 NW2d 580 (1987); Kinzie v AMF Lawn & Garden, Division of AMF, Inc, 167 Mich App 528, 533; 423 NW2d 253 (1988).
Lower level government officials, employees, and agents are immune from tort liability only when they are: (1) acting during the course of their employment and acting, or reasonably believe they are acting, within the scope of their authority; (2) acting in good faith; and (3) performing discretionary, as opposed to ministerial, acts. Ross, supra, pp 633- 634.
In most cases, a defendant’s entitlement to governmental immunity turns on the question whether the defendant’s actions were discretionary or ministerial. This determination is a question of law for the court. King v Arbic, 159 Mich App 452, 462; 406 NW2d 852 (1987). See also Ross, supra, pp 634-635, 640, 650-651.
In Ross, our Supreme Court explained the distinction between discretionary and ministerial acts as follows:
"Discretionary” acts have been defined as those which require personal deliberation, decision, and judgment. [Prosser, Torts (4th ed), § 132, p 988]. This definition encompasses more than quasi-judicial or policy-making authority, which typically is granted only to members of administrative tribunals, prosecutors, and higher level executives. However, it does not encompass every trivial decision, such as "the driving of a nail,” which may be involved in performing an activity. For clarity, we would add the word "decisional” so the operative term would be "discretionary-decisional” acts.
"Ministerial” acts have been defined as those which constitute merely an obedience to orders or the performance of a duty in which the individual has little or no choice. Id. We believe that this definition is not sufficiently broad. An individual who decides whether to engage in a particular activity and how best to carry it out engages in discretionary activity. However, the actual execution of this decision by the same individual is a ministerial act, which must be performed in a nontortious manner. In a nutshell, the distinction between "discretionary” and "ministerial” acts is that the former involves significant decision-making, while the latter involves the execution of a decision and might entail some minor decision-making. Here too, for clarity, we would add the word "operational” so the operative term would be "ministerial-operational” acts. [Ross, supra, pp 634-635.
See also Canon v Thumudo, 430 Mich 326, 333; 422 NW2d 688 (1988).
The other requirements for governmental immunity, that the defendant acted in the course of his employment and within the scope of his authority and acted in good faith, are questions of fact. Where reasonable minds could differ, these questions should be left to the jury.
Although the Ross Court ruled that actions had to be taken in good faith to be immune, the Supreme Court provided little guidance on the meaning of good faith. The Court did state that governmental immunity should not shield malicious or intentionally unlawful behavior. Ross, supra, p 633. In Tobias v Phelps, 144 Mich App 272, 282; 375 NW2d 365 (1985), this Court wrote that, where the defendants had knowledge of an inmate’s serious medical needs, deliberate indifference to those medical needs could constitute bad faith. In Willoughby v Lehrbass, 150 Mich App 319, 348; 388 NW2d 688 (1986), this Court stated that
in order to establish bad faith under Ross, it would seem that based upon the policy of the qualified immunity doctrine a plaintiff would have to establish that the governmental actor engaged in malicious or intentionally unlawful behavior. Ross, supra, pp 632-633. Plaintiffs’ mere conclusory allegations that these two defendants wilfully or recklessly or negligently failed to supervise Lehrbass simply are not sufficient to establish bad faith on the part of these defendants.
Applying the Ross requirements for governmental immunity to plaintiff’s first claim against defendant Nostrand, we conclude that a directed verdict was properly entered. Plaintiff alleges that Nostrand was negligent in placing Gillam in jail for noncompliance with the court’s order although she knew that he had serious medical problems. Plaintiff concedes that when Nostrand had defendant incarcerated she was acting within the course of her employment and the scope of her authority as a probation officer. Plaintiff claims, however, that Nostrand did not act in good faith. We disagree. Nostrand had Gillam incarcerated pursuant to the memorandum approved by Judge Ransom. This was not an intentionally unlawful act. Further, there was no evidence that Nostrand acted maliciously or from some improper motive in ordering Gillam’s incarceration.
Plaintiff is really complaining about Nostrand’s determination that Gillam had violated the terms of his probation when he did not attend his community work appointment because his car broke down. This determination was a discretionary decision, however, not a ministerial one. We conclude that defendant Nostrand was entitled to a directed verdict on the basis of governmental immunity on the claim that her act of incarcerating Gillam was negligent. The evidence produced at trial showed that Nostrand was acting within the course of her employment and scope of authority, was acting in good faith, and was performing a discretionary activity. Ross, supra.
Plaintiffs second allegation is that Nostrand was negligent in failing to obtain Gillam’s release from jail when it became clear that he was too sick to be there and in representing to jail officials that she had spoken to the judge about Gillam’s release when she had not. We conclude that the trial court erred in directing a verdict for Nostrand on this claim on the basis of governmental immunity.
First, Nostrand’s role in determining whether Gillam should have been released from jail was a ministerial act. The medical staff of the jail, not Nostrand, was responsible for determining whether Gillam’s condition warranted seeking his release, and the judge was responsible for the final decision. Nostrand’s role in this determination was merely to convey the relevant information to the judge to allow him to make a decision. Since this task required no decision-making or exercise of discretion, it was a ministerial act. Ross, supra. Nostrand is not, therefore, entitled to governmental immunity under Ross.
Second, there is a question of fact whether Nostrand was acting in the course of her employment or within her authority in counselling the jail personnel about releasing Gillam, and so a directed verdict was also erroneous on this ground. Brisboy, supra. Nostrand testified that her authority ended when Gillam was jailed. She had, then, no authority to act on his behalf. Nostrand also had no authority to tell nurse Beck that Judge Ransom refused to release Gillam when Nostrand had not actually spoken to him. Nor did Nostrand have any authority to interfere in the decision about releasing Gillam. That was the responsibility of the jail medical staff and the judge.
Finally, Beck’s testimony could also support a finding that Nostrand acted in bad faith, which would also disqualify her from governmental immunity under Ross. If Beck is believed, a jury could find that Nostrand intentionally or recklessly misrepresented her efforts to contact the judge and misrepresented that the judge had denied the request to release Gillam.
While defendant Nostrand was not entitled to governmental immunity for her actions on April 1, 1982, we conclude that Nostrand is entitled to a directed verdict in her favor on the issue of proximate cause. Under Michigan law, an actor is liable for his negligent conduct only if that conduct was the legal or proximate cause of the harm to the plaintiff. Brisboy v Fibreboard Paper Products Corp, 148 Mich App 298, 303; 384 NW2d 39 (1985). "An actor’s negligent conduct will not be a legal or proximate cause of the harm to another unless that conduct was a substantial factor in bringing about the harm.” Id. "Proximate cause” denotes the limitation placed on the actor’s responsibility for the consequences of his conduct. "As a practical matter, legal responsibility must be limited to those causes which are so closely connected with the result and of such significance that the law is justified in imposing liability.” Prosser & Keeton, Torts (5th ed), §41, p 264. Proximate cause or legal cause, i.e., the defendant’s liability for the injury, is primarily a question of law, while cause in fact is a question for the jury. Moning v Alfono, 400 Mich 425, 438; 254 NW2d 759 (1977); Prosser & Keeton, supra, § 42, pp 272-273.
The question of proximate cause turns upon whether it is foreseeable that the actor’s conduct may create a risk of harm to the victim and whether the injury was foreseeable. Moning, supra, p 439. The questions of duty and proximate cause are related. Some courts frame the issue as whether the defendant had a duty to protect the victim from the event which did in fact occur. Prosser & Keeton, supra, § 42, p 274.
Plaintiff alleges that Nostrand was negligent in not contacting the judge and seeking Gillam’s release when the jail medical staff advised her that Gillam should be released. Plaintiff also alleges that Nostrand was negligent in representing to nurse Beck that she had spoken to the judge and he had refused to release Gillam when she had not. Plaintiff argues that this dissuaded the jail medical staff from further attempts to get Gillam released and ultimately contributed to his death. While we agree that these facts, if believed, established that Nostrand acted negligently, we do not agree that her actions can be considered a proximate cause of Gillam’s death.
First, Nostrand had no authority to release Gillam, and there is no evidence that Judge Ransom would have agreed to release Gillam even if Nostrand had relayed the message to him. Second, release pursuant to court order was not the jail medical staff’s only option for dealing with Gillam’s illness. If Lloyd or any of the medical staff had recognized the seriousness of Gillam’s illness, they could have transferred him to the hospital. Everyone on the jail medical staff had that authority.
Third, Nostrand is not responsible for the fact that the jail staff did not contact the judge later, when Gillam’s condition worsened. Nostrand’s conversation with Beck occurred on April 1. Gillam did not die until April 11, ten days later. Fourth, and most importantly, Nostrand is not liable for the medical staff’s failure to properly diagnose and treat Gillam’s ulcer condition.
Nostrand had no duty to oversee their medical decisions. It is not foreseeable that Nostrand’s negligence in misrepresenting that she contacted Judge Ransom would prevent the jail medical staff from properly diagnosing Gillam’s ulcer condition, from seeking his release again, or from sending him to a hospital. Nostrand’s negligence on April 1 cannot be considered a proximate cause of Gillam’s death. We conclude that defendant Nostrand is entitled to a directed verdict in her favor on this claim, and we affirm the trial court’s ruling on this ground.
ii
Plaintiff claims on appeal that the instructions given by the trial court to the jury concerning defendant Dr. Lloyd’s liability were erroneous. It is not necessary to address this claim because Dr. Lloyd is entitled to governmental immunity under the recent Supreme Court decision in Canon v Thumudo, supra.
Dr. Lloyd contracted with Genesee County to provide medical services for the jail inmates. Dr. Lloyd was, therefore, the county’s agent and is entitled to governmental immunity if he meets the Ross requirements. Hayes v Emerick, 164 Mich App 138, 141; 416 NW2d 350 (1987). Under Ross, government agents are protected by governmental immunity if they are: (1) acting during the course of their employment and acting, or reasonably believe that they are acting, within the scope of their authority; (2) acting in good faith; and (3) performing discretionary, as opposed to ministerial, acts.
There was no claim and no evidence that Dr. Lloyd acted outside the scope of his employment with regard to Gillam’s medical care. Nor is there any allegation or evidence of bad faith. Thus, Dr. Lloyd meets the first two requirements for governmental immunity.
In Canon v Thumudo, our Supreme Court further explained the distinction between discretionary and ministerial acts in the context of government employed medical professionals, specifically mental health professionals. The Court in Canon stated that medical decisionmaking is inherently discretionary and that decisions made by medical professionals about diagnosis and course of treatment are, therefore, entitled to governmental immunity. Canon, supra, pp 340, 351, 355. While a government doctor’s medical decision as to the proper course of treatment may have been negligent, that decision is discretionary and consequently cloaked by immunity. Canon, supra, p 346.
When determining the existence and scope of an individual’s immunity from tort liability in a particular situation, the court must examine the specific acts complained of, rather than the general nature of the activity. Canon, supra, p 343; Ross, supra, p 635. In this case, plaintiff alleged that Dr. Lloyd was negligent in two respects. First, that he personally misdiagnosed and mistreated Gillam’s ulcer condition and failed to monitor Gillam’s medical condition, which he recognized as serious. Second, that he was negligent in his supervision of the nurses and physician’s assistant, who also incorrectly diagnosed and treated Gillam. In both of these claims, the acts complained of are negligent diagnosis and treatment. While plaintiff alleges a breach of a duty to supervise, Dr. Lloyd’s decisions about how and when to supervise the jail staff’s medical diagnosis and treatment were also medical decisions. Dr. Lloyd determined that Gillam’s condition did not require his personal attention, and could be monitored by the jail nurses and physician’s assistant. Under Canon, these decisions about medical diagnosis and treatment were discretionary acts entitled to governmental immunity under Ross. Dr. Lloyd met the three requirements for governmental immunity under Ross. Any errors in the trial court’s instructions to the jury concerning Dr. Lloyd’s liability were, therefore, harmless beyond a reasonable doubt, since Dr. Lloyd was entitled to a directed verdict in his favor.
hi
Plaintiff claims on appeal that the trial court abused its discretion by refusing to allow Max Redwine, Gillam’s cell mate, to testify as a rebuttal witness. Redwine was not listed on plaintiff’s witness list, and a pretrial order stated that failure to list witnesses would bar their production at trial. The trial court refused to allow Redwine to testify during plaintiff’s case in chief on the basis of this pretrial order. When plaintiff attempted to call Redwine as a rebuttal witness, the trial court again refused to allow his testimony because he was not a listed witness.
The trial court has discretion to exclude witnesses not listed on the party’s witness list. Pollum v Borman’s Inc, 149 Mich App 57, 61; 385 NW2d 724 (1986); Simonetti v Rinshed-Mason Co, 41 Mich App 446, 456; 200 NW2d 354 (1972). The trial court did not abuse its discretion by refusing to allow plaintiff to call a witness not listed on her witness list, as required by the pretrial order.
IV
Plaintiff claims on appeal that the comments made by the trial judge during the course of the trial and the jury instructions as given by the Court denied plaintiff a fair trial. Moldovan v Allis Chalmers Mfg Co, 83 Mich App 373; 268 NW2d 656 (1978).
Most of the comments plaintiff complains of occurred out of the presence of the jury. The remarks made by the trial judge in front of the jury were addressed to all counsel and did not single out plaintiffs counsel. Plaintiff also objects to several remarks concerning the role of attorneys made by the trial judge during jury instructions. These remarks did not refer to plaintiffs attorney. The substance of these remarks was consistent with SJI2d 3.04 and was not an erroneous statement of the law. We find no prejudice to plaintiff in any of these remarks. Reviewing the record as a whole, we conclude that plaintiff was not denied a fair trial. People v Collier, 168 Mich App 687; 425 NW2d 118 (1988); Moldovan, supra.
v
Plaintiff claims that the trial court abused its discretion in admitting evidence of the details of the crime for which plaintiffs decedent was convicted. Plaintiff agreed that the jury could be told that Gillam had been convicted of felonious assault, but brought a motion in limine to exclude evidence about Gillam’s specific actions during the commission of the crime. The trial court denied plaintiff’s motion, ruling that the actions constituting the felonious assault were relevant to the issue of whether defendant Nostrand’s actions were reasonable and to the issue of damages.
During the course of the trial, counsel for defendant made several references to the facts of the assault, telling the jury that Gillam had gone to a neighbor’s house and shot a .357 Magnum in a dispute over a bicycle. Defense counsel for Lloyd recited the details of Gillam’s crime and questioned Judge Ransom about how these facts affected his sentencing of Gillam. Defense counsel then asked the judge about the extent of injury to the assault victim. When questioning Lloyd, defense counsel again worked the details of Gillam’s crime into his question. Lloyd testified that the medical staff at the jail usually did not know of what crime an inmate had been convicted.
"Relevant evidence” means evidence having any tendency to make the existence of any fact of consequence to the determination of the action more probable or less probable than it would have been without the evidence. MRE 401. Although relevant, evidence may be excluded if its probative value is substantially outweighed by the danger of unfair prejudice. MRE 403. The determination of whether evidence is relevant is within the sound discretion of the trial court. The trial court’s decision will not be reversed on appeal absent a showing of abuse of discretion. Guider v Smith, 157 Mich App 92, 103-104; 403 NW2d 505 (1987). A trial judge’s determination that the probative value of evidence is not substantially outweighed by the prejudicial effect is also subject to an abuse of discretion standard of review. Kirk v Ford Motor Co, 147 Mich App 337, 343; 383 NW2d 193 (1985).
Defendants argue that evidence of the details of Gillam’s crime was relevant to three issues. First, defendants argue that the evidence was relevant to the jury’s determination of damages for loss of society and companionship. Defendants argue that the jury was entitled to know what kind of person Gillam’s family lost. We disagree. The fact that plaintiff’s decedent was involved in a gunfight with a neighbor is not probative of his capacity for providing society and companionship to his family. The general view is that evidence of a plaintiff’s bad character or habit is inadmissible in a tort suit for personal injury unless there is a clear relationship between the bad character or habit and the injury. 25A CJS, Damages, § 148, p 39. There was no such relationship in this case. Whether or not Gillam was considered a good person by society at large has no relevance to the loss experienced by his family at his death.
Second, defendants contend that the evidence was relevant to Gillam’s credibility and that the jail personnel should not be faulted for failing to take Gillam’s complaints and symptoms seriously because the details of the criminal assault prove that Gillam was not a credible person. Even if conviction of an assaultive crime is probative of a lack of credibility, a position rejected by our Supreme Court in People v Allen, 429 Mich 558, 596; 420 NW2d 499 (1988), that fact was before the jury in this case. There is no evidence that the details of the particular assaultive crime, beyond the mere fact of its commission, would contribute to the jury’s ability to assess the credibility of an inmate’s statements made during a medical examination. Moreover, Lloyd testified that the medical personnel in the jail were usually unaware of the charge for which a patient-inmate was convicted. Thus, the details of Gillam’s crime could not have played any part in the medical staffs assessment of Gillam’s medical complaints.
Finally, defendants argue that the evidence was relevant to the alleged liability of Nostrand for her action in incarcerating Gillam in the Genesee County Jail after he failed to report for community service. The evidence showed, however, that Nostrand decided to incarcerate Gillam because he violated the terms of her memorandum to Judge Ransom, not because of the severity of the offense he had committed. Further, plaintiff did not object to introduction of the name of the offense for which Gillam was incarcerated, which would have provided sufficient evidence of the severity of the offense, if relevant to Nostrand’s case.
We do not find that evidence of the details of Gillam’s crime was relevant to any issue in the case. Even assuming, arguendo, that the details of the incident were relevant to any of defendants’ issues, any probative value was substantially outweighed by the prejudicial effect, and the evidence should have been excluded under MRE 403. Defendants introduced testimony about the details of the crime several times during the trial and in closing argument. That evidence was extremely prejudicial to plaintiff’s case.
In other circumstances, the erroneous admission of this evidence could not be considered harmless beyond a reasonable doubt and would require reversal of the jury’s verdict. See People v Stubl, 149 Mich App 42, 46; 385 NW2d 719 (1986). In this case, however, the error is harmless as to defendant Lloyd since we hold that Lloyd is entitled to a directed verdict in his favor based on governmental immunity. For the reasons discussed in Section vi of this opinion, we also conclude that the erroneous admission of this evidence does not require reversal of the jury’s verdict in favor of defendant Genesee County Board of Commissioners.
VI
Plaintiff’s complaint included a claim against the Genesee County Board of Commissioners (the county) alleging that the jail facility constituted a dangerous and defective structure, making the county liable under the building exception to the governmental immunity act, MCL 691.1406; MSA 3.996(106). The jury returned a verdict of no cause of action in favor of the county. Plaintiff’s posttrial motion for judgment notwithstanding the verdict and for a new trial, on the ground that the verdict in favor of the county was against the great weight of the evidence, was denied by the trial court.
PlaintiiFs brief on appeal does not properly challenge the denial of those motions. The only direct reference to the verdict against the county in plaintiiFs appellate brief is a conclusory statement that the verdict was against the great weight of the evidence. This claim is not included in plaintiiFs statement of the issues, and plaintiff includes no factual or legal support for this claim in her brief. Plaintiffs conclusory statement is insufficient to bring that claim before this Court. Sargent v Browning-Ferris Industries, 167 Mich App 29, 32-33; 421 NW2d 563 (1988).
Reversal of the verdict could be required because of the erroneous and prejudicial introduction of evidence of the details of Gillam’s crime. (See Section v.) The county argues that the verdict should not be reversed on that ground because counsel for the county never introduced evidence of the specifics of Gillam’s crime and did not argue those facts. We find this argument to be without merit. Even though counsel for the county did not introduce the inadmissible evidence, this was a joint trial and the county benefited from the prejudice to plaintiffs case. The unfair prejudice to plaintiff’s case, not defendants’ culpability, would be the basis for reversal. Even though the county was not responsible for the error, it would be unjust to allow it to benefit from the unfair prejudice to plaintiffs case.
We conclude, however, that reversal of the verdict is not required because the improper admission of that evidence was harmless error as to plaintiffs claim against the county. We find the error harmless because the county was entitled to a directed verdict in its favor on plaintiffs claim that the jail was a defective and dangerous structure.
Generally, a government entity is immune from tort liability for actions which accrue while it is performing a governmental function. MCL 691.1407; MSA 3.996(107). This immunity is subject to some limited exceptions, including the public building exception contained in MCL 691.1406; MSA 3.996(106). The public building exception applies to injury arising out of a dangerous or defective physical condition of the building itself. Reardon v Dep’t of Mental Health, 430 Mich 398, 409; 424 NW2d 248 (1988). "[T he duty imposed by the public building exception relates to dangers actually presented by the building itself.” Id., p 415.
In this case, plaintiff claims that the jail was a defective and dangerous structure because it did not have the facilities to provide Gillam with the medical care he required. This circumstance does not constitute a defective or dangerous condition of a building. The injury to Gillam arose out of the failure of the medical staff to provide him with adequate medical care. There was no evidence at trial that Gillam’s injury was caused by a condition of the building. Even plaintiffs expert witness testified that Gillam’s death was caused by human negligence, not any condition of the building. The public building exception was not intended to apply to the facts of this case. See Reardon, pp 415-417. See also Guilbault v Dep’t of Mental Health, 160 Mich App 781; 408 NW2d 558 (1987), Dagen v Village of Baldwin, 159 Mich App 620; 406 NW2d 889 (1987), and Lowery v Dep’t of Corrections, 146 Mich App 342; 380 NW2d 99 (1985).
CONCLUSION
We affirm the trial court’s order directing a verdict for defendant Nostrand for the reasons stated in Section i of this opinion.
We affirm the jury’s verdict of no cause of action in favor of defendant Lloyd for the reasons stated in Sections n and v of this opinion.
We affirm the jury’s verdict of no cause of action in favor of defendant Genesee County Board of Commissioners for the reasons stated in Section vi of this opinion.
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ON REMAND
Before: SAAD, C.J., and HOEKSTRA and SMOLENSK, JJ.
SAAD, C.J.
This case is on remand from our Supreme Court. In Shepherd Montessori Ctr Milan v Ann Arbor Charter Twp, 259 Mich App 315; 675 NW2d 271 (2003) 0Shepherd I), this Court reversed the trial court’s grant of summary disposition to defendants on plaintiffs claims that defendants’ denial of a variance for plaintiff to use property adjacent to its Catholic Montessori day care center to operate a faith-based school violated 42 USC 2000cc of the Religious Land Use and Institutionalized Persons Act (RLUIPA) and the Equal Protection Clause of the United States Constitution, US Const, Am Xiy § 1, and the Michigan Constitution, Const 1963, art 1, § 2. Id. at 318-319. This Court remanded the case for consideration of whether defendants’ denial of the variance imposed a “substantial burden” on plaintiffs religious exercise and to consider various aspects of feasibility and economic hardship associated with alternative sites for the school. Id. at 329-333. On remand, the trial court again granted summary disposition in defendants’ favor.
In the second appeal, Shepherd Montessori Ctr Milan v Ann Arbor Charter Twp, 275 Mich App 597; 739 NW2d 664 (2007) (Shepherd II), we ruled that the trial court failed to correctly apply the “substantial burden” factors as set forth in Shepherd I, that defendants’ denial of the zoning variance imposed a substantial burden on plaintiffs religious exercise contrary to RLUIPA and, because defendants provided no evidence of a compelling governmental in terest, plaintiff was entitled to summary disposition on its RLUIPA claim. Id. at 609-610. On plaintiff’s equal protection claim, we ruled that defendants treated Rainbow Rascals, a secular entity, more favorably than plaintiff, a religious entity. Id. at 613-614. Defendants conceded that plaintiff and Rainbow Rascals are similarly situated, and defendants offered no reason to justify its refusal to permit plaintiff to operate its faith-based school in the same space that Rainbow Rascals had operated its day care program. Id. For these reasons, and because defendants offered no evidence to show that their denial of plaintiffs variance request was narrowly tailored to achieve a compelling governmental interest, we held that plaintiff is entitled to summary disposition on its equal protection claim. Id.
In lieu of granting defendants’ application for leave to appeal, the Supreme Court vacated our ruling in Shepherd II, and remanded the case for reconsideration in light of Greater Bible Way Temple of Jackson v City of Jackson, 478 Mich 373; 733 NW2d 734 (2007), which was decided approximately one month after we decided Shepherd II. Shepherd Montessori Ctr Milan v Ann Arbor Charter Twp, 480 Mich 1143 (2008). Specifically, the Supreme Court instructed us to “reconsider whether the denial of the zoning variance imposed a ‘substantial burden’ on the plaintiffs religious exercise, i.e., whether the denial of the variance £coerce[s] individuals into acting contrary to their religious beliefs.’ ” Id., quoting Greater Bible Way, 478 Mich at 401.
In Greater Bible Way, the plaintiff church alleged violations under RLUIPA after the city of Jackson denied its request to rezone its property from single-family residential to multiple-family residential. Greater Bible Way, supra, 478 Mich at 377-378. The plaintiff wanted to build an apartment complex across the street from its church. Id. at 377. After a bench trial, the court found that the defendants had violated RUILPA and this Court agreed. Id. at 378. Our Supreme Court reversed and held that RLUIPA does not apply because a “refusal to rezone the property did not constitute an ‘individualized assessment’ ” under RLU-IPA. Id. at 391. Although that ruling was dispositive, the Court proceeded to consider whether any violation of RLUIPA had occurred, “[assuming” that RLUIPA applied. Id. at 391. The Court addressed whether the city’s refusal to rezone the property constituted a “substantial burden” on the plaintiffs religious exercise:
[W]e believe that it is clear that a “substantial burden” on one’s “religious exercise” exists where there is governmental action that coerces one into acting contrary to one’s religious beliefs by way of doing something that one’s religion prohibits or refraining from doing something that one’s religion requires. That is, a “substantial burden” exists when one is forced to choose between violating a law (or forfeiting an important benefit) and violating one’s religious tenets. A mere inconvenience or irritation does not constitute a “substantial burden.” Similarly, something that simply makes it more difficult in some respect to practice one’s religion does not constitute a “substantial burden.” Rather, a “substantial burden” is something that “coercefs] individuals into acting contrary to their religious beliefs[.]” [Id. at 400-401, quoting Lyng v Northwest Indian Cemetery Protective Ass’n, 485 US 439, 450; 108 S Ct 1319; 99 L Ed 2d 534 (1988) (emphasis added).]
The Court ruled that Greater Bible Way Temple failed to establish a substantial burden on its religious exercise:
The city is not forbidding plaintiff from building an apartment complex; it is simply regulating where that apartment complex can be built. If plaintiff wants to build an apartment complex, it can do so; it just has to build it on property that is zoned for apartment complexes. If plaintiff wants to use the property for housing, then it can build single-family residences on the property. In other words, in the realm of building apartments, plaintiff has to follow the law like everyone else.
While [the zoning ordinance] may contribute to the ordinary difficulties associated with location (by any person or entity, religious or nonreligious) in a large city, it does not prohibit plaintiff from providing housing. Whatever specific difficulties [plaintiff church] claims to have encountered, they are the same ones that face all [land users]. The city has not done anything to coerce plaintiff into acting contrary to its religious beliefs, and, thus, it has not substantially burdened plaintiffs exercise of religion. [Greater Bible Way, supra, 478 Mich at 401-402 (quotation marks and citations omitted).]
The Court reversed and remanded for entry of judgment in favor of the defendants.
In light of the Supreme Court’s interpretation of RLUIPA, we are compelled to reach a similar result. As set forth in Greater Bible Way, supra, 478 Mich at 400, to establish a RLUIPA violation, plaintiff must show that the denial of the variance request “coerces” individuals into acting contrary to their religious beliefs. Plaintiff did not show that the denial of the variance forces plaintiff to do something that its religion prohibits, or refrain from doing something that its religion requires. Plaintiff did not allege that the property at issue has religious significance or that plaintiffs faith requires a school at that particular site. Shepherd I, supra, 259 Mich App at 332. Rather, the evidence suggests that, notwithstanding substantial evidence of prohibitive cost and a lack of available, suitable space, plaintiff could operate its school at another location in the surrounding area, and plaintiff conducted a real estate search toward that end. In other words, plaintiff may operate a faith-based school, but it must do so on property that is zoned for schools. Greater Bible Way, supra, 478 Mich at 401-402. Under the Supreme Court’s reasoning, the denial of the variance does not constitute a substantial burden on plaintiffs religious exercise and, therefore, the trial court correctly granted summary disposition to defendants on the RLUIPA claims.
With regard to plaintiffs equal protection claim, the Supreme Court’s remand order does not alter our prior holding that plaintiff is entitled to summary disposition. The Supreme Court instructed us to reconsider our judgment in light of Greater Bible Way, which did not involve an equal protection claim and, therefore, the legal analysis in that case does not affect our holding. Defendants conceded that plaintiff and Rainbow Rascals were similarly situated, and defendants failed to offer a reason for refusing to permit plaintiff to operate its school in the same space that Rainbow Rascals had operated its day care program. Shepherd II, supra, 275 Mich App at 613-614. Further, defendants offered no evidence to show that their denial of plaintiffs variance request was narrowly tailored to achieve a compelling governmental interest. Id. at 614. As we explained in Shepherd II:
Evidence established that defendants denied plaintiff a variance to operate an educational program in the same space formerly occupied by the similarly situated Rainbow Rascals, notwithstanding that there would be far fewer children in the school and that it would cause fewer traffic and density problems. Indeed, as clarified at oral argument on appeal, after several years of litigation it is unrebutted that defendants have not offered a reason to plaintiff why it was denied the opportunity to operate its school in the identical space that Rainbow Rascals operated its daycare program. Thus, we hold that defendants have treated a secular entity more favorably than plaintiff, a religious entity. The burden then shifted to defendants to show that their denial of plaintiffs variance was precisely tailored to achieve a compelling governmental interest, Shepherd I, supra at 334, and defendants offered no evidence or argument on this point. Accordingly, the trial court erred when it failed to grant summary disposition to plaintiff. [Id. at 613-614.]
Accordingly, though the Supreme Court’s holding in Greater Bible Way compels us to affirm the trial court’s grant of summary disposition to defendants on plaintiffs RLUIPA claim, we reaffirm our holding that the application of the zoning ordinance violated the equal protection guarantee of the United States Constitution. In light of this violation, the decision of the Ann Arbor Charter Township Zoning Board of Appeals “was contrary to law and the trial court erred when it affirmed the [zoning board of appeals] denial of plaintiffs request for a variance.” Shepherd II, supra, 275 Mich App at 614. Again, therefore, “[w]e remand this case to the trial court to enter judgment in favor of plaintiff and to reverse the [zoning board of appeals] denial of plaintiffs variance request.” Id. We retain jurisdiction. | [
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BECKERING, J.
This matter is before us on remand from the Supreme Court for consideration as on leave granted. Defendants appeal a decision of the Workers’ Compensation Appellate Commission (WCAC) affirming the magistrate’s decision to award plaintiff benefits. We affirm.
Otis Fahl, a representative of defendant Burt Moeke Hardwoods, Inc. (Hardwoods), recruited plaintiff Fablo Gutierrez Romero, a Mexican citizen, to train as a millwright in the United States. Fahl informed plaintiff that following the training, Hardwoods would employ plaintiff in a sawmill the company intended to open in Mexico. After recruiting plaintiff, Hardwoods assisted him in obtaining a work visa and he began training as a millwright in the United States. During training, a forklift crushed plaintiffs right leg, necessitating surgery and several months of hospital recuperation. As a result of the injury, plaintiff was unable to complete millwright training. Hardwoods continued to employ plaintiff and obtained limited extensions of his visa, but the visa eventually expired. Plaintiff subsequently returned to Mexico and obtained employment working on electronics. But, because of pain and swelling associated with his leg injury, plaintiff was unable to keep working. Plaintiff cannot stand for more than an hour, squat, or climb a ladder without severe pain. He walks with a significant limp and falls down on occasion.
After plaintiff successfully petitioned for workers’ compensation benefits, defendants appealed to the WCAC. The WCAC affirmed the award. Defendants then sought leave to appeal in this Court. We denied defendants’ application for leave to appeal. Romero v Burt Moeke Hardwoods Inc, unpublished order of the Court of Appeals, entered February 13, 2006 (Docket No. 264909). On application for leave to appeal in the Supreme Court, the matter was remanded to this Court for consideration as on leave granted. Romero v Burt Moeke Hardwoods, Inc, 475 Mich 883 (2006).
When this Court reviews a decision of the WCAC, it does not begin by considering the magistrate’s decision, but looks first to the decision of the WCAC. Mudel v Great Atlantic & Pacific Tea Co, 462 Mich 691, 709; 614 NW2d 607 (2000). The WCAC is charged with ensuring that the findings of fact in a workers’ compensation case are supported by the requisite evidence. Id. at 730. It must determine whether the magistrate’s decision is supported by competent, material, and substantial evidence by reviewing the entire record and performing a qualitative and quantitative analysis of all the evidence presented. Id. at 699; MCL 418.861a(4), (13). The WCAC is authorized by MCL 418.861a(14) to “make independent findings of fact, regarding issues that have been addressed or overlooked by the magistrate, as long as the record is sufficient for administrative review and does not prevent the WCAC from reasonably exercising its reviewing function without resort to speculation.” Mudel, supra at 730.
If any evidence supports the WCAC’s factual findings and if the WCAC did not misapprehend its administrative appellate role in reviewing the magistrate’s decision, then this Court must treat the WCAC’s factual findings as conclusive. Id. at 709-710. As our Supreme Court expressed in Holden v Ford Motor Co, 439 Mich 257, 269; 484 NW2d 227 (1992):
If it appears on judicial appellate review that the WCAC carefully examined the record, was duly cognizant of the deference to be given to the decision of the magistrate, did not “misapprehend or grossly misapply” the substantial evidence standard, and gave an adequate reason grounded in the record for reversing the magistrate, the judicial tendency should be to deny leave to appeal or, if it is granted, to affirm, in recognition that the Legislature provided for administrative appellate review by the seven-member WCAC of decisions of thirty magistrates, and bestowed on the WCAC final fact-finding responsibility subject to constitutionally limited judicial review.
This Court reviews de novo of questions of law involved with any final order of the WCAC. MCL 418.861a(14); DiBenedetto v West Shore Hosp, 461 Mich 394, 401; 605 NW2d 300 (2000). The WCAC’s decision may be reversed if it operated within the wrong legal framework or based its decision on erroneous legal reasoning. Id. at 401-402.
i
Defendants first argue that the WCAC misapplied Sington v Chrysler Corp, 467 Mich 144; 648 NW2d 624 (2002), by engaging in a “reasonable employment” analysis under MCL 418.301(5) without first making a proper determination regarding disability under MCL 418.301(4). According to defendants, in finding that plaintiff suffered a “disability” as defined in MCL 418.301(4), the WCAC failed to consider “the universe of jobs” suitable to plaintiffs qualifications and training as required by Sington, supra. We disagree.
A claimant in a workers’ compensation matter must establish a work-related disability and entitlement to benefits by a preponderance of the evidence. MCL 418.851; Aquilina v Gen Motors Corp, 403 Mich 206, 211; 267 NW2d 923 (1978). MCL 418.301(4) defines “disability” as “a limitation of an employee’s wage earning capacity in work suitable to his or her qualifications and training resulting from a personal injury or work related disease.” In Sington, supra at 155, our Supreme Court found that the plain language of this provision “indicates that a person suffers a disability if an injury covered under the WDCA [Worker’s Disability Compensation Act] results in a reduction of that person’s maximum reasonable wage earning ability in work suitable to that person’s qualifications and training.” Thus, if because of a work-related injury an employee can no longer perform one specific job that pays the maximum salary in light of the employee’s qualifications and training, but the employee can per form an equally well-paying job that is suitable to his or her qualifications and training, the employee is not disabled. Id.
The Sington Court instructed that in determining whether an employee is disabled under MCL 418.301(4), the magistrate and the WCAC “should consider whether the [work-related] injury has actually resulted in a loss of wage earning capacity in work suitable to the employee’s training and qualifications in the ordinary job market.” Id. at 158. In making this determination, the magistrate and the WCAC may inquire into “the particular work that an employee is both trained and qualified to perform, whether there continues to be a substantial job market for such work, and the wages typically earned for such employment in comparison to the employee’s wage at the time of the work-related injury.” Id. at 157. The Court further noted that “the focus of the inquiry is not on every single job suitable to an employee’s qualifications and training — only those that produce the maximum income.” Id. at 160. An employee is disabled if he or she “is no longer able to perform any of the jobs that pay the maximum wages, given the employee’s training and qualifications . . . .” Id. at 157.
In this case, we cannot conclude that the magistrate and the WCAC erred in determining plaintiff disabled under MCL 418.301(4). The magistrate and the WCAC properly applied Sington, supra, in reaching this conclusion and their factual findings were supported by the record. Plaintiff presented evidence that he was trained and qualified to work on electronics and that he was training to be a millwright at the time of his injury. During millwright training, plaintiff earned the highest wage he had ever earned. But, because of his injury, plaintiff was unable to complete the training. It is undisputed that plaintiff is now unable to work as a millwright. After plaintiffs injury, Hardwoods continued to give him “odd jobs.” Hardwoods paid plaintiff the same hourly wage that he earned during millwright training, but he worked fewer hours. Upon returning to Mexico, plaintiff obtained employment working on electronics, earning substantially less than he made during millwright training. Because of complications from his injury, however, plaintiff was unable to keep the job.
Considering the evidence presented by plaintiff that he earned his highest wage during millwright training and that he is only trained and qualified to perform lesser-paying work, the magistrate and the WCAC properly determined that plaintiffs injury reduced his “maximum reasonable wage earning ability” in work suitable to his qualifications and training. Sington, supra at 155. Contrary to defendants’ argument on appeal, the magistrate and the WCAC need not consider the “universe of jobs” suitable to plaintiffs qualifications and training, only those that produce the maximum income. Id. at 160. To the extent that the WCAC erred in stating that “a full Sington review is not appropriate in this case,” any error in this regard was harmless because the evidence presented established that plaintiff is disabled under MCL 418.301(4).
ii
Defendants next argue that the magistrate and the WCAC erred in awarding plaintiff wage-loss benefits because plaintiff has not demonstrated that his wage loss is attributable to his work-related injury. Defendants attribute plaintiffs wage loss to the expiration of the visa allowing him to work in the United States, not to his injury. We disagree.
Aliens in the United States who work in the service of another under any contract of hire are employees under the WDCA and are eligible for benefits. MCL 418.161(1)(Z); Sanchez v Eagle Alloy, Inc, 254 Mich App 651, 661-663; 658 NW2d 510 (2003). In order to be entitled to wage-loss benefits under the WDCA, an employee must establish a work-related disability under MCL 418.301(4) and demonstrate that the disability resulted in a wage loss. Sington, supra at 160 n 11; Haske v Transport Leasing, Inc, 455 Mich 628, 642-643; 566 NW2d 896 (1997), overruled in part in Sington, supra at 146. In Haske, supra at 654, our Supreme Court stated that even if an employee establishes a disability, he or she must further prove wage loss because, pursuant to the second sentence of MCL 418.301(4), “[t]he establishment of disability does not create a presumption of wage loss.” Additionally, the employee’s unemployment or reduced wages must be causally linked to the work-related disability. Id. at 658. See also Sweatt v Dep’t of Corrections, 468 Mich 172, 186; 661 NW2d 201 (2003) (opinion by MARKMAN, J.) (stating that “there must be a linkage between the disabling work-related injury and the reduction in pay”).
The portion of Haske requiring proof of wage loss and a causal connection between the disability and the wage loss was not overruled by Sington. In addressing the import of the second sentence of MCL 418.301(4), that “[t]he establishment of disability does not create a presumption of wage loss,” the Sington Court stated, in part:
[T]he second sentence [of MCL 418.301(4)] reflects an understanding that there may be circumstances in which an employee, despite suffering a work-related injury that reduces wage earning capacity, does not suffer wage loss. For example, an employee might suffer a serious work-related injury on the last day before the employee was scheduled to retire with a firm intention to never work again. In such a circumstance, the employee would have suffered a disability, i.e., a reduction in wage earning capacity, but no wage loss because, even if the injury had not occurred, the employee would not have earned any further wages. [Sington, supra at 160-161.]
Defendants characterize plaintiff as the functional equivalent of a retiree, asserting that plaintiff “can ‘never work again’ until he obtains another visa that would allow him to work again in this country. Like the retiree in Sington’s example, plaintiff has no wages to replace in the United States.” But, this case is factually distinguishable from the illustration in Sington. In that illustration, the employee was injured just before retirement. Id. at 160. He had no intention of ever working again, and even in the absence of the injury he would not have earned further wages. Id. at 160-161. In this case, plaintiff was 21 years old when he was injured and was training for a future job as a millwright. Hardwoods was training plaintiff with the intent to employ him as a millwright in Mexico. But, because of his injury, plaintiff is now unable to work as a millwright in the United States or Mexico. While defendants are correct that plaintiff cannot legally work in the United States without a valid visa, plaintiff could have earned wages as a millwright in Mexico had the injury not occurred. Therefore, contrary to defendants’ assertion, there is a causal connection between plaintiffs work-related injury and wage loss.
The additional cases relied on by defendants, Reinforced Earth Co v Workers’ Compensation Appeal Bd (Astudillo), 570 Pa 464; 810 A2d 99 (2002), and Cenvill Dev Corp v Candelo, 478 So 2d 1168 (Fla App, 1985), are also distinguishable from this case. In those cases, the claimants were never legal aliens and their wage loss was attributable to their illegal-alien status. Reinforced Earth, supra at 467, 479; Cenvill Dev, supra at 11691170. In this case, plaintiff obtained a valid nonimmigrant work visa and then began training as a millwright in the United States. Hardwoods intended to open a sawmill in Mexico and employ plaintiff at that sawmill. After plaintiffs injury, Hardwoods continued to give him “odd jobs” and obtained limited extensions of his visa. But, the visa eventually expired and plaintiff returned to Mexico. As we previously explained, plaintiff could have worked as a millwright in Mexico had the injury not occurred. Therefore, plaintiffs wage loss is attributable to his work-related injury, not the expiration of his visa.
Defendants also argue that requiring them to pay wage-loss benefits to plaintiff, to whom they cannot offer reasonable employment because he can no longer work in the United States, constitutes a denial of equal protection. While defendants are correct that an employer has the right to mitigate with an offer of reason able employment under MCL 418.301(5), an employer’s mitigation rights are not absolute. The employer’s rights must be balanced with the employee’s right to refuse employment for good and reasonable cause. MCL 418.301(5); Pulver v Dundee Cement Co, 445 Mich 68, 80-81; 515 NW2d 728 (1994); Sell v Mitchell Corp of Owosso, 241 Mich App 235, 251-252; 615 NW2d 748 (2000). Whether the employer has made a bona fide offer of reasonable employment and whether the employee reasonably refused are questions of fact decided case by case. Pulver, supra at 80-81; Jones-Jennings v Hutzel Hosp (On Remand), 223 Mich App 94, 103; 565 NW2d 680 (1997). MCL 418.301(9) defines “reasonable employment” as “work that is within the employee’s capacity to perform that poses no clear and proximate threat to that employee’s health and safety, and that is within a reasonable distance from that employee’s residence.” Further, there are many factors to consider in determining the reasonableness of an employee’s refusal, including whether the employee has moved and the reasons for the move. Pulver, supra at 81. A bad-faith attempt to avoid reasonable employment by moving never constitutes good and reasonable cause. Id. at 81 n 12; Jones-Jennings, supra at 111.
Defendants contend that they have been deprived of their mitigation rights under MCL 418.301(5) because plaintiff cannot legally work in the United States. But, the cases on which defendants relied, Del Taco v Workers Compensation Appeals Bd, 79 Cal App 4th 1437; 94 Cal Rptr 2d 825 (2000), Tarango v State Industrial Ins Sys, 117 Nev 444; 25 P3d 175 (2001), and Hoffman Plastic Compounds, Inc v Nat’l Labor Relations Bd, 535 US 137; 122 S Ct 1275; 152 L Ed 2d 271 (2002), address equal-protection arguments in the context of illegal aliens, not aliens legally working in the United States at the time of their injuries. In this case, Hardwoods employed plaintiff knowing that his visa was temporary. Plaintiff had a valid visa at the time of his injury and only returned to Mexico after attempts to renew his visa failed. It is undisputed that he can no longer legally live or work in the United States. Clearly, plaintiff has not attempted to avoid an offer of reasonable employment in bad faith. Furthermore, there is no evidence that Hardwoods has offered plaintiff employment that he is able to perform within a reasonable distance from his home in Mexico. Therefore, defendants’ equal-protection argument must fail.
in
Next, defendants argue that because the magistrate failed to make a factual finding regarding the reason for plaintiffs return to Mexico, the WCAC erred in making its own finding. We disagree.
After plaintiffs injury, Fahl’s daughter accused plaintiff of sexual misconduct. The police investigated the incident and issued a warrant for plaintiffs arrest. Defendants alleged that plaintiff fled to Mexico to avoid arrest, but plaintiff testified that he was unaware of the warrant and returned to Mexico because his visa had expired. On appeal to the WCAC, defendants argued that the magistrate erred in failing to determine the reason for plaintiffs return to Mexico. The WCAC noted that the magistrate presiding over plaintiffs case was no longer on the bench at the time of its review of that decision. After reviewing the record, the WCAC determined that plaintiff returned to Mexico not to avoid arrest, but because his visa had expired.
Contrary to defendants’ assertion that the WCAC conducted improper review de novo in determining the reason for plaintiffs return to Mexico, MCL 418.861a(14) specifically contemplates that the WCAC will make findings of fact. “As long as the WCAC is presented with a record that allows it to intelligently make its own factual findings, the Legislature has declared that the WCAC is free to do so.” Mudel, supra at 711. Here, the WCAC found sufficient evidence on the record to make a finding and determined that plaintiff left the United States because his visa had expired. Because there is record evidence to support the WCAC’s finding, we will not overturn it on appeal. Id. at 701, 709-710.
iv
Finally, defendants challenge the award of specific-loss benefits to plaintiff, asserting that the WCAC failed to review the magistrate’s award of benefits under recent caselaw that clarifies the specific loss provisions. We find no error.
Pursuant to MCL 418.361(2)(k), an employee may collect benefits for 215 weeks for the specific loss of a leg. Cain v Waste Mgt, Inc (After Remand), 472 Mich 236, 241; 697 NW2d 130 (2005). The employee is entitled to compensation for a specific loss regardless of the effect on the employee’s earning capacity. Id. at 245. In Cain, supra, our Supreme Court found that the term “loss” as used in MCL 418.361(2) “includes not only amputation but also loss of usefulness.” Cain, supra at 257. The Court stated that in Pipe v Leese Tool & Die Co, 410 Mich 510, 527; 302 NW2d 526 (1981), it described this loss of usefulness as “ ‘loss of the industrial use ....’” Cain, supra at 256. But, “[t]he phrase ‘loss of industrial use’ does not appear anywhere in the specific loss provisions, and seems to have been intended as judicial shorthand to describe the condition of the injured member from the standpoint of its use in employment.” Id. The Cain Court reiterated, however, that specific loss may be determined “without reference to the plaintiffs earning capacity or ability to return to work.” Id. at 257.
Here, the magistrate found that plaintiff suffered a loss of the industrial use of his leg and the WCAC affirmed this finding without explanation. The magistrate stated, in part:
. . . Plaintiff sustained the loss of the industrial use of his right leg as a result of the injuries he sustained at [Hardwoods]. That finding is based upon Dr. [Michael J.] Forness’ opinion that Plaintiff cannot perform significant physical activity with the right leg as a result of the injuries he sustained at [Hardwoods]. The photographs admitted into evidence at trial significantly demonstrate the deformities in the right leg. Dr. Forness testified that Plaintiff almost lost the leg because of the injury and he would be limited to sedentary activities with the leg and would not be able to use the leg in an industrial capacity. Therefore, Plaintiff is entitled to specific loss benefits because of the loss of industrial use of the right lower extremity.
Defendants argue that in affirming the magistrate’s award of specific-loss benefits, the WCAC failed to apply the specific-loss standard articulated in Cain, supra. We disagree. Although the magistrate used the phrase “loss of industrial use” in awarding plaintiff benefits, there is no indication that the magistrate or the WCAC misunderstood or misapplied the specific-loss standard. As the Cain Court indicated, the reference to industrial use in Pipe, supra, “seems to have been intended as judicial shorthand” for describing the specific-loss requirement. Cain, supra at 256. Cain suggests that the phrase “loss of industrial use,” although potentially misleading, can be equated with amputation or loss of usefulness. Id. at 256-257. Moreover, the magistrate’s findings of fact, which the WCAC reviewed, were supported by compe tent evidence in the record pertaining to loss of usefulness and must be affirmed. Mudel, supra at 701, 709-710.
Affirmed.
Our Supreme Court recently held that in order to establish a prima facie case of disability under Sington, supra, the employee must show more than an inability to perform a previous job. Stokes v Chrysler LLC, 481 Mich 266, 281; 750 NW2d 129 (2008). Rather, the employee must prove a work-related injury and that the injury caused a reduction of his or her maximum wage-earning capacity in work suitable to his or her qualifications and training. Id. The Stokes Court held that to establish the latter element, the employee must complete four steps: (1) the employee must fully disclose his or her qualifications and training; (2) the employee must consider other jobs that pay his or her maximum preinjury wage to which the employee’s qualifications and training translate; (3) the employee must show that his or her work-related injury prevents him or her from performing some or all of the jobs identified as within his or her qualifications and training that pay his or her maximum wages; and (4) if the employee is capable of performing some or all of the jobs identified, the employee must show that he or she cannot obtain any of those jobs. Id. at 281-283. | [
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PER CURIAM.
Defendant Ryan Derrek Althoff pleaded guilty of possession with intent to disseminate obscene material, MCL 752.365. He subsequently appealed the December 22, 2004, trial court order requiring him to register as a sex offender pursuant to the Sex Offenders Registration Act (SORA), MCL 28.721 et seq. This Court denied defendant’s delayed application for leave to appeal. In lieu of granting leave to appeal, our Supreme Court remanded the case to this Court for consideration as on leave granted. We affirm.
I
Defendant and his wife, Elizabeth Althoff, formerly resided in Bridgman, Michigan. In January 2003, the state police responded to a report of a domestic dispute at the couple’s home. During the investigation, Elizabeth informed Trooper Matthew Waters that defendant had been viewing child pornography and gave the trooper several computer discs. Thereafter, defendant joined the United States Army. In the fall of 2004, while defendant was stationed in Germany, police contacted him several times regarding the computer discs seized from his Bridgman home. Defendant was subsequently charged with possession of child sexually abusive material, MCL 750.145c(4), on the basis of the content of the computer discs. In December 2004, defendant pleaded guilty to the reduced charge of possession with intent to disseminate obscene material, MCL 752.365. Defendant admitted that he had downloaded pornographic material and that he planned to show the material to a friend. At sentencing, the trial court ordered defendant to pay fines, costs, and fees, and to register pursuant to SORA.
In September 2005, defendant filed a delayed application for leave to appeal the trial court’s December 22, 2004, judgment of sentence. Specifically, defendant argued that the trial court erred by ordering him to register pursuant to SORA when he pleaded guilty to an offense that was not listed under SORA and there was no evidence that this case involved an offense against a minor. This Court held the matter in abeyance and remanded the case “to the sentencing court for a factual finding whether defendant was convicted of a sexual offense against an individual who is less than 18 years of age.” People v Althoff, unpublished order of the Court of Appeals, entered November 23, 2005 (Docket No. 264980).
The trial court conducted an evidentiary hearing on December 13, 2005, pursuant to this Court’s order. Detective Douglas Kill testified that he had viewed the contents of the computer discs seized from defendant’s home and that there were photographs of young, nude females on several of the discs. According to Detective Kill, one of the females appeared to be 13 or 14 years old, and another appeared to be 16 years old. In one photograph, these two females were standing on a Jacuzzi tub nude. One of the females was holding an extendable showerhead. Other photographs depicted the younger of the two females standing in a hallway and sitting in a chair nude. Detective Kill admitted that he did not have any specialized training in identifying a person’s age. He testified, however, that the two females did not appear to be fully developed physically and that he had investigated similar child pornography cases in the past. The computer discs at issue and printed copies of the photographs on the discs were mistakenly lost or destroyed after the sentencing and were unavailable at the evidentiary hearing.
On the basis of Detective Kail’s testimony, the trial court determined that defendant was convicted of a sexual offense against an individual less than 18 years of age and, therefore, that he was required to register pursuant to SORA. The trial court effectuated its ruling in an order dated December 20, 2005. Thereafter, this Court denied defendant’s delayed application for leave to appeal for lack of merit in the grounds presented. People v Althoff, unpublished order of the Court of Appeals, entered March 3, 2006 (Docket No. 264980).
Defendant subsequently applied for leave to appeal this Court’s March 3,2006, order. On December 8,2006, in lieu of granting leave to appeal, our Supreme Court remanded the case to this Court for consideration as on leave granted of four issues:
(1) whether MCL 28.722(e)(xi) requires registration of an offender based solely on the legal elements of the offense for which he stands convicted, or whether the facts of the particular offense are to be considered in determining if the offense “by its nature constitutes a sexual offense against an individual who is less than 18 years of age” cf. People v Meyers, 250 Mich App 637 [649 NW2d 123] (2002) (dictum); (2) whether the possession of pornographic photographs constitutes an offense “against” an individual who is less than 18 years of age; (3) if possession is an offense “against” an individual, what evidentiary standards apply to a hearing held to determine if a defendant must register under the Sex Offender[s] Registration Act; and (4) whether the evidence in this case was sufficient to satisfy the statutory requirement that the individual be “less than 18 years of age.” [People v Althoff, 477 Mich 961 (2006).]
II
Pursuant to the Supreme Court’s order in this case, we must first consider
whether MCL 28.722(e)(xi) requires registration of an offender based solely on the legal elements of the offense for which he stands convicted, or whether the facts of the particular offense are to be considered in determining if the offense “by its nature constitutes a sexual offense against an individual who is less than 18 years of age[.]” [Althoff, supra at 961.]
The construction and application of SORA presents a question of law that we review de novo on appeal. People v Golba, 273 Mich App 603, 605; 729 NW2d 916 (2007).
“SORA requires an individual who is convicted of a listed offense after October 1, 1995, to register as a sex offender.” Id., citing MCL 28.723(l)(a). The definition of “listed offense” in MCL 28.722(e) includes a catchall provision, MCL 28.722(e)(xi), which states that “[a]ny other violation of a law of this state or a local ordinance of a municipality that by its nature constitutes a sexual offense against an individual who is less than 18 years of age” constitutes a listed offense. The Code of Criminal Procedure provides clarification of this catchall provision, stating in relevant part:
If the defendant is sentenced for an offense other than a listed offense as defined in section 2(d)(i) to (ix) and (xi) to (xiii) of the sex offenders registration act, 1994 PA 295, MCL 28.722, the court shall determine if the offense is a violation of a law of this state or a local ordinance of a municipality of this state that by its nature constitutes a sexual offense against an individual who is less than 18 years of age. If so, the conviction is for a listed offense as defined in section 2(d)(x)[ ] of the sex offenders registration act, 1994 PA 295, MCL 28.722, and the court shall include the basis for that determination on the record and include the determination in the judgment of sentence. [MCL 769.1(13).]
In Meyers, this Court found that the defendant was required to register as a sex offender pursuant to former MCL 28.722(d) (¿) and (xii), now subsections e(i) and (xiii). Meyers, supra at 645. The Meyers Court also addressed SORA’s catchall provision. The Court determined that pursuant to SORA’s use of the term “convictions” and the plain language of the catchall provision, a defendant must register as a sex offender under the provision when three conditions exist simultaneously:
First, the defendant must have been convicted of a state law violation or a municipal ordinance violation. Second, the state law or municipal ordinance violation must, “by its nature,” constitute a “sexual offense.” Third, the victim of the state law or municipal ordinance violation must be under eighteen years of age. [Id. at 647.]
The Meyers Court concluded that the defendant’s offense satisfied all three elements of what is now MCL 28.722(e)(xi). Meyers, supra at 650. It was undisputed that the defendant had been convicted of a state-law violation, using the Internet in an attempt to commit conduct proscribed under MCL 750.145a, which violated MCL 750.145d(l)(b). Meyers, supra at 638, 647. In regard to the second and third elements, the Court considered the underlying facts of the offense, particularly that the defendant had engaged in an online discussion about oral sex with a person he believed to be a 12-year-old girl, in hopes of obtaining oral sex from the girl. Id. at 638-639, 648-650. In reality, the defendant was conversing with a police detective. Id. at 639. The Court acknowledged that “[t]here may be other cases in which a defendant convicted of violating MCL 750.145d need not register under SORA because the victim was over the age of eighteen or the offense was not inherently sexual,” and that “[o]nly after analyzing the facts of the specific case is it possible to determine whether a defendant is subject to SORA’s registration requirement” under MCL 28.722(e)(xi). Meyers, supra at 650. In its December 8, 2006, order in this case, the Supreme Court labeled the portion of the Meyers opinion requiring consideration of the facts of the specific offense “dictum.” Althoff, supra at 961.
After the Supreme Court issued its December 8, 2006, order, this Court addressed the application of SORA’s catchall provision in Golba. In that case, the defendant was charged with possession of child sexually abusive material, MCL 750.145c(4), and unauthorized access to computers, MCL 752.795. Golba, supra at 605. A jury subsequently convicted the defendant of the latter offense and the trial court ordered him to register as a sex offender pursuant to MCL 28.722(e)(xi). Golba, supra at 605-606. The defendant appealed the trial court’s order, arguing that his violation of MCL 752.795 did not “ ‘by its nature constitute^ a sexual offense against an individual who is less than 18 years of age.’ ” Golba, supra at 605, quoting MCL 28.722(e)(xi).
On appeal, the Golba Court followed the Meyers Court’s interpretation of MCL 28.722(e)(xi), stating that the catchall provision requires the simultaneous existence of three conditions: “(1) the defendant must have been convicted of a state-law violation or a municipal-ordinance violation, (2) the violation must, ‘by its nature,’ constitute a ‘sexual offense,’ and (3) the victim of the violation must be under 18 years of age.” Golba, supra at 607, citing Meyers, supra at 647. In Golba, there was no dispute that the defendant was convicted of the state-law violation of unauthorized access to computers, MCL 752.795, as the first element requires.
In regard to the second element, the Golba Court again followed the Meyers Court’s reasoning. Quoting Meyers, the Golba Court stated that “ ‘[t]here can be no debate that conduct violating a state criminal law or municipal ordinance that has inherent qualities pertaining to or involving sex fits this second element.’ ” Golba, supra at 608, quoting Meyers, supra at 647-648. The Court further stated that, “[a]s in Meyers, we recognize that conduct that is nonsexual in nature may violate MCL 752.795,” but that it was bound to follow the “Meyers holding that whether an offense is ‘by its nature ... a sexual offense’ within the meaning of MCL 28.722(e) (xi) depends on the defendant’s conduct that formed the basis for the conviction, regardless of the fact that the statute could be applied to nonsexual behavior in other circumstances.” Golba, supra at 610-611, citing Meyers, supra at 648-649.
The Golba Court found support for the Meyers holding in the Code of Criminal Procedure, which provides that the sentencing court “shall determine if the offense is a violation of a law of this state or a local ordinance of a municipality of this state that by its nature constitutes a sexual offense against an individual who is less than 18 years of age” pursuant to MCL 28.722(e) (xi), and, if so, “include the basis for that determination on the record and include the determination in the judgment of sentence.” MCL 769.1(13). The Court reasoned that “[i]f the sentencing court’s ‘determination’ could be made as a matter of law only from the language of the criminal statute at issue, there would be little reason for including the requirement that the sentencing court ‘include the basis for that determination on the record,’ ” and, therefore, that the Legislature must have “intended sentencing courts to make findings of fact regarding the underlying conduct in individual cases to support the determination that the offense ‘by its nature constitutes a sexual offense against an individual who is less than 18 years of age.’ ” Golba, supra at 611, quoting MCL 769.1(13) and MCL 28.722(e)(xi). On the basis of the foregoing, the Golba Court concluded that it “agree[d] with Myers [sic] that the underlying factual basis for a conviction governs whether the offense ‘by its nature constitutes a sexual offense against an individual who is less than 18 years of age.’ ” Golba, supra at 611, quoting MCL 28.722(e)(xi).
The Golba Court concluded that under the particular facts of that case, the defendant’s violation of MCL 752.795 satisfied the second element of MCL 28.722(e)(xi). Golba, supra at 611-612. The evidence presented at trial established that the defendant had downloaded pornography on a school computer, viewed the pornography on the computer in the presence of a 16-year-old female student, and used the computer to send the student sexually explicit e-mails and solicit sex from her, all in violation of the school’s acceptable use policy. Id. Additionally, the Court concluded that “the trial court did not clearly err in finding that the victim of defendant’s conduct in violating MCL 752.795 was ‘an individual who is less than 18 years of age,’ ” as required by the third element of MCL 28.722(e)(xi). Golba, supra at 612. The undisputed evidence in the case established that the victim of the offense was the 16-year-old female student. Id. at 612-613. The Court noted that whether an offense satisfies the three elements of MCL 28.722(e)(xi) is primarily a question of fact for the trial court and, considering the evidence presented, the trial court did not err by ordering the defendant to comply with SORA. Id. at 613.
In light of our Supreme Court’s December 8, 2006, order in this case, the Golba Court erroneously stated that it was bound to follow the “Meyers holding that whether an offense is ‘by its nature ... a sexual offense’ within the meaning of MCL 28.722(e)(xi) depends on the defendant’s conduct that formed the basis for the conviction ... .” Golba, supra at 610-611, citing Meyers, supra at 648-649. In its order, the Supreme Court labeled that portion of the Meyers opinion “dictum,” and dictum is not binding on this Court. Griswold Properties, LLC v Lexington Ins Co, 276 Mich App 551, 557-558; 741 NW2d 549 (2007). We are, however, bound by this Court’s interpretation of MCL 28.722(e) (xi) in Golba. See MCR 7.215(J)(1). Therefore, pursuant to this Court’s holding in Golba, we conclude that the particular facts of a violation are to be considered in determining whether the violation “by its nature constitutes a sexual offense against an individual who is less than 18 years of age” under MCL 28.722(e)(xi).
III
Next, we must consider “whether the possession of pornographic photographs constitutes an offense ‘against’ an individual who is less than 18 years of age” for purposes of MCL 28.722(e)(xi). Althoff, supra at 961.
The primary goal of statutory interpretation is to determine and give effect to the intent of the Legislature in enacting the provision. USAA Ins Co v Houston Gen Ins Co, 220 Mich App 386, 389; 559 NW2d 98 (1996). “Statutory language should be construed reasonably, keeping in mind the purpose of the statute.” Id. When determining legislative intent, this Court must first consider the specific language of the statute. Id. Every word or phrase of a statute should be accorded its plain and ordinary meaning, but, if the legislative intent cannot be determined from the statute itself, dictionary definitions may be consulted. Haynes v Neshewat, 477 Mich 29, 36; 729 NW2d 488 (2007). Provisions must be read in the context of the entire statute in order to produce a harmonious whole. Ferguson v Pioneer State Mut Ins Co, 273 Mich App 47, 52; 731 NW2d 94 (2006).
According to MCL 28.721a, SORA was enacted to assist law enforcement officers and the people of Michigan in preventing “future criminal sexual acts by convicted sex offenders. The legislature has determined that a person who has been convicted of committing an offense covered by [SORA] poses a potential serious menace and danger to the health, safety, morals, and welfare of the people, and particularly the children, of this state.” SORA’s registration requirements are intended to provide “an appropriate, comprehensive, and effective means to monitor those persons who pose such a potential danger.” MCL 28.721a.
As explained earlier, SORA requires an individual convicted of a listed offense to register as a sex offender. Golba, supra at 605, citing MCL 28.723(l)(a). SORA’s catchall provision provides that “[a]ny other violation of a law of this state or a local ordinance of a municipality that by its nature constitutes a sexual offense against an individual who is less than 18 years of age” constitutes a listed offense. MCL 28.722(e)(xi) (emphasis added). The term “against” is not defined in the statute, but is generally defined as “in opposition or hostility to.” Merriam-Webster’s Collegiate Dictionary (2007). In construing and applying MCL 28.722(e)(xi), this Court has determined that the provision requires the simultaneous existence of three conditions, including that the offense be against an individual less than 18 years of age, or, in other words, that “the victim of the violation ... be under 18 years of age.” See Golba, supra at 607.
Defendant makes much of the fact that the language in MCL 28.722(e)(xi) requiring the offense to be “against an individual who is less than 18 years of age” differs from the language in other listed offenses requiring that “a victim [be] an individual less than 18 years of age.” See MCL 28.722(e)(ii), (v), (vi), and (viii). Defendant argues that this difference “must mean something,” although he does not specifically state what it must mean. Defendant simply asserts that the phrase “offense against an individual” in MCL 28.722(e)(xi) is “less inclusive” than the phrase “if a victim is an individual” in the other listed offenses. We disagree. The general definition of the term “against” is broad, and indicates that, under MCL 28.722(e)(xi), the offense must be “in opposition or hostility to” the individual. We find the term “against” to be no less inclusive than the term “victim,” which is defined as a “person harmed by a crime, tort, or other wrong” in Black’s Law Dictionary (8th ed), or as a person who “is acted on and usually adversely affected by a force or agent” in Merriam-Webster’s Collegiate Dictionary (2007). Furthermore, as indicated earlier, this Court has already interpreted the language in MCL 28.722(e)(xi) to mean that “the victim of the violation must be under 18 years of age.” See Golba, supra at 607.
That said, the Legislature’s inclusion of MCL 750.145c as a listed offense requiring registration as a sex offender indicates that the possession of child pornography constitutes an offense against an individual less than 18 years of age, or, in other words, that the child depicted in the pornography is a victim of the offense. MCL 28.722(e)(i). MCL 750.145c, under which defendant was initially charged, prohibits engaging a child in sexually abusive activity, distributing or promoting child sexually abusive activity or material, and possessing child sexually abusive material. This Court has held that MCL 750.145c “focuses on protecting children from sexual exploitation, assaultive or otherwise. The purpose of the statute is to combat the use of children in pornographic movies and photographs, and to prohibit the production and distribution of child pornography.” People v Ward, 206 Mich App 38, 42-43; 520 NW2d 363 (1994).
In People v Riggs, 237 Mich App 584, 586; 604 NW2d 68 (1999), the defendant was charged with four counts of child sexually abusive activity, MCL 750.145c(2), on the basis of the photographing and videotaping of four young girls. The trial court subsequently granted the defendant’s motion to quash, finding no evidence that the girls were engaged in “child sexually abusive activity” as defined by MCL 750.145c(l)(h) at the time they were photographed and videotaped. Id. This Court reversed in part, concluding that the plain language of the statute “prohibits the making of a visual image that is a likeness or representation of a child engaging in one of the listed sexual acts,” regardless of whether the child actually engaged in sexual activity. Id. at 590-591. Citing Ward, the Riggs Court explained:
Our interpretation of the plain language of the statute is consistent with the intent of the Legislature. ... Misappropriating the innocent image of a child for purposes of creating the appearance of a child engaging in a listed sexual act while different in kind from the damage that arises from actually subjecting a child to the actual act is nonetheless exploitative and, arguably, equally as damaging. A child whose innocuous image has been altered to create sexually explicit pictures has its innocence violated. Moreover, ordinary nudity that has been enhanced to depict something lewd and preserved on tape has the potential of being a source of great humiliation, embarrassment, and mental and emotional distress to the child who may be unable to appreciate her innocent role in the creation and only able to focus on the end product. [Riggs, supra at 591.]
Similarly, the United States Supreme Court opined that the use of children as subjects of pornographic materials is harmful to the physiological, emotional, and mental health of the child. New York v Ferber, 458 US 747, 758; 102 S Ct 3348; 73 L Ed 2d 1113 (1982). The Ferber Court noted that “the materials produced are a permanent record of the children’s participation and the harm to the child is exacerbated by their circulation.” Id. at 759. The Fifth Circuit Court of Appeals opined that “the consumer of child pornography instigates the original production of child pornography by providing an economic motive for creating and distributing the materials.” United States v Norris, 159 F3d 926, 930 (CA 5, 1998). Indeed, one of the reasons for criminalizing the possession of child pornography is to create an incentive for the possessor to destroy the material, thereby alleviating some of the harm to the children depicted. United States v Sherman, 268 F3d 539, 547 (CA 7, 2001), citing Osborne v Ohio, 495 US 103, 111; 110 S Ct 1691; 109 L Ed 2d 98 (1990).
Significantly, at least seven federal circuits confronted with the issue have concluded that the primary victims of possessing, receiving, transporting, distributing, shipping, and reproducing child pornography are the children depicted. See United States v Shutic, 274 F3d 1123, 1126 (CA 7, 2001), citing United States v Tillmon, 195 F3d 640, 644 (CA 11, 1999) (the primary victim of transporting and distributing child pornography is the child portrayed); Norris, supra at 929 (the primary victim of receiving child pornography is the child portrayed); United States v Hibbler, 159 F3d 233, 237 (CA 6, 1998) (the primary victim of possessing and distributing child pornography is the child portrayed); United States v Boos, 127 F3d 1207, 1213 (CA 9, 1997) (the primary victim of distributing child pornography is the child depicted); United States v Ketcham, 80 F3d 789, 793 (CA 3, 1996) (the primary victim of receiving, transporting, distributing, and recording child pornography is the child portrayed); United States v Rugh, 968 F2d 750, 756 (CA 8, 1992) (the primary victim of receiving child pornography is the child depicted). Only the Fourth Circuit has concluded that society in general is the primary victim of child pornography and that the children depicted are secondary victims. United States v Toler, 901 F2d 399, 403 (CA 4, 1990).
In light of the overarching purpose of SORA to protect the people, and particularly the children, of this state from the threat of convicted sexual offenders, the Legislature’s inclusion of MCL 750.145c, which prohibits the possession of child sexually abusive material as a listed offense under SORA, and the widely accepted determination that the primary victims of child pornography possession are the children depicted, we hold that “the possession of pornographic photographs [depicting a child] constitutes an offense ‘against’ an individual who is less than 18 years of age” for purposes of MCL 28.722(e)(xi). Althoff, supra at 961.
IV
Because we have concluded that the possession of pornographic photographs is an offense against an individual, we must consider “what evidentiary standards apply to a hearing held to determine if a defendant must register under [SORA.]” Althoff, supra at 961.
In general, “ ‘[o]ther than the fact of a prior conviction, any fact that increases the penalty for a crime beyond the prescribed statutory maximum must be submitted to a jury, and proved beyond a reasonable doubt.’ ” Golba, supra at 615, quoting Apprendi v New Jersey, 530 US 466, 490; 120 S Ct 2348; 147 L Ed 2d 435 (2000), and Blakely v Washington, 542 US 296, 301; 124 S Ct 2531; 159 L Ed 2d 403 (2004). The defendant in Golba argued on appeal that “by ordering him to register under SORA, the trial court impermissibly violated his Fifth Amendment right to due process of law and his Sixth Amendment right to a jury trial, as enforced against states by the Fourteenth Amendment.” Golba, supra at 615. In so arguing, the defendant relied on the United States Supreme Court cases enforcing those constitutional rights, Apprendi and Blakely. Id. The Golba Court held, however, that compliance with SORA is not a punishment. Id. at 616, 620. “Rather, SORA is a remedial regulatory scheme furthering a legitimate state interest of protecting the public.” Id. at 620. Accordingly, the Court held that judicial fact-finding in applying SORA does not violate the Apprendi-Blakely rule. Id. at 616, 620.
The Golba Court further held that, in applying SORA, the sentencing court “may consider facts concerning uncharged offenses, pending charges, and even acquittals, provided that the defendant is afforded the opportunity to challenge the information and, if challenged, it is substantiated by a preponderance of the evidence.” Id. at 614. The sentencing court may also consider evidence admitted during trial. Id. This Court reached a similar conclusion in People v Ratkov (After Remand), 201 Mich App 123; 505 NW2d 886 (1993), regarding calculations under the sentencing guidelines. The Ratkov Court held that a “sentencing court may consider all record evidence before it when calculating the guidelines, including, but not limited to, the contents of a presentence investigation report, admissions made by a defendant during a plea proceeding, or testimony taken at a preliminary examination or trial.” Id. at 125. The Court continued:
The contents of the presentence report are presumptively accurate if unchallenged by the defendant. However, once a defendant has effectively challenged an adverse factual assertion contained in the presentence report or any other controverted issues of fact relevant to the sentencing decision, the prosecution must prove hy a preponderance of the evidence that the facts are as asserted. If the record provides insufficient evidence upon which to base the decision supporting or opposing the scoring, the court in its discretion may order the presentment of further proofs. This Court will affirm a sentencing court’s scoring decision where there is evidence existing to support the score. [Id. at 125-126 (citations omitted).]
Considering this Court’s previous holdings in Ratkov and Golba, we conclude that a sentencing court may consider all record evidence in determining if a defendant must register under SORA, as long as the defendant has the opportunity to challenge relevant factual assertions and any challenged facts are substantiated by a preponderance of the evidence. The court may order the presentment of additional proofs if the evidence of record is insufficient to reach a determination. Pursuant to MRE 1101(b)(3), the rules of evidence would not apply to a hearing held to determine if a defendant must register under SORA.
v
Finally, we must consider whether the evidence in this case was sufficient to satisfy the requirement under MCL 28.722(e)(xi) that the victim of the offense be “less than 18 years of age.” Althoff, supra at 961. Defendant does not dispute that he was convicted of the state-law violation of possession with intent to disseminate obscene material, MCL 752.365, and the evidence in this case demonstrates that the violation “by its nature constitutes a sexual offense.” Defendant argues, however, that there is insufficient evidence to find that the victims of the offense were minors. We disagree.
The trial court’s determination that defendant committed a sexual offense against individuals “less than 18 years of age” was primarily a finding of fact. Golba, supra at 613, citing MCL 769.1(13). “We review underlying factual findings of the trial court at sentencing for clear error.” Golba, supra at 613, citing MCR 2.613(C) and People v Witherspoon, 257 Mich App 329, 335 n 1; 670 NW2d 434 (2003). “Clear error exists when the reviewing court is left with the definite and firm conviction that a mistake has been made.” People v Kurylczyk, 443 Mich 289, 303; 505 NW2d 528 (1993).
As explained earlier, in determining whether the victim of the offense is under the age of 18, the sentencing court may consider all record evidence, including the content of presentence investigation re ports (PSIRs), testimony taken at evidentiary hearings, and even acquittals, as long as any challenged facts are substantiated by a preponderance of the evidence. See Golba, supra at 614; Ratkov, supra at 125. In this case, defendant was charged with possession of child sexually abusive material, MCL 750.145c(4), although he ultimately pleaded guilty of a lesser offense. At sentencing, defendant’s probation officer provided an oral PSIR and repeatedly stated that defendant had viewed pornography involving children. Defendant did not object to these statements. Later, at the December 13, 2005, evidentiary hearing, Trooper Waters testified that when he responded to the reported domestic dispute at defendant’s home, Elizabeth stated that defendant had been viewing child pornography. Elizabeth gave the trooper several computer discs at that time. Detective Kill testified that he personally reviewed the contents of the discs and found photographs of young, nude females on several of them. According to his testimony, one of the females appeared to be 13 or 14 years old, and another appeared to be 16 years old. While the detective admitted that he did not have any specialized training in identifying a person’s age, such as identifying “a 13-year-old, as opposed to ... an 18-year-old,” he testified that the two females in the photographs did not appear to be fully developed physically and that he had investigated similar child pornography cases in the past.
Considering the evidence of record, particularly Detective Kill’s testimony describing the physical appearance of the females in the photographs and his previous experience investigating child pornography cases, the trial court did not clearly err in finding that the victims in this case were under the age of 18. Contrary to defendant’s argument on appeal, expert testimony is not required to establish the age of children in images; rather, expert testimony is permissible if age is not otherwise proven. See People v Girard, 269 Mich App 15, 22; 709 NW2d 229 (2005), citing MCL 750.145c(5). The prosecution demonstrated by a preponderance of the evidence that defendant committed a sexual offense against individuals “less than 18 years of age.” Therefore, because defendant’s violation satisfies the three elements of MCL 28.722(e)(xi), the trial court did not err in requiring him to register as a sex offender under SORA.
Affirmed.
The court declined to order any jail time in light of the fact that defendant had already served time in the custody of the United States Army.
MCL 28.722(e) was previously denominated MCL 28.722(d), and the catchall provision was found in MCL 28.722(d)(x). Golba, supra at 605-606 nn 1-2.
MCL 28.722(d)(x), now MCL 28.722(e)Cu). See n 2 of this opinion. | [
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Bird, J.
Plaintiff, by trade, is a shingle sawyer. While engaged at that work for defendant the little finger of his left hand came in contact with the saw and it tore away most, if not all, of the flesh. Application was made for an award and it was granted by the board of arbitration. Defendant acquiesced in the award. On January 10, 1922, plaintiff signed a receipt for the entire award. Later he filed a petition with the board of labor and industry to have the case reopened, claiming that his injury had resulted in a permanent disability to perform the work in which he was engaged when he was injured. In response to the petition an arbitration hearing was held and testimony taken. The conclusion of the commissioner was that plaintiff’s petition should be denied, because his condition appeared to be the same as it was at the first hearing, and because no appeal was taken from the first order. An appeal was taken to the full board and this conclusion was reversed, and a further award was granted. Defendant insurance company raises the question on certiorari that, the first order not having been appealed from, the question sought to be litigated is res adjudícala.
This court has said that the board could review a weekly payment award and could reopen an award and make additional allowances where it appeared that the condition of the claimant had changed from what it was at the preceding hearing. Estate of Beckwith v. Spooner, 183 Mich. 323 (Ann. Cas. 1916E, 886); 2 Comp. Laws 1915, § 5467.
In the present case the board found as a fact from the testimony that there had been a change in plaintiff’s condition. The only question, therefore, for us to consider is whether the board was justified in reaching that conclusion. The following bits of testimony are taken from plaintiff’s examination:
. “Q. Now, has there been any change in the finger since the time of the last hearing in this case? Has there been any stiffening of the finger, or any further growths in it?
“A. Yes, sir.
“Q. Tell us what.
“A. You can see right here. There is something that has come on my fingers since the last hearing. What it is I cannot tell you.
“Q. Is that sensitive?
“A. Yes, sir.
“Q. Can you stand to have that touched?
“A. Wéll, a person can touch it but it goes all through my arm.
“Q. Through your left arm?
“A. Yes, sir.
“Q. What has been the condition of your left arm and elbow and wrist and hand since the last hearing held here in this cause?
“A. It has been, if I work any at all, it bothers me all along here, if I lift anything.
“Q. Would you say this arm was weaker now than it was then?
“A. Yes, sir. * * *
“Q. State whether or not the finger and the left side of your left hand are stiffen now than they were at the time of the last hearing?
“A. They certainly axe. This joint here is stiffening up now more than it was, a good deal.
“Q. What has been the result of attempting to work with the hand; what happens to you physically if you attempt to work with your left hand ?
“A. The only thing I can do is to get work I can do, and stand it as long as I can, and then I have to lay off.” * * *
Cross-examination.
“Q. Then why do you say your hand is worse now than it was at that date if you don’t remember the date?
“A. Because I know it bothers me more.
“Q. Did it start bothering you more during the past, or has it been gradually getting worse?
“A. Bothered me more during the last five months.
“Q. Started during the last five months?
“A. If it had been all right I would not have been in here at all.
“Q. When did your hand start getting worse?
“A: Been growing worse ever since I cut it.
“Q. Ever since the accident?
“A. Yes, sir.
“Q. In what way has your hand got worse now than it was at the last hearing?
“A. It is weaker.
,SQ. Where is it weaker, in the wrist, or where?
“A. Follows right up along in the back of this hand, in here.
“Q. Up along the back of your little finger?
“A. More in the wrist here just the same.
“Q. Your hand is much weaker in the wrist from there on up?
“A. It cramps, just closes this finger up here some times.”
Redirect-examination.
“Q. You may state whether or not an infection developed from the injury to your little finger, which spread into your hand?
“A. Spread into my hand, yes, not any more than just what I call rheumatism.”
There was considerable other testimony of a like character.
It was undoubtedly difficult! for plaintiff to tell at the first hearing just what condition his injury would leave him in. Had his finger been sawed off it would always be off, and the final result would have been more definite, but here was a laceration of the flesh, and he had a right to expect that it would heal and improve, because the tendency of nature is in that direction. This left the question of his final condition more or less uncertain. After a period he attempts to resume his old work and finds he cannot do it. It was shown by expert evidence that he could not saw shingles and hold such a position by reason of his crippled hand, without great danger of getting further injuries. When he determines that his injuries are permanent he applies to have his case reopened and a further award made. We think the proofs warranted the action of the board.
The award will be affirmed.
McDonald, C. J., and Sharpe, Moose, Steeee, Fellows, and Wiest, JJ., concurred. Clark, J., concurred in the result. | [
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Sharpe, J.
Plaintiff’s decedent, Myron L. Carr, and Stonehill E, Keates started from Lansing to drive to Detroit in a Winton touring car on the night of August 14, 1921. When near the village of Island Lake, in Green Oak township in defendant county, the automobile ran off the embankment of the highway and Mr. Carr sustained injuries which caused his death on the following day. Claiming that the highway was not “in reasonable repair, and in a condition reasonably safe and fit for travel,” plaintiff brought this action to recover the damages sustained by the estate by reason of the death of Mr. Carr. After the proofs were closed, the trial court directed a verdict in favor of the township. Of this no complaint is made. The liability of the county was submitted to the jury resulting in a verdict of no cause for action, on which, after denial of a motion for a new trial, judgment was entered. The errors assigned and relied on, for a reversal, relate to the admission of evidence, the charge of the court, and the denial of the motion for a new trial.
Attached to their plea, the defendants gave notice that they would prove that—
“the Grand Eiver road, the highway along which plaintiff’s intestate was traveling, was under the control and supervision of the State highway commissioner of the State of Michigan, it being a State trunk line road and officially designated as Trunk Line No. 16; that by reason of the foregoing and of the statutes governing the care, control, maintenance and repairs of highways in this State, the said defendants cannot be held responsible for any defects existing in the said highway.”
Over plaintiff’s objection, defendant was permitted to prove that the road on which the accident occurred was at that time a trunk line highway (Act No. 210, Pub. Acts 1921, Div. 9 [Comp. Laws Supp. 1922, § 4852]), designated as M 16; that it had been taken over as a county road by the county board of road commissioners of Livingston county on August 4,1919; and that at the time of the accident it was being rebuilt and improved by the State highway department. This evidence was not stricken out nor was any motion made to strike it out. The trial court, however, in submitting the ease to the jury, instructed them that the duty was imposed by law on the county to keep and maintain the road in a condition reasonably safe and fit for public travel. In view of the specific instruction, twice very plainly stated, that the county was liable if the road was out of repair, there was no reversible error in the admission of this testimony or in the omission to strike it out. The defense was made in good faith, and counsel were entitled to submit the proof bearing on it to the consideration of the court. It may be noted that the case was tried before the opinion in Longstreet v. County of Mecosta, 228 Mich. 542, was handed down.
Plaintiff requested an instruction in effect that reasonable care in the maintenance of the highway required that a fence or guard rail should have been placed at the edge of the embankment or that “danger signals or lights” should have been displayed to warn travelers of the dangerous condition of the road. It appears that a fill of from 6 to 8 feet had been made at that place. The width of the traveled portion of the roa,d as constructed was 24 feet. The trial court charged the jury:
‘Now, there has been some testimony given in relation to, and one of the charges of negligence in the declaration of plaintiff, is lack of guard rails at the side of the road. That is a question for you to consider in this matter, and I will state to you in relation to that, that you will first consider and determine the question whether this portion of the highway where the accident occurred was in a condition reasonably safe and fit for public travel, and in this case, that question depends somewhat upon your solution of another question, that is, whether or not suitable railings or barriers along the side of the road there were necessary to render the highway reasonably safe and fit for public travel. So it is for you to say, from all the facts and circumstances in the case, whether the absence of a railing at the side of the road there affected the condition of the road, so that it was not reasonably safe and fit for public travel. I charge you there was no duty of the county road commissioners that requires it to guard the road with a railing unless you should find that barriers or such a railing was necessary to render the highway in a condition reasonably safe and convenient for public travel. And as to whether a barrier was necessary or not, you are to determine from all the facts as shown by the evidence and from proper inferences that you may draw from such facts so' proven.”
As before stated, the proofs show that the traveled portion of the highway was 24 feet in width and the slope of the embankment was from 6 to 8 feet. While the gravel on the sides was loose, there was proof that the middle of the road was pretty well beaten down and formed a reasonably safe place for travel. The necessity for guard rails or danger signals was clearly a question for the jury. In two recent cases it was so held. Fidler v. Township of Lafayette, 226 Mich. 635; Mazzolini v. County of Kalamazoo, 228 Mich. 59. In the Fidler Case, the roadbed was 24 feet in width and the slope of the embankment to the bottom of the ditch was about 9 feet. In the Mazzolini Case, the roadbed was from 22 to 24 feet wide and the fill from 4y2 to 9 feet in height.
The construction contract required the placing of guard rails on the sides of the embankment, and it appears that they were thereafter so placed. Error is assigned on the instruction by the court that the jury should not consider such proof as an admission on the part of the defendant that the highway was not reasonably safe for travel by reason of such guard rails not having been so placed at the time of the accident. We cannot so hold. The action of the State highway department in providing for such guard rails in the construction contract, and the fact that they were thereafter placed pursuant thereto, cannot render the county liable if such guard rails were not, in fact, necessary to render the highway reasonably safe and fit for public travel and, as before stated, this question was properly and fairly submitted to the jury.
Error is assigned on the denial of plaintiff’s motion for a new trial, wherein it was alleged that the verdict was against the great weight of the evidence. We cannot so conclude. Under the proofs, the jury may well have found that the highway was in a condition reasonably safe and fit for public travel. The question of the contributory negligence of plaintiff’s decedent was also submitted to the jury. There was proof, and it seems to have been quite convincing, that the automobile left the beaten wheel tracks on the roadbed a distance of from 60 to 100 feet from the place of the accident, where there was a slight curve in the fill, and continued on its course, getting closer and closer to the embankment until it finally went over the side.
We find no reversible error in the record, and the judgment is affirmed.
Clark, C. J., and McDonald, Bird, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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Clark, C. J.
Two cases were heard and submitted as one. To review judgments for plaintiffs, defendant brings error. Appellant says:
“The principal error complained of in this ease was the refusal of the judge to direct a verdict on the conclusion of the plaintiffs’ case.”
This is based upon the following assignment of error:
“That the said court erred in refusing to grant defendant’s motion made at the conclusion of the plaintiffs’ cases requesting the said judge to direct a verdict in favor of the defendant of no cause of action.”
The record shows no request or motion for a directed verdict in the trial court. No amendment of or addition to the bill of exceptions in this regard has been sought. The assignment has no foundation in the record. The question cannot be raised for the first time in this court. Hence we cannot consider it.
Error is assigned that the trial judge in settling the bill of exceptions included, over defendant’s objection, testimony adduced by it and declined at its request to strike out an assignment of error. This will not be reviewed on error. McIntire v. Carr, 168 Mich. 462; People, ex rel. Crane, v. Wayne Circuit Judge, 24 Mich. 513; 2 Green's Mich. Prac. (3d Ed.), p. 1155; 2 Stevens' Mich. Prac. p. 482.
Judgments affirmed.
McDonald, Bird, Sharpe, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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McDonald, J.
This is an action for damages growing out of an automobile accident in which the plaintiff received personal injuries which she claims were caused by the negligence of the defendant. The accident happened as the plaintiff was crossing North Grand Boulevard west at Byron avenue in the city of Detroit. There is a parkway in the center of the boulevard which divides the traffic, that going west running on the north side of the parkway, and that going east on the south side. The plaintiff was walking south on the west side of Byron, She claims that when she reached the boulevard she looked to the east and saw four or five automobiles approaching about 800 feet away; that she proceeded to cross and when she had reached the center of the north half of the street the automobiles were about 150 feet from her; that two of them were abreast closely trailed by a third which was the car being driven by the defendant; that she continued on her way watching the cars as they approached; that when the defendant’s car was about 25 feet away, he swung out to the south from the rear to pass the other two cars; that in this position the defendant was driving very close to the curb and that he ran against her before she could reach the parkway. The negligence charged to the defendant is that he did not have his car under control as he approached the street intersection; that he was driving at a faster rate of speed than was reasonable and proper under the circumstances; that he did not use every reasonable precaution to insure the safety of pedestrians; and that in violation of the traffic ordinance of the city of Detroit, he attempted to pass “two moving vehicles going in the same direction, which are abreast or nearly abreast.”
The defendant denied that he was attempting to pass any other automobile at the time of the accident. He claims that as he approached the intersection he was driving slowly in a careful manner and with his car under control; that as he approached the street intersection his car was to the rear of two other cars which were driving westward, one a little behind the other; that he was driving close to the southerly curb of the street and did not see the plaintiff until she stepped out from in front of the other cars directly in his path; that she was then so close to him he was unable to avoid hitting her, though he used every possible effort to keep from doing so. The trial court directed a verdict in favor of the defendant on the ground that there was no evidence of negligence on his part. The plaintiff brings error.
Is there any evidence that at the time of the accident the defendant, in violation of the city traffic ordinance, was attempting to pass two other automobiles going in the same direction abreast or nearly abreast? Mr. Hoye, a witness, sworn for the plaintiff, testified that he was driving about 100 feet behind the defendant and that just before the accident he saw the defendant swing out to pass the car ahead of him.
“Q. He was pulling around?
“A. He was on a straight line.
“Q. Straight line of what?
“A. He had already made his cut-in.
“Q. He had already made his cut-in to go around the large car?
“A. Yes, sir.
“Q. That is true?
“A. Yes, sir.”
The plaintiff testifies that the two cars were running along abreast when defendant attempted to pass them. Her testimony is not very clear on many points, but some allowance may be made for the fact that she seems to be unfamiliar with the English language, and testified without the aid of an interpreter. She says in her direct-examination:—
“Q. How many machines were coming along on the boulevard at that time?
“A. About two was coming and the other one was coming between the two.
“Q. Was the machine that was coming between the two the car that hit you?
“A. Yes, sir.
“Q. Which side was he coming from between the two, on the right side or the left side?
“A. Soutli sido
“Q. South side. That would be the left side?
“A. Yes, sir. And he was going then between the two.
“Q. Was he in the act of passing the two?
“A. Yes, he was swinging out back of the other two cars.”
On cross-examination, referring to the two cars just ahead of the defendant, she testifies:
“Q. So these two were just equal, were they coming along in equal—
“A. Yes, they were coming along together.
“Q. Both together?
“A. Yes, sir.
“Q. You saw those two?
“A. Yes, sir.”
It is true that this witness testified on cross-examination in different ways as to the position of. the cars, but it was for the jury to say on which occasion she testified correctly. We think this testimony furnished some evidence of the violation of the traffic ordinance, as claimed by the plaintiff.
As to the precautions taken by the defendant for the protection of pedestrians in making this crossing, the plaintiff testified that when she reached the center of the north half of the boulevard, the automobiles were 150 feet away from her, and that she saw the position of the defendant’s car at that time. It is apparent that if she were able to see the defendant he could see her, and if he saw her 150 feet away there was no excuse for hitting her, for she continued straight across that part of the street on which he was driving. She further testifies that when he swung out to pass the other cars he was 25 feet away; that when his car hit her she was within two steps of the parkway curb. He testifies that there was no car to the right of him, and that he was driving close to the curb. If she were within two steps of the parkway curb and there was no car to the right he easily could have avoided the accident by turning his car in that direction or by stopping it, if he could have done so in that distance. The plaintiff called the defendant for cross-examination under the statute. He testified that at the time of the accident he was not driving faster than 14 miles an hour. He was then asked in what distance he could stop his car going at that rate of speed. In sustaining an objection to this inquiry the court said that it was not the purpose of the statute to permit a party to be called for cross-examination “just to draw out his story before he put his own case in.” It is true that the statute does not give the plaintiff the right to call the opposite party for the purpose of inquiring into his defense, but this question related to a matter that was a part of the plaintiff’s case. She testified that he was 25 feet away when he turned his car to the left where he had a clear view of her. Going at a speed of 14 miles an hour could he have stopped his car within the 25 feet that he had to travel before hitting her? The question was material to plaintiff’s case and should have been answered.
We think the court erred in directing a verdict. The testimony of the plaintiff presented facts concerning the defendant’s negligence, which should have been submitted to the jury.
The judgment is reversed, with costs to the plaintiff.
Clark, C. J., and Bird, Sharpe, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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Fellows, J.
(after stating the facts). There can be no doubt upon this record of the authority of the Agency to bind the Trust. By the terms of their agreement practically the entire management of the Trust was turned over to the Agency. It received the first four monthly payments of $7.50 each made on each $1,000 of certificates issued and 50 cents on all other monthly payments and in turn was to pay the entire expenses of the Trust; it was empowered to appoint all sales agents, sales managers and agents for the Trust and countersign all certificates. The agreement between the Trust and the Agency itself establishes the authority, and if anything confirmatory of the contract was needed, it will be sufficient to note that the mortgage given in this case runs to the Trust and was in the possession of its receiver when the case was tried.
There was no laches on the part of the plaintiff. We are satisfied that all the parties understood that the small amount of income the property was producing would satisfy the provision that the mortgage was to be given on income-producing property. The money was to be furnished for the purpose of making the property produce a substantial income and everyone connected with the transaction so understood. The claim that rights of innocent third persons have intervened is not supported by any proof. So far as this record discloses no one purchased certificates relying on the fact that this mortgage was among the assets of the Trust and there is no proof that would sustain the claim that others have prior equities to those of plaintiff.
The consideration of this mortgage was the agreement to finance plaintiff’s proposition, to furnish him $3,000,000 in cash. Not one penny has been furnished him and the inability to furnish even the first $50,000 was admitted. There has been a failure of consideration and the Trust has breached its contract in its very essential and material provision. Under these circumstances it is unnecessary to consider the question of whether there was fraud in procuring the mortgage or whether the plan of the Trust was workable or not. As between the plaintiff and the Trust plaintiff is entitled to the relief prayed. This leads to the important question in the case, i. e., do such rights survive the appointment of a receiver made after the institution of this suit? We have already pointed out that plaintiff’s equities are not postponed to those of others and this is not a suit by the recéiver to set aside a conveyance of corporate property made in fraud of creditors, therefore our present inquiry is directed to the character of the title of the receiver and his rights as an arm of the court.
We think it must be taken as the settled law in this jurisdiction that the receiver does not take title as a bona fide purchaser but takes the assets subject to the equities existing between the parties. His title and right can be no greater than the one for whose assets he is receiver and in whose shoes he stands. Among the cases so holding, see the following: Kalamazoo Trust Co. v. Merrill, 159 Mich. 649; Marine Savings Bank v. Norton, 160 Mich. 614; Wisconsin, etc., Bank v. Lumber Co., 77 Mich. 76; Rickman v. Rickman, 180 Mich. 224 (Ann. Cas. 1915C, 1237); In re Farmers’ & Merchants’ Bank, 194 Mich. 200; Fisk v. Savings Bank, 225 Mich. 580, 585; and our holdings are in accord with the great weight of authority. See Hubbard v. Hamilton Bank, 7 Metc. (Mass.) 340; American Trust & Savings Bank v. McGettigan, 152 Ind. 582, 587 (52 N. E. 793, 71 Am. St. Rep. 345); First National Bank v. Cook, 12 Wyo. 492 (76 Pac. 674, 78 Pac. 1083, 2 L. R. A. [N. S.] 1012); Nix v. Ellis, 118 Ga. 345, 347 (45 S. E. 404, 98 Am. St. Rep. 111); Rogers & Baldwin Hardware Co. v. Building Co., 132 Mo. 442 (34 S. W. 57, 31 L. R. A. 335, 53 Am. St. Rep. 494); Lawson v. Warren, 34 Okla. 94 (124 Pac. 46, 42 L. R. A. [N. S.] 183, Ann. Cas. 1914C, 139); Scott v. Armstrong, 146 U. S. 499 (13 Sup. Ct. 148); Funk v. Young, 138 Ark. 38 (210 S. W. 143, 5 A. L. R. 79). That the text-writers recognize this rule will be seen by the following excerpts:
“A receiver holds the property coming into his hands by the same right and title as the person for whose property he is receiver, subject to liens, priorities, and equities existing at the time of his appointment. He becomes merely the assignee of the insolvent, and has exactly the same rights. He is not an innocent purchaser in any sense of that term.” 23 R. C. L. p. 56.
“When a court takes possession of property of an insolvent corporation and appoints a receiver such receiver is the ‘arm of the court’ by which it administers the trust for the benefit of the creditors. The court receives such property impressed with all existing rights and equities of creditors, and the relative rank of claims and the standing of liens remain unaffected by the receivership. It is as much the duty of a receiver, in administering an estate, to protect valid preferences and priorities as it is to make a just distribution among the general creditors.” 23 R. C. L. p. 108.
“Since the appointment of a receiver in limine does not affect any questions of right involved in the action, and does not change any'contract relations or rights of action existing between parties, it follows as a general rule that in ordinary actions brought by a receiver in his official capacity, to recover upon an obligation or demand due to the person or estate which has passed under the receiver’s control, the defendant may avail himself of any matter of defense which he might have urged had the action been brought by the original party instead of by his receiver.” High on Receivers (4th Ed.), § 245.
“As the rights of the parties to an action are not interfered with by the appointment of a receiver, the possession of the receiver can not, of itself, be held to put the tenant out of occupation. The appointment by the court of a receiver over the estate of a defendant does not change the correlative rights of landlord and tenant previously subsisting between the defendant and his tenants, though the court thereby acquires additional powers of enforcing the landlord’s rights.” Kerr on Receivers (7th Ed.), p. 188.
“The appointment of a receiver has this indirect effect upon pending actions. If the plaintiff in such an action wants a judgment against the defendant corporation for some purpose other than a right to share in the assets, in the hands of the court he could go on with his action. But if he wishes to establish his right to share in the assets in the possession of the appointing court, the further prosecution of that action will not help him.” 1 Clark on Receivers, § 700.
In Merchants’ and Manufacturers’ National Bank v. Kent Circuit Judge, 43 Mich. 292, the bank had brought replevin; a receiver had been appointed and the court below had restrained the prosecution of the replevin case. In sustaining the right of the bank to proceed with the replevin case instead of proceeding in trover and participating in the distributing of the assets, it was said by Mr. Justice Cooley, speaking for the court:
“It was proper and just that the bank be allowed to go on with the suit in replevin, if that seemed most for its interest, and improper and unjust that it should be restricted to a suit in trover, which would be in effect for net proceeds only after the costs of a receivership, which the bank did not desire or assent to, had been deducted. If the property belonged to the bank, the injustice of requiring the owner to submit to such management, manufacture, and sale of it as another person might think expedient, and to recover the net proceeds only after the costs of a receivership in a suit between other parties had been wholly or in part deducted, would be too manifest to require more than mere mention.”
The case of Dettra v. Kestner, 147 Pa. 566 (23 Atl. 889), in the main sustains the contention of defendant, but we are not inclined to follow it. We have given consideration to all the claims urged on behalf of the receiver but are persuaded that the trial judge reached the right result.
The decree will, therefore, be affirmed, with costs of this court.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Steere, and Wiest, JJ., concurred. | [
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WlEST, J.
Plaintiff, claiming to be the holder for value before maturity of the following note, brought this suit against the Drury Petroleum Corporation, J; E. Anderson and Charles G. Walker as makers thereof.
“$10,000. 10/20, 1921.
“Sixty-days after date We promise to pay to the order of Williams Investment Co., Ten thousand & no/100 dollars at their office. Value received. Interest 7%.
“Drury Petroleum Corp.
“Executive Board. J. E. Anderson,
“Due 12/20/21. Chas. G. Walker/’ »
Defendant Anderson by plea, notice and affidavit denied execution of the note otherwise than as an officer of the corporation acting by authority. Judgment was rendered against the corporation, Anderson and Walker, and Anderson reviews by writ of error.
By motions to direct verdict, enter judgment non obstante veredicto and for a new trial, and requests for instructions to the jury and exceptions taken, the main question presented is whether the note on its face purports to be the obligation of the corporation alone.
The trial judge instructed the jury:
“So’ you are instructed as a matter of law, at the beginning, that this note evidences an obligation on the part of the Drury Petroleum Corporation, J. E. Anderson and Charles G. Walker, to the Williams Investment Company, for ten thousand dollars. * * *
“I instruct you the note is Anderson and Walker’s note, until they prove to you it is not. If they do not satisfy you of that, in so' far as Anderson and Walker are concerned, they are liable upon it, as a matter of law. And that principle is practically conceded on both sides of this case. There is not anything to show on this note that the note was signed by J. E. Anderson and Charles G. Walker, for the Drury Petroleum Corporation. If they intended that, they should have said, ‘Drury Petroleum Corporation, by J. E. Anderson and by Charles G. Walker.’ It does not say that, therefore they are individual makers of this note, and that is not for your consideration. It is a matter of law for the court to decide, and the court has come to that conclusion, and so instructs you.”
The trial judge also instructed the jury that the burden rested upon defendants Anderson and Walker to establish the fact they signed the note by authority and on behalf of the corporation and not for themselves, but even this, if established, would constitute no defense against plaintiff if she was a purchaser for value before maturity.
The negotiable instruments law (2 Comp. Laws 1915, § 6040 et seq.) speaks with authority, is not handicapped by previous judicial holdings, carries its own definitions, interprets acts and determines by somewhat arbitrary rules rights, remedies and liabilities.
Defendant Anderson invokes section 22 of that law ;(§ 6061):
“Where the instrument contains, or a person adds to his signature, words indicating that he signs for or on behalf of a principal, or in a representative capacity, he is not liable on the instrument if he was duly authorized, but the mere addition of words describing him as an agent, or as filling a representative character, without disclosing his principal, does not exempt him from personal liability.”
In 1 Joyce, Defenses to Commercial Paper (2d Ed.), § 27, it is said of this section of the negotiable instruments law:
“Prior to the enactment of this section there were a long line of decisions holding that where one signs an instrument and adds after his signature the words ‘agent,’ ‘trustee,’ ‘guardian,’ ‘administrator,’ .‘secretary,’ ‘treasurer,’ ‘president,’ etc., he is rendered personally liable, since the use of the affix is regarded merely as deseriptio personas, and not as indicating a signing in a representative capacity, in the absence of words showing that the signing was ‘for’ or ‘on behalf’ of another, or words to that effect. But by the adoption of the foregoing section of the statute, the rule of interpreting instruments so signed has been changed; so that now if one signs an instrument and adds words indicating a representative capacity, and the instrument discloses the principal, and the person signing had authority to sign in a representative capacity, he can not be held personally liable, the principal alone being liable. If, on consideration of the whole instrument, a doubt arises whether the instrument was signed in a representative capacity, parol evidence is admissible to show whether the signing was in a representative capacity or individually.”
Plaintiff claims the words “Executive Board,” relied on by defendant Anderson to show he signed in a representative capacity only, were not added, to his signature. It will be noticed the words “Executive Board” are opposite the signature of Mr. Anderson. This being the case, are such words to be considered as added to his signature? To “add to his signature words indicating that he signs for or on behalf of a principal or in a representative capacity,” calls for no more than appropriate words joined to the signature and pointing to such fact. Such pointing may be upward to the signature or sideward to it, and be considered as added, for to “add” as here employed means to join to a signature the qualitative words.
The Drury Petroleum Corporation could execute the note only by some representative hand. The note required no intrinsic evidence in explanation of Mr. Anderson’s signature; it carried on its face his exemption from personal liability if he signed the name of the corporation by authority.
The affix “Executive Board” to Mr. Anderson’s signature shows he signed the corporate name in that character and capacity alone. “The use of the word ‘by’ or ‘per’ or ‘pro’ would not add to the certainty of what is thus expressed.” Aungst v. Creque, 72 Ohio St. 551 (74 N. E. 1073). See, also, Reeve v. National Bank, 54 N. J.. Law, 208 (23 Atl. 853, 16 L. R. A. 143, 33 Am. St. Rep. 675); Phelps v. Weber, 84 N. J. Law, 630 (87 Atl. 469).
The nominative “We” in the note aptly designates a corporation aggregate. Aungst v. Creque, supra.
If defendant Anderson was duly authorized by defendant corporation to sign the note for it as a member of its executive board, he is exempt from personal liability, for the note disclosed the principal and appropriate words added to the signature of Mr. Anderson indicated that he signed on behalf of the corporation in the representative capacity designated. Defendant Anderson testified he was duly authorized by the corporation to execute the note on its behalf and we find no testimony to the contrary. The note carried on its face unambiguous notice of the representative capacity in which defendant Anderson signed, and plaintiff by purchase for value before maturity acquired only such rights as the note by its very terms and under the negotiable instruments law gave. Defendant Anderson is not liable.
The judgment against him is reversed with direction to enter judgment in his favor in the circuit court. He will recover costs against plaintiff.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Steere, and Fellows, JJ., concurred. | [
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T. M. Kavanagh, J.
The facts necessary for consideration of this appeal are:
North Shore Estates Association is a nonprofit corporation founded in 1959 pursuant to PA 1929, No 137 (sometimes referred to as the summer resort owners corporation act), to exercise control over five subdivisions of platted resort property in Ottawa County. The Association was formed to take over, manage, grade and maintain the access road running through the five subdivisions following termination of responsibility by the developer in 1958, to provide for police patrol and snow removal, and for other common purposes including the employment of a corporation attorney.
In compliance with § 7 of the statute, grants of authority were executed and recorded by all but one of the 35 original incorporators.
At a meeting held on July 21, 1962, a resolution was adopted calling for an election to be held, pursuant to § 6 of the applicable statute under which the corporation was organized, to determine whether or not all of the North Shore Estates subdivisions would be brought under the jurisdiction of the corporation. Thereafter, in July, 1962, a letter was sent to all property owners in the North Shore Estates subdivisions announcing that, in accordance with the statute under which the organization was incorporated, an election would be held on August 31,1962, for the purpose of determining if a majority of the eligible property owners would choose to have the Association act as the official organization for all of the North Shore Estates subdivisions.
To be qualified to vote at the election the statute required that a property owner must have been: (1) a qualified voter in the State of Michigan, and (2) a weekend resident of the area for a period of one month prior to the election.
At the time of the election there were 12 buildings used as year-around dwellings and 28 used as summer houses within the area to be affected by the election, leaving a total of 98 vacant platted lots.
At the election conducted on August 31, 1962, of the more than 120 property owners only 23 qualified to vote. Only one of the 35 people in plaintiffs’ subdivision qualified, and he did not vote. The vote was 18 for and 3 against bringing the additional territory under the jurisdiction of the Association. The Association now levies assessments and exercises general control over the area.
On September 10, 1963, a portion of the lots claimed by the Association after the election, consisting of lots numbered 1 through 35 of North Shore Estates Subdivision, were included in the incorporation of thé City of Ferrysburg.
Plaintiffs sued in common interest in the Ottawa Circuit Court praying for a declaratory judgment upon the following issues:
(a) Is the North Shore Estates Association legally incorporated under the statute?
(b) Has the Association been operated, and is it now being operated,, for purposes consistent with the statute?
(c) Has the Association since its incorporation lost its qualification for corporate status and its right to jurisdiction over the plaintiffs and other lot owners similarly situated for failure to operate within the purpose of said statute?
(d) Does the Association have jurisdiction over lot owners who have not executed grants of authority in accordance with § 7 of the statute?
(e) Was the election conducted by the Association on August 31, 1962, legally effective to bring the entire North Shore Estates and the owners of lots therein under the Association and its jurisdiction?
(f) Are the provisions of PA 1929, No 137, as amended, under which the North Shore Estates Association became incorporated, and under which said Association thereafter determined that additional lands became part of and subject to the jurisdiction of the Association, unconstitutional and void under the Michigan Constitution of 1908, art 2, § l, and the 14th Amendment to the Constitution of the United States on the grounds that the plaintiffs and others similarly situated have been and are being deprived of property without due process of law by virtue thereof?
(g) Did the City of Perrysburg, in incorporating lots 1 through 35 of North Shore Estates Subdivision, remove said lots and the roadway adjacent thereto from the Association and its jurisdiction?
The trial court answered all the issues contrary to the claims of the plaintiffs.
The Court of Appeals reversed the trial court and denied defendant jurisdiction over plaintiffs and those similarly situated freeholders “until all voters are given an opportunity to speak at the ballot box.” 15 Mich App 289, 297. Defendant appeals to this Court on leave granted. 382 Mich 772.
Plaintiffs cross-appeal seeking decision on all issues, including the question of constitutionality of § 6c of the act, which issues were before the Court of Appeals but only one of which was decided by that Court.
Defendant frames the first issue as follows:
“Does the term ‘resided’, as found in § 6c of Act 137, Public Acts of 1929, as amended, require the physical presence of the freeholder, rather than mere ownership of property in the area to be affected by the jurisdictional election, for four weekends in order to qualify as a voter under said act?”
The Court of Appeals decided (p 297):
“Accordingly, we determine that to have ‘resided’ for purposes of qualifying for summer resort association elections under the statute here considered, the freeholder must have owned property in the ‘territory to be affected’ for four weekends in the month preceding the jurisdictional election. It is discriminatory, arbitrary and unreasonable of the association to require that they do more to protect their actual personal interests, but the statute is not unconstitutional as here interpreted. Plaintiffs, as freeholders, were ‘residing’ for purposes of this particular election, and were ‘qualified’ voters, as were any other freeholders who owned property for the four weekends preceding the election.
“It follows that the appellee association cannot exercise any jurisdiction over plaintiffs and those similarly situated freeholders until all voters are given an opportunity to speak at the ballot box.”
Defendant contends that the interpretation placed on the statute by the Court of Appeals makes portions of the statute redundant and has the effect of divorcing the word “resided” from those words which precede and follow it in § 6c. Specifically, defendant argues that if “resident” is synonymous with “ownership” it would be ridiculous to require that a potential voter must have resided {i.e., owned property) on weekends in the area for a period of one month prior to the election, since “ownership”, unlike physical presence, is a continuing phenomenon, unlikely to occur only on weekends. It contends that such a construction of the statute clearly does not carry out the intention of the legislature.
Plaintiffs, on the other hand, argue that unless the Court of Appeals’ interpretation is sustained a constitutional issue arises. They contend that the amendment of 1939 established a subclassification of those who could vote to force the jurisdiction of the Association on nonconsenting lot owners. Specifically plaintiffs argue that the weekend residency requirement of § 6c clearly results in an arbitrary and discriminatory subclassification which gives privileges to some freeholders and denies such privileges to other freeholders, contrary to the equal protection mandates of the state and Federal Constitutions.
Plaintiffs further contend that if owners of lots within the territory had not erected a dwelling in which it would be suitable to reside for weekends for a period of one month prior to the election, as was the case with many lot owners here, they would be denied the right to decide whether their property should come under the jurisdiction of the Association.
They point out that even if a property owner within the territory had a suitable dwelling within which he could reside weekends for a period of one month prior to the election, he would be denied his right to vote if for some reason he was absent or unable or did not desire to come to his dwelling for any one of the weekends.
Plaintiffs insist that the discriminatory effect of this provision is vividly illustrated in the instant case. Of the 138 lots in the five subdivisions at the time of the election, there were 28 summer and 12 permanent residences, and the remainder of the lot owners (approximately 75% in the five subdivisions) owned only vacant, unimproved lots. Only 23 area freeholders were determined to be eligible to vote out of the more than 120 lot owners within the five subdivisions. The owners of the 12 permanent homes constituted a majority of those determined eligible to vote. Eighteen of those persons who were eligible voted to include all lot owners within the Association. Therefore, if the election were valid, by a vote of approximately 15% of the total number of lot owners within the territory, the Association was converted from a voluntary association to a largely involuntary one, and the overwhelming majority of persons owning lots within the subdivisions were forced, without their consent, to come under the jurisdiction of the Association.
Before turning to discussion of the meaning and constitutionality of the weekend residency requirement, we note that the entire act borders on unconstitutionality by reason of its vagueness. This is so primarily because several of its basic terms — “resided weekends”, “summer resort”, “resort community”, “summer resort owners” — are neither explicitly nor implicitly defined by any provisions of the act. However, because of the presumption of statutory validity, because the vagueness issue has not been squarely briefed and argued in this case, and because we are able to make a less sweeping disposition of this case, we do not now discuss the vagueness question.
The Court of Appeals in interpreting § 6c of the act determined that the term “resided” meant that “for purposes of qualifying for summer resort association elections under the statute here considered, the freeholder must have owned property in the ‘territory to be affected’ for four weekends in the month preceding the jurisdictional election.” (Emphasis added.) (P 297.) This strained construction of the word “resided” renders portions of the section redundant and meaningless. We point out that the section of the act clearly intends more than ownership and indicates the necessity of bodily presence during weekends for the month prior to the election to qualify as an elector. In effect, by this construction the Court attempted to rewrite the statute for the legislature. This it had no authority to do. We cannot acquiesce in this error.
We have concluded it is necessary in disposing of this case to consider the constitutional questions dealing with the classification of freeholders under the equal protection clauses of the State and Federal Constitutions. We, therefore, discuss this question next.
This Court has previously discussed at length the principles governing such questions in the case of Fox v. Employment Security Commission (1967), 379 Mich 579, where we said (pp 588, 589):
“This Court has held numerous times that the Michigan Const 1908, art 2, § 1, secures the same right of equal protection as does its counterpart in the Constitution of the United States. Gauthier v. Campbell, Wyant & Cannon Foundry Company [1960], 360 Mich 510, 514, and cases therein cited. The same provisions in Const 1963, art 1, §§ 1 and 2, must likewise be held to afford the same rights as the Federal equal protection clause.
“There is no doubt that state legislatures have a broad range of discretion in establishing classifications in the exercise of their powers of regulation. However, the constitutional guarantees of equal protection are interposed against discriminations that are entirely arbitrary. In determining what is within legislative discretion and what is arbitrary, regard must be had for the particular subject of the state, legislation. There must be a relation between the classification and the purposes of the act in which it is found. Smith v. Gahoon, Sheriff [1931], 283 US 553, 566 (51 S Ct 582, 587; 75 L Ed 1264, 1274); Morey v. Doud [1957], 354 US 457, 465 (77 S Ct 1344, 1350; 1 L Ed 2d 1485, 1491); Beauty Built Construction Corporation v. City of Warren [1965], 375 Mich 229; Palmer Park Theatre Company v. City of Highland Park [1961], 362 Mich 326.
“In the case of People v. Chapman [1942], 301 Mich 584, a statute of this State was challenged as unconstitutionally denying the defendant therein equal protection of the laws. Justice Starr, writing for the Court, stated (pp 597, 598):
“ ‘It is well recognized that the legislature may make classifications of persons, provided such classifications are based on substantial distinctions and are in accord with the aims sought to be achieved. (Citing cases.) However, such classification must be neither arbitrary nor capricious, but must rest on reasonable and justifiable foundations. In Haynes v. Lapeer Circuit Judge, supra [(1918), 201 Mich 138], p 141, the rule is stated:
“ ‘ “Legislation which, in carrying out a public purpose for the common good, is limited by reasonable and justifiable differentiation to a distinct type or class of persons is not for that reason unconstitutional because class legislation, if germane to the object of the enactment and made uniform in its Operation upon all persons of the class to which it naturally applies; but if it fails to include and affect alike all persons of the same class, and extends immunities or privileges to one portion and denies them to others of like kind, by unreasonable or arbitrary subclassification, it comes within the constitutional prohibition against class legislation.” ’
“See, also, Davidow v. Wadsworth Manfg. Co. [1920], 211 Mich 90, 97-102; Peninsular Stove Co. v. Burton [1922], 220 Mich 284, 286; Smith v. Wayne Probate Judge [1925], 231 Mich 409.”
The explicit intention of the legislature in enacting the summer resort owners corporation act was to permit ten or more freeholders to incorporate for the better welfare of a community and for the purchase and improvement of lands to be occupied for summer homes and summer resort purposes, to exercise certain police powers over the lands owned by said corporation and within its jurisdiction, and to provide penalties for the violation of the bylaws established under police powers. In short, it was to provide benefits for all freeholders in the particular summer resort area.'
The general validity of a reasonable period of residence in a community as a qualification for the exercise of one’s franchise therein is beyond question. Carrington v. Rash (1965), 380 US 89 (85 S Ct 775, 13 L Ed 2d 675); Pope v. Williams (1904), 193 US 621 (24 S Ct 573, 48 L Ed 817); see, also, Mich Const 1963, art 2, § 1, as implemented by PA 1963 (2d Ex Sess), No 3, § 10 (MCLA § 168.10 [Stat Ann 1970 Cum Supp § 6.1010]). And since corporations authorized by the statute in question clearly possess many quasi-governmental characteristics, it is appropriate that the constitutional principles governing voter qualifications for similar local elections be generally applicable to elections conducted under § 6 of the act. Accordingly, the weekend residency requirement of § 6c would appear to be less stringent than the parallel requirements for most other local elections if it were considered without regard to the peculiar type of community (resort) envisioned by the act and without regard to the peculiar type of residency (bodily presence) required by the act.
But we cannot ignore these distinctions. In contrast to the usual local election situation, we deal here with residency away from the permanent domiciles of many potential voters, and we deal with the harsh requirement of “bodily presence” in the community. The facts giving rise to the present controversy make it abundantly clear that in the case of an election held in a resort area, many potential voters — whose interests will be vitally affected by the election results — cannot reasonably be expected to meet the weekend residency requirement of § 6c As a result, contrary to the object of the legislation, which is to benefit all freeholders in an affected resort area, the residency requirement of § 6c has the practical effect of splitting, for election purposes, the natural class of area freeholders into two differently treated subclasses: those who are more or less permanent residents of the area and those who occasionally use their resort property.
It is to be emphasized that the phrase “resided weekends” is not defined in the act. Does it mean from Friday night to Monday morning? Does it mean one day, one hour, or even one minute ? Whatever it means, the weekend residency requirement bears no reasonable relationship to the legislative purpose for which the act was adopted.
We hold that the residency requirement of § 6c was from the beginning, and is now, constitutionally invalid, since it constitutes a denial to the plaintiffs and others like them of equal protection of the laws under the Michigan and United States Constitutions. It grants privileges and benefits to a portion of the class of freeholders while denying them to the remaining class of freeholders.
We further hold that the election held was invalid and that the Association cannot exercise any jurisdiction over plaintiffs and other similarly situated freeholders at least until all affected freeholders are given an opportunity to speak at the ballot box or until they have voluntarily executed grants of authority pursuant to § 7 of the act.
The residency requirement in question is sever-able from the remainder of the statute, and the remainder is in itself a complete act. See MCLA § 8.5 (Stat Ann 1969 Rev § 2.216).
Answering plaintiffs’ trial court issues (a), (b), (c) and (d), we hold that North Shore Estates Association has not lost its legal corporate status and has operated for purposes consistent with the statute as to those freeholders only who have exe cuted grants of authority in accordance with § 7 of the statute.
Concerning plaintiffs’ trial court issue (g), since the North Shore Estates Association never acquired jurisdiction over lots 1 through 35 of North Shore Estates subdivision, the question of whether the incorporation of the City of Perrysburg removed said lots becomes moot.
We reverse the Court of Appeals and the trial court and remand the cause to the trial court for entry of a judgment pursuant to this opinion.
Plaintiffs shall have costs.
T. E. Brennan, C. J., and Kelly, Black, Adams, and T. Gr. Kavanagh, JJ., concurred with T. M. Kavanagh, J.
Dethmers, J., concurred in the result.
MCLA §455.201 et seq. (Stat Ann 1963 Rev §21.751 et seq.).
MCLA § 455.206 (Stat Ann 1963 Rev § 21.756).
“Sec. 6e. JFor the purpose of such election all freeholders who have resided weekends in the territory to he affected for a period one month prior to such election and who are qualified voters in any voting precinct of the State of Michigan at general elections, are qualified voters for the purpose of this act.” MCLA § 455.206c (Stat Ann 1963 Eev §2I.756[3]).
For parallel provisions of Michigan Const 1963, see art 1, §§ 1 and 2.
PA 1939, No 133, amending §§ 4 and 6 of PA 1929, No 137, and adding §§ 6a through 6e.
The need for clarification of the term “resort” is demonstrated by the definition of that term in Webster’s Third New International Dictionary:
“1 a: something to which or someone to whom one looks for help: a source of aid or refuge: RESOURCE, EXPEDIENT b: an act of going to or making application (as in seeking aid): RECOURSE 2 a: frequent, habitual or general going or repairing to or visiting b: persons who frequent a place: ASSEMBLAGE, COMPANY, THRONG c (1): a place to which one betakes himself or persons go habitually: a place of frequent assembly: HAUNT (2): a popular place of entertainment or recreation
1t is to be emphasized that the equal protection test is not whether the party claiming unlawful discrimination could possibly have met the questioned requirement, but whether he could reasonably be expected to do so consistent with the object of the legislation. The United States Supreme Court clarified this distinction in Kramer v. Union Free School District (1969), 395 US 621 (89 S Ct 1886, 23 L Ed 2d 583), wherein it held that a childless stockbroker who resided in his parents’ home was denied equal protection by voter qualification legislation requiring voters at school district meetings to be owners (or lessees) of taxable realty, or parents (or guardians) of school children.
MCLA § 455.207 (Stat Ann 1963 Rev § 21.757). — Reporter.
“See. 5. In the construction of the statutes of this state the following rules shall be observed, unless such construction would be inconsistent with the manifest intent of the legislature, that is to say:
“If any portion of an act or the application thereof to any person or circumstances shall be found to be invalid by a court, such invalidity shall not affect the remaining portions or applications of the act which can be given effect without the invalid portion or application, provided such remaining portions are not determined by the court to be inoperable, and to this end acts are declared to be severable.” | [
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Black, J.
(for reversal). The stated and accepted question for review is presented by counsel as follows :
“Did the circuit court err in not allowing plaintiff’s counsel to ask defendant about his driving record after defendant denied that he had ever been arrested and convicted of a crime ?”
The question arose below and is brought here upon this portion of the record. Plaintiff’s counsel is cross-examining:
“Q. Mr. Walter, have you ever been arrested or convicted of a crime?
“A. No.
“Q. No?
“A. What do you mean, ‘arrested or convicted’?
“Q. Of a crime?
“A. Of a crime, no.
“Q. Mr. Walter, on June the 9th, 1963, were you arrested and convicted of a crime of prohibited left turn?
“Mr. Nelson: Oh just a minute. What are you trying to do?
“The Court: Now wait a minute. I will sustain the objection.
“Mr. Nelson: If that is a crime there must be 50 percent of the people walking the street today that are criminals.
“The Court: It is not a crime.
“Mr. Lopatin: Your Honor, I would like to cite a case to the court.
“The Court: Well, it is not going to be permitted in here, whether you cite a case or not. It is not a crime.
“Mr. Lopatin: Your Honor, I am using- — ■
“The Court: You have had a ruling. You have had a ruling. Now go ahead. You are overruled. #A(, AE. Vf W
“Mr. Lopatin: Your Honor, may I approach the bench?
“The Court: About what?
“Mr. Lopatin: About your previous ruling.
“The Court: No, I am not going to change it. It is going to stay just as made.”
For reasons given in Perin v. Peuler (rehearing 1964), 373 Mich 531 and particularly in Van Goosen v. Barlum (1921), 214 Mich 595 and Niedzinski v. Coryell (1921), 215 Mich 498, we hold that the trial judge and Division 1 erred reversibly in refusing to uphold plaintiff’s right to cross-examine as sought by him. Further, we are obliged to register strong disagreement with the application below — to the stated question — of Rule 303 of Professor Morgan’s Model Code of Evidence, and to the seeming adoption by Division 1 of Professor McCormick’s “undue prejudice” test. See the third from last paragraph of the opinion below, 15 Mich App at 364. It is safe to say that one of the primary purposes of cross-examination is that of discrediting either the witness or his testimony, whether he be a party or not, and that it should not be restricted in any instance merely because it creates “substantial danger of undue prejudice.”
There is always danger of prejudice to and against any witness when he is under the necessarily broad latitude of cross-examination. Many times that prejudice is deserving, even if it is “undue.” As for the separated passages of McCormick’s text to which Division 1 referred, they require but contextual reading to ascertain that all are quite out of line with our repeated view that the “probative value” of admissible evidence is for the triers of fact, and that the trial judge has no right to exclude such evidence by interposing his own judgment of “undue prejudice.”
The error committed by the trial judge appears from his twice-repeated summary ruling that the “crime of prohibited left turn” is not a crime. Being a misdemeanor, the violation put to this defendant by the cross-examiner was a crime; yes, even though some currently do regard misdemeanors as mere mischievous trifles. Such has been the law ever since the handing down of People v. Honrahan (1889), 75 Mich 611, 619, 620 (accord People v. Sarnoff [1942], 302 Mich 266, 272), and is presently ordained by § 5 of chapter 1 of onr penal code (MCLA § 750.5; Stat Ann 1962 Rev § 28.195). Hence no question of discretion is before us, none having been exercised. That is patent as one reads the discourse, quoted above, which preceded the vain effort of plaintiff’s counsel to approach the bench.
As for those who allege that minor violations of law by motorists are petty crimes, conviction of which should be excluded from the area of cross-examination for credibility, it need only be said that in this state, as far back as Wilbur v. Flood (1867), 16 Mich 40 the witness has always been permitted to respond by stating the circumstances of his conviction, whether that conviction was brought about by trial or plea. As said in Wilbur at 44, “If there are extenuating circumstances, no one else can so readily recall them.” From time to time we have reiterated this rule, notably in Perin v. Peuler (1964), 373 Mich 531, 545 with citation of the cases, and it makes for selective caution on the part of thoughtful cross-examiners.
To illustrate: The thrust of a cross-examination which depends only upon minor or even non-moving violations of a motorist-witness is apt to generate prejudice the wrong way, for it is difficult in these days to find a juror whose motoring record equals that of the content of Ivory soap. So, when the direct examiner picks up the soft issue on redirect examination and asks for the witness’ explanation or explanations, his opponent has to sit still and take that which is bound to make for effective jury argument later on.
The undersigned vote to reverse and remand for new trial. Costs of all three courts thus far sustained to plaintiff.
T. M. Kavanagh and Adams, JJ., concurred with Black, J.
Kelly, J.
(for affirmance). The only issue presented to the jury was whether plaintiff, at the time he was struck by defendant’s automobile, was crossing a street in the City of Detroit while walking in the crosswalk, or whether he was crossing in an improper manner at a place where defendant had no reason to anticipate plaintiff’s presence.
The only assigned error in this appeal relates to defendant’s cross-examination during the last few closing minutes of a two-day jury trial.
Issues
In an opinion overruling plaintiff’s motion for new trial, Wayne County Circuit Judge Neal Fitzgerald stated:
“The plaintiff is seeking a new trial on the ground that the court failed to permit him to cross-examine the defendant with regard to his driving record in order to test his credibility. * * *
“This objection [defendant’s] was made and sustained because the tone of voice of the attorney for the plaintiff plainly indicated that he was endeavoring to establish that the defendant was a criminal in the sense of a felon, rather than just a simple citizen who had received a traffic ticket. Furthermore, the court does not believe that there was any possible relevancy even to this defendant’s credibility in questioning him about his driving record. The sole issue in this case was whether or not the plaintiff had walked into the side of the defendant’s car, or whether the defendant had struck him as he passed through the crosswalk.
“It is the opinion of this court that fairness requires that no insinuation be made as to defendant’s criminal character; and, furthermore, that any cross-examination to determine credibility must at least be relevant. It seems that at best this ruling of the court would constitute immaterial error, and in no way had any effect whatsoever on the verdict of the jury.”
Plaintiff’s brief filed in this Court refers to the above quoted opinion denying the motion for new trial, as follows:
“It is interesting to observe that the circuit court changed the basis for its ruling, as may be seen from the above quoted materials, between the trial and the time of his opinion denying motion for new trial. The question of the plaintiff’s counsel’s tone of voice was not indicated at the trial. Also, the circuit court opinion questions the relevancy even as to defendant’s credibility; the circuit court does this, however, in the face of prior determinations of the Supreme Court that such is relevant. It is true that the convictions do not go to the ultimate factual questions, but they do go to the credibility of the testimony being submitted to determine the factual questions.”
In affirming the trial court, the Court of Appeals after referring to GCR 1963, 607, stated (pp 363-364):
“The Supreme Court, in Zimmerman [Zimmerman v. Goldberg (1936), 277 Mich 134], distinguished between cross-examination on a prior plea of guilty to the very conduct relating to the civil action, and cross-examination on unrelated misdemeanors, stat ing that the admission of the latter is discretionary. This is the position of the majority of jurisdictions. Wigmore, Evidence (3d ed), §§ 983-987. (See Wilbur v. Flood [1867], 16 Mich 40.)
“Plaintiff has interpreted the court rule to read that admission of such collateral matters for impeachment purposes is mandatory and argues that the court’s exclusion of this evidence amounted to reversible error. In view of the language in Zimmerman, supra, we do • not agree with plaintiff’s interpretation but hold that the admissibility of such collateral matters as involved here, offered solely to test credibility, is within the trial court’s discretion.
“Michigan follows the rule suggested in Rule 303, Model Code of Evidence which permits a trial judge in his discretion to exclude admissible evidence if he finds that its probative value is outweighed by the risk that its admission will create substantial danger of undue prejudice. See McCormick, Evidence, § 42, pp 87-94, and § 152, pp 319-321.”
In conceding that the trial court had discretion, plaintiff claims to this Court that it was a limited discretion, stating:
“The Court of Appeals held in the instant appeal that it is a matter of discretion with the trial judge as to whether or not evidence of former convictions for traffic violations may be admitted for purposes of impeachment. Plaintiff submits, however, that such an interpretation is a too narrow view of the function of Rule 607. Rather, the proper interpretation and application of the rule is that evidence of former convictions for traffic violations is admissible for the sole purpose of impeaching credibility. What is a matter of discretion is whether or not the witness may be further interrogated concerning the facts and circumstances leading up to the arrest and conviction.”
Defendant comments on GCR 1963, 607, as follows:
“Rule 607 refers to four cases as covering circumstances/ wherein evidence of traffic convictions may be admissible. The case of Van Goosen v. Barlum [1921], 214 Mich 595, permitted traffic convictions to be used under MSA 27A.2158 as drawing in question the credibility of the witness. Zimmerman v. Goldberg [1936], 277 Mich 134 sustained the discretionary power of the trial judge to exclude evidence of misdemeanors such as traffic convictions under MSA 27A.2158 but reversed him on the ground that a prior judicial admission of a party-opponent is admissible as a matter of right even though it bo a misdemeanor if it is a guilty plea to a traffic violation charge arising out of the accident involved in the principal case. The other two cases cited, Socony-Vacuum Oil Company v. Marvin [1946], 313 Mich 528 and Cebulak v. Lewis [1948], 320 Mich 710, also concerned a similar prior judicial admission by a party-opponent. None of these cases involved the issue on appeal here, viz: collateral impeachment by cross-examination concerning the prior unrelated conviction of a traffic violation.”
In a brief entitled “Brief of Amicus Curiae on the Admissibility of a Defendant’s Driving Record for Purposes of Impeachment Pursuant to GCR 1963, 607,” filed with permission of this Court, Amicus Curiae, after calling attention that questions of construction have constantly been raised in Michigan courts since the enactment of Rule 607, sets forth its interpretation:
“It was not the intent of the Rule 607 to place traffic offenses on the same level as other crimes or misdemeanors, and give the trial court the discretion, as suggested in Taylor v. Walter, supra, to admit all prior and subsequent traffic convictions to test a witness’ credibility. Van Goosen, and the cases cited therein, make it clear, that a witness’ credibility is to be tested by offenses that truly test what manner of man he has been in the past, crimes involving intent or moral turpitude, ‘antecedents which are really significant,’ as described by Judge Campbell, and not by traffic convictions.
“Rule 607 should be limited in scope to cross-examination for convictions of crimes involving moral turpitude. Admission of prior or subsequent traffic convictions and suspensions for the sole purpose of testing a witness’ credibility in automobile negligence cases, particularly where a defendant has admitted traffic violations, is highly prejudicial and even when precautionary instructions are given the jury, they can only conclude that a defendant driver with that record must have been guilty of negligence in the accident in question.
“Even if a plaintiff is guilty of contributory negligence, it would be difficult for a jury to permit a defendant driver with a long record of convictions and suspensions to escape responsibility.
“In this connection, the language quoted by Judge Levin in Paratore v. Furst [(1969), 15 Mich App 568], is appropriate:
“ ‘* * # Furthermore experience teaches us that juries cannot be depended upon to remove from their conscious and subconscious thinking processes prejudicial facts just because they have been instructed to do so. * * #’
“Even stronger language was contained in an opinion of Justice Jackson in Krulewitch v. United States [1949], 336 US 440, 453, 93 L Ed 790, 69 SCt 716:
“ ‘The naive assumption that prejudicial effects can be overcome by instructions to the jury * * * all practicing lawyers know to be unmitigated fiction.’ ”
Legislative and Judicial History
For the 14 years preceding our 1964 Perin v. Peuler decision (373 Mich 531) and our enactment of G-CR 1963, 607, the legislative mandate decided disputes such as are presented in this appeal.
The 1949 legislature by a 26 to 0 vote in the Senate and a 79 to 0 vote in the House, enacted PA 1949, No 300, known as the Michigan vehicle code. Section 731 thereof provided:
“No evidence of the conviction of any person for any violation of this chapter shall be admissible in any court in any civil action.”
Pour years later the legislature, by a vote of 28 to 1 in the Senate and 69 to 3 in the House, amended this section by PA 1953, No 60, to read:
“No evidence of the conviction of any person for any violation of this chapter or of a local ordinance pertaining to the use of motor vehicles shall be admissible in any court in any civil action.” (MCLA § 257.731; Stat Ann 1968 Rev § 9.2431.)
No one challenged in our Court either the legislative right to pass such an enactment or the provisions of the enactment until another seven years had elapsed and we were called upon to decide Elliott v. A. J. Smith Contracting Company, Inc. (1960), 358 Mich 398.
In that case the owner of a truck was sued because a five-year-old boy darted across the highway into the left rear wheel of the truck and was killed. The truck was being driven by an employee. Defendant-owner, as appellant, claimed that the admission of evidence of the driver’s past driving record violated the above-mentioned legislative enactment.
In holding the evidence was proper and in proving defendant-owner’s personal negligence (p 414) “in entrusting the operation of a truck to a person totally incompetent to handle it,” the majority opinion (five signatures) cited our 1933 opinion in Tanis v. Eding, 265 Mich 94, and in referring to the statute, stated (pp 413-415):
“The principal evils sought to be cured by the statute arise in this way: A driver has been convicted of a criminal offense in connection with a traffic accident. In addition, he is sued civilly with respect to the same accident. There is a danger that the civil jury might, if permitted, consider the criminal conviction as evidence of negligence in the civil action, or, in civil cases, that negligence in a prior case will be regarded as evidence of negligence in a later case. These, principally, are what the statute seeks to prevent. 3 Wigmore, Evidence (3d ed), § 987.
“We do not have such a case. Here the suit is brought not against the driver himself but against his employer on a totally different theory: his personal negligence in entrusting the operation of a truck to a person totally incompetent to handle it. # * *
“The statute does not in terms prevent showing such a record for such purpose and we are not inclined to make out of it a shelter for the unfit, and worse, who are entrusted with powerful trucks in which to roam the highways of this State.”
The minority opinion (three signatures) dissenting, stated (pp 404,405):
“The statute is clear and explicit. The question for the jury was whether at the time of the accident defendant’s driver was operating the truck as a reasonable, prudent man would operate it. Allowing testimony contrary to the express legislative prohibition was prejudicial to defendant.”
The statute next received our consideration in Perin v. Peuler (Feb 1963), 369 Mich 242. In this case, plaintiff, a passenger, suffered injuries when the car in which she was riding collided with one owned by defendant Henry Peuler, Sr., and operated by defendant Henry J. Peuler, his minor son.
After the pretrial statement indicated that the pleadings were complete and the case was at issue, the plaintiff moved to amend her declaration to incorporate a specific charge of actionable negligence on the part of Peuler, Sr., defendant-owner, in entrusting his vehicle to a driver known by him to be incompetent by reason of his past bad record.
The trial court, citing the statute prohibiting proof of previous traffic violations, denied the motion because plaintiff had made not only the father, Henry Peuler, Sr., a party to the suit, but also his son, Henry J. Peuler.
The majority opinion (four signatures) cited our 1960 decision in Elliott v. A. J. Smith Contracting Company, Inc., supra, and, deciding that the trial court committed error in denying the motion to amend, stated (pp 245, 246):
“The problem arises when we consider the provisions of CLS 1956, § 257.731 (Stat Ann 1960 Rev § 9.2431), which reads as follows:
“ ‘No evidence of the conviction of any person for any violation of this chapter or of a local ordinance pertaining to the nse of motor vehicles shall he admissible in any court in any civil action.’
“Is the language of the statute so broad as to bar all evidence with regard to a driver’s past actions? We think not. The statute directs itself to ‘evidence of the conviction’ and nothing further. Conviction implies, and, in fact, is a judgment with regard to an occurrence that has taken place. This is undoubtedly the reason for the statutory prohibition. However, the facts of past occurrences are not barred by the statute. Neither would the results flowing therefrom such as revocation of a driver’s license, Elliott v. A. J. Smith Contracting Co., Inc., supra, but only ‘evidence of the conviction.’
“Conceivably, a whole series of past accidents or other events might be shown if they were of such a nature as to lead to the conclusion that the son was unfit to be at the wheel and the father allowed him to drive, having knowledge that this was so. Liability under such a situation is no more unusual than the liability that might result from entrusting a car to a drunken man or a loaded pistol to an infant.”
The minority opinion (three signatures), pointing, out the difference between the present Perm case and the previous Elliott case because the driver was not included as a defendant in the Elliott case but was in the Perm case, concluded by stating (p 251):
“The legislative mandate [CLS 1956, § 257.731 (Stat Ann 1960 Rev § 9.2431)], using terms ‘any person,’ ‘any court,’ ‘any civil action,’ is very definite and very broad. Any change in this mandate should come from the legislature and not by judicial legislation. The trial court’s denial of plaintiff’s motion to amend did not constitute a failure to use discretion or an abuse of discretion.”
Rehearing was granted and oral arguments were heard on July 17, 1963, and, on this Court’s own motion, a second rehearing was ordered and the third oral argument in this case was held April 9, 1964.
Once more the majority opinion (Perin v. Peuler [Sept 1964], 373 Mich 531) decided that the trial court had committed reversible error in denying plaintiff’s motion to amend her declaration so as to include a count of negligent entrustment but, in so doing, it abandoned the two previous majority interpretations of the statute in Elliott, supra, and in the February 1963 Perin v. Peuler case, and held (p 540): “ ‘Conviction,’ as employed in section 731, means, of course, conviction by a court charged with the duty of hearing and determining complaints for violation of the motor vehicle code or of local ordinances ‘pertaining to the use of motor vehicles,’ ” and that such legislative enactment was an encroachment upon the prerogatives of this Court because (p 541) :
“The function of enacting and amending judicial rules of practice and procedure has been committed exclusively to this Court (Const 1908, art 7, §5; Const 1963, art 6, § 5); a function with which the legislature may not meddle or interfere save as the Court may acquiesce and adopt for retention at judicial will.”
In this Perin v. Peuler opinion (p 543), the Court announced that it was considering with a view toward adoption the Court Buie which is in issue in this appeal.
The Michigan Experience
The reference to credibility in the catehline or heading of GCB 1963, 607, and the language as to credibility in the footnote to Perin v. Peuler (373 Mich 531, 543), has led to an unfortunate result, both with the bench and the bar of Michigan. Many lawyers and judges, without making a detailed and careful analysis of all four cases cited in Rule 607 blithely assume that the purpose of the Court Rule was to enlarge the rules of evidence to make it an independent basis for admission of all traffic convictions solely for the purpose of impeaching a witness’ credibility.
It has almost become the practice on depositions and frequently at trials of automobile negligence cases not involving negligent entrustment, to inquire not only if the witness has been convicted of any felonies and misdemeanors, but to produce a certified copy of the Secretary of State’s motor vehicle operator’s record and take the witness through each speeding, passing, stop sign, et cetera, violation and conviction, citing Rule 607 as authority for impeaching the witness’ credibility for conviction of a crime. No other authority or reason for bringing out the traffic offense is given other than perhaps MOLA § 600.2158 (Stat Ann 1962 Rev § 27A.2158), the statute which permits showing the conviction of a crime for the purpose of drawing in question the credibility of a witness, and Rule 607.
It had always been the practice under Zimmerman v. Goldberg, supra, and earlier cases, when questioning a witness about misdemeanors other than traffic offenses, to have a ruling invoking the court’s discretion as to particular minor crimes, but, with the enactment of Rule 607, traffic offenses seem to have been elevated to a plane above ordinary misdemeanors to the point where court and counsel automatically admit traffic offenses to test credibility, without any thought as to whether they have any real probative value; whether they enable the jury to know what manner of man the witness is; whether they are otherwise admissible, as judicial admis sions, or impeach by proof of prior inconsistent statements.
To this we call attention to the fact that automobile negligence cases comprise a major segment of an overloaded court docket. In calendar year 1969, Wayne County’s docket shows that 4,260 automobile negligence cases accounted for 39% of jury trials in that county; in Oakland County 1,136 automobile negligence cases constituted 36% of jury trials; in Genesee County 625 such cases represented 31% of its jury trials; in Macomb County 803 automobile negligences cases constituted 39% of the total jury trials, and in Ingham County 378 negligence cases were 38% of the jury trials. The survey of the entire state shows that the 9,579 automobile negligence cases for the calendar year 1969 constituted 30% of all jury trials.
The Majority View
Evidence of acts or incidents to establish a character or disposition of negligence is almost unanimously held to be improper. This thought is expressed in 29 Am Jur 2d, Evidence, § 316, p 362, as follows:
“Although the habit of doing a thing might seem naturally to have some probative value indicating that on a particular occasion the thing was done as usual, evidence of the general habits of a person is not, according to most courts, admissible for the purpose of showing the nature of his conduct upon a specific occasion. Accordingly, in actions for negligence the courts generally deny the admissibility of evidence of the reputation of the defendant for negligence, his habits of negligence, his habitual negligent conduct, etc., upon the issue of his negligence at the time of the injury complained of, especially where there are eyewitnesses who testify to the actual facts concerning the accident or injury. Nor, as a general rule, is it competent for the defendant to show his own reputation for prudence, skill, or care, upon the issue of his care or negligence upon a particular occasion. The fact that the defendant is charged with wilful negligence does not change the rule that his general reputation for care is inadmissible.”
The Handbook of the National Conference of Commissioners on Uniform State Laws (1953), Uniform Rules of Evidence, Rule 48, p 191, expresses it in these words:
“Character Trait for Care or Skill — Inadmissible to Prove Quality of Conduct. Evidence of a trait of a person’s character with respect to care or skill is inadmissible as tending to prove the quality of his conduct on a specified occasion.”
20 ALR2d 1217, under annotation “Cross-examination of automobile driver in civil action with respect to arrest or conviction for previous traffic offenses,” states:
“Generally speaking, the courts have refused to permit the cross-examination of a driver in civil actions as to prior arrests or convictions for traffic offenses on the ground that the introduction of such evidence would lead to a consideration of collateral issues having no bearing on the question of the driver’s negligence in the accident under consideration.”
The same thoughts are also expressed in 1 Jones, Evidence (5th ed), § 190, p 331, 4 Callaghan’s Michigan Pleading & Practice (2d ed, 1964), § 36.269, pp 187,188; American Law Institute, Model Code of Evidence, chapter 4, Rule 306, pp 184, 185.
We have surveyed the ten most populous states of the Union as well as other states having statutes similar to Michigan’s.
Our survey discloses that the New York, California, Florida, Utah, Arkansas, Colorado, Iowa, and Minnesota legislatures have enacted statutes either similar to the statute enacted by our Michigan legislature barring proof of previous motor vehicle convictions, or having the same effect. When called upon, the courts of those states have enforced and have not repudiated those statutes.
Our research further discloses that Illinois, Connecticut, Pennsylvania, Texas, New Jersey and Alabama prohibit the introduction of prior motor vehicle convictions to impeach credibility upon common-law principles.
Of the ten most populous states, only Indiana unreservedly permits the introduction of traffic offenses to impeach a witness’ credibility. McMullen v. Cannon (1958), 129 Ind App 11 (150 NE2d 765); Andrews v. McNaughton (1967), 141 Ind App 1 (226 NE2d 167).
In the case of Ando v. Woodberry (1960), 8 NY2d 165 (203 NYS2d 74, 168 NE2d 520), the Court of Appeals of New York considered plaintiff’s (a motorcycle policeman) claim for damages for injuries received in a collision with defendant’s automobile; defendant’s driver was given a summons which charged him with failing to make a proper turn and failing to signal before turning, and he subsequently pled guilty to both charges; plaintiff attempted to prove defendant driver’s plea of guilty in the traffic court on the theory that it constituted an admission, but upon defendants’ objection the trial court excluded the proffered evidence. The jury returned a verdict in favor of defendants and the Appellate Division (two justices dissenting) affirmed the judgment subsequently rendered.
The Court of Appeals, in reversing the Appellate Division and ordering a new trial, stated (pp 168, 169):
“[W]hen [defendant-driver] pleaded guilty to the traffic infractions charged against him, his plea of guilty amounted to a statement or admission by him that he did the act charged. As such, it should be treated like any other admission or confession, and subject to the same rules relating to its weight and effect. # * *
“Whatever else this provision [the statute] may mean, it is clear that it is directed solely against the use of a conviction of a traffic infraction to ‘affect or impair * * * credibility as a witness’ of the person convicted and not against the use of a plea as evidence in chief. The statute does no more than restate the rule of the common law that a prior conviction may be shown to attack the credibility of a witness only if it was a conviction of a crime. * # *
“The legislation simply represented a recognition of the fact that most traffic violations do not involve the degree of moral turpitude associated with crime.” (Emphasis in original.)
We quote from the Supreme Court of Pennsylvania’s decision in Loughner v. Schmelzer (1966), 421 Pa 283, 28A-286 (218 A2d 768) :
“The sole question in this case is a narrow one. In an action of trespass for damages resulting from a collision of two automobiles is it a reversible error to admit, over plaintiffs’ objection, evidence that the plaintiff was convicted before the Quarter Sessions Court of a violation of The Vehicle Code # # # ¶
m* * * we recognize a valid existing distinction in cases involving the record of conviction of relatively minor matters such as traffic violations, lesser misdemeanors, and matters of like import. Especially in traffic violations, expediency and convenience, rather than guilt, often control the defendant’s “trial technique” * * * . Compare also the effect given in Pennsylvania to a plea of nolo contendere.’ # * *
“We have held that an important distinction exists between traffic violations and lesser misdemeanors on the one hand and felonies and their consequences on the other hand. * * *
“Our conclusion is strengthened by The Vehicle Code, § 1211, supra, which prohibits the introduction in future civil actions of pleas of guilty and pleas of nolo contendere, or payment of fines in summary conviction cases. We see no valid distinction between a guilty plea and a verdict of guilty in summary conviction cases. In short, we hold that the evidence of plaintiff’s conviction of a violation of The Vehicle Code was inadmissible in this civil action.”
Further, the Minnesota Supreme Court, in commenting upon a statute very similar to ours, in Warren v. Marsh (1943), 215 Minn 615, 621, 622 (11 NW2d 528), stated:
“It is a matter of common knowledge, and was so at the time of the enactment of the statute in question, that often citizens will plead guilty to minor offenses under the traffic act rather than suffer loss of valuable time and the expense of a trial. Most of the violations under the act, including the charge placed against plaintiff, are merely misdemeanors and are mala prohibita and not mala se. No moral turpitude is involved. Intention to commit a crime is not an ingredient of the offense. Because of that fact, drivers more readily plead guilty when payment of only a small fine is involved and when a conviction is generally not considered a reflection on one’s character. Aware, no doubt of these circumstances and also of the frequent occurrence of procedure similar to that disclosed in the instant case, the legislature apparently concluded that a plea of guilty should not prejudice one in any way in any civil proceeding, even one involving the same facts out of which the violation of the traffic act arose. Moreover, distinctly different issues arise in the civil case. The issues of negligence, contributory negligence, and the proximate relation of the violation of the statute to the accident are not involved in the criminal proceeding, whereas they are important issues in the civil case.”
The superior reasoning of these cases, buttressed by our history and experience in Michigan, leads us to conclude that Michigan should no longer remain in the minority.
Conclusion
We affirm the Court of Appeals and the circuit court. In so doing, it is apparent that reconsideration must be given to GrCR 1963, 607, in order to give a definite pronouncement as to what extent, if any, proof of previous convictions can be introduced in determining automobile negligence and other civil cases.
T. E. Brennan, C. J., and Dethmers, J., concurred with Kelly, J.
T. G-. Kavanagh, J., did not sit in this case.
See the outgrowth of Perin v. Peuler (footnote at 543), that is, GOB 1963, 607 adopted February 2, 1965.
The paragraph:
“Michigan follows the rule suggested in Rule 303, Model Code of Evidence which permits a trial judge in his discretion to exclude admissible evidence if he finds that its probative value is outweighed by the risk that its admission will create substantial danger of undue prejudice. See McCormick, Evidence, § 42, pp 87-94, and § 152, pp 319-321.”
Taylor v. Walter (1968), 15 Mich App 361. Appeal granted (1969), 382 Mich 773.
“During the trial of civil actions the rules of evidence approved in Van Goosen v. Barlum, 214 Mich 595; Zimmerman v. Goldberg, 277 Mich 134; Socony Vacuum Oil Co. v. Marvin, 313 Mich 528; Cebulak v. Lewis, 320 Mich 710, and re-enacted by PA 1961, No 236, § 600.2158, shall prevail, anything in section 731 of the Michigan Vehicle Code (CLS 1961, § 257.731) to the contrary notwithstanding.” 374 Mich xv.
This case presents the question whether defendant could be held liable for negligence of one who borrowed his ear but who was not an agent or servant of the defendant, and, in ruling under the entrustment theory that the defendant could be held liable, our Court stated (pp 96-97):
“The precise question is new in this State. The overwhelming weight of authority supports the following:
“ ‘The general rule that an owner of an automobile is not liable for the negligence of one to whom the automobile is loaned has no application in cases where the owner lends the automobile to another, knowing that the latter is an incompetent, reckless, or careless driver, and likely to cause injuries to others in the use of the automobile; in such cases the owner is held liable for injuries caused by the borrower’s negligence on the ground of his personal negligence in intrusting the automobile to a person who he knows is apt to cause injuries to another in its use.’ 36 ALR 1148.
“See, also 42 CJ p 1078; 68 ALR 1013, Babbitt on Motor Vehicle Law (4th Ed.), § 1315.
“The rule is sound and is applicable here.”
New York: Vehicle and Traffic Law, § 155; California: Vehicle Code, §§40832, 40834; Florida: FSA §317.112; Utah: TJCA §§ 41-6-170,41-6-171; Arkansas: ASA §§ 75-1011, 75-1012; Colorado: CMS (1963), §§ 13-5-137, 13-5-138; Iowa: ICA §§ 321.489, 321.490; Minnesota: MSA § 169.94.
Ando v. Woodberry (1960), 8 NY2d 165 (203 NYS2d 74, 168 NE2d 520); Shmatovich v. New Sonoma Creamery (1960), 187 Cal App 2d 342, 344, 345 (9 Cal Rptr 630); Rousseau v. West Coast Housemovers (1967), 256 Cal App 2d 878 (64 Cal Rptr 655); Dixie Culvert Manufacturing Company v. Richardson (1951), 218 Ark 427 (236 SW2d 713); Garver v. Utyesonich (1962), 235 Ark 33 (356 SW2d 744); Book v. Datema (1964), 256 Iowa 1330 (131 NW2d 470); Warren v. Marsh (1943), 215 Minn 615 (11 NW2d 528); Souden v. Johnson (1963), 267 Minn 151 (125 NW2d 742).
Lingle v. Bulfer (1926), 322 Ill 606, 611 (153 NE 589); Heating Acceptance Corporation v. Patterson (1965), 152 Conn 467 (208 A2d 341); Loughner v. Schmelzer (1966), 421 Pa 283 (218 A2d 768); Keough v. Republic Fuel and Burner Co., Inc. (1955), 382 Pa 593 (116 A2d 671); Compton v. Jay (Tex, 1965), 389 SW2d 639; Huff v. C. W. Goddard Coal and Supply Company (1930), 106 NJL 19 (148 A 175); Dean v. Johnston (1968), 281 Ala 602 (206 So 2d 610). | [
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Coleman, J.
Defendants Romulus Community Schools and the City of Romulus appeal the Court of Appeal’s affirmance of summary judgments against them entered by the Wayne County Circuit Court for plaintiffs Avis Rent-a-Car System, Inc. (Avis) and The Hertz Corporation (Hertz).
Under legislation enacted by 1970 PA 174, Romulus, the Romulus Community Schools and Wayne County have taxed Avis and Hertz for their operations at the Wayne County Metropolitan Airport (Metro). In each case, the trial courts found plaintiffs exempt and 1970 PA 174 unconstitutional.
The dispositive issues are whether 1970 PA 174 is an act in violation of Const 1963, art 4, § 29, or art 9, § 3 or both, and, if so, whether the act is severable. (MCLA 211.181; MSA 7.7[5]).
We find that subsection (2) of 1970 PA 174 is unconstitutional. We also find that it is severable because the balance of the act remains operable.
It is thus unnecessary to detail the factual differences between the Avis and Hertz cases.
I
1945 PA 327, the Aeronautics Code, permitted a political subdivision "to confer the privileges of concessions”. This was amended by 1956 PA 163 to permit the subdivision "to enter into * * * grants of privileges of concessions with any person * * * for the operation, use or occupancy, either exclusively or in common with others, of all or any part of * * * any buildings or structures”. (See MCLA 259.133; MSA 10.233.)
Avis and Hertz were granted concessions at Metro each "in common with two others”. They also leased some airport land and built service buildings prior to passage of PA 174.
1953 PA 189 concerned taxing the lessees or users of tax-exempt property. They were "subject to taxation in the same amount and to the same extent as though the lessee or user was the owner of such property”. An exception was made "where the use is by way of a concession in or relative to the use of a public airport, park, market, fair ground or similar property which is available to the use of the general public”.
In 1966, Romulus tried to tax Avis for its use of the land at Metro. After Avis filed a motion for summary judgment, our opinion in Kent County v Grand Rapids, 381 Mich 640; 167 NW2d 287 (1969), was issued. The Court said if the agreement between the airport authority and the business "fully met the requirements of the aeronautics code” and granted a concession, the property was tax exempt. Avis was granted a summary judgment.
Romulus filed another suit alleging the service building to be personal property. Avis won a consent judgment in July 1972. Hertz also won a challenge before the State Tax Commission in 1970 under act 189.
Between the two Avis court actions, Romulus is said to have sought help from the Legislature. 1970 PA 174 added a section to PA 189 applicable to concessions only in airports and only in "counties of over 1,000,000”.
Romulus again taxed Avis and Hertz. The school district and county intervened as defendants in the circuit court cases commenced thereafter by plaintiffs.
Avis and Hertz claimed that PA 174 violated art 4, § 29 which prohibits the passing of any "local or special act in any case where a general act can be made applicable”. Determining "whether a general act can be made applicable shall be a judicial question”.
The trial court in Avis said legislation can make population classifications which "have a. reasonable relation to the purpose for which the statute is enacted”. The court could "see absolutely no reasonable relationship between the population of a county in which an airport is located and the entitlement of a concessionaire in that airport to tax-exempt status under Act 189”. Noting that Romulus had cited statistics concerning airport trafile, the court said this "proved the inherent defect in Act 174” because "there is no correlation between the county in which an airport is located and the traffic which passes through the airport”.
The court also discussed Const 1963, art 9, § 3 which requires that "[ejvery tax other than the general ad valorem property tax shall be uniform upon the class or classes on which it operates”. The court said PA 189 created "a single class”. Act 174 "takes this single class and creates a subclass of airports alone” and further creates a "subclass of airports located in counties of one million people”. (Emphasis in original.)
The result would permit Romulus "to collect taxes from a single concessionaire at a single airport in a single county, while no other local unit of government can collect from similar concessionaires at airports or other like property in any other county of this state”. The court said it was "shown absolutely no basis for the Legislature having created a subclass of a subclass of a class”.
The Court of Appeals affirmed the lower court’s constitutional findings. Regarding Const 1963, art 4, §29, it said "[t]he decisive issue * * * is whether the population classification in 1970 PA 174 has a reasonable relationship to the purpose of the statute”. It adopted "the well-reasoned opinion of the circuit judge” on this point.
The Court also agreed that Const 1963, art 9, § 3 was violated. The Court said there "must be a reasonable basis for a classification which seeks to treat property differently for tax purposes”. The Court was "unable to discern real or substantial differences which reasonably suggest the propriety of substantially different treatment as between Wayne County airports and airports in other counties”.
II
We agree with the trial court and Court of Appeals that Const 1963, art 4, § 29 is violated by 1970 PA 174. It is a local act passed in a case where a general act could be applied.
In Attorney General ex rel Dingeman v Lacy 180 Mich 329; 146 NW 871 (1914, the Legislature wanted to establish a domestic relations court "in each county * * * which has a population of upwards of two hundred fifty thousánd”. Wayne was the only county that qualified. It was "certain that the law can never become operative in a vast majority of the counties”. Quoting from a treatise, the Court said population classification "must have a reasonable relation to the subject matter of the legislation, and must furnish some fairly apparent reason for legislation differing from that applicable to other municipalities having a substantial difference in population”. A population classification "can never be sustained where it is, as in the case at bar, a manifest subterfuge”.
The plaintiff in Hayes v Auditor General, 184 Mich 39; 150 NW 331 (1915), was a county agent for Kent County. Agents in "counties having a population of one hundred fifty thousand or more” were specially compensated. Only two counties qualified — Wayne and Kent. The Auditor General refused to pay saying the legislation was local in a case where a general statute should have been passed.
The Court ordered payment. It distinguished Lacy. The county agent was a state officer performing a state function. The agent dealt with problems "practically limited to communities with congested population”. Counties greater than 150,-000 "must have congestion of population, and must * * * have numerous cases * * * requiring the services of a county agent”.
The Legislature might have considered that "it costs much more to live in a large town than in the smaller counties”. The Court noted that others, such as probate judges, had their salary based on county population. Also see Chamski v Wayne County Board of Auditors, 288 Mich 238; 284 NW 711 (1939) and Tribbett v Village of Marcellus, 294 Mich 607; 293 NW 872 (1940).
The plaintiff in Monroe v Judge of Police Court of Grand Rapids, 311 Mich 76; 18 NW2d 371 (1945), pled guilty in the Grand Rapids police court which was established before the Legislature was prohibited from passing local acts. After the prohibition was effective, an act was passed preventing the taking of appeals from police courts in cities "of a population of not less than one hundred thousand * * * nor more than two hundred thousand”. Plaintiff said this was a local act.
The Court agreed. It was "unable to see any distinction between the needs incident to this phase of the law in cities having a population between 100,000 and 200,000 and other cities having a population slightly less than 100,000 or more than 200,000”. The Court found there was not "a just basis of classification such as would sustain the provision”.
In Wayne Circuit Judges v Wayne County, 383 Mich 10; 172 NW2d 436 (1969), the Court considered a "legislative design for financing probation services”. It did "not apply to probation departments heretofore established in any county of over 500,000 population”. The Court said the legislation was "to discharge the state’s responsibility for the correction and rehabilitation of criminals”. If population was related to this "it would be that in the populous areas * * * there is a greater need for * * * the state’s resources”. The Court could not "reconcile the legislative intent * * * with the legislative scheme”. The legislation had a "discriminatory thrust” and was unconstitutional.
1970 PA 174 limits the application of the tax exemption granted by 1953 PA 189 by requiring the concessionaire to meet "basic tests”. This is appropriate. However, the legislation has a discriminatory thrust. It is applicable only to airports and only to airports in counties with more than 1,000,000. We require that a reasonable relationship between those qualifications and the limiting of a tax exemption be demonstrated. It has not been demonstrated in this case.
The legislative purpose in 1970 PA 174 was to withdraw a tax exemption from concessions at airports located in counties over 1,000,000 people (only Wayne County). The legislative conclusion must have been that these airports will attract concessions without the lure of a tax exemption. The attraction, however, is not a function of county population. It depends on the volume of traffic flowing through the airport. Under this legislation, the exemption is withdrawn not only from concessions at Metro but also could apply to the other two Wayne County airports — Detroit City and Grosse lie Municipal Airport. It is diffi cult to "reconcile the legislative intent * * * with the legislative scheme”.
The trial court in Avis furnished another example why county population is not reasonably related to the withdrawing of a tax exemption from airport concessions in counties over 1,000,000 population. Willow Run Airport, once the state’s principal commercial airport, straddles county lines. Its terminal facilities are in Washtenaw County. Other portions, such as runways, are in Wayne County. Because Washtenaw County has less than 1,000,000 people, concessions at Willow Run enjoy a tax exemption.
The trial court in Hertz noted that the defendants had supplied "figures on emplanement and deplanements which show that the overwhelming majority of Michigan’s passenger air traffic takes place at Metropolitan Airport”. Defendants said this was because Metro "is in the state’s most populous county”. The court said that the airport traffic was not related to or dependent on Wayne County’s population. The trial court in Avis said "there is no correlation between the county in which an airport is located and the trafile which passes through the airport”.
We do not see a reasonable relationship between the withdrawing of a tax exemption from airport concessions and the size of the county where the airport is located. We believe the legislation is a local act in an area where a general act could be made applicable.
This litigation concerns MCLA 211.181(2); MSA 7.7(5)(2). By holding it unconstitutional, we do not mean to upset the exemption granted by MCLA 211.181(1); MSA 7.7(5)(1) which can effectively operate without subsection (2). MCLA 8.5; MSA 2.216 says if a portion of legislation is invalidated "such invalidity shall not affect the remaining portions * * * of the act which can be given effect without the invalid portion * * * provided such remaining portions are not determined by the court to be inoperable, and to this end acts are declared to be severable”. We find the sections involved to be severable. MCLA 211.181(1); MSA 7.7(5)(1) remains effective.
Ill
The lower courts have said that 1970 PA 174 violates Const 1963, art 9, § 3. Because we have agreed that Const 1963, art 4, § 29 was violated by the act, this issue need not be further discussed.
Affirmed. No costs, this being a public question.
Kavanagh, C. J., and Levin, Fitzgerald, Ryan, and Blair Moody, Jr., JJ., concurred with Coleman, J.
Williams, J.
(for constitutionality). In my opinion 1970 PA 174 is constitutional. To begin with, it is elementary and basic that a legislative act will be held constitutional if it is at all possible.
In this instance, the majority would hold 1970 PA 174 unconstitutional. Their reasoning is that the size of the county in which an airport lies has no rational relationship to whether or not there should be exception to the airport exception to the 1953 PA 189 tax.
The initial purpose of 1953 PA 189 was to expand the tax base by making the users and lessees of public land taxable. The exemptions contained therein were to encourage the operations of concessions at public places where services might not be forthcoming without such a tax concession. 1970 PA 174 amended 1953 PA 189 merely by narrowing those concessions exempted in certain cases where the airports are located in counties of 1,000,000 or more population.
One might agree that the particular size of the county in which an airport lies is by itself no reason why the 1953 PA 189 tax should apply, if airports in other counties are tax free. The reasonableness of taxation must bear some relationship to the ability to pay the tax over against the purpose of the airport exception itself. Since there may be small, low-traffic airports as well as large, heavy-traffic airports in a large county, the size of the county by itself may not provide sufficient rationale for the subclassification.
But this size-alone analysis overlooks that the Legislature did not solely limit its description of the subclassification to the size of the county. It prescribed in addition three "basic tests”, the first and pertinent one of which reads as follows:
"(a) It [concessionaire] shall have the exclusive right and duty to render a necessary or customary service * * »}s >>
The obvious purpose of this test is to exclude from taxation concessionaires which have to be induced by "exclusive” contract to render service at the airport and hence make it more viable, on the one hand, while, on the other hand, permitting taxation where the business is so attractive, and tax supportable, that more than one concessionaire seeks to and does "work” the airport.
The rationale of 1970 PA 174 "makes sense”. It exempts concessionaires from taxation where such exemption is necessary to induce airport service. It does not exempt concessionaires where exemption is not necessary to induce service. The Legislature therefore cannot be charged with an unreasonable or irrational classification or tax policy, because they based their classification on ability to pay, a normal tax classification.
"Exclusive right and duty” contractual provisions enjoyed simultaneously by several concessionaires are statutorily irrelevant, because whatever they may mean to the contractors, they cannot change the fact that where more than one person has concession rights he does not "have the exclusive right and duty to render a necessary or customary service” under the statute.
In conclusion, 1970 PA 174 is constitutional, and since the concessionaires in these two cases fall within the taxable subclassification of 1953 PA 189, as amended by 1970 PA 174, they are liable for the appropriate taxes.
The Court of Appeals should be reversed.
The county does not appeal.
"The legislature shall pass no local or special act in any case where a general act can be made applicable, and whether a general act can be made applicable shall be a judicial question. No local or special act shall take effect until approved by two-thirds of the members elected to and serving in each house and by a majority of the electors voting thereon in the district affected. Any act repealing local or special acts shall require only a majority of the members elected to and serving in each house and shall not require submission to the electors of such district.”
"The legislature shall provide for the uniform general ad valorem taxation of real and tangible personal property not exempt by law. The legislature shall provide for the determination of true cash value of such property; the proportion of true cash value at which such property shall be uniformly assessed, which shall not, after January 1, 1966, exceed 50 percent; and for a system of equalization of assessments. The legislature may provide for alternative means of taxation of designated real and tangible personal property in lieu of general ad valorem taxation. Every tax other than the general ad valorem property tax shall be uniform upon the class or classes on which it operates.”
"(1) When any real property which for any reason is exempt from taxation is leased, loaned or otherwise made available to and used by a private individual, association or corporation in connection with a business conducted for profit, except where the use is by way of a concession in or relative to the use of a public airport, park, market, fairground or similar property which is available to the use of the general public, the lessees or users thereof shall be subject to taxation in the same amount and to the same extent as though the lessee or user were the owner of such property. The foregoing shall not apply to federal property for which payments are made in lieu of taxes in amounts equivalent to taxes which might otherwise be lawfully assessed or property of any state-supported educational institution, enumerated in section 4 of article 8 of the constitution.
"(2) In counties of over 1,000,000 in order to determine whether a lessee or user at an airport is a concessionaire within the provisions of this act, and whether the use of real property used in connection with the concession operation is essential to the concession operation so as to come within the exception contained in this act, it is required that the following basic tests be met:
"(a) It shall have the exclusive right and duty to render a necessary or customary service, based on a contract entered into requiring that it render goods or services either to the grantor or to the general public on behalf of the grantor;
"(b) The service rendered must be available to the general public on a nondiscriminatory basis;
"(c) Use of real property in connection with a service concession must be a necessary and integral part of the concession operation.”
Compare Detroit v Tygard, 381 Mich 271; 161 NW2d 1 (1968), where the agreement did not give a concession.
The Court of Appeals used its Aras decision to affirm the summary-judgment granted Hertz.
The legislation must also be applicable to other counties which may qualify. In 1927, the Legislature established "a civil service commission in and for counties having a population of 300,000 or more”. Only Wayne qualified "and no provision is made in the act by which it will become effective in other counties as they attain the required population”. The Court in Mulloy v Wayne County Board of Supervisors, 246 Mich 632; 225 NW 615 (1929), said this was a local act. The Court said "by its very terms, it is made clear it was not intended the act should be put in force in” counties other than Wayne. The Court would reach "[n]o other conclusion * * * than that it is local legislation”.
Compare Sullivan v Graham, 336 Mich 65; 57 NW2d 447 (1953), where the legislation required residential builders in counties of more than 250,000 people to obtain licenses. When passed, the legislation applied to four counties. It would include others that grew to 250,000. The Court said it was "more inclined to uphold the act where there is a reasonable relationship between the restriction and the population”. Also see The Irishman’s Lot, Inc v Secretary of State, 338 Mich 662; 62 NW2d 668 (1954). | [
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T. M. Kavanagh, J.
Appellant seeks reversal of the decision of the Court of Appeals reversing the Clinton County Circuit Court’s declaratory judgment that Zurich Insurance Company was not obliged to defend its insured, Harry Rombough, in an automobile negligence action pending in Clinton County Circuit Court.
On September 9, 1965, one Richard Latz filed the above referenced automobile negligence action. Rombough was named as codefendant under Michigan’s “owner-liability” statute on the basis of allegations that he owned the vehicle with which Latz’ car had collided and that said vehicle was being driven at the time of the accident by codefendant Eugene Willhite with Rombough’s knowledge and permission.
At the time of the accident which precipitated Latz’ lawsuit, Rombough carried liability insurance known as “bobtail coverage” with Zurich Insurance Company. The industry uses this term to describe policies covering only “empty” vehicles, such as those on return runs after making deliveries. See, Ayers v. Kidney (CA 6, 1964), 333 F2d 812, 813. Rombough’s policy carried an endorsement, exclusion clause (b), which stated that it did not apply while insured vehicles were “used to carry property in any business.” The vehicle involved in the accident was one of a fleet of vehicles scheduled under the policy. Other pertinent provisions are:
“II. Defense, Settlement, Supplementary Payments. With respect to such insurance as is afforded by this policy for bodily injury liability and for property damage liability, the company shall:
“(a) defend any suit against the insured alleging such injury, sickness, disease or destruction and seeking damages on account thereof, even if such suit is groundless, false or fraudulent; hut the company may make such investigation, negotiation and settlement of any claim or suit as it deems expedient;”. (Emphasis supplied.)
Rombough, through attorneys furnished by Zurich Insurance Company, filed an answer denying both that he owned the vehicle involved at the time of the accident and that it was being driven with his knowledge and permission. In support thereof, he alleged that on December 3, 1963 — 17 days prior to the accident — he had transferred title of the vehicle and had removed the license plates. The plates were subsequently stolen from the defendant and replaced on the vehicle. The title transfer had not been completed by the Secretary of State’s office at the time of the accident.
After the filing of the answer, Zurich Insurance Company caused an investigation to be made and discovered that at the time of the accident the vehicle was driven by Willhite, who was engaged in the business of hauling a trailer which contained barrels of Phillips degreasing fluid. Zurich Insurance Company filed a petition for a declaratory judgment in the Clinton County Circuit Court claiming that under the exclusion clause (b) in the contract there was no coverage and that it consequently did not have any duty to represent the defendant.
Defendant Rombough filed an answer asserting that under § 11(a) of the contract the plaintiff had the duty to represent the defendant in the Lats case irrespective of the coverage stated in the policy. He alleged that the Lats suit was groundless under § 11(a), since he had transferred the title of the vehicle and it was being driven at the time of the accident without his knowledge or consent.
The trial judge held that Zurich Insurance Company had no duty to defend Rombough and entered judgment accordingly. Rombough appealed, and the Court of Appeals reversed the judgment of the trial court and held that Zurich Insurance Company had a duty to represent the defendant in the original action. 19 Mich App 606. Plaintiff-appellant Zurich Insurance Company is here on leave granted. 383 Mich 758.
The sole question is whether Zurich Insurance Company had an obligation to represent defendant Rombough under the terms of his liability policy in the damage suit of Latz v. Willhite and Rombough, which suit is still pending in the Clinton County Circuit Court.
The relationship between the exclusion clause (b) and § 11(a) of the policy results in some uncertainty as to the insurer’s duties. A simple addition to the language of § 11(a) or the exclusion clause could have eliminated the uncertainty. Zurich Insurance Company was the drafter of the policy. It is elemental insurance law that ambiguous policy provisions must be construed against the insurance company and most favorably to the premium-paying insured.
Justice Tobriner, writing for the California Supreme Court in the case of Gray v. Zurich Insurance Company (1966), 65 Cal 2d 263 (54 Cal Rptr 104, 419 P2d 168), construing similar provisions, said:
“In interpreting an insurance policy we apply the general principle that doubts as to meaning must be resolved against the insurer and that any exception to the performance of the basic underlying obligation must be so stated as clearly to apprise the insured of its effect.
“These principles of interpretation of insurance contracts have found new and vivid restatement in the doctrine of the adhesion contract. As this court has held, a contract entered into between two parties of unequal bargaining strength, expressed in the language of a standardized contract, written by the more powerful bargainer to meet its own needs, and offered to the weaker party on a ‘take it or leave it basis’ carries some consequences that extend beyond orthodox implications. Obligations arising from such a contract inure not alone from the consensual transaction but from the relationship of the parties.
“Although courts have long followed the basic precept that they would look to the words of the contract to find the meaning which the parties expected from them, they have also applied the doctrine of the adhesion contract to insurance policies, holding that in view of the disparate bargaining status of the parties we must ascertain that meaning of the contract which the insured would reasonably expect.” (Pp 269,270.)
Similarly, the rule in Michigan is set forth in City Poultry & Egg Co. v. Hawkeye Casualty Co. (1941), 297 Mich 509, where the insurance company claimed that under an exclusion in the policy it was not liable for the payment of damages for injuries received by a person or persons being transported by any commercial vehicle described therein. It contended the obligation to defend referred only to suits against the plaintiff in which the insurance company would be liable to pay a judgment rendered against plaintiff. The policy contained a clause similar to the instant case which required it to defend groundless, false, or fraudulent suits. This Court said (p512):
“The insurance company could have limited its obligation to the defense of suits where, on the facts, the insurance company was liable to the insured in case of judgment. That, however, is not this case. Here, the undertaking to defend is absolute,”
Appellant insurance company relies upon the case of Duval v. Aetna Casualty & Surety Co. (1943), 304 Mich 397, where Justice Wiest, writing* for the Court, distinguished the Duval case from the case of City Poultry & Egg Co. v. Hawkeye Casualty Co., supra, by saying (p 400):
“In that case the policy expressly provided that the insurance company should defend suits against the insured ‘even if such suit is groundless, false, or fraudulent.’ ”
He pointed out that the coverage in Duval did not contain such a clause and, therefore, was not ambiguous.
Justice Kelly, writing for the Court in Burton v. Travelers Insurance Company (1954), 341 Mich 30, without discussing whether the insurance contract was ambiguous, cited Duval, supra, as authority for his holding that defendant was required only to defend lawsuits for injuries covered by the insurance policy. Justice Kelly did not discuss the case of City Poultry & Egg Co. v. Hawkeye Casualty Co., supra.
We conclude by adopting the reasoning quoted from Gray v. Zurich Insurance Co., supra, and applying the Michigan rule set forth in City Poultry & Egg Co. v. Hawkeye Casualty Co., supra, as controlling the instant case. The policy of insurance involved in this case is sufficiently ambiguous to require defense in the Latz v. Willhite and Rombough case by Zurich Insurance Company. Our decision does not extend the insurer’s duty to defend without limits. The duty extends only to the defense of actions of the nature and kind covered by the policy. In this connection, we again note that Latz’ complaint alleged bodily injuries caused by collision with a vehicle allegedly owned by Rombough.
Although the above disposes of the instant case, we feel compelled to speak out against a practice which has unnecessarily delayed the trial of the law action brought by plaintiff Latz in the circuit court for the County of Clinton on September 9, 1965. Regardless of whether Latz is entitled to a judgment for damages, the progress of his case should not have been stopped while a nonparty insurer contests, in a separate action, its obligation to defend defendant Rombough.
The declaratory judgment procedure was not intended as a weapon to be used against a plaintiff in this manner. Such practices add to the civil case backlogs and waste of judicial time. Such actions are causing the public to rapidly lose confidence in the judiciary’s ability to handle litigation.
For the above listed reasons we are of the opinion that the evils occasioned by delay of the main action will in most cases far outweigh the benefit to the insurer of a prior judicial declaration of its obligations to the' defendant. Accordingly, to delay trial of plaintiff Latz’ action while processing a declaratory judgment may well constitute an abuse of judicial discretion.
Plaintiff-appellant Zurich Insurance Company shall defend Rombough in the Latz case and the circuit court for the County of Clinton is instructed to grant immediate trial in the negligence action.
The decision of the Court of Appeals is affirmed. Defendant Rombough shall have costs.
T. E. Brennan, C. J., and Dethmers, Black, Adams, and T. Gr. Kavanagh, JJ., concurred with T. M. Kavanagh, J.
Kelly, J., did not sit in this case.
Clinton Civil Case No 335; pending.
MCLA § 257.401 (Stat Ann 1968 Bev §9.2101).
The availability of declaratory relief when another adequate remedy exists is limited by our rule to “cases where it is appropriate.” GOR 1963, 521.3. | [
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Request for appointment of counsel granted. Defendant shall file with Kalamazoo Circuit Court an affidavit concerning his present financial status (see guidelines at 387 Mich xxxi). The prosecutor shall be furnished a copy of the financial affidavit and may challenge defendant’s asserted indigency within 20 days after receiving the affidavit. The challenge, if brought, shall be resolved at a hearing before Kalamazoo Circuit Court at which the prosecution, defendant, and counsel for defendant shall appear personally to aid the court’s inquiry. Kalamazoo Circuit Court, upon a finding of indigency, shall appoint counsel for defendant and shall furnish any portion of the record counsel may require.
Samuel Watkins, in propria persona, appellant.
Case below, Court of Appeals No. 22199, per curiam opinion of January 12, 1976. | [
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Coleman, J.
The defendants had a jury trial and were convicted of two kidnappings and two felonious assaults. During the trial, the judge and the attorneys questioned the jurors in the judge’s chambers to determine whether the jurors had seen certain media publicity and, if so, whether it would affect their judgment. The defendants remained in the courtroom while the jurors were questioned in chambers. The Court of Appeals said this entitled the defendants to a new trial.
We disagree. The record in this case demonstrates there is no reasonable possibility that these defendants were prejudiced by their absence during the questioning of the jurors. The Court of Appeals is reversed and the defendants’ convictions are reinstated.
I
The evidence at trial established that Edward Love and Curtis Atkinson were blindfolded and kidnapped by Edmond Monroe, a former codefendant in this case. Monroe took Love and Atkinson to an apartment where defendants Morgan and Cargile were waiting. Love and Atkinson were beaten, forced to undress and locked in a small closet. When they were let out of the closet, Curtis Young was present in the apartment. His head was bruised and bleeding. The defendants forced Love, Atkinson and Young to lie on the floor in a pile, naked. Then the defendants doused the victims with lighter fluid and set them on fire. When the fire died out, all three victims were locked in the closet. The next morning when they were let out of the closet, Curtis Young jumped out a second story window trying to escape. Gunshots were fired. Later, he was found dead. Love and Atkinson were then driven to areas near their homes and released.
The defendants were arrested and charged with murder, kidnapping and felonious assault. The first attempt to bring them to trial was aborted by a mistrial. Less than two weeks later, they were brought to trial again.
On the fourth day of the second trial, the jury was excused and, with the defendants present, the defense moved for a mistrial claiming that a newspaper article about the case published in a local paper the day before contained information that might prejudice the jury against the defendants. The defense was also worried about a television news feature dealing with another case that had appeared on two local television stations the day before. The subject of the film was witness intimidation. This troubled the defense because one of the prosecution witnesses who testified against the defendants at the preliminary examination changed her testimony at trial.
The prosecutor suggested, and the judge and defense attorneys agreed, that the jurors should be questioned about the article and the film. The judge proposed that the jurors be taken to the jury room and then be summoned one by one to the judge’s chambers for individual questioning. After being questioned, the jurors would be taken to the jury box in the courtroom so that they would not be able to communicate with the other jurors. This proposal was agreeable to the attorneys. The defendants did not object to this proposal or ask to be present during the questioning. They simply remained in the courtroom when the judge and all of the attorneys went to the judge’s chambers.
The proceedings in the judge’s chambers were stenographically recorded. The transcript, which is almost 40 pages long, shows that the judge explained the purpose of the questioning to the jurors and asked them if they had read any newspaper articles about the case. He also asked what the jurors had been watching on television and whether any newspaper articles or television films had been discussed in the jury room. The attorneys were permitted to ask additional questions if they wished. The judge told the jurors to disregard media publicity, reminded them about their oath to decide the case solely on the basis of the evidence presented in court and cautioned them not to discuss the case until deliberations began.
The questioning revealed that none of the 14 jurors knew anything about the newspaper article. Two jurors did, however, know something about the television film. One of these jurors said she did not see the film, but did hear parts of the audio transmission. She said she heard "about something down here at Recorder’s Court * * * about a witness getting their house burned”. She was aware the film was not about the defendants’ case. The other juror said she saw the film while dressing to come to court. She said she heard "something to the effect that was getting to jurors, or something, and witnesses, and that one witness’s house had been burned”. She too was aware that the film was not about the defendants’ case. When asked whether she thought the things depicted in the film were happening in the defendants’ case, she said "no”.
These two jurors were asked whether the film would affect their judgment in any way. Both of them unequivocally said it would not. The defense attorneys indicated they were satisfied that these two jurors had not been prejudiced and could remain in the case.
When all of the jurors had been questioned, the judge and the attorneys returned to the courtroom. The judge denied the mistrial motion, and the trial resumed without comment from either of the defendants. Eventually, the two jurors who knew something about the television film participated in the verdict.
When the defendants appealed their convictions to the Court of Appeals, they objected to their absence during the questioning of the jurors. The Court of Appeals remanded the case to the trial court for an evidentiary hearing to determine whether the defendants had waived their right to be present. The Court of Appeals instructed the trial court to grant the defendants a new trial if they had not waived that right. The trial court found that there had been no waiver, and awarded the defendants a new trial. The prosecution appealed.
II
The Court of Appeals based its decision in this case on People v Medcoff, 344 Mich 108; 73 NW2d 537 (1955). The defendants in Medcoff had a jury trial and were convicted of violating local gambling laws. During the trial, the judge excluded the defendants, all of the attorneys and everyone else except a court reporter and the jurors from the courtroom and then questioned the jurors about possible misconduct. He failed, however, to question the jurors about the possibility that they had been prejudiced by matters outside the record, although defense counsel had earlier requested that he do so.
On appeal, this Court did not consider whether and to what extent the defendants had actually been prejudiced by their absence during the questioning. Instead, the Court said that once absence is established, "[i]njury is conclusively presumed”.
Although we believe the Medcoff result was correct on its facts, it is no longer the law that injury is conclusively presumed from defendant’s every absence during the course of a trial. No less an authority than the United States Supreme Court has recognized that even violations of constitutional rights can amount to harmless error in the circumstances of a particular case, and in cases involving a defendant’s absence from a part of a trial, that Court has indicated that automatic reversal is not the rule. Similarly, the recent cases from the Federal Courts of Appeal have rejected a rule of automatic reversal in cases involving a defendant’s absence from trial.
In our most recent case dealing with this area of criminal procedure, People v Carroll, 396 Mich 408; 240 NW2d 722 (1976), we affirmed the defendants’ conviction despite their absence during the questioning of jurors similar to that in the case at bar. Implicitly, at least, the three justices who signed the majority opinion in Carroll and the two justices who concurred in the result rejected the principle that once absence is established "injury is conclusively presumed”.
Today, we explicitly reject that principle. In its place we adopt the following language from Wade v United States, 142 US App DC 356, 360; 441 F2d 1046, 1050 (1971), as the proper test for determining whether a defendant’s absence from a part of a trial requires reversal of his or her conviction:
"It 'is possible that defendant’s absence made no difference in the result reached. The standard by which to determine whether reversible error occurred [is] * * * whether there is 'any reasonable possibility of prejudice’.”
Ill
In the case at bar, we believe the record shows there is no reasonable possibility that the defendants were prejudiced by their absence during the questioning of the jurors.
They were not excluded from the questioning of the jurors. After the format for the questioning was discussed in their presence, they simply remained in the courtroom without objecting or asking to be present when the judge and attorneys retired to the judge’s chambers.
The format for the questioning was exemplary. The jurors were questioned individually and were not permitted to communicate with the other jurors until after they all had been questioned. The judge explained the purpose of the questioning and carefully questioned each juror about the newspaper article and the television film before the next juror was questioned. All of the attorneys were present and they were permitted to ask any additional questions they wished. The judge cautioned the jurors to disregard media publicity, reminded them of their oath and told them not to discuss the case until deliberations began. All of this was stenographically recorded.
In this case, as in People v Carroll, in contrast with People v Medcoff, the questioning of the jurors did not concern possible misconduct on their part. The factual issue here was uncomplicated and straightforward: Had the jurors seen the newspaper article or the TV program; of the two who had some knowledge of the TV program, did they think what they saw or heard concerned this case?
The record shows that none of the jurors had been prejudiced by either the article or the film. None of them knew anything about the article. The two jurors who knew something about the film did not know much about it, but they did know it was about an entirely different case. There is no indication that either of them connected the defendants with the things depicted in the film. One of the jurors even said she did not think witnesses were being intimidated in the defendants’ case.
Most importantly, both of these jurors unequivocally stated that the film would not influence their judgment in any way. The defense attorneys indicated they were satisfied that these jurors had not been prejudiced and could continue to sit as jurors in the case.
In short, we believe the defendants’ absence "made no difference in the result reached”. Wade, supra. For this reason, we reverse the Court of Appeals and reinstate the defendants’ conviction.
Levin, Fitzgerald, and Ryan, JJ., concurred with Coleman, J.
People v Morgan 50 Mich App 288; 213 NW2d 276 (1973).
Monroe was killed in a “homicidal death” while-this appeal was pending.
Time was of the essence to the prosecution because of witness attrition. One prosecution witness was shot and killed on the way to the preliminary examination. Another testified at the examination, but disappeared before the case could be brought to trial. A third prosecution witness testified against the defendants at the examination but changed her testimony at trial. She disappeared after the trial. A fourth witness was killed after the trial.
The jurors were not aware of the other instances of witness attrition discussed above in footnote 3.
Id, 117-118.
See Chapman v California, 386 US 18; 87 S Ct 824; 17 L Ed 2d 705 (1967).
See Illinois v Allen, 397 US 337; 90 S Ct 1057; 25 L Ed 2d 353 (1970).
See Jones v United States, 299 F2d 661 (CA 10, 1962), cert den 371 US 864; 83 S Ct 123; 9 L Ed 2d 101 (1962); Rice v United States, 356 F2d 709 (CA 8, 1966); Ware v United States, 376 F2d 717 (CA 7, 1967); Wade v United States, 142 US App DC 356; 441 F2d 1046 (1971); Bustamante v Eyman, 456 F2d 269 (CA 9, 1972); United States v Toliver, 541 F2d 958 (CA 2, 1976). | [
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Per Curiam.
The defendant placed before the jury his reputation for being truthful, peaceful and law-abiding. He challenges the prosecutor’s introduction in rebuttal of evidence of specific acts of misconduct. We agree with the defendant and reverse his conviction.
I
The facts underlying this prosecution were well-stated by the Court of Appeals. 97 Mich App 25, 27-28; 293 NW2d 715 (1980).
The defendant called Merritt W. Tumanis and Walter Raymond to testify as character witnesses. Mr. Tumanis testified that he had known the defendant for about a year and a half and that the defendant had a good reputation in the community for truthfulness and veracity and for being a peaceful and law-abiding citizen. Mr. Raymond testified that he had known the defendant all his life and that the defendant had a good reputation for being truthful, peaceful and law-abiding.
On cross-examination of these character witnesses, the prosecutor did not inquire about any specific acts of misconduct. The prosecutor did call Larry Martin to rebut the testimony of these character witnesses. Defense counsel objected, and the prosecutor responded:
"the door has been opened, they elicited testimony that this defendant is a law-abiding citizen, at this point I believe I can now inquire into that.”
The trial judge overruled the objection:
"Case law in the State of Michigan indicates once a defendant has placed his character in issué it is proper for prosecution to introduce evidence that the defendant’s character is not as impeccable as it is claimed, you may ask any questions concerning his reputation as to peaceful and law-abiding citizen. Limit it to those issues.”
The prosecutor was allowed to elicit testimony from Mr. Martin to the effect that the defendant used marijuana and cocaine, sold marijuana, and had ten pounds of marijuana at his residence on one occasion.
On appeal, the defendant claimed that it was reversible error for the trial judge to let the prosecutor impeach the character witnesses with Larry Martin’s rebuttal testimony. The Court of Appeals rejected his argument:
"Under MRE 405(a), the people are allowed to inquire with specific instances of conduct on cross-examination where defendant offered testimony as to reputation.” 97 Mich App 32.
II
MRE 405(a) provides:
"Reputation. In all cases in which evidence of character or a trait of character of a person is admissible, proof may be made by testimony as to reputation. On cross-examination, inquiry is allowable into reports of relevant specific instances of conduct.”
The rule codifies Michigan’s common law:
"As a general rule, evidence of good character may only be rebutted by evidence that it is bad. Specific acts of misconduct may not be shown for that purpose.” People v Powell, 223 Mich 633, 640; 194 NW 502 (1923).
The prosecutor may cross-examine the defendant’s witness "to test his knowledge and candor * * *, and for that purpose he may be asked if he has heard of specific acts of misconduct”. People v Rosa, 268 Mich 462, 465; 256 NW 483 (1934). The prosecutor’s rebuttal witness may testify only as to reputation, however. In this case, the prosecutor reversed the procedure permitted under MRE 405(a) by inquiring into specific instances of conduct in examination of a rebuttal witness.
In lieu of granting leave to appeal, under GCR 1963, 853.2(4), we reverse the judgments of the Court of Appeals and the circuit court and remand the case to the Kalamazoo Circuit Court for a new trial.
Coleman, C.J., and Kavanagh, Williams, Levin, Fitzgerald, Ryan, and Blair Moody, Jr., JJ., concurred.
We recognize the additional qualifier "relevant” in the rule, but we are not asked to address and therefore do not decide the relevance of the specific instances of conduct inquired into in this case. | [
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Blair Moody, Jr., J.
Plaintiff, Local 1383 of the International Association of Fire Fighters (Local 1383), appeals from a Court of Appeals decision affirming a summary judgment in favor of defendants, the City of Warren and the Police and Fire Civil Service Commission for the City of Warren (Civil Service Commission). 89 Mich App 135; 279 NW2d 556 (1979).
The question presented is whether a collective-bargaining agreement’s provision concerning promotions, which is entered into under the public employment relations act (PERA), is valid and enforceable when it conflicts with provisions of a city charter and the fire and police civil service act, 1935 PA 78 (Act 78). MCL 423.201 et seq.; MSA 17.455(1) et seq.; MCL 38.501 et seq.; MSA 5.3351 et seq. The circuit court and Court of Appeals held the promotional system in the collective-bargaining agreement between Local 1383 and the City of Warren void. We granted leave to appeal. 407 Mich 897 (1979).
We hold that the contract provision governing promotions entered into under PERA is valid and enforceable. We also hold that this provision sets forth the promotional system for employees in the Local 1383 bargaining unit, notwithstanding conflicting provisions in Act 78 or the Warren Charter. Accordingly, we reverse the Court of Appeals decision.
I
There is no material dispute as to the facts in this case. The provisions of Act 78 set forth a civil service merit appointment and promotional system for fire fighters and police officers which may be adopted by local municipalities. The authority and duties of a municipal civil service commission governing these occupations are also explicitly detailed in the act. The terms of Act 78 were incorporated by reference into the Warren Charter by an amendment approved by the electorate in 1961. Warren Charter § 7.18.
Local 1383 is the recognized and exclusive collective-bargaining representative of all Warren Fire Department employees, except the Fire Commissioner and civilian employees. Local 1383 and the City of Warren executed a collective-bargaining agreement concerning wages, hours, and conditions of employment. The agreement provided in pertinent part:
"Article 12 — Seniority.
"(a) Seniority and its application shall be governed by the provisions of Act 78, Public Acts of 1935, except as provided in Section (b) below.
"(b) It is agreed that the promotional system for employees in the Local 1383 bargaining unit shall provide for promotions based upon seniority and reasonable qualifications as may be determined by the Fire Department after consultation with the Union.”
Attached to the collective-bargaining agreement was a letter of understanding between Local 1383 and the City of Warren. The letter provided that if the Civil Service Commission refused to implement Article 12(b) of the agreement, the City of Warren would be held in violation of that provision only if the city failed to implement the new procedure after final judicial determination of its validity.
The Fire Commissioner informed the Civil Service Commission that, pursuant to Article 12(b), the Fire Department was in the process of qualifying persons for promotions and would submit a list of names from which the department would make promotions. The Civil Service Commission took the position that it was the body which determined qualifications, through competitive examinations, for promotion of Fire Department employees under Act 78. It also said that it was unaware of any election in which the electors of the City of Warren had voted to rescind or repeal the adoption of the civil service system of the act.
Local 1383 brought this action seeking a declaratory judgment that the terms of the collective-bargaining agreement prevail over any contrary provisions of Act 78, and any rules or regulations adopted by the Civil Service Commission pursuant to the act. Both parties filed motions for summary judgment. The circuit court granted summary judgment in favor of defendants. The Court of Appeals affirmed.
II
The critical question posed by this case is whether a normal and vital subject of bargaining can be removed from the public bargaining table by local charter provisions.
In 1963, the people adopted a new constitution which specifically authorized the Legislature to enact laws governing public employment. Article 4, § 48 of the constitution provides:
"The legislature may enact laws providing for the resolution of disputes concerning public employees, except those in the state classified civil service.”
Acting pursuant to this explicit constitutional authorization, PERA was enacted by the Legislature in 1965. This basic law provided public employees the right to form and join labor organizations and to negotiate in good faith with public employers regarding "wages, hours, and other terms and conditions of employment”.
Accordingly, the duty of the City of Warren to bargain collectively with Local 1383 is set forth in § 15 of PERA, which reads:
"A public employer shall bargain collectively with the representatives of its employees as defined in sec tion 11 and is authorized to make and enter into collective bargaining agreements with such representatives. For the purposes of this section, to bargain collectively is the performance of the mutual obligation of the employer and the representative of the employees to meet at reasonable times and confer in good faith with respect to wages, hours, and other terms and conditions of employment, or the negotiation of an agreement, or any question arising thereunder, and the execution of a written contract, ordinance or resolution incorporating any agreement reached if requested by either party, but such obligation does not compel either party to agree to a proposal or require the making of a concession.” MCL 423.215; MSA 17.455(15).
This Court has repeatedly recognized that § 15 of PERA was patterned after § 8(d) of the National Labor Relations Act (NLRA). 29 USC 158(d). The language of these PERA and NLRA sections is virtually identical. Consequently, when defining the scope of bargaining, Michigan cases have followed Federal decisions and have adopted a broad and expansive interpretation of "wages, hours, and other terms and conditions of employment”. See, e.g., Central Michigan University Faculty Ass’n v Central Michigan University, 404 Mich 268; 273 NW2d 21 (1978); Detroit Police Officers Ass’n v Detroit, 391 Mich 44; 214 NW2d 803 (1974); Detroit Police Officers Ass’n v Detroit, 61 Mich App 487; 233 NW2d 49 (1975), lv den 395 Mich 756 (1975).
In Federal labor law, seniority, promotion, and promotional criteria are among other terms and conditions of employment under NLRA § 8(d). In a technical sense, the meaning of the phrase "other terms and conditions of employment” has developed to include seniority, promotion, and promotional criteria. In fact, seniority is so clearly a mandatory subject of bargaining that there is little litigation concerning this concept. Morris, ed, The Developing Labor Law (Washington, DC: Bureau of National Affairs, Inc, 1971), p 406.
A rule of statutory construction adopted by the Legislature states:
"All words and phrases shall be construed and understood according to the common and approved usage of the language; but technical words and phrases, and such as may have acquired a peculiar and appropriate meaning in the law, shall be construed and understood according to such peculiar and appropriate meaning.” MCL 8.3a; MSA 2.212(1).
"[O]ther terms and conditions of employment” is a technical phrase in labor relations law. That phrase has a specific meaning. We are convinced that the Legislature, by using the phrase in PERA, intended to include a meaning similar to that afforded by Federal interpretations.
Accordingly, our Court has recognized that seniority, promotion, and promotional criteria are included within the phrase "other terms and conditions of employment”. We have concluded that these matters are mandatory subjects of collective bargaining. CMU, supra; DPOA, supra, 391 Mich 44.
"The subjects included within the phrase 'wages, hours, and other terms and conditions of employment’ are referred to as 'mandatory subjects’ of bargaining. Once a specific subject has been classified as a mandatory subject of bargaining, the parties are required to bargain concerning the subject, and neither party may take unilateral action on the subject absent an impasse in negotiations.” (Citations omitted.) CMU, 277.
It may also be fairly deduced that when the Constitutional Convention authorized the Legislature to enact laws "providing for the resolution of disputes concerning public employees”, Const 1963, art 4, § 48, it must have perceived that the Legislature would thereby have the power to enact laws governing the resolution of disputes regarding so vital a concern as promotion and seniority.
The right to bargain and the duty to bargain in good faith specifically permit employees’ representatives to engage in negotiations for the purpose of changing conditions of employment. Public employers may resist the proposed changes during negotiations. The parties are free, for instance, to adopt substantive provisions of Act 78 without change. It is the collective-negotiation system that the Legislature has determined to be the appropriate method for public employers and their employees to develop and specify terms and conditions of employment. Collective negotiation is the proper procedure for changing employment conditions once the exclusive representative of the employees has been selected. MCL 423.215; MSA 17.455(15). The Act 78 procedure neither addresses nor focuses upon a collective-negotiation method for determining employment conditions.
Following the mandate of PERA and the case law interpreting § 15, the City of Warren and Local 1383 bargained about the mandatory subjects and executed a collective-bargaining agreement incorporating a promotion system.
III
This Court has consistently held that PERA prevails over conflicting legislation, charters, and ordinances in the face of contentions by cities, counties, public universities and school districts that other laws or the constitution carve out exceptions to PERA. That same conclusion is man dated in the instant case by the reasoning employed in our prior decisions.
An apparent conflict between PERA and the county civil service act, MCL 38.401 et seq.; MSA 5.1191(1) et seq., was before this Court in Wayne County Civil Service Comm v Board of Supervisors, 384 Mich 363; 184 NW2d 201 (1971). Discussing the purpose of the county civil service act, 1941 PA 370, this Court concluded that the concept of public employees’ collective bargaining could not have been in the minds of the legislators in 1941.
Under the county civil service act, a county civil service commission has an extensive, if not exclusive, role in the control of employment relations within the county. This Court concluded that PERA and the county civil service act could not be harmonized, and that the civil service commission "has no lawful part in the administration, directly or indirectly, of the act of 1965 [PERA]”. Wayne County Civil Service Comm, 376.
This Court held:
"[T]he act of 1965 [PERA] operates, 'to the extent of the repugnancy,’ as a partial repeal of the act of 1941 [county civil service act]; but no more than that. In short shrift this means that the purposed thrust of the act of 1965, that of prohibiting strikes by public employees and providing collective bargaining, negotiation and enforced mediation of labor disputes arising out of public employment coming within the scope of the act, must be implemented and administered exclusively as provided therein. Hence, the original authority and duty of the plaintiff civil service commission was diminished pro tanto, by the act of 1965, to the extent of free administration of the latter according to its tenor.” Wayne County Civil Service Comm, 374.
The defendant County Board of Supervisors con tended that PERA "to the extent that it places rates of pay, hours of work and other conditions of employment * * * into the area of collective bargaining supersedes pro tanto those provisions or parts of [the county civil service act] dealing with the same subject matters”. This Court agreed with the supervisors’ contentions. Wayne County Civil Service Comm, 371.
The state universities have argued that constitutional and statutory grants of authority alter the scope of collective bargaining and the duty to bargain under PERA. In Board of Control of Eastern Michigan University v Labor Mediation Board, 384 Mich 561; 184 NW2d 921 (1971), it was determined that the university is a public employer and subject to PERA. Our Court again emphasized the public policy of the predominance of PERA by the succinct statement:
"The public policy of this state as to labor relations in public employment is for legislative determination. The sole exception to the exercise of legislative power is the state classified civil service, the scheme for which is spelled out in detail in Article 11 of the Constitution of 1963.” EMU, 566.
In another case where the university’s existence was specifically provided for by the constitution, we determined that PERA was superimposed upon and limited the constitutional authority of the University of Michigan Board of Regents. Responding to the university’s contention that student interns and residents were not employees within PERA we stated:
"If the Legislature had intended to exclude students/ employees from the operation of PERA, they could have written such an exception into the law.” Regents of the University of Michigan v Employment Relations Comm, 389 Mich 96, 110; 204 NW2d 218 (1973).
Our holding in CMU specifically included the subject of promotional criteria within the scope of mandatory bargaining under PERA. It was urged that since Central Michigan University derives its existence from constitutional authority, PERA did not have full application to university employees. After explaining that PERA was intended to cover all public employees except for those in the state classified civil service, we reasoned that
"PERA was intended by the Legislature to supersede conflicting laws and is superimposed even on those institutions which derive their powers from the Constitution itself.
"[T]he unique status accorded state universities by constitutional and statutory authority does not alter the scope of their collective bargaining obligation under the PERA. If university professors are truly unique and thus different from other public employees, the Legislature must carve out an exception to the PERA. This Court cannot.” CMU, 279, 281.
Conflicting provisions of PERA and the teachers’ tenure act, MCL 38.71 et seq.; MSA 15.1971 et seq., were before this Court in Rockwell v Crestwood School Dist Board of Education, 393 Mich 616; 227 NW2d 736 (1975). Section 6 of PERA provides that public employees disciplined for striking are entitled, upon request, to a determination whether their actions violated the anti-strike provisions of PERA. The request is to be made after the discipline has been imposed. MCL 423.206; MSA 17.455(6). The teachers’ tenure act requires a hearing prior to discharge or demotion of tenured employees, MCL 38.101; MSA 15.2001. The Crestwood Court reviewed our decisions which "consistently construed the PERA as the dominant law regulating public employee labor relations”. Crestwood, 629. Our Court reasoned:
"The 1937 Legislature in enacting the teachers’ tenure act could not have anticipated collective bargaining or meant to provide for the resolution of labor relations disputes in public employment.” Crestwood, 630.
The apparent intent of the Legislature that PERA be the governing law for public employment relations and disputes; the consistent holdings of this Court that PERA is the dominant law regulating public employment relations; and the need for uniform treatment of all public employment relations questions resulted in this Court concluding that PERA prevailed over the teachers’ tenure act.
Of particular significance are the holdings of this Court involving charter provisions. In two pertinent cases, it was determined that collective-bargaining obligations under PERA, in effect, prevailed over charter enactments otherwise lawful under article 7, § 22 of the 1963 Constitution. In DPOA we concluded that the incorporation of a pension and retirement plan in a city charter did not obviate the duty under PERA to bargain in good faith about pension plans. PERA was compared with the home-rule cities act. MCL 117.1 et seq.; MSA 5.2071 et seq.
We stated:
"On the one hand the Legislature has adopted PERA which * * * foreseeably placed retirement plan issues on the collective bargaining table. On the other hand, it has allowed cities under the home rule cities act to incorporate the substance of their retirement plans into their city charters and to make those plans amendable only by a popular vote.” DPOA, 391 Mich 64.
This Court, however, avoided finding a complete conflict between PERA and the home-rule cities act. The statutes were reconciled by interpreting the latter to permit a city charter to incorporate only the general outline of a retirement plan. The substantive details and terms of the plan were required to be left to collective negotiation under PERA. The Detroit Charter’s substantive detail of a retirement plan was held to have gone beyond the requirement of the home-rule cities act and conflicted with PERA. It was reasoned that the city was required to bargain under PERA about the details of the plan since MCL 117.36; MSA 5.2116 of the home-rule cities act states:
"No provision of any city charter shall conflict with or contravene the provisions of any general law [PERA] of the state.”
Furthermore, we rejected the contentions of the City of Detroit that approval by the voters is required under the home-rule cities act to change the substantive details of Detroit’s retirement plan.
The civilian trial board provision of the Pontiac Charter was reviewed by this Court in Pontiac Police Officers Ass’n v Pontiac (After Remand), 397 Mich 674; 246 NW2d 831 (1976). The City of Pontiac refused to bargain with the association about grievance procedures, invoking the charter which provided that a trial board would review police misconduct charges and impose discipline.
The Court of Appeals decision in Pontiac held, inter alia, that the charter provision for a trial board was valid and not a mandatory subject of bargaining under PERA. Pontiac Police Officers Ass’n v Pontiac, 50 Mich App 382; 213 NW2d 217 (1973), lv gtd and vacated 391 Mich 814; 216 NW2d 759 (1974), (Supplemental Opinion), 54 Mich App 282; 220 NW2d 794 (1974), (After Remand), 397 Mich 674; 246 NW2d 831 (1976). The rationale of the first Court of Appeals decision, adhered to in the Supplemental Opinion, was based upon its interpretation of statutory law and the Michigan Constitution.
The Court of Appeals, citing the home-rule provision of the constitution, stated that the management, operation, and control of a city’s police department, including discipline of police officers by a trial board, is a municipal concern. Relying upon Act 78 and its authorization to municipalities to create police and fire civil service commissions, the Court of Appeals concluded that "the Legislature has recognized that the management, operation and control of these departments is a matter of local concern”. Pontiac, 50 Mich App 382, 385. These interpretations formed the basis of the holding that the charter provision for a trial board was not a mandatory subject of bargaining under PERA.
Although three separate opinions were written in Pontiac (After Remand), all of the participating justices agreed that grievance and disciplinary procedures are mandatory subjects of bargaining under PERA. Furthermore, all concurred that PERA’s duty to bargain collectively prevails over conflicting provisions of a home-rule city’s charter. Five justices specifically agreed that the duty "to perform in accordance with the terms of a collective bargaining agreement prevails over conflicting [charter] provisions”. Pontiac (After Remand), 677, 685. It is clear that this Court rejected the Act 78 local concerns analysis of the Court of Appeals and its municipal concerns exception to PERA.
IV
To decide the present case in conformity with the consistent prior determinations of this Court, PERA must be viewed as the dominant law regulating public employment relations. Although this Court has not previously had occasion to consider the conflicting requirements of the fire and police civil service act in contrast with PERA, our previous decisions compel a conclusion that the provisions of PERA control.
The same policy considerations which have led this Court to conclude that PERA repealed by implication conflicting provisions of the county civil service act in Wayne County Civil Service Comm, that it diminished pro tanto the teachers’ tenure act in Crestwood, that it governed promotional criteria in CMU, that it controlled university labor negotiations in EMU and U of M and that it prevailed over charter provisions permitted by the constitution in DPOA and Pontiac (After Remand), guide us to the conclusion that PERA also governs the instant dispute.
PERA requires a public employer to bargain about promotions, but does not require the public employer to agree to a proposal about promotions made by its employees. MCL 423.215; MSA 17.455(15). If the employer and the union agree to a change in the promotion system, the collective-bargaining agreement controls promotions. The mandatory bargaining duty of PERA and the need for uniformity, contrasted with the permissive nature of Act 78, lead us to determine that in enacting PERA the Legislature intended the bargaining duty to prevail over Act 78. The promotion system in Act 78 will continue to have effect in municipalities that adopt the civil service system of the act, unless a different system or plan is incorporated in a collective-bargaining agreement.
The original authority and duties of the Police and Fire Civil Service Commission outlined in Act 78 were "diminished pro tanto” by PERA "to the extent of free administration” of PERA in the same manner that county civil service commissions had their authority diminished. Wayne County Civil Service Comm, 374. The "free administration” of collective bargaining can only be achieved when all subjects of bargaining are included in the collective-negotiation process.
V
The defendants urge, and the Court of Appeals held, that Article 12 of the collective-bargaining agreement was void and unenforceable. Their rationale is based upon what is perceived to be a conflict between the collective-bargaining agreement authorized by PERA and the local civil service provision of the Michigan Constitution. Const 1963, art 11, § 6 provides:
"By ordinance or resolution of its governing body which shall not take effect until approved by a majority of the electors voting thereon, unless otherwise provided by charter, each county, township, city, village, school district and other governmental unit or author ity may establish, modify or discontinue a merit system for its employees other than teachers under contract or tenure. The state civil service commission may on request furnish technical services to any such unit on a reimbursable basis.”
Defendants assert that the agreement cannot modify an existing civil service system.
In addition, the defendants argue, and the Court of Appeals determined, that the intent underlying this constitutional provision was to insure that no civil service system for public employees could be modified without a vote of the electorate of the political entity involved. Hence, defendants conclude that a conflict between article 11, § 6 and the collective-bargaining contract must be determined pursuant to that constitutional mandate. We disagree with both conclusions.
In this case, as in other cases that have been decided by this Court with reference to PERA, the public employer premised its claimed exemption from bargaining on some constitutional provision. The basic point of these prior consistent determinations was precisely that action which is otherwise within the authority granted by the constitution is subject to the bargaining obligation under PERA. PERA itself is authorized by article 4, § 48 of the constitution. In view of the fundamental purpose of this constitutional provision which provides for the Legislature to enact laws for the resolution of disputes concerning public employees, in each instance when a conflict arose PERA, from its constitutional base, predominated over the conflicting charter, ordinance, or statute and its constitutional foundation.
In this regard, it is significant to note that article 4, § 48 couched in sweeping language the power of the Legislature to enact laws regarding public employees’ disputes. That power is limited in only one particular. The only disputes excepted are "those in the state classified civil service”. (Emphasis added.) In contrast, article 11, § 6 is a provision that simply permits the establishment, modification, or discontinuance of civil service merit systems in local political subdivisions of the state. The scope of article 4, § 48 covers disputes arising in local municipalities, yet the two constitutional provisions may be reconciled.
By its terms, article 11, § 6 does not suggest that a local civil service system must prevail when it conflicts with a collective-bargaining contract or bargaining obligations imposed by a general state law. There is no hint that the scope of article 11, § 6 was intended to limit article 4, § 48 and the applicability of the governing law for public employment relations enacted by the Legislature to resolve public employees’ disputes. Nor is there an indication that article 11, § 6 was intended to control collective-bargaining negotiations conducted pursuant to such a law.
In a statutory context, we have mentioned that the Legislature may not have been fully conscious of the need to harmonize collective-bargaining procedures with an established civil service system. Nevertheless, this Court concluded that the purposes of collective bargaining required that the power of civil service be diminished pro tanto. Wayne County Civil Service Comm, supra. In a like manner, the Constitutional Convention and the people may not have been fully aware of all the possible conflicts between article 4, § 48 and article 11, § 6 of the constitution. For the same reasons, the collective-bargaining system mandated by PERA under article 4, § 48 should be held to prevail "to the extent of free administration * * * according to its tenor”. Wayne County Civil Service Comm, 374. "The public policy of this state as to labor relations in public employment is for legislative determination.” EMU, 566.
We are not persuaded that the purpose of article 11, § 6 was to prohibit, without an affirmative vote of the electorate, the modification of a local civil service system by a collective-bargaining agreement. Article 4, § 48 and PERA do not require approval by the voters of collective-bargaining contracts. To require it would hinder and frustrate the free administration of PERA.
Clearly, the constitution authorized the Legislature to enact state-wide laws regulating disputes regarding public employees. With regard to local civil service systems, we are convinced a primary purpose of article 11, § 6 was to allow local governments to adopt merit principles by a vote of their electorate without express authorization of or approval by the state Legislature. In addition, this provision would block local political officials from unilaterally changing merit systems and at the same time would protect local employees from political purges. See 1 Official Record, Constitutional Convention 1961, pp 1749-1760.
The purpose of article 11, § 6 is not directed toward the broad power delegated to the Legislature for the resolution of disputes concerning public employees. This Court has uniformly concluded that the home-rule power of public employers is subject to collective bargaining. Pontiac (After Remand), supra; DPOA, supra. Where collective bargaining does not exist or where an agreement does not reach issues covered by civil service systems, article 11, § 6 provides a check by the people on the powers of elected officials. However, where collective bargaining reaches the issues covered by local civil service systems, the restraint on the power of local officials is inherent within the collective-bargaining process.
We are satisfied that the local civil service section of the constitution was not intended to preclude the Legislature from enacting PERA to provide for free and full local collective bargaining, including the vital concerns of promotions and seniority. If this were not the case, PERA, a uniform state-wide law, would be converted into a local-option law. Each locality would cut a wide swath in determining what would be a subject of bargaining in the heart of the bargaining process. In place of the specific exemption of only one group of public employees, the state classified civil service, numerous local public employers would be allowed to opt out of the scheme promulgated by PERA for the resolution of disputes involving mandatory subjects of bargaining, such as promotions and seniority. This would severely erode the sound policies which have led this Court to conclude that PERA and its constitutional source should be the dominant authority governing disputes concerning public employees. CMU, supra; Crestwood, supra.
VI
It is consistent with the tradition of determinations in this state that PERA, promulgated in response to specific constitutional authorization, should take precedence over Act 78 and the Warren City Charter. The scope of article 4, § 48 covers public employment disputes arising in local municipalities. Article 11, § 6 permits the establishment of civil service systems in political subdivisions of the state. A conflict between these two provisions is reconciled by acknowledging that the public policy of this state as to public employment relations is ultimately for legislative determination. PERA is the product of that determination. Therefore, PERA is the dominant law governing public employment negotiations.
We therefore conclude that Article 12(b) of the collective-bargaining agreement between Local 1383 and the City of Warren is valid. The seniority and promotional provision of the collective-bargaining agreement governs promotions in the Warren Fire Department. Accordingly, we reverse the decisions of the Court of Appeals and circuit court, and remand to the circuit court for entry of summary judgment in favor of plaintiff Local 1383.
No costs, a public question being involved.
Kavanagh, Williams, Levin, and Fitzgerald, JJ., concurred with Blair Moody, Jr., J.
See Ford Motor Co v Huffman, 345 US 330; 73 S Ct 681; 97 L Ed 1048 (1953); National Labor Relations Board v Century Cement Manufacturing Co, Inc, 208 F2d 84 (CA 2, 1953); Rapid Roller Co v National Labor Relations Board, 126 F2d 452 (CA 7, 1942). See also Inland Steel Co v National Labor Relations Board, 170 F2d 247, 251 (CA 7, 1948); Detroit Police Officers Ass’n v Detroit, 61 Mich App 487; 233 NW2d 49 (1975).
Detroit Police Officers Ass’n v Detroit, 61 Mich App 487; 233 NW2d 49 (1975), held that standards and criteria for promotion are a mandatory subject of bargaining. The DPOA bargaining unit did not represent the supervisory officers whose qualifications would be the subject of collective bargaining. Promotions are such an important topic of employment relations that even promotions out of a bargaining unit are mandatory subjects. In the instant case the "supervisory” employees of the Fire Department, other than the Fire Commissioner, are within the same bargaining unit. See MCL 423.213; MSA 17.455(13).
Compare MCL 123.841; MSA 5.3331 which regulates the maximum hours of fire department employees. MCL 123.842(e); MSA 5.3332(e) exempts from the maximum-hours requirements of the previous section, "any municipality which, by agreement with the collective bargaining agent representing affected employees, does not require its employees engaged in fire fighting or subject to the hazards thereof, to he on duty more than 40 hours in any consecutive 7-day period”.
In some instances the judiciary has been excepted from the duty to bargain under PERA. In the Matter of the Petition for a Representation Election Among Supreme Court Staff Employees, 406 Mich 647; 281 NW2d 299 (1979); Council No 23, Local 1905, AFSCME v Recorder’s Court Judges, 399 Mich 1; 248 NW2d 220 (1976). The result in Council No 23 consisted of two opinions. The opinions agreed that the probation officer removal statute, MCL 771.10; MSA 28.1140, which insures employees a full hearing before a court may recommend removal of the officer, prevails over a collective-bargaining provision for binding arbitration of employees’ grievances. The opinion of Justice Lindemer concluded that the Legislature did not mean to encumber the judicial process in adopting § 15 of PERA. His opinion expressed the concern that binding arbitration could result in the reinstatement of a probation officer, whose duties are central to the administration of criminal justice, after the court could no longer trust the officer or have confidence in him or her. Council No 23, 7. Justice Williams’ opinion expressed concerns regarding the legislative intent under PERA to delegate to an arbitrator the power to reinstate "so sensitive a judicial official as a probation officer”. Council No 23, 9.
Cf. Livingston County v Livingston Circuit Judge, 393 Mich 265; 225 NW2d 352 (1975) (circuit court is public employer under PERA); Judges of the 74th Judicial Dist v Bay County, 385 Mich 710; 190 NW2d 219 (1971) (district court is public employer; unfair labor practice charge under PERA may be asserted against a judge).
Const 1963, art 7, § 22 provides:
"Under general laws the electors of each city and village shall have the power and authority to frame, adopt and amend its charter, and to amend an existing charter of the city or village heretofore granted or enacted by the legislature for the government of the city or village. Each such city and village shall have power to adopt resolutions and ordinances relating to its municipal concerns, property and government, subject to the constitution and law. No enumeration of powers granted to cities and villages in this constitution shall limit or restrict the general grant of authority conferred by this section.”
See the discussion of the exception in fn 4, supra. | [
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Leave to appeal is considered and, it appearing to this Court that the case of Peters v Department of State Highways (Docket No. 56857) is presently pending on appeal before this Court and that the decision in that case may be decisive of the issues raised in the present application for leave to appeal, it is ordered that the present application be held in abeyance pending decision in that case.
Case below, Court of Appeals No. 19399, per curiam opinion of March 14, 1975. | [
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Lindemer, J.
I
The facts of this case are recited in Justice Williams’ opinion. We agree with appellant that the pertinent statute as applied in this case deprived plaintiff of due process of law and equal protection under both the state and Federal Constitutions.
The United States Supreme Court in Hillsborough Twp v Cromwell, 326 US 620, 623; 66 S Ct 445, 448; 90 L Ed 358, 363 (1945), found the principle that one seeking relief against tax discrimination must bear the burden of seeking an upward revision of the taxes of the other members of the class to be a denial of the equal protection clause. The Court in Hillsborough said:
"The equal protection clause of the Fourteenth Amendment protects the individual from state action which selects him out for discriminatory treatment by subjecting him to taxes not imposed on others of the same class. The right is the right to equal treatment. He may not complain if equality is achieved by increasing the same taxes of other members of the class to the level of his own. The constitutional requirement, however, is not satisfied if a State does not itself remove the discrimination, but imposes on him against whom the discrimination has been directed the burden of seeking an upward revision of the taxes of other members of the class.”
Our Court in In re Appeal of General Motors Corp, 376 Mich 373, 381; 137 NW2d 161 (1965), referred favorably to the Hillsborough decision.
II
Plaintiff township was not aggrieved by the action of the board of commissioners in initially equalizing the valuations of the several townships. Therefore, plaintiff had no basis for appeal within the five-day period provided by statute.
When the equalization factor was raised by the State Tax Commission to 1.10, after plaintiff already had been assessed at 50% of true market value, the township became aggrieved.
We cannot conclude that the Legislature intended to deprive a governmental unit in this situation of any right to appeal.
Instead we consider Clinton County’s action after the STC determination to be a new equalization within the meaning of the statute. We find that the statutory appeal period ran until five days after DeWitt Township was notified by Clinton County that its assessment was raised.
In addition to the legal impediment, plaintiff-appellant has a massive practical impediment. To protect itself from discrimination under the terms proposed by appellee would require it to be conversant with the tax assessment procedures, methods and results not just within its own township but within all of the other taxing units in Clinton County. We cannot read the legislative enactment to require such an obviously burdensome result.
We hold that the appeal filed, under time elements presented in this case, was filed in timely manner and in accordance with the statute. We reverse and remand to the Tax Tribunal for further treatment in accordance herewith.
Coleman and Fitzgerald, JJ., concurred with Lindemer, J.
Levin, J. I concur in part II.
Ryan, J., took no part in the decision of this case.
Williams, J.
This case was argued and submitted to the Court with Emmet County v State Tax Commission, 397 Mich 550; 244 NW2d 909 (1976). However, the issue raised in the instant appeal is quite different from the issues before us in Emmet County. We are asked, here, to decide whether plaintiff has taken a timely appeal from Clinton County intracounty equalization determinations in accordance with requirements of MCLA 211.34(2); MSA 7.52(2). We conclude that plaintiff has failed to comply with the requirements of this statute.
If what is actually being appealed is the State Tax Commission’s inie/county equalization, which resulted in Clinton County spreading back the State Tax Commission increased equalization assessment, the township has no authority under the statute to appeal the determination of state equalized valuation of Clinton County.
I — Facts
In 1974 the assessment roll as presented to and approved by the DeWitt Township Board of Review established an aggregate real property assessment of $38,823,600. Pursuant to § 34 of the General Property Tax Law, the Clinton County Board of Commissioners equalized the assessment rolls of the several townships and cities, including plaintiff township, within the county by adopting on April 23, 1974, a report recommended by the Clinton County Equalization Committee. The board, apparently concluding that DeWitt Township had assessed at 50% of the true cash value, assigned it an intracounty equalization factor of 1.0.
On May 28, 1974 the State Tax Commission, equalizing the various counties of the state (inter-county equalization) determined that the value of real property in Clinton County had been underassessed by approximately 10% and as a result established a corresponding intercounty equalization factor of 1.10.
Neither the Clinton County nor STC determinations were appealed by anyone.
On July 1, 1974 Clinton County advised its townships and cities that the 10% intercounty equalization factor established by the STC was to be applied to all units in the county. This meant that DeWitt Township’s factor for real property would be changed to 1.10. The next day the DeWitt Township Supervisor addressed a communication to the Clinton County Clerk expressing his "wish to appeal the 1974 Clinton County Equalization”. The Clerk transmitted this letter to the State Tax Commission which on July 11, 1974 notified plaintiff township that their appeal was being rejected because it had not been taken within five days from the adoption of the Clinton County equalization report on April 23, 1974.
Plaintiff’s application for leave to appeal was denied by the Court of Appeals. On April 15, 1975 we granted leave to appeal. 394 Mich 759.
II — Appeal From Intracounty Equalization Not Timely
The time frame in which a township may challenge intracounty equalization determinations is spelled out in § 34 of the General Property Tax Law. Section 34, as then applicable, provided in pertinent part:
"Any supervisor of any township or city or the intermediate district board of education or the board of education of an incorporated city or village aggrieved by the action of the board of commissioners, in equaliz ing the valuations of the several townships or cities of the county, may appeal from such determination to the state tax commission in the manner herein provided. Whenever any supervisor or any board of education desires to appeal from the determination by the board of commissioners, he or it shall within 5 days after the adoption of the equalization report, file with the clerk of the board of commissioners a written or printed petition which shall set forth in detail the reasons for taking the appeal. The petition shall be signed and sworn to by the supervisor or majority of the members of the board of education taking the appeal; shall show that a certain township, city or school district has been discriminated against in such equalization, and shall pray that the state tax commission proceed at its earliest convenience to review the action from which appeal is taken.” (Emphasis added.) MCLA 211.34(2); MSA 7.52(2).
The statute, in unambiguous language, provided that such appeals must be taken "within 5 days after the adoption of the equalization report”. In 1974 the Clinton County Board of Commissioners adopted its equalization report on April 23rd. Plaintiff had five days from that date to challenge the intracounty equalization determinations, but failed to do so. Consequently, under § 34, DeWitt Township was precluded from taking an appeal.
Plaintiff argues that it was in no way aggrieved or discriminated against by the county board’s April 23, 1974 intracounty equalization because application of the assigned factor (1.00) did not increase its assessed valuation and also no other township or city received an equalization factor of less than 1.00 and thus it could not be expected to appeal at that time. However, merely because a township receives a factor of 1.0 from the county and no other unit receives a factor of less than 1.0 does not mean that township has not been aggrieved by the county equalization process. For example, if Township A assesses at 50% the cash value and Township B at 40% and the county in its intracounty equalization determination assigns both townships a factor of 1.0, Township B is receiving better treatment and Township A is at that time aggrieved and being discriminated against. Under the statute even if a township believes that the intracounty equalization factor applied to it is correct, it could and should appeal the county’s equalization determinations if other units have received better treatment.
Ill — Appeal From Intercounty Equalization by Township Not Authorized
Plaintiff also contends that the notification by Clinton County on July 1, 1974 that it was applying the 10% intercounty equalization figure imposed by the STC constituted "the adoption of the equalization report” within the meaning of § 34. In effect plaintiff township seeks to appeal from the STC intercounty equalization. This Court cannot accept such a strained interpretation of this statute. The county was merely spreading back the equalization factor imposed by the STC in its intercounty equalization, and the statute authorizes no appeal from this.
Intracounty equalization is the process whereby the county is responsible for adjusting the assessed valuations of the townships and cities to insure equality and uniformity. The time to challenge the county’s actions under the statute is immediately after they make these adjustments and not after the STC has imposed its equalization factor to equalize assessments among the various counties.
If what is actually being appealed is the State Tax Commission’s intercoxmty equalization, which resulted in Clinton County spreading back the State Tax Commission increased equalization assessment, the township has no authority under the statute to appeal the determination of state equalized valuation of Clinton County.
We are not unmindful of the burdens such an appeal process imposes on local taxing units. In a very real sense the statute forces townships and cities to mind their brother’s business as well as their own. While there may be some objection to such a practice, that is what the Legislature has enacted. This Court is duty-bound to apply the laws as written. Under § 34 plaintiff has not taken a timely appeal.
No costs, a public question being involved.
Kavanagh, C. J., concurred with Williams, J.
MCLA 211.34; MSA 7.52.
Section 34 was amended by 1975 PA 243. | [
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Per Curiam:.
The defendant was charged with felony murder in the killing of a policeman during a bank robbery. His first trial ended in a hung jury. At his second trial in 1977, the defendant was convicted and sentenced to life. The Court of Appeals affirmed the conviction. Defendant filed an application for leave to appeal with this Court and the prosecutor responded. After careful consideration of the contentions of both parties and review of the record, in lieu of granting leave to appeal, we reverse and remand to the trial court for a new trial.
Prior to the presentation of the defense testimony at the second trial, the defendant’s counsel asked the trial judge to exclude references to the defendant’s 1963 conviction of second-degree murder. The trial judge denied the request declaring:
"As to the second request, [that] the court suppress any testimony, if the defendant takes the stand as to his past record, of course this only applies, any reference on defendant’s past criminal record could only be brought if the defendant testifies. If he testifies, the court in exercising discretion, would feel that it would be proper to cross-examine the defendant only as to his felony record [of] which he either has been found guilty or pled guilty, not misdemeanors or anything of this nature. * * * The court feels that this would go to the credibility of the defendant if he testifies. In the same manner, defendant, as if he testifies, testimony as to his college education where or what he’s been doing pursuant, those things that he’s accomplished, this also being brought forth as to anything which would affect his credibility, may also be presented by counsel for defendant, if the defendant testifies. This would be pertinent to his credibility. So what counsel appears to be arguing [is] that it would be proper to show that the defendant has done excellent work in school, and so forth, and that he’s been without a blemish for many years, but then defendant seems to claim that at that point the testimony should stop and say everything that’s good should be permitted to be offered as to his credibility, but nothing in any way affecting his credibility should be offered, and the court, in its discretion, feels that this casé on the basis of what the court has heard and seen, the court feels that this would be proper for cross-examination as to this felony.”
Although we find this explanation confusing, it appears that the judge properly recognized that he had discretion to exclude the evidence of defendant’s prior conviction or to admit it for the limited purpose of attacking the defendant’s credibility. In his exercise of this discretion, however, he erred in two particulars. First, he apparently believed that evidence of defendant’s college education and subsequent accomplishments would be pertinent to his credibility. There is no probative relationship between a person’s educational achievements or other accomplishments and his or her disposition to truthfulness. Second, the "credibility” import of a prior felony conviction is not to be weighed against the "credibility” import of some other evidence. It is to be weighed against its potential prejudicial effect on the fairness of the defendant’s trial.
In People v Jackson, 391 Mich 323, 333; 217 NW2d 22 (1974), and People v Baldwin, 405 Mich 550, 552-553; 275 NW2d 253 (1979), we set forth guidelines for the exercise of the trial court’s discretion in balancing the prejudicial éffect of evidence of prior convictions against their probative value on the issue of credibility. Among the factors to be considered are the nature of the prior offense, whether the conviction was for substantially the same conduct as that for which the accused is on trial, and the effect on the decisional process if the accused does not testify for fear of impeachment by prior convictions.
The purpose of this inquiry is two-fold:
1) To put before the jury only those prior convictions indicative of the defendant’s disposition toward truthfulness and veracity; and
2) To keep from the jury those convictions which, although they may be indicative of defendant’s disposition toward truthfulness, may interfere with the jury’s ability to determine the defendant’s guilt or innocence on the basis of the evidence. Such interference is what is meant by "prejudice”.
If, after evaluating these factors, the judge believes the prejudicial effect of admitting prior conviction evidence outweighs its probative value, the evidence should be excluded.
Here the conviction was of essentially the same crime as that with which the defendant was charged and was approximately 14 years old. For these reasons we are persuaded that the prejudicial effect of this evidence outweighed its probative value.
The defendant also contends that he was denied equal protection of the law because the trial court denied him a complete transcript of the first trial. He further argues that the trial judge should have disqualified himself because he, along with the other judges of the Washtenaw Circuit Court, attended the funeral of the Ypsilanti policeman who was killed during the armed robbery.
Inasmuch as we have ordered a new trial on the basis of defendant’s first assertion of error, to obviate the problems implicated in the other questions we direct that on retrial the defendant be furnished a complete transcript of the first trial which resulted in a mistrial and that the State Court Administrator assign a visiting judge to hear the case. In ordering the appointment of a visiting judge we intimate no finding of bias or prejudice on the part of the trial judge or of the other judges of the Washtenaw Circuit Court.
Pursuant to GCR 1963, 853.2(4), we reverse the judgment of the Court of Appeals and remand to the Washtenaw Circuit Court for a new trial.
Kavanagh, Williams, Levin, Fitzgerald, and Ryan, JJ., concurred.
The trial in this case preceded the March 1, 1978 effective date of the Michigan Rules of Evidence. The listed factors continue to be relevant in the balancing required by MRE 609(a)(2). | [
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Williams, J.
Two issues confront us in this negligence case. The first is the effect of an alleged violation of statute by plaintiff. The second is the sufficiency of Michigan Standard Jury Instruction 14.01 on last clear chance. We hold that violation of a statute by plaintiff or defendant creates a prima facie case from which a jury may draw an inference of negligence. The jury may also consider whether a legally sufficient excuse has been presented to refute this inference. As for the second question, we find that the approach of the American Law Institute in the second Restatement of Torts gives a clear and decisive statement of the law of last clear chance and that Michigan case law basically supports the Restatement. However, because of the specific facts of this case a new trial is not necessary, and we therefore reverse the Court of Appeals and affirm the trial court.
I — Facts
The accident which precipitated this action occurred one snowy morning, March 7, 1969, when the temperature was 11° F, the sky was clear and the average snow .depth was 21 inches. Plaintiff Eleanor Zeni, then a 56-year-old registered nurse, was walking to her work at the Northern Michigan University Health Center in Marquette. Instead of using the snow-covered sidewalk, which in any event would have required her to walk across the street twice to get to her job, she traveled along a well-used pedestrian snowpath, with her back to oncoming traffic.
Defendant Karen Anderson, a college student, was driving within the speed limit in a steady stream of traffic on the same street. Ms. Anderson testified that she had turned on the defroster in the car and her passenger said she had scraped the windshield. An eyewitness whose deposition was read at trial, however, testified that defendant’s windshield was clouded and he doubted that the occupants could see out. He also testified that the car was traveling too close to the curb and that he could tell plaintiff was going to be hit.
Defendant’s car struck the plaintiff on the driver’s right side. Ms. Anderson testified she first saw the plaintiff between a car . parked on the right-hand side of the .road and defendant’s car, and that she did not hear nor feel her car strike Ms. Zeni. The eyewitness reported seeing plaintiff flip over the fender and hood. He said when he went over to help her his knees were on or inside the white line delineating a parking space. A security officer observed blood stains on the pavement approximately 13 feet from the curb.
Ms. Zeni’s injuries were serious and included an intracerebral subdural hematoma which required neurosurgery. She has retrograde amnesia and therefore, because she does not remember anything from the time she began walking that morning until sometime after the impact, there is no way to determine whether she knew defendant was behind her. Following an extended period of convalescence, plaintiff, still suffering permanent disability, could return to work on only a part-time basis.
Testimony at trial indicated that it was common for nurses to use the roadway to reach the health center, and a security officer testified that in the wintertime it was safer to walk there than on the one sidewalk. Apparently, several days before the accident, Ms. Zeni had indeed fallen on the sidewalk. Although she was not hurt when she fell, the Director of University Security was hospitalized when he fell on the walk.
Defendant, however, maintained that plaintiff’s failure to use that sidewalk constituted contributory negligence because, she said, it violated MCLA 257.655; MSA 9.2355, which requires:
"Where sidewalks are provided, it shall be unlawful for pedestrians to walk upon the main traveled portion of the highway. Where sidewalks are not provided, pedestrians shall, when practicable, walk on the left side of the highway facing traffic which passes nearest.”
The trial court instructed the jury on this point:
"Now, it is for you to decide whether on the evidence presented in this case, sidewalks were provided for the plaintiff, Mrs. Zeni, to go from parking lot 'X’ [where she parked her car before beginning her walk] to her place of work. Then, as to this statute, you shall then decide whether or not it was practicable for her to walk on the left side of the highway facing traffic which passes nearest. If you find that the plaintiff, Mrs. Zeni, violated this statute before or at the time of the occurrence, then Mrs. Zeni was negligent as a matter of law, which, of course, would bar her claim under count I, providing that her negligence was a proximate contributing cause of the occurrence.”
The trial court also instructed the jury, over defendant’s objection, that even if they found plaintiff was negligent, and that her negligence was a proximate cause of her injuries, a verdict for plaintiff was still possible if defendant was subsequently negligent for failing to use ordinary care with the means at hand after she knew or should have known of plaintiff’s danger. Defendant ob jected to the court instructing the jury on subsequent negligence, or last clear chance, claiming that, since plaintiffs negligence in walking in the street had not come to rest prior to the time she was struck by the defendant, the instruction was inapplicable.* The trial court held that the question of whether negligence was concurrent was for the jury, and gave the Michigan Standard Jury Instruction 14.01:
"Even though you find Mrs. Zeni by her own negligence placed herself in a position of danger, that will not defeat her claim for damages if defendant * * * failed to use ordinary care with the means at hand after the defendant knew or should have known of Mrs. Zeni’s danger.”
He also instructed on burden of proof, as recom mended by the Note on Use, SJI 14.01, as well as on proximate cause.
The jury found defendant "guilty of subsequent negligence” and awarded plaintiff damages of $30,-000.
The Court of Appeals, in a thorough opinion, Zeni v Anderson, 56 Mich App 283; 224 NW2d 310 (1974), found first it was a question of fact whether MCLA 257.655; MSA 9.2355 relating to failure to use a sidewalk applied to the case, 56 Mich App 296, and whether if Ms. Zeni were found to be negligent, such negligence was a proximate cause of her injuries. 56 Mich App 297-298. Further, it was not incorrect to instruct on last clear chance. However, the Court of Appeals found that the instruction given was incorrect. Holding that the doctrine of last clear chance "does not apply where the negligence of both parties is concurrent and proximately causes plaintiffs injury”, 56 Mich App 301, the Court found that "SJI 14.01 is in its wording deficient without further explanation”, 56 Mich App 302, inasmuch as it does not advise the jury that plaintiffs negligence must cease to operate as a proximate cause of the ensuing injury. The Court of Appeals therefore reversed and remanded for a new trial.
We granted leave to appeal January 29, 1975. 393 Mich 804.
II — Effect of Violation of Statute
An analysis of the Michigan cases indicates that the real Michigan rule as to the effect of violation of a penal statute in a negligence action is that such violation creates only a prima facie case from which the jury may draw an inference of negligence. It is true that a number of passages in cases speak of negligence per se almost in terms of strict liability, but closer examination of the application of the rule reveals that Michigan does not subscribe to such a harsh dogma.
A. Violation of Statute as Rebuttable Presumption
In a growing number of states, the rule concerning the proper role of a penal statute in a civil action for damages is that violation of the statute which has been found to apply to a particular set of facts establishes only a prima facie case of negligence, a presumption which may be rebutted by a showing on the part of the party violating the statute of an adequate excuse under the facts and circumstances of the case. The excuses may not necessarily be applicable in a criminal action, since, in the absence of legislatively-mandated civil penalties, acceptance of the criminal statute itself as a standard of care in a civil action is purely discretionary. See Comment and Illustrations, 2 Restatement Torts, 2d, § 288A, pp 33-37.
Michigan cases have in effect followed this rule. For example, over a 65-year period, cases concerning the effect in a negligence action of violation of the statute requiring vehicles to keep to the right side of the road have almost consistently adopted a rebuttable presumption approach, even though the language of the statute is not written in terms of a presumption.
Thus, in Tyler v Nelson, 109 Mich 37, 41; 66 NW 671 (1896), we approved a charge to the jury that even though the "law of the road” required driving to the right,
"if, under all the circumstances, it was apparently safer for him to turn to the left, and he did only what a man of ordinary prudence would have done under similar circumstances, then he had a right to disregard the law of the road in that particular, and his turning to the left would not in itself be negligence.” (Emphasis added.)
Again, in Buxton v Ainsworth, 138 Mich 532, 536; 101 NW 817 (1904), although the statute was not specifically mentioned, we said:
"As an abstract proposition, the driver of a vehicle about to meet another team is presumptively at fault if he fails to turn to the right of the center of the wrought portion of the highway; but if the presumption that he is thus at fault is overcome by the evidence of circumstances, or if it appears that the fault, if found, did not essentially contribute to the injury, the fact that he may have been in a sense out of place does not place him beyond the protection of the law.” (Emphasis added.)
By the time we decided Corey v Hartel, 216 Mich 675, 680; 185 NW 748 (1921), it was clear that the law was,
"While a driver who does not keep to the right of the center is presumptively at fault, the circumstances attending such meeting may be such as to overcome the presumption, or the evidence may establish the fact that such act of negligence did not essentially contrib-. ute to the injury.” (Emphasis added.)
This is still the approach under the successor statute, MCLA 257.634; MSA 9.2334, with the only question being not whether an excuse would be acceptable, but what an acceptable excuse would be.*
We find a similar approach to the assured clear distance statute. In Patzer v Bowerman-Halifax Funeral Home, 370 Mich 350, 352; 121 NW2d 843 (1963), we recognized, "Its [the statute’s] application to variant evidentiary circumstances, once visibly to the rigid [interpretation] [citing Lett v Summerfield & Hecht, 239 Mich 699, 703; 214 NW 939 (1927)], has by force of inexorably developing traffic conditions been modified in recent years to one of 'reasonable construction’ ”. In that case we found that extraordinary blizzard conditions in our Upper Peninsula made it safest for drivers to follow the yellow flashing light of the snow plow. "To stop for want of driving vision or other reason is to invite a collision from the rear. * * * [I]t isn’t possible at all times to obey the letter of the enactment requiring an assured clear distance ahead, and still obey the variable and jury-determinable requirement of due care.” 370 Mich 355.
Thus, while it has been said that violation of this statute constitutes negligence per se, McKinney v Anderson, 373 Mich 414, 419; 129 NW2d 851 (1964), such presumption may be overcome. The range of acceptable excuses is apparently not limited to Patzer-type natural hazards, or Mc Kinney-type sudden emergencies, for, as we said in Sun Oil Co v Seamon, 349 Mich 387, 411; 84 NW2d 840 (1957) "the statute must be reasonably construed,” 349 Mich 411, and "If the emergency exception seems unduly narrow in scope and phrasing we should re-examine its content”. 349 Mich 412.
The Michigan rebuttable presumption approach is not restricted to these statutes. The Standard Jury Instruction covering the effect of the violation of any penal statute on a negligence case asks the jury to consider possible excuses if such evidence is presented. Although the text of the instruction is couched in terms of the emergency exception, the Note on Use provides that the instruction "should be modified for other categories of excused violations.” For such possible excuses, the Comment refers to the five categories of excuses suggested by the Restatement, fn 8, supra. The Restatement itself has suggested that this list is not all-inclusive.
We think the test of the applicable law was well stated by our Brother Justice Fitzgerald when he was a judge on the Court of Appeals. In Lucas v Carson, 38 Mich App 552; 196 NW2d 819 (1972), he analyzed a case where, in spite of defendant’s precautions, her vehicle "inexplicably slid into the rear of plaintiffs stopped car” where plaintiff was waiting at a traffic signal. 38 Mich App 554. Plain tiff alleged that defendant violated MCLA 257.627; MSA 9.2327, the assured clear distance statute, as well as MCLA 257.643; MSA 9.2343 and MCLA 257.402; MSA 9.2102. Although the language of the latter two statutes raises the possibility of excuse, we think our review of the precedents indicates Lucas was correct in not distinguishing among the statutes as to acceptable standards of excuse, and in not restricting the acceptable gamut of excuse possibilities.
First, in analyzing whether the presumption of negligence attributed to a rear-end collision had been rebutted in the case before them, the Court of Appeals acknowledged that the usual grounds for rebuttal, sudden emergency, did not appear in this case. In effect accepting defendant’s contention that the doctrine of sudden emergency was not the sole basis for rebutting a presumption of negligence, the Court held:
"The general rule appears to be that evidence required to rebut this presumption as a matter of law should be positive, unequivocal, strong, and credible. In the case at bar, defendant driver contended that she was at all times driving in a reasonable and prudent manner. * * * [T]here was sufficient evidence at least to generate a jury question regarding rebutting of the presumption.” 38 Mich App 552, 557 (citations omitted; emphasis by the Court).
As to the other alleged statutory violations, Justice Fitzgerald observed:
" 'Whereas, at one time, the application of the statute (assured clear distance) was strictly construed and applied as evidenced by the rule in the case of Lewis v Yund, 339 Mich 441 [64 NW2d 690] (1954), recent cases indicate that the statute must be reasonably construed and exceptions to the statutory edict have been created to accomplish justice, including bringing the assured clear distance rule to qualification by the test of due or ordinary care, exercised in the light of the attending conditions. Sun Oil Co v Seamon, 349 Mich 387 [84 NW2d 840] (1957); Nass v Mossner, 363 Mich 128 [108 NW2d 881] (1961); Dismukes v Michigan Express, Inc, 368 Mich 197 [118 NW2d 238] (1962).’ [quoting Hackley Union National Bank & Trust Co v Warren Radio Co, 5 Mich App 64, 71; 145 NW2d 831 (1966)].
"See Hendershot v Kelly, 11 Mich App 173 [160 NW2d 740] (1968). The qualification applying to the assured-clear-distance statute as enunciated in the above quotation is also applicable to the rule against following too closely. Hendershot v Kelly, supra.
"Since there was at least some evidence that defendant driver was operating her vehicle in a reasonable and prudent manner prior to the accident, the question of whether or not defendant violated one or both of these statutes was properly a factual one for the jury to resolve.” 38 Mich App 552, 558 (emphasis added).
This is the approach we follow today. For one, it recognizes that the Legislature has spoken in a particular area, and that,
"The legislative process includes opportunities to arrive at informed value judgments superior to the opportunities of judges and jurors. Furthermore, the legislative judgment is pronounced in advance and tends to educate the public.” 49 Colum L Rev 21, 47.
Particularly in the area of health and safety regulations, we find ourselves attempting "to further the ultimate policy for the protection of individuals which they find underlying the statute.” Pros ser, supra, p 191. Then, too, it is felt that "the reasonably prudent man usually tries to comply” with the criminal law. 49 Colum L Rev 21, 33.
Another attraction of this approach is that it is fair. "If there is sufficient excuse or justification, there is ordinarily no violation of a statute and the statutory standard is inapplicable.” Satterlee v Orange Glenn School Dist of San Diego County, 29 Cal 2d 581, 594; 177 P2d 279, 286 (1947) (dissenting in part). It would be unreasonable to adhere to an automatic rule of negligence "where observance would subject a person to danger which might be avoided by disregard of the general rule”. Tedla v Ellman, 280 NY 124, 131-132; 19 NE2d 987, 991 (1939).
The approach is logical. Liability without fault is not truly negligence, and in the absence of a clear legislative mandate to so extend liability, the courts should be hesitant to do so on their own. Because these are, after all, criminal statutes, a court is limited in how far it may go in plucking a statute from its criminal milieu and inserting it into the civil arena. The rule of rebuttable presumption has arisen in part in response to this concern, and in part because of the reluctance to go to the other extreme and in effect, discard or disregard the legislative standard.
B. Violation of Statute as Negligence Per Se
While some Michigan cases seem to speak of negligence per se as a kind of strict liability, Holbert v Staniak, 359 Mich 283, 290; 102 NW2d 186 (1960), an examination indicates that there are a number of conditions that attempt to create a more reasonable approach than would result from an automatic application of a per se rule.
The first such condition is that the penal standard does not have to be applied in the civil action. Absent explicit legislative language creating civil liability for violation of a criminal statute, a court is free to exercise its discretion and either adopt the legislative standard, or retain the common law reasonable person standard of care. LaCroix v Grand Trunk W R Co, 379 Mich 417, 438-439; 152 NW2d 656 (1967) (concurring opinion). See e.g., Rudes v Gottschalk, 159 Tex 552; 324 SW2d 201, 204-205 (1959); Clinkscales v Carver, 22 Cal 2d 72; 136 P2d 777, 778 (1943); Raymond v Riegel Textile Corp, 484 F2d 1025, 1028 (CA1, 1973); Whoolery v Hagan, 247 Md 699; 234 A2d 605, 609 (1967); Prosser, supra, p 200; Murchison, Negligence per se and Excuse for a Statutory Violation in Texas, 5 St Mary’s L J 552 (1973). By its interpretation of the statutory purpose a court may in effect excuse an individual from the consequences of violating a statute. For example, the court may find the statute’s purpose was not to protect the person allegedly injured, or, even if it was, that the harm suffered was not what the Legislature designed the statute to do.
Once this threshold is crossed and the court determines that the statute is applicable to the facts in the case before it, e.g., Hardaway v Consolidated Paper Co, 366 Mich 190, 196-197; 114 NW2d 236 (1962), liability still does not attach unless the finder of fact determines that the violation of the statute is the proximate cause of the injury. 366 Mich 197. Holmes v Merson, 285 Mich 136, 140; 280 NW 139 (1938); Kubasinski v Johnson, 46 Mich App 287, 289-290; 208 NW2d 74, 76 (1973); Shepherd v Short, 53 Mich App 9, 11; 218 NW2d 416 (1974); Selmo v Baratono, 28 Mich App 217, 226; 184 NW2d 367 (1970). Even then, liability is not automatic, for defenses such as contributory negligence still apply. Syneszewski v Schmidt, 153 Mich 438, 441; 116 NW 1107 (1908).
Despite such limitations, the judge-made rule of negligence per se has still proved to be too inflexible and mechanical to satisfy thoughtful commentators and judges. It is forcefully argued that no matter how a court may attempt to confine the negligence per se doctrine, if defendant is liable despite the exercise of due care and the availability of a reasonable excuse, this is really strict liability, and not negligence. Prosser, The Law of Torts (4th ed), § 36, p 197. Since it is always possible that the Legislature’s failure to deal specifically with the question of private rights was not accidental, and that there might have been no legislative intent to change the law of torts, such treatment of the statute may well be a gross perversion of the legislative will. It is trouble some, too, that "potentially ruinous civil liability” may follow from a "minor infraction of petty criminal regulations”, 49 Colum L Rev 21, 23, or may, in a jurisdiction burdened by contributory negligence, serve to deprive an otherwise deserving plaintiff of a much-needed recovery.
The rule, too, may have unfortunate effects on the administration of justice. Justice Talbot Smith suggests that adoption of the statutory standard improperly takes from the jury its function of setting the standard of care. Richardson v Grezeszak, 358 Mich 206, 235; 99 NW2d 648 (1959) (for affirmance). He also suggests that in order to avoid what may be an unfair result, courts may attempt to distort one of the negligence per se conditions, and create instead a negligence per se loophole. This is particularly true, he contends, of the element of proximate cause.
"The difficulty with the proximate cause solution in most cases, well illustrated by the facts before us, is that its use requires the employment of a fiction. When an automobile strikes a pedestrian walking along, the highway we have a causal relationship as immediate and direct as that between the bullet and the target, the fist and the jaw. Harper and James comment with much force that 'the notion of proximate cause has no legitimate application here. Nevertheless it has sometimes been used as a confused and undiscriminating phrase to cover an escape from the rigors of the negligence per se rule.’ Fictions, of course, are often employed in the law and are sometimes necessary, but they are dangerous servants since they so often become our masters obscuring thought and cloaking the reasoning of the courts. It is preferable that we disclose and discuss the issues directly, not in metaphysical terms. We have commented heretofore upon the indiscriminate use of the term 'proximate cause.’ We noted, in Glinski v Szylling, 358 Mich 182, 197 [99 NW2d 637 (1959)], its use, in that case, as a term synonymous with 'cause in fact.’ Here its use cloaks a different problem, the effect upon civil liability of a regulatory statute. It was Dean Green who observed many years ago that 'The attempt which common-law courts have made to resolve every major problem of legal liability in tort into terms of causal relation marks the most glaring and persistent fallacy in tort law.’ ” Richardson v Grezeszak, 358 Mich 206, 234-235; 99 NW2d 648 (1959) (Smith, J.) (notes omitted).
Similar judicial liberties may be taken with the meaning of statutory terms, in order to avoid the results from literal interpretation. Surely, the prevalence of such devices, combined with the increasing dominance of the rebuttable presumption standard, indicate the negligence per se approach just does not work.
C Violation of Statute as Evidence of Negligence
Just as the rebuttable presumption approach to statutory violations in a negligence context apparently arose, at least in part, from dissatisfaction with the result of a mechanical application of the per se rule, a parallel development in our state with respect to infractions of ordinances, and of administrative regulations, has been that violations of these amount to only evidence of negligence. Rotter v Detroit United R Co, 205 Mich 212, 231; 171 NW 514 (1919); Banzhof v Roche, 228 Mich 36, 40; 199 NW 607 (1924); Mills v A B Dick Co, 26 Mich App 164, 168; 182 NW2d 79 (1970); Douglas v Edgewater Park Co, 369 Mich 320, 328; 119 NW2d 567 (1963). We have not, however, chosen to join that small minority which has decreed that violation of a statute is only evidence of negligence. In view of the fairness and ease with which the rebuttable presumption standard has been and can be administered, we believe the litigants are thereby well served and the Legislature is given appropriate respect.
D. Application of Statutory Standard to This Case
We have seen, therefore, that while some of our Michigan cases seem to present negligence per se as an unqualified rule, the fact of the matter is that there are a number of qualifications which make application of this rule not really a per se approach at all. Not only must the statutory purpose doctrine and the requirement of proximate cause be satisfied, but the alleged wrongdoer has an opportunity to come forward with evidence rebutting the presumption of negligence.
An accurate statement of our law is that when a court adopts a penal statute as the standard of care in an action for negligence, violation of that statute establishes a prima facie case of negligence, with the determination to be made by the finder of fact whether the party accused of violating the statute has established a legally sufficient excuse. If the finder of fact determines such an excuse exists, the appropriate standard of care then becomes that established by the common law. Such excuses shall include, but shall not be limited to, those suggested by the Restatement Torts, 2d, § 288A, and shall be determined by the circumstances of each case.
In the case at bar, moreover, the statute itself provides a guideline for the jury, for a violation will not occur when it is impracticable to use the sidewalk or to walk on the left side of a highway. This is ordinarily a question for the finder of fact, Bird v Gabris, 53 Mich App 164, 167; 218 NW2d 871 (1974), and thus the statute itself provides not only a legislative standard of care which may be accepted by the court, but a legislatively mandated excuse as well.
In the instant case the court charged the jury:
"Now, it is for you to decide whether on the evidence presented in this case, sidewalks were provided for the plaintiff, Mrs. Zeni, to go from parking lot 'X’ to her place of work. Then, as to this statute, you shall then decide whether or not it was practicable for her to walk on the left side of the highway facing traffic which passes nearest. If you find that the plaintiff, Mrs. Zeni, violated this statute before or at the time of the occurrence, then Mrs. Zeni was negligent as a matter of law, which, of course, would bar her claim under count I, providing that her negligence was a proximate contributing cause of the occurrence.”
Thus, we find the jury was adequately instructed as to the effect of the violation of this particular statute on plaintiff’s case.
Ill — Last Clear Chance
The jury in the case at bar apparently found the plaintiff contributorily negligent, but still awarded damages to her because of a finding that defendant had the last clear chance to avoid the accident. The Court of Appeals found, however, that SJI 14.01, used by the trial judge to instruct the jury on last clear chance, was fatally deficient inasmuch as it did not require the jury to find that the negligence of plaintiff had come to rest before the doctrine could be applied. Although the SJI Note on Use provides that the instruction could not be given if plaintiff’s negligence is concurrent with that of defendant, the SJI itself does not explain this facet to the jury. This finding of the Court of Appeals highlights one of the cloudiest areas of our negligence law, but it affords us an opportunity to demystify it.
This last clear chance case and the learned and involved arguments and briefs of counsel provoke us to revisit Davies v Mann, 10 M & W 546; 152 Eng Rep 588; 19 Eng Rule Cas 190 (Ex 1842), where the last clear chance doctrine was originally propounded. As will be recalled, plaintiff there negligently tethered his jackass on the highway and defendant’s subsequent negligence in driving his carriage at a smart rate into the animal killed the poor beast. Despite plaintiff’s antecedent negligence, defendant was held responsible for his own subsequent negligence, and plaintiff recovered. In this opinion we examine the state of the law of last clear chance in Michigan and the gloss added to the original doctrine. We find that the approach of the American Law Institute in the Second Restatement of Torts gives a clear and decisive statement of this law, brushing away some, of the barnacles with which time has encrusted the doctrine, and we find that Michigan case law is basically, supportive of the Restatement.
IV — State of Law of Last Clear Chance in Michigan
Papajesk v Chesapeake & O R Co, 14 Mich App 550, 552; 166 NW2d 46, 49 (1968), feelingly described the state of the law of last clear chance as follows:
"This appeal brings to the fore one of the most misunderstood doctrines in the law of negligence. There is apparent confusion in almost every cited case regarding the doctrine of gross negligence.”
Papajesk then went on to say:
"The LaCroix Case [LaCroix v Grand Trunk W R Co, 379 Mich 417; 152 NW2d 656 (1967)], p 423 quotes the Gibbard Case to the effect that 'such gross negligence is also sometimes called discovered negligence, subsequent negligence, wanton or willful or reckless negligence, discovered peril, last clear chance doctrine, and the humanitarian rule.’ A legal term with this number of aliases, each of which is given a precise meaning by case law and legal definition was destined for confusion.” 14 Mich App 550, 555; 166 NW2d 46.
Papajesk wound up stating a straightforward rule, which is quite similar to Davies v Mann, supra. The rule stated by Papajesk is:
"To determine the existence of gross negligence all the facts and circumstances must be taken into consideration to ascertain if the following conditions exist: (1) Plaintiff is in a position or situation which has become dangerous. (2) Defendant knows or by the exercise of ordinary care ought to know, of plaintiff’s peril. (3) Defendant must have the means to avoid the harm by the use of ordinary care. (4) Failure of defendant to use due care when it could be reasonably foreseen that ordinary negligence is likely to cause harm.” 14 Mich App 550, 556; 166 NW2d 46, 49.
Papajesk is fairly accurate as far as it goes, but there are other problems connected with last clear chance which have created marches and counter-marches that have caused some of the confusion in this branch of the law.
On the one hand, some of the cases have limited plaintiffs ability to recover by requiring the original negligence to cease as a proximate cause of the accident. On the other hand, some courts have found for plaintiff even when his or her negligence has not ceased, by determining that contributory negligence was not applicable because defendant was willful, wanton or reckless.
In LaCroix v Grand Trunk W R Co, 379 Mich 417, 424; 152 NW2d 656 (1967), it was said:
" 'If the negligence of a plaintiff is concurrent with the negligence of a defendant, the rule as to the antecedent negligence of plaintiff * * * does not apply. The doctrine of gross, subsequent or discovered negligence may not be invoked to excuse concurrent negligence of a plaintiff.’ ” (Plaintiff was denied relief on the facts.)
Likewise Davidson v City of Detroit, 307 Mich 420, 430-431; 12 NW2d 413 (1943) states:
"In order to apply the doctrine of subsequent negligence * * * plaintiffs negligence * * * must have ceased to operate as the proximate cause of the accident * * * .”
Plaintiff was denied relief and the court said:
"Plaintiff has failed to show that the plaintiff’s negligence had ceased to operate as the proximate cause of the accident.” 307 Mich 420, 431; 12 NW2d 413.
See Shafkind v Kroll, 367 Mich 42, 45; 116 NW2d 58 (1962); Churukian v LaGest, 357 Mich 173, 181; 97 NW2d 832 (1959).
A somewhat similar limitation of plaintiff is found in several of the old "railway cases” which require that if plaintiff has discovered the peril, plaintiff must do everything possible to extricate himself or herself from the dangerous position. Thus, in Laethem v Fort Wayne & B I R Co, 100 Mich 297, 301; 58 NW 996 (1894), the court observed:
"[I]t was a question of fact for the jury to determine whether the plaintiff, under the circumstances, should have been out of the way when the car reached that point, or whether the accident occurred wholly by reason of the negligence of the driver of the car.”
See Labarge v Pere Marquette R Co, 134 Mich 139, 146; 95 NW 1073 (1903). ("Thus it is said that while one discovered by an engineer, negligently walking on a railroad, may be entitled to recover, if the engineer, apprehending the danger, makes no effort to avert it, he cannot recover if, after becoming aware of the danger, he makes no proper effort to escape.”) Most recently, in Armstrong v LeBlanc, 395 Mich 526, 537; 236 NW2d 419 (1975), we reiterated our concern that plaintiff exercise reasonable care for his or her own protection, and we expressed our dissatisfaction "with the dogmatic application of the subsequent negligence doctrine”.
However, where plaintiff did not detect the danger, the extrication requirement does not appear, even in the older cases. Thus, in Montgomery v Lansing C E R Co, 103 Mich 46; 61 NW 543 (1894), plaintiff, who was struck by defendant’s car while playing in a marching band, could recover because he did not hear the car approach. Allowance for plaintiffs error was carried even further in Deadman v Detroit, J & C R Co, 223 Mich 228, 231; 193 NW 778 (1923), where plaintiff was struck while repairing his employer’s truck which had stalled on the railroad tracks. The court was clear in rejecting any plaintiff "should have known” approach when it said, "Under these circumstances can it be said thatjhe [plaintiff] was guilty of contributory negligence, as a matter of law, because he failed to look down the tracks during the minute he was at work in trying to remove the truck? We think not.”
The other side of the coin, where the court found for plaintiff in the presence of concurrent negligence by finding that contributory negligence was not applicable in the first place, is illustrated by Gibbard v Cursan, 225 Mich 311; 196 NW 398 (1923). In this case a defendant in a truck going 30 to 40 miles per hour overtook some school girls walking home along the edge of the road. He waited until the last minute before tooting his horn. The deceased turned left into the road and was hit and killed. Defendant pled contributory negligence and plaintiff pled gross negligence.
Gibbard states the rule of "gross negligence” as follows:
“If one wilfully injures another, or if his conduct in doing the injury is so wanton or reckless that it amounts to the same thing, he is guilty of more than negligence. The act is characterized by wilfulness, rather than by inadvertence, it transcends negligence— is different in kind. Where recovery is sought on the theory that the injury was caused by wilful, wanton or reckless misconduct of a defendant, as distinguished from negligence, there is no more reason for permitting the defense of contributory negligence than in a case of assault and battery. True, such misconduct in this State and elsewhere usually has been called negligence, the word being qualified by such adjectives as gross, wanton, reckless, or wilful, but this is incorrect and has a tendency to mislead.” 225 Mich 311, 320-321; 196 NW 398.
Gibbard then goes on to define “wilfully inflicted” as follows:
“According to note, 69 LRA 516, and text, 20 RCL, p 145, the elements necessary to characterize the injury in the case at bar as wilfully inflicted are:
" '(1) Knowledge of a situation requiring the exercise of ordinary care and diligence to avert injury to another; (2) ability to avoid the resulting harm by ordinary care and diligence in the use of the means at hand; (3) the omission to use such care and diligence to avert the threatened danger, when to the ordinary mind it must be apparent that the result is likely to prove disastrous to another.’ ” 225 Mich 311, 322; 196 NW 398.
While Gibbard said it distinguished “wilful, wanton or reckless misconduct” from negligence, it accepted a definition of "wilful” couched in terms of ordinary negligence, except for the recognition that failure to exercise ordinary care would have dire consequences. Furthermore, it accepted the trial judge’s calling such misconduct gross negli gence. Finally this Court affirmed the trial court and approved the verdict for plaintiff.
Gibbard, although it illuminates some things, does not do for the area of last clear chance what the drafters of the Restatement have done, i.e., clarify the concept and provide workable guidelines for the finder of fact. Further, the Restatement Torts, 2d, §§ 479 and 480, eliminates some of the inconsistency and illogic which have become attached to the operation of this doctrine through the years.
V — The Restatement Position
A. The Restatement Principles
The drafters of the Restatement Torts, 2d, have attempted a precise statement of the doctrine of last clear chance. Instead of testing to see whether plaintiff is barred by contributory negligence, their approach is more appropriately whether plaintiff can qualify under the doctrine of last clear chance. The distinction is subtle, but it clears the way for a more meaningful resolution of the problem. Further, the triers of fact will be able to apply the regular, reasonable person and ordinary care rule of negligence without having to speculate about gross negligence etc., or groping around the avenues of proximate cause.
We adopt the following two sections of the Restatement as properly stating the law of last clear chance in Michigan:
"§ 479. Last Clear Chance: Helpless Plaintiff
"A plaintiff who has negligently subjected himself to a risk of harm from the defendant’s subsequent negligence may recover for harm caused thereby if, immediately preceding the harm,
"(a) the plaintiff is unable to avoid it by the exercise of reasonable vigilance and care, and
"(b) the defendant is negligent in failing to utilize with reasonable care and competence his then existing opportunity to avoid the harm, when he
"(i) knows of the plaintiff’s situation and realizes or has reason to realize the peril involved in it or
"(ii) would discover the situation and thus have reason to realize the peril, if he were to exercise the vigilance which it is then his duty to the plaintiff to exercise.” Restatement Torts, 2d, § 479, p 530.
"§ 480. Last Clear Chance: Inattentive Plaintiff
"A plaintiff who, by the exercise of reasonable vigilance, could discover the danger created by the defendant’s negligence in time to avoid the harm to him, can recover if, but only if, the defendant
"(a) knows of the plaintiff’s situation, and
"(b) realizes * * * that the plaintiff is inattentive and therefore unlikely to discover his peril in time to avoid the harm, and
"(c) thereafter is negligent in failing to utilize with reasonable care and competence his then existing opportunity to avoid the harm.” Restatement Torts, 2d, § 480, p 535.
B. Acceptance of the Restatement Position
Section 479 has been almost universally accepted. The Reporter’s Notes indicate that an equal number of courts has adopted the rule of the conscious last clear chance or discovered peril in (b)(i) and unconscious last clear chance in (b) (ii). Appendix, 479, p 333.
Although no Michigan case is cited, that is because we have not before expressly accepted the Restatement position. It is clear, however, that our cases accept both conscious and unconscious last clear chance. See e.g., LaCroix v Grand Trunk W R Co, 379 Mich 417, 437; 152 NW2d 656 (1967) (defendant "in the exercise of due care should have discovered plaintiffs situation”). Thus, our decisions have reached results consistent with this Restatement position.
As to § 480, the Reporter notes, "The rule stated in this Section is generally accepted.” Appendix, § 480, p 348. When we look at Michigan cases to determine whether this Restatement rule is accepted in application, if not in name, we find evidence of some acceptance.
In Deadman v Detroit, J & C R Co, 223 Mich 228, 231; 193 NW 778 (1923), the court found that plaintiff could not be said to be guilty of contributory negligence as a matter of law, precisely because he failed to look down the railroad tracks to watch for approaching cars "during the minute he was at work” repairing the truck stalled on the tracks.
In Battishill v Humphreys, 64 Mich 514; 38 NW 581 (1888), recovery was permitted for a 2-year-old returning home on the tracks who was run over by a railroad car in broad daylight at a street-railroad crossing. Here, the court found that if defendants’ testimony that they did not see the child was to be believed, this failure to keep a proper lookout made them guilty of reckless negligence. Thus, the court held, the question of contributory negligence did not even arise, even if the child had been old enough for the law to impose a duty of due care on her. 64 Mich 514, 521; 38 NW 581.
In Montgomery v Lansing C E R Co, 103 Mich 46; 61 NW 543; 29 LRA 287 (1894), judgment for plaintiff was affirmed where he was injured by a streetcar while he was marching in a street parade playing a cornet. Testimony indicated plaintiff did not know the car was approaching. The court distinguished the situation from one where an individual attempted to cross in front of a car, observing that the motorman had seen the situation, had apprehended the danger, and yet, if plaintiff were to be believed, had done nothing to avoid the accident. 103 Mich 46, 54; 61 NW 543.
The Restatement position in § 480 is limited enough, permitting plaintiff to receive the benefit of a last clear chance instruction only if defendant had actual knowledge of the situation and realized the danger, with knowledge to be construed from all the circumstances. The concept is apparently not foreign to our courts, and avoids the anomaly of preventing recovery when plaintiff didn’t know of the peril, but of permitting recovery when plaintiff did know (assuming, of course, defendant’s conduct was equally knowing and equally negligent in both situations). Since defendant’s duty varies with the classification accorded plaintiff’s .status, this classification (whether plaintiff is helpless or inattentive) should be applied at the time defendant is first charged with knowledge of plaintiff’s peril.
C. Applying the Restatement
In applying the Restatement to the facts of this case, we hold, first, that the only threshold to cross is that plaintiff may possibly be contributorily negligent. It is no longer necessary to consider the "metaphysical vagaries which accompany categories of negligence termed antecedent, concurrent, and subsequent intervening”. Armstrong v Le Blanc, 395 Mich 526, 534; 236 NW2d 419 (1975). Once the determination of contributory negligence is made, a jury might apply either section.
For § 479, once plaintiff placed herself in a situation where she might be hit by defendant’s car, the jury might find she was unable to get out of the vehicle’s way because, for example, there was no safe means of escape or, once she apprehended the danger, it was too late to do anything about it. The jury would also have to find that defendant knew or should have known by the exercise of ordinary care that plaintiff was in trouble and that she could have avoided the accident by, for example, stopping or changing lanes.
To apply § 480, the jury would have to find that plaintiff, through her own negligence, did not know she was in trouble, that defendant knew plaintiff was in the path of the car and knew that Ms. Zeni, with her back to traffic, could not tell the vehicle was close to her and that, surrounded as she was by automobiles, could not be reasonably expected to move out of defendant’s way. Once this determination was made, the jury would have to find that Ms. Anderson could have avoided the accident in order to find her liable.
VI — Conclusion
We adopt today the two Restatement sections (with the exception of that which has been termed the "humanitarian principle” which we leave open for consideration in an appropriate case) as the appropriate test for applying last clear chance. This brings Michigan into the mainstream of sound legal thinking on the subject and permits decision on the normal, reasonable person, ordi nary care basis of negligence. Further, it makes sure the courts retain sight of the original purpose of the doctrine, that of mitigating the harshness of contributory negligence. It also makes it easier for the jury.
The trial court must determine only whether plaintiff could fall into one of the categories to which last clear chance may be appropriately applied, and then should instruct the jury accordingly.
The jury will be asked to determine if plaintiff falls within one of the two Restatement categories, that of helpless or of inattentive plaintiff, and then, to decide if defendant’s conduct meets the appropriate standard which would give plaintiff the benefit of the last clear chance doctrine. This requirement shall be applicable to all future cases in which the question of last clear chance is raised, and SJI 14.01 may no longer be given.
However, whether the giving of the SJI amounted to error in the instant case is another question. While the jury was not specifically given the then prevailing language concerning concurrent and subsequent negligence, in fact the jury was instructed to find for plaintiff only if her negligence did not proximately contribute to her injury. As we have seen, the concept of concur rent negligence as related to subsequent negligence arose in our case law as another way of saying plaintiffs negligence may not be the proximate cause of his or her own injuries if last clear chance was to apply. That is precisely what the jury was told in the instant case.
We can well understand the Court of Appeals’ discomfort at observing the panoply of instructions and various gyrations required in this case. The remedy is not, however, to reverse the work of a trial court striving mightily to make sense of oft-conflicting precedent, when, in effect, he guided the jury as the Court of Appeals wished him to. In future cases, the task of both judge and jury will be, we trust, simpler and more rational. The Court of Appeals is reversed and the trial court is affirmed. Costs to plaintiff.
Kavanagh, C. J., and Levin and Fitzgerald, JJ., concurred with Williams, J.
Ryan, J., took no part in the decision of this case.
The court used Michigan Standard Jury Instruction 14.01 on last clear chance for this issue. That instruction provides:
"Even though you find (plaintiff) (decedent) by his own negligence placed himself in a position of danger, that will not defeat plaintiffs claim for damages if defendant failed to use ordinary care with the means at hand after defendant knew or should have known of (plaintiff’s) (decedent’s) danger.”
The instruction on the effect of plaintiffs contributory negligence was based on SJI 21.02(A), including:
"The defendant has the burden of proof on his claim that the plaintiff was negligent in one or more of the ways claimed by the defendant as stated to you in these instructions; and that such negligence was a proximate contributing cause of the (injuries) (damages) to the plaintiff.
"If you find that the plaintiff was contributorily negligent as just stated in this instruction, the plaintiff has the burden of proof on his claim that (the defendant was subsequently negligent — that is, that the defendant failed to use ordinary care with the means at hand after the defendant knew or should have known of the danger in which the plaintiff was placed by his own contributory negligence) (the defendant’s conduct was willful and wanton as previously explained in these instructions).
"Your verdict will be for the plaintiff, if he was (injured) (damaged), and the defendant was negligent, and such negligence was a proximate cause of his (injuries) (damages), unless the plaintiff himself was negligent and such negligence proximately contributed to his (inju ries) (damages). If the plaintiff himself was negligent and such negligence proximately contributed to his (injuries) (damages), your verdict will be for the plaintiff only if the (defendant was subsequently negligent) (defendant’s conduct was willful and wanton), as previously explained in these instructions, and such (subsequent negligence) (willful and wanton conduct) proximately caused the plaintiff’s (injuries) (damages).”
SJI 12.03 concerns the effect of plaintiff’s violation of a statute:
"If you find that the plaintiff violated this statute before or at the time of the occurrence, then the plaintiff was negligent as a matter of law. You must then decide whether such negligence was a proximate contributing cause of the occurrence.”
The note on use following SJI 14.01 says:
"This instruction should be used only when there is evidence of plaintiff’s precedent negligence, placing him in a position of danger. If the negligence of a plaintiff is concurrent with the negligence of a defendant, the instruction is not applicable. Also if plaintiff is in peril without negligence on his part, this instruction is not applicable because there is no precedent negligence to excuse. This instruction should not be given unless there is evidence that defendant could have avoided the accident after he knew or should have known of plaintiff’s danger.”
"21.02(A) Burden of Proof in Negligence Cases on the Issues and Legal Effect Thereof, Including the Issues of Contributory Negligence and Subsequent Negligence (Last Clear Chance) or Willful and Wanton Misconduct
"The plaintiff has the burden of proof on each of the following propositions:
(a) that the plaintiff was (injured) (sustained damage);
(b) that the defendant was negligent in one or more of the ways claimed by the plaintiff as stated to you in these instructions;
(c) that the negligence of the defendant was a proximate cause of the (injuries) (damages) to the plaintiff.
“The defendant has the burden of proof on his claim that the plaintiff was negligent in one or more of the ways claimed by the defendant as stated to you in these instructions; and that such negligence was a proximate contributing cause of the (injuries) (damages) to the plaintiff.
“If you find that the plaintiff was contributorily negligent as just stated in this instruction, the plaintiff has the burden of proof on his claim that (the defendant was subsequently negligent — that is, that the defendant failed to use ordinary care with the means at hand after the defendant knew or should have known of the danger in which the plaintiff was placed by his own contributory negligence) (the defendant’s conduct was willful and wanton as previously explained in these instructions).
“Your verdict will be for the plaintiff, if he was (injured) (damaged), and the defendant was negligent, and such negligence was a proximate cause of his (injuries) (damages), unless the plaintiff himself was negligent and such negligence proximately contributed to his (injuries) (damages). If the plaintiff himself was negligent and such negligence proximately contributed to his (injuries) (damages), your verdict will be for the plaintiff only if the (defendant was subsequently negligent) (defendant’s conduct was willful and wanton), as previously explained in these instructions, and such (subsequent negligence) (willful and wanton conduct) proximately caused the plaintiff’s (injuries) (damages).
"Your verdict will be for the defendant, if the plaintiff was not (injured) (damaged); or if the defendant was not negligent; or if negligent, such negligence was not a proximate cause of the (injuries) (damages); or if the plaintiff himself was negligent and such negligence was a proximate contributing cause of his (injuries) (damages), and the (defendant was not subsequently negligent) (defendant’s conduct was not willful and wanton) as previously explained in these instructions.”
"15.01 Definition of Proximate Cause Instruction
"When I use the words, 'proximate cause’ I mean first, that there must have been a connection between that conduct of the defendant which plaintiff claims was negligent and the injury complained of by the plaintiff, and second, that the occurrence which is claimed to have produced that injury was a natural and probable result of such conduct of the defendant.”
The dissenting member of the panel would have found plaintiff negligent as a matter of law and would have remanded for entry of judgment non obstante veredicto, holding there was nothing in the record to suggest it would have been impracticable for plaintiff to walk on the sidewalk, and that reasonable minds could not differ on whether plaintiff’s negligence was concurrent. 56 Mich App 283, 303-304.
Such a statute is relevant to a civil case "even though the statute does not, as is normally the case, contain a provision respecting civil liability.” Thaut v Finley (On Rehearing), 50 Mich App 611, 613; 213 NW2d 820 (1973). This is true whether the issue is the negligence of defendant, or the contributory negligence of plaintiff. Haynes v Seiler, 16 Mich App 98, 102; 167 NW2d 819 (1969). See, SJI 12.01, Violation of Statute by Defendant; SJI 12.03, Violation of Statute by Plaintiff-Contributory Negligence; Prosser, Torts (4th ed), § 36, p 203.
"This latter view is a specific application of the hornbook rule of procedure that a trial judge may direct a verdict on an issue on which reasonable jurors cannot differ. Substantively, this view is also a recognition that prudent men do not break the criminal law without justification. The assurance with which a trial judge may direct a verdict against a defendant who has offered no proof tending to justify his breach of the criminal law is based on the warning qualities of penal statutes and on the legislature’s opportunity to investigate before enacting proscriptions.” Morris, The Role of Criminal Statutes in Negligence Actions, 49 Colum L Rev 21, 35 (1949).
Although not intended to be exclusive, the Restatement Torts, 2d, suggests some possible excuses:
"(a) [T]he violation is reasonable because of the actor’s incapacity;
"(b) he neither knows nor should know of the occasion for compliance;
"(c) he is unable after reasonable diligence or care to comply;
"(d) he is confronted by an emergency not due to his own misconduct;
"(e) compliance would involve a greater risk of harm to the actor or to others.” 2 Restatement of Torts 2d, § 288A, p 33.
See Breitkreutz v Baker, 514 P2d 17, 24 (Alas, 1973) (accepting the Restatement excuses).
For example, the statute involved in Corey v Hartel, infra, said, in relevant part,
"Whenever any persons shall meet each other on any bridge or road, traveling with carriages, wagons, carts, sleds, sleighs, or other vehicles, each person shall seasonably drive his carriage or other vehicle to the right of the middle of the traveled part of such bridge or road, so that the respective carriages, or other vehicles aforesaid, may pass each other without interference.” 1915 CL 4592.
See also, Ross v Michigan Mutual Auto Insurance Co, 224 Mich 263, 269-270; 195 NW 88 (1923) (burden of proof on party on wrong side of the road to show justifying circumstances); Sanderson v Barkman, 264 Mich 152, 154; 249 NW 492 (1933) ("If it was necessary for defendants to drive upon the wrong side of the highway, in violation of the provisions of the statute, it was incumbent upon defendants to show the circumstances of such necessity.”).
"[T]he mere fact that an automobile is on the wrong side of the highway at the time of collision does not of itself make the driver thereof guilty of negligence as a matter of law.” Martiniano v Booth, 359 Mich 680, 687; 103 NW2d 502 (1960) (suggesting that a natural obstacle such as a rut or a path of ice would provide sufficient excuse). “[T]he statute requiring a vehicle to be driven on the right side of the highway, should be applied in a reasonable manner taking into consideration all of the facts and surrounding circumstances i.e., how the driver got on the wrong side of the road and whether it was caused by an emergency situation.” Hackley Union National Bank v Warren Radio Co, 5 Mich App 64, 73; 145 NW2d 831 (1966). "[I]t became the burden of defendant to introduce that measure of exculpatory proof which would clearly explain or excuse his violation of the statute.” Morton v Wibright, 31 Mich App 8, 13; 187 NW2d 254 (1971).
"Any person driving a vehicle on a highway shall drive the same at a careful and prudent speed not greater than nor less than is reasonable and proper, having due regard to the traffic, surface and width of the highway and of any other condition then existing, and no person shall drive any vehicle upon a highway at a speed greater than will permit him to bring it to a stop within the assured, clear distance ahead.” MCLA 257.627; MSA 9.2327.
Despite characterization of such statutory violations as negligence per se, McKinney applied the excuse of sudden emergency as the first car in a rear-end collision had stopped suddenly without signaling.
A sudden emergency not of defendant’s own making was found to be applicable in Seamon.
"However, if you find that defendant was confronted with a sudden emergency not of his own making and, if you find that he used ordinary care and was still unable to avoid the violation because of such emergency, then his violation is excused.
"If you find that defendant violated this statute and that the violation was not excused, then you must decide whether such negligence was a proximate cause of the occurrence.” SJI 12.01(A), Excused Violation of Statute by Defendant. See SJI 12.03(A), Excused Violation of Statute by Plaintiff.
"The driver of a motor vehicle shall not follow another vehicle more closely than is reasonable and prudent * * * ”,
"In any action, in any court in this state when it is shown by competent evidence, that a vehicle traveling in a certain direction, overtook and struck the rear end of another vehicle proceeding in the same direction, or lawfully standing upon any highway within this state, the driver or operator of such first mentioned vehicle shall be deemed prima facie guilty of negligence.”
However, Prosser calls such an implied intent to provide for tort liability "[i]n the ordinary case * * * pure fiction concocted for the purpose”. Prosser, p 191.
Still another rationale is that the criminal statute establishes "a standard of care greater than that required by the common law” and is therefore a more accurate test. 57 Am Jur 2d, Negligence, § 242, p 626.
For example, Justice Traynor, dissenting to the opinion setting forth the California rule of rebuttable presumption, found it undesirable because it might be similar to the approach in which the jury by considering a violation of a statute as only evidence of negligence, is free to approve "conduct that the Legislature has declared so dangerous as to call for criminal punishment”. Satterlee v Orange Glenn School District, 29 Cal 2d 581, 596; 177 P2d 279, 287 (1947) (dissenting in part).
Thus, 2 Restatement Torts, 2d, § 286, Comment d, p 26, observes:
"[T]he initial question is whether the legislation or regulation is to be given any effect in a civil suit. Since the legislation has not so provided, the court is under no compulsion to accept it as defining any standard of conduct for purposes of a tort action.
"Where criminal legislation, although constitutional, is entirely unreasonable or inappropriate — as where, for example, there is an automobile speed limit of six miles an hour, enacted in 1908 and never repealed — the court has no choice, in a criminal prosecution, but to apply the law so laid down. But since it is under no such compulsion in a civil suit, it may still treat the provision as inapplicable for the purposes of defining negligence in such a suit. In doing so, it may rely on the justification that the legislature has indicated no intention that it shall be so applied, since nothing more than a criminal penalty has been provided. * * *
"On the other hand, the court is free, in making its own judicial rules, to adopt and apply to the negligence action the standard of conduct provided by such a criminal enactment or regulation. This it may do even though the provision is for some reason entirely ineffective for its initial purposes, as where a traffic signal is set up under an ordinance which never has been properly published and so for the purposes of a criminal prosecution is entirely void. The decision to adopt the standard is purely a judicial one, for the court to make. When the court does adopt the legislative standard, it is acting to further the general purpose which it ñnds in the legislation, and not because it is in any way required to do so. ” (Emphasis supplied.)
This is usually done by applying the statutory purpose doctrine:
" 'The court may adopt as the standard of conduct of a reasonable man the requirements of a legislative enactment or an administrative regulation whose purpose is found to be exclusively or in part
" '(a) to protect a class of persons which includes the one whose interest is invaded, and
" '(b) to protect the particular interest which is invaded, and
" '(c) to protect that interest against the kind of harm which has resulted, and
" '(d) to protect that interest against the particular hazard from which the harm results.’ ” 2 Restatement Torts, 2d, § 286, quoted in 379 Mich 417, 439, fn 3.
Thus, the Note on Use for SJI 12.01, Violation of Statute by Defendant, provides:
"This instruction should be given only if:
"1. the statute is intended to protect against the injury involved; and
"2. the plaintiff is within the class intended to be protected by the statute; and
"3. The evidence will support a finding that the violation was a proximate cause of the occurrence.”
This remains true for plaintiff, except that "the statute is intended to protect against the result of the violation”. Note on Use, SJI 12.03.
"The sole question in this case is whether or not the statute relied upon applied to the defendant.” 366 Mich 190, 196; 114 NW2d 236.
It has been suggested that:
" '[W]hen a damage suit judge refuses to rule that breach of a criminal statute is negligence * * * he is not disobeying the legislature’s command, for the legislature has ordered criminal responsibility — not civil liability.’ ” Morris, Studies in the Law of Torts, quoted in Phoenix Refining Co v Powell, 251 SW2d 892, 896 (Tex Civ App, 1952).
Sometimes, too, when a statute may be ineffective to carry out the express legislative purpose, as, for example, when it is found to be ineffective for some reason, it may still be applied in civil actions. This creates a situation where the actual targets of the legislative scheme cannot be reached, but others, the civil violators, whom the Legislature may not have had in mind at all, are the only ones affected by the statute.
See e.g., Clinkscales v Carver, 22 Cal 2d 72; 136 P2d 777 (1943) (civil liability found where criminal prosecution was impossible because of improper publication). In Tabinski v A Harvey’s Sons Mfg Co, 168 Mich 392; 134 NW 653 (1912), although the statute stated that guards shall be placed on gears "when deemed necessary by the factory inspector”, 168 Mich 392, 395, we held that "the use of the word [necessary] here can[not] be permitted to modify the effect of the express mandate contained in the earlier part of the section”. 168 Mich 392, 397.
"The doctrine of negligence per se purports to rob the judge of judicial functions. It places responsibilities on a legislature that could not possibly conceive of all cases to which its proscription might apply and that has not provided for civil liability, and that, therefore, surely has not considered proper limitations and excuses. At times violation of the criminal law is not unreasonable. If the doctrine of negligence per se is applied obdurately to reasonable violators their liability can be justified only on some basis other than fault — if at all.” 49 Colum L Rev 21, 29.
Eg., Ertzbischoff v Smith, 286 Mich 306, 311-312; 282 NW 159 (1938) (Even though 10-year-old boy rode his bicycle after dark without lights, and was hit by a car and killed when defendant did not see him in time to stop, we held that it was a question for the jury whether the presence of the light would have made any difference, a slightly different and, within the circumstances of the case, a more realistic way of putting the proximate cause question. " 'It is therefore a matter of fact for you to determine whether or not the bicycle was properly lighted or equipped, and if not, whether or not this lack contributed to the happening of the accident.’ ”).
In Bird v Gabris, 53 Mich App 164; 218 NW2d 871 (1974), the Court of Appeals refused to construe the word "pedestrian” in the same statute involved in the instant case, MCLA 257.655; MSA 9.2355, to include "every person afoot on a public highway”, 53 Mich App 164, 167; 218 NW2d 871, and instead found that since plaintiff who was standing on either the shoulder or the traveled part of the road attempting to flag an on-coming car "was not using the highway for the purpose of travelling” " 'afoot’ ”, 53 Mich App 164, 168, as per the definition of pedestrian in MCLA 257.39; MSA 9.1839 [" 'Pedestrian’ means any person afoot.’ ”, quoted at 53 Mich App 164, 166], the statute was not applicable.
Although Prosser characterizes this as a “considerable minority”, he still indicates only four states have accepted the approach: Maryland, Massachusetts, New Jersey and Arkansas. Prosser, p 201, fn 27. One of these, Maryland, has a view which probably is closer to that of the "rebuttable presumption” school, discussed supra. New Amsterdam Casualty Co v Novick Transfer Co, 274 F2d 916, 923, and cases cited fn 4 (CA4, 1960).
A strict per se rule may perhaps be applicable in certain limited cases, certainly in cases where the Legislature itself has set forth rules of strict liability, but we are not confronted with such a statute today.
"It is not enough, however, to call this statute into operation, merely that a sidewalk be constructed at the spot in question. It must be usable. It may be partially destroyed by neglect or the elements, or it may be covered by water, sand, or snow. In such event the pedestrian who insists on following its probable course might well be heedless of his own safety. The usability of the walk is ordinarily * ** * a question of fact.” Martin v Leslie, 345 Mich 305, 309; 76 NW2d 71 (1956).
The jury found "defendant guilty of subsequent negligence” thereby implying a finding that plaintiff had been contributorily negligent.
Compare to Krouse v Southern Michigan R Co, 215 Mich 139; 183 NW 768 (1921), where recovery was not permitted because plaintiffs decedent waited too long to try to leave her car which was stalled on the railroad tracks, even though she was warned the train was coming, and even though her husband, the other passenger in the car, had removed himself. 215 Mich 144.
Because only ordinary contributory negligence of plaintiff may be set against the ordinary negligence of defendant to bar the action, by determining that defendant’s conduct is different in kind, and is rather an "aggravated form of negligence, approaching intent” plaintiff’s contributory negligence is no longer a bar to recovery. Prosser, The Law of Torts (4th ed), p 426.
Dean Prosser, in his role as Reporter to the Second Restatement, set forth the rationale for this approach, criticizing in particular the proximate cause position.
"The rules of the 'last clear chance’ * * * represent an exception to the general rule that the plaintiffs contributory negligence bars his recovery. The exception had its origin in Davies v Mann, 10 M & W 546; 152 Eng Rep 588 (Ex, 1842), where the plaintiff left his ass fettered in the highway, and the defendant ran into it.
"Two explanations are commonly given for this departure from the general rule that contributory negligence bars recovery. One is that the later negligence of the defendant involves a higher degree of fault. This may be true in cases where the defendant has discovered the danger and his conduct approaches intentional or reckless disregard of it; but it fails to explain many cases in which his negligence consists merely of a failure to discover the situation at all, or in slowness, clumsiness, inadvertence, or an error of judgment in dealing with it. The other explanation is that the plaintiffs negligence is not a 'proximate’ or legal cause of the harm to him, because the later negligence of the defendant is a superseding cause which relieves the plaintiff of responsibility for it. This is quite out of line with modern ideas as to legal cause. Where the injury is to a third person, as for example a passenger in the actor’s car, the fact that the actor has the last clear chance does not relieve the other driver of liability. * * * The causal relation can scarcely be otherwise where the injury is to the other driver himself.
"In reality the rules of the last clear chance appear to arise out of a dislike for the defense of contributory negligence, which has made the courts reject it in situations where they can regard the defendant’s negligence as the final and decisive factor in producing the injury.” 2 Restatement Torts, 2d, Comment, § 479, pp 530-531.
We do not now consider the so-called "humanitarian doctrine” ("or has reason to realize”, which we omitted above) which allows recovery where there is both an inattentive defendant and an inattentive plaintiff. Restatement, Second, Appendix, § 480, p 348.
As long as circumstances indicate a reasonable chance that plaintiff will not extricate him or herself, defendant is not entitled to act on the assumption that plaintiff will awaken to the danger, but must avoid the accident. See, Restatement, Second, Comment, § 480, p 536.
The so-called "humanitarian doctrine” is an exception to this general acceptance.
This is part of Michigan’s doctrine of gross negligence and does not necessarily support the humanitarian principle.
Some of our decisions have attempted to find a way for a plaintiff who did the wrong thing either through inattention or perhaps bad reflexes to recover anyway. For example, in Gibbard, supra, where the girl’s negligence, if any, consisted in her moving to the left just before being struck, the court noted:
"[Ajssuming that she did, there was evidence that she was frightened, and in sudden peril. To one in such situation the law makes allowance for the fright and lack of coolness of judgment incident thereto. Perhaps if she had stepped to the right, as the other girls did, she would have escaped, but because of the sudden peril, it will not now be held, imperatively, that she should have done that.” (Emphasis added.) 225 Mich 311, 317-318; 196 NW 398. Contra, Krouse v Southern Michigan R Co, 215 Mich 139, 144; 183 NW 768 (1921) (despite her husband’s warning, plaintiffs decedent remained in a car stalled on the railway track until it was too late to get out).
See fns 36 and 38, supra.
Part of the instructions to the jury on point were:
"Your verdict will be for the plaintiff, Mrs. Zeni, if she was injured or damaged and the defendant Karen was negligent, and such negligence was a proximate cause of the plaintiffs injuries, unless the plaintiff, Mrs. Zeni, herself was negligent and such negligence proximately contributed to her injuries. If the plaintiff herself was negligent and such negligence proximately contributed to her injuries, your verdict will be for the plaintiff only if the defendant was subsequently negligent as previously explained in these instructions and such subsequent negligence proximately caused the - plaintiff’s injuries.
"Your verdict will be for the defendants if the plaintiff, Mrs. Zeni, was not injured; or if the defendant Karen was not negligent; or if negligent, such negligence was not a proximate cause of the injuries; or if the plaintiff herself was negligent and such negligence was a proximate contributing cause of her injuries, and the defendant Karen was not subsequently negligent as previously explained in these instructions.” | [
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Kavanagh, J.
This action arose out of an automobile collision involving plaintiff Christine Berger and defendant-appellant Albert Weber. It is alleged that as a result of the accident, the plaintiff Christine Berger sustained severe and permanent psychological and physical injuries. Plaintiffs Wayne and Christine Berger filed a complaint on their own behalf and sought damages for medical expenditures, loss of income and loss off consortium. As next friend, Wayne Berger sought damages on behalf of his minor daughter, Denise, for loss of society, companionship, love and affection of her mother Christine Berger.
A jury awarded Wayne and Christine Berger $142,000. The trial court granted defendants’ motion for summary judgment as to the issue of liability for the minor daughter’s loss of society and companionship. The Court of Appeals affirmed the jury award and reversed the ruling on the child’s cause of action, holding that a child may maintain a cause of action for loss of parental society and companionship when a parent is "severely” injured. 82 Mich App 199, 201; 267 NW2d 124 (1978).
We granted leave to speak to the propriety of recognizing a cause of action for loss of parental society and companionship when a parent is negligently injured. After considering the competing policy considerations, we are satisfied that such a cause of action should be enforced.
I
Such a cause of action was unknown at common law and only one other jurisdiction recognizes this cause of action.
In Michigan the Court of Appeals previously addressed the issue and concluded that a child does not have such a cause of action because of the lack of "statutory or prior judicial authority”. Hayrynen v White Pine Copper Co, 9 Mich App 452, 455-456; 157 NW2d 502 (1968). Our Court by way of dicta, has stated in two cases that a child does not have an independent cause of action against a third party who negligently injures his parent.
Lack of precedent cannot absolve a common-law court from responsibility for adjudicating each claim that comes before it on its own merits. As Justice Smith observed in Montgomery v Stephan, 359 Mich 33, 38; 101 NW2d 227 (1960), "[o]ur oath is to do justice, not to perpetuate error”. Here we must consider the child’s claim in light of conditions pertinent to modern society and weigh the reasons urged for denying the cause of action.
II
Plaintiffs assert that denying the action for loss of society and companionship to a child is inconsis tent with the public policy of this state. They point out that Michigan has long recognized a cause of action for loss of consortium in favor of spouses and that parents have an independent cause of action for loss of services and other pecuniary damages resulting froth negligent injuries to their minor children. Jakubiec v Hasty, 337 Mich 205; 59 NW2d 385 (1953); Gumienny v Hess, 285 Mich 411; 280 NW 809 (1938). In Wycko v Gnodtke, 361 Mich 331; 105 NW2d 118 (1960), these pecuniary damages were held to include the loss of society and companionship of a child who died from negligently inflicted injuries. More importantly, children may recover for the loss of society and companionship of a parent who is negligently killed under the wrongful death act, MCL 600.2922; MSA 27A.2922. They may also recover for such loss under the dramshop act (MCL 436.22; MSA 18.993), Podbielski v Argyle Bowl, Inc, 392 Mich 380, 386; 220 NW2d 397 (1974).
We are satisfied that existing judicial and legislative policies warrant recognizing a child’s cause of action for loss of society and companionship of a negligently injured parent. After carefully reviewing the reasons cited by the defendants, we are convinced that they do not justify denying the cause of action the plaintiff seeks.
III
Defendants-appellants urge several reasons for not recognizing a child’s cause of action. The first argument is that the differences between the marital relationship and the parent-child relationship call for different treatment. They assert that a spouse’s action for loss of consortium is based to a large extent on the impairment or destruction of the sexual relations of the couple and no similar element exists in the child’s claim. We are not persuaded that this distinction is significant enough to deny the child’s claim. Sexual relations are but one element of the spouse’s consortium action. The other elements — love, companionship, affection, society, comfort, services and solace — are similar in both relationships and in each are deserving of protection.
Defendants-appellants next contend that allowing a child to maintain an independent cause of action when his or her parent is negligently injured will result in a burden to the individual defendant and to our court system. Under MCL 600.5851; MSA 27A.5851, if a person’s claim accrues when he is a minor, he is entitled to bring the cause of action at any time through his 19th birthday. The prospect of multiple suits will discourage settlements.
Multiplicity of actions arising out of the same tortious act are a present reality in tort law. Multiple actions may result whenever a single tortious act injures more than one person or property owned by more than one person. Whenever the persons are minor children the tortfeasor is faced with the minority savings provision in MCL 600.5851; MSA 27A.5851.
So too when a new cause of action is created, litigation may be increased. However, as the Court of Appeals aptly pointed out, "[t]he rights of a new class of tort plaintiffs should be forthrightly judged on their own merits, rather than engaging in gloomy speculation as to where it will all end”. (Citation omitted.) 82 Mich App 199, 210.
Another objection to the child’s cause of action raised by defendants-appellants is that it would be anomalous to allow a child to recover for negligent invasion of his family interest when he is specifically prohibited from recovery for intentional, direct invasion of his family interest under MCL 600.2901(1); MSA 27A.2901(1), which bars suits for alienation of affections.
We do not regard this as anomalous. One may recover for negligent injury or death of a spouse and a child may recover for the negligent death of a parent even though both be barred from recovery for the intentional, direct invasion of the family interest occasioned by alienation of affection.
We are satisfied that the real anomaly is to allow a child’s recovery for the loss of a parent’s society and companionship when the loss attends the parent’s death but to deny such recovery when the loss attends the parent’s injury.
Defendants-appellants ask us not to recognize the child’s claim because of the economic burden to the public due to increased insurance premiums. Recognizing the child’s cause of action may result in increased insurance costs, but compensating a child who has suffered emotional problems because of the deprivation of a parent’s love and affection may provide the child with the means of adjustment to the loss. The child receives the immediate benefit of the compensation, but society will also benefit if the child is able to function without emotional handicap. This may well offset any increase in insurance premiums.
Traditional arguments for not recognizing the child’s cause of action claim that the damages to the child are too remote and speculative and that compensating the child will result in double recovery because juries already consider the child when making damage awards to the injured parent.
The Court in Montgomery, supra, was asked to deny the wife a cause of action because the injury suffered by the wife was too remote from defendant’s act to be made the subject of a cause of action. The Court was unpersuaded by this argument and noted that the remoteness of such injury never bars the husband’s cause of action. Like the Montgomery Court, we see no reason why the child’s injury is any more remote than the injury in the spouse’s cause of action. More importantly, the injury here is no more remote than the injury sustained when the parent is negligently killed.
We are not convinced that the injury to the child is too speculative to award damages. Courts, law review commentators and treatise writers all recognize that the child suffers a genuine loss. While the loss of society and companionship is an intangible loss, juries often are required to calculate damages for intangible loss. Awards are made for pain and suffering, loss of society and companionship in wrongful death actions, and for loss of spousal consortium. Evaluating the child’s damages is no more speculative than evaluating these other types of intangible losses.
We agree with the Court of Appeals that because double recovery could result when making awards to parents, this is a further reason for adopting an independent action for the child.
"Rather than having juries make blind calculations of the child’s loss in determining an award to the parent, a child’s loss could be openly argued in court and the jury could be instructed to consider the child’s loss separately. The award would accrue directly to the child rather than be lumped in with that of the parent who may or may not spend it for the child’s benefit.” (Citation omitted.) 82 Mich App 210.
Finally, defendants-appellants urge us to leave this matter to the Legislature. Actions by parents for loss of a child’s services and medical expenses and actions for loss of spousal consortium were created and developed by the judiciary. At the present, time, children are prevented from recovering for loss of parental consortium by judicial decision. The Court should remove the obstacle. We do not regard the cause of action contemplated here so complex that we should defer action to the Legislature.
IV
The importance of the child to our society merits more than lip service. Convinced that we have too long treated the child as a second-class citizen or some sort of non-person, we feel constrained to remove the disability we have imposed.
We hold today that a child may recover for loss of a parent’s society and companionship caused by tortious injury to the parent.
We do not adopt the Court of Appeals limitation to instances of "severely” injured parents of minor children. The need for and extent of limitations beyond those attendant upon the comparable cause of action by a spouse should await demonstration.
Affirmed as modified.
Williams, Fitzgerald, and Blair Moody, Jr., JJ., concurred with Kavanagh, J.
Levin, J.
(to reverse). The issue is whether a child has a cause of action for loss of the society and companionship of a parent who has been negligently injured, but not fatally. Until recently, courts refused to extend the common law to allow a child to maintain such an action. One jurisdiction now allows such an action, and today this Court becomes the second court of last resort to conclude that the common law should be expanded to permit a child to recover money damages for the lost society and companionship of a negligently injured parent.
We would hold with the overwhelming majority of jurisdictions which have considered or reconsidered the question — many in recent years — that such an action should not be authorized and would reverse the decision of the Court of Appeals.
I
Plaintiff Christine Berger was the wife of Wayne Berger and the mother of two children at the time a truck driven by defendant Albert Weber struck her automobile from behind. She suffered no visible injuries as a result of the accident, but she subsequently experienced neck pain, severe headaches and a number of emotional problems. She was treated with medication and physical therapy and was hospitalized for a time.
Christine and Wayne Berger commenced an action seeking damages for Christine’s medical expenses, loss of income, and pain and suffering, and Wayne’s loss of consortium. The complaint was subsequently amended to allege a cause of action on behalf of the Bergers’ minor daughter, Denise, for loss of her mother’s society, companionship, love and affection resulting from Christine’s injuries. Christine sought judgment in the amount of $750,000 and Wayne and Denise $500,000 each.
The judge, granting defendants’ motion for partial summary judgment, dismissed the claim asserted on behalf of Denise. Defendants admitted liability and the question of damages was tried to a jury. Defendants contended that Christine had suffered no more than a neck sprain in the accident and that her subsequent difficulties were caused solely by pre-existing emotional problems.
The jury assessed Christine’s damages at $137,000 and Wayne’s at $5,000. The Court of Appeals rejected defendants’ allegation of instructional error and, on plaintiffs’ cross-appeal, reversed the grant of summary judgment on Denise’s claim, holding that "a child may maintain a cause of action for loss of parental society and companionship when a parent is 'severely’ injured”. (Emphasis supplied.) We granted leave to appeal to consider whether such a cause of action should be recognized. In affirming the Court of Appeals, this Court says:
"We do not adopt the Court of Appeals limitation to instances of 'severely’ injured parents of minor children. The need for and extent of limitations beyond those attendant upon the comparable cause of action by a spouse should await demonstration.”
II
At common law a husband whose wife had been injured could bring a separate action to recover for his loss of consortium resulting from her injury. Consortium was a loosely defined concept comprised of the husband’s rights to "services, society and sexual intercourse of the wife”. A father could maintain an action for loss of an injured child’s services. But a wife or child could not recover if deprived of a husband’s or father’s services or society, for the common law recognized no right to such services or society in the "inferior” parties to the relationship.
In most jurisdictions the common law has been altered to permit a wife to recover for loss of consortium. This case presents the question whether a child should be permitted to bring a comparable action.
The advocates of a child’s action for loss of what has been termed "parental consortium” maintain that recognition of the child’s right to recover is mandated by logic, compassion, and modern sensitivity to the independent identity of the child, the importance of family relationships, and the fairness of compensating persons injured by another’s negligent conduct. They point to this Court’s eloquent vindication of the wife’s action for loss of consortium and to the wrongful death act, which enables a child to recover for loss of the society and companionship of a deceased parent in a wrongful death action, and assert that justice, public policy, and the Equal Protection Clause require that a child also be allowed to recover for loss of a parent’s society and companionship.
The opponents of the proposed cause of action argue that it will (1) spawn multiple lawsuits arising out of the same injury, with consequent multiplication of awards; (2) discourage settlement of parents’ claims since the claims of minor children cannot thereby be extinguished; (3) encourage double recovery since juries already take the loss suffered by the injured person’s family into account in computing damages; (4) lead to further extensions of tort liability as plaintiffs with other relationships to the injured person seek recognition of their losses; and (5) impose upon the public the unwarranted economic burden of increased insurance premiums to fund insurers’ costs in paying and litigating such claims. They also contend (6) that the child’s damages are speculative, remote, and not susceptible of monetary compensation; (7) that the child-parent relationship is distinguishable from the marital relationship; and (8) that the Legislature is in the best position to determine whether the new cause of action should be instituted and what limits should be placed upon it.
The Court, building on judicial recognition of causes of action for loss of spousal consortium and for parental loss of a child’s services and other pecuniary damages, and on statutes permitting a child to recover for loss of the society and compan ionship of a deceased parent or where such loss is occasioned by violation of the dramshop act, states that it is "satisfied that existing judicial and legislative policies warrant recognizing a child’s cause of action for loss of society and companionship of a negligently injured parent”. It proceeds to examine some of the arguments advanced by the defendants, rejecting them primarily because analogous causes of action are allowed to be maintained despite similar arguments. It finds it anomalous that a child can recover under the wrongful death act for loss of a deceased parent’s society and companionship and that the courts have failed to supplement that act by allowing a child to maintain a common-law action for such loss where the parent survives the injury. It states the child has been treated as a "second-class citizen or some sort of non-person”. In contrast with its approach in examining the arguments of the defendants, it does not scrutinize the arguments of proponents of the cause of action and fails to subject them to critical analysis.
III
A
This Court has observed that "[t]he law of negligence was created by common-law judges and, therefore, it is unavoidably the Court’s responsibility to continue to develop or limit the development of that body of law absent legislative directive”. (Emphasis in original.) The bounds of recovery, no less than the conditions of liability, are judicially drawn and subject to judicial alteration.
Decisions delineating the extent of tort liability are, however, more than exercises in logic. They are pronouncements of social policy which should reflect the often subtle balance of the interests involved. The Supreme Court of New Jersey observed:
"[L]ogic (and even abstract justice) must defer to overall policy in the appraisal of the justification for judicial changes in the common law.”
Twenty years ago this Court concluded that a wife’s interest in compensation for the loss of her injured husband’s society and companionship outweighed a negligent defendant’s interest in freedom from liability for such loss, although his "liabilities as a result of his negligent act must have some reasonable limitation”. Today we balance the interest of an injured person’s child in monetary redress for injury to the parent-child relationship against the consequences of imposing yet another potential liability upon a negligent defendant — a liability the additional cost of which will be spread among the citizens of the state through increased insurance premiums. In responding, it is not enough to invoke analogies. An independent re-examination of the policy considerations implicated by the creation of such a separate cause of action is called for.
B
The action for loss of consortium is an historical curiosity. It originated at a time when a husband was considered to possess a proprietary right in his wife’s services, and conduct of a third person which impaired her ability to render services was regarded as causing him pecuniary loss. The earliest English cases upholding a husband’s right to bring an action for injury to himself resulting from wrongful conduct in respect to his wife involved intentional torts. The complaint alleged, for example, that the defendant had committed an assault and battery upon the wife, or had abducted her. The courts analogized the husband’s loss of his wife’s "company” to the master’s loss of the services of a battered servant.
Recognition of the husband’s loss of consortium as an element of damages accompanied the evolution of a variety of actions for intentional interference with the marriage relationship: enticement or harboring (inducing a wife to live apart from her husband); criminal conversation (adultery); alienation of affections.
The question before us emanates from yet another line of cases where the courts, without apparent recognition that they were significantly extending the common law, permitted husbands to recover for loss of consortium resulting from negligently inflicted injury as well as from intentional injury. And, beginning in 1950, a series of American courts extended to wives the right to recover from a negligent tortfeasor for loss of spousal consortium. The first step having been taken, the second logically followed, although equality between husband and wife could as well have been achieved by abolishing the husband’s action as by recognizing the wife’s.
The soundness of the first step has been questioned, and we should not proceed further along the same path merely because to do so would appear to be logical. Confronted with the question whether a wife should be permitted to recover for loss of consortium, Lord Chief Justice Goddard said:
"[I]f the matter were now res integra the law, * * * I am tempted to say 'certainly,’ would refuse to give an action to the husband merely for loss of consortium due to negligence. It is too late now for the courts to deny an action which has existed for hundreds of years. It is an anomaly at the present day that a husband can obtain damages for an injury to his wife, but English law is free neither of some anomalies nor of everything illogical, but this is no reason for extending them.” (Emphasis supplied.)
In a negligence action the plaintiff is almost always a person who alleges personal injury or property damage caused by the defendant’s breach of a duty of care. In contrast, a family member who seeks compensation for loss of consortium seeks to recover in respect to physical injury to another.
The jurisprudential concepts of duty and proximate cause, reserved for judicial determination, serve to limit the scope of a defendant’s liability for negligence.
It has been said that "[d]uty is essentially a question of whether the relationship between the actor and the injured person gives rise to any legal obligation on the actor’s part for the benefit of the injured person”. What relationship, then, obligates an actor with respect to the interests of a member of an injured person’s family so as to create a duty to that person?
While that inquiry was overlooked when the action for loss of consortium became associated with actions for negligent injury to a wife as well as with actions for intentional interference with the marriage relationship, it was much on the minds of the English Lords who refused to permit a wife to bring an action for loss of consortium caused by negligence. The Lords described the husband’s action as "an anomaly” "founded on the proprietary right which from ancient times it was considered the husband had in his wife”, and remarked upon its inconsistency with general principles regarding the scope of a defendant’s liability for the consequences of his negligent actions.
A court’s resolution of the questions of duty and proximate cause "depend[s] in part on foreseeability — whether it is foreseeable that the actor’s conduct may create a risk of harm to the victim, and whether the result of that conduct and intervening causes were foreseeable”.
Plaintiffs assert that it is manifestly foreseeable that serious physical injury caused by a tortfeasor’s negligence will be accompanied by loss to the victim’s immediate family of the society and companionship of the injured person. It is argued that since this Court has, at least implicitly, determined that a wife’s or husband’s loss is not so remote that it is beyond the ambit of proximate cause and that breach of a duty owed the victim will be deemed a breach of a duty to the victim’s spouse, the loss suffered by the victim’s children must likewise fall within the sphere of liability.
Foreseeability is not, however, the only criterion for measuring the limits of liability for negligent conduct. It is foreseeable that any injured person will be party to a number of relationships — with the members of his household (who may not form a traditional nuclear family), with relatives, with friends and neighbors, with employer, employees, or co-workers — and that the other party to the relationship will suffer losses, tangible and intangible, should the relationship be interrupted. Lord Goddard observed:
"It may often happen that an injury to one person may affect another; a servant whose master is killed or permanently injured may lose his employment, it may be of long standing, and the misfortune may come when he is of an age when it would be very difficult for him to obtain other work, but no one would suggest that he thereby acquires a right of action against the wrongdoer.”
Even if it is accepted that policy considerations weigh more heavily in favor of recovery where family relationships regarded as fundamental to society are implicated, the anomalous character of the common-law action for loss of consortium should deter us from extending it beyond the marital relationship, "the closest entity recognized by society”, to other relationships. There may be appealing analogies between the relationships of husband and wife and parent and child, but "[r]ea soning from one analogy to another can carry one into infinity”.
In refusing to recognize a child’s action for loss of parental consortium, a California Court of Appeal said:
"Plaintiffs claim, viewed in the abstract and divorced from its surroundings, carries both logical and sympathetic appeal. * * *
"Nevertheless, our decision must take into account considerations in addition to logical symmetry and sympathetic appeal. As pointed out by Judge Breitel, every injury has ramifying consequences and losses, like the rippling of the waters, without end.[ ] * * * [N]ot every loss can be made compensable in money damages, and legal causation must terminate somewhere. In delineating the extent of a tortfeasor’s responsibility for damages * * *, the courts must locate the line between liability and non-liability at some point, a decision which is essentially political.”
The Court does not indicate that it is prepared to draw a line somewhere or anywhere and indeed quotes with approval a statement of the Court of Appeals that " '[t]he rights of a new class of tort plaintiffs should be forthrightly judged on their own merits, rather than engaging in gloomy speculation as to where it will all end,’ ” — as if the merits of plaintiff’s claim can be resolved in the abstract, focusing solely on the justness and fairness from the child’s point of view of recognizing a right of recovery in this sympathetic case without regard to countervailing policy considerations and thoughtful consideration of "where it will all end”.
The Court’s decision does not in terms limit its holding to the creation of a cause of action for minor children who lose the society and companionship of an injured parent. Parents often continue to provide their children with society, companionship, nurturance and guidance long after the children themselves become parents. Some children never leave their parents’ homes. Other children, whether married or single, become the devoted caretakers and companions of aged parents, whose society and companionship play a prominent role in their lives. The class of cases in which deprivation of parental consortium can be asserted is more extensive than might at first appear.
And now that we recognize a child’s cause of action for loss of the society and companionship of a negligently injured parent, will we not also be called upon to compensate a parent’s corresponding loss when a child is injured?
The Court’s analogy to the wrongful death act suggests that a like analogy may be drawn in future cases where a sibling or other member of "that class who, by law, would be entitled to inherit the personal property of the deceased had he died intestate”, and who would therefore be permitted to recover under the wrongful death act if an injured person dies, seeks to recover for loss of the society and companionship of an injured person who survives. Distinctions between the parent-child relationship and other relationships can indeed be made, but the Court’s analysis, which minimizes the distinctions that could be drawn in the instant case, holds little promise for drawing such distinctions in other cases. Moreover, the "elements — love, companionship, affection, society, comfort, services and solace — ” which the Court identifies as similar in the marital and parent-child relationships are also present in other rela tionships: brothers and sisters, a child and a grandparent, or a cohabiting unmarried couple.
The concept of allowing a person to recover for consequential loss resulting from physical injury to another is an idiosyncracy in the law. Reasonable limits on liability for the consequences of negligent acts must be imposed. Upon review of the policy considerations we conclude that they do not favor redrawing the line between liability and non-liability to create a separate cause of action for loss of parental consortium.
IV
In concluding that the balance between the child’s interest in compensation for the lost society and companionship of an injured parent and the tortfeasor’s interest in freedom from additional liability, with due consideration to the social consequences of each alternative, weighs against recognition of the child’s claim, we are influenced by a number of considerations including the uncertainty that recognizing the proposed cause of action will yield a significant social benefit, the additional economic burden imposed upon the general public by expanding recovery to a new category of indirect injury likely to be associated with a large percentage of accidents, the nature of the loss asserted, the lack of immediate connection between the plaintiff and the defendant, and the difficulty of objective demonstration and evaluation of the child’s injury.
One leading commentator has suggested that the interests protected by tort law may be classified into "interests of personality”, "property interests”, and "relational interests”. Loss of consortium is a harm to a relational interest which occurs when the other party to the relationship suffers physical harm (invasion of an interest of personality). Because loss of consortium is not an injury to the person who bore the direct impact of the defendant’s negligence but to another person whose relationship to the primary victim is diminished as a consequence, it may be regarded as a secondary layer of tort liability superimposed upon the defendant’s liability to the primary victim. There are few other instances where a secondary tort victim has been permitted to recover for a negligently inflicted injury to a relational interest unaccompanied by physical injury to himself.
It is preferable to minimize the number of actions which can be brought for damages arising out of a single tortious act. The wisdom of creating a new cause of action depends in part upon whether other legal avenues are adequate to redress part or all of the asserted loss. Despite the increased acceptance of the spouse’s action for loss of consortium, the extension of tort recovery be yond the primary victim remains the exceptional case. To the extent that a secondary tort victim’s loss is likely to be duplicated in the primary victim’s recovery, courts should be wary of creating additional claims deriving from the same tortious act, particularly where all injuries are localized within the same family unit.
Today the victim of a personal injury can recover for a broad variety of intangible losses in addition to conventional "pain and suffering”. Without intimating a view as to the accuracy of their conclusions, we note that two federal courts, a student commentator, and a practitioner agree that "loss of life’s enjoyments constitutes an element of compensable damages under the law of [Michigan]”. One court observed that the plaintiffs social and recreational activities centered on his family, with whom he shared "dancing, ice skating, walking through the nearby woods or the Lake Michigan shore, family picnics, mushroom hunting, and shopping”. That analysis demonstrates that loss of the enjoyment of life may include curtailment of shared family activities; moreover, the pangs of separation from family during hospitalization may be taken into account as a part of the injured person’s mental suffering. In fact, if not in form, juries today may compensate personal injury plaintiffs for the overall reduction in the quality of family life, including the impairment of family relationships.
When a close link between two persons is disrupted, it is difficult to distinguish the injury suffered by each. As the California Supreme Court noted: "[T]o ask the jury, even under carefully drafted instructions, to distinguish the loss to the mother from her inability to care for her children from the loss to the children from the mother’s inability to care for them may be asking too much.” To permit a child to recover for loss of an injured parent’s society and companionship while the parent is also compensated for injury to the relationship creates a substantial risk of double recovery because of the difficulty of distinguishing the respective losses of the parties.
As the Supreme Court of New Jersey observed,
"The asserted social need for the disputed cause of action may well be qualified, at least in terms of the family as an economic unit, by the practical consideration * * * that reflection of the consequential disadvantages to children of injured parents is frequently found in jury awards to the parents on their own claims under existing law and practice.”
Moreover, where the primary victim recovers for his own injuries, the most direct consequences of the accident are compensated and the party at fault does not escape liability. Fundamental objec tives of tort law — compensation of innocent parties, allocation of loss to responsible parties (or broader distribution of loss if the tortfeasor is insured), and deterrence of negligent conduct — are all served in some measure and will not be vitiated if the defendant’s liability is not extended further.
Courts have sometimes cited the uncertainty of the damages which would be recovered in an action for loss of parental society and companionship as a reason for refusing to recognize the action. A common but inadequate rejoinder is that other elements of tort damages, notably pain and suffering, are equally uncertain.
Courts have generally been willing to tolerate substantial uncertainty in the calculation of damages where such was thought necessary to enable the primary tort victim to receive adequate compensation. That bodily pain and mental anguish defy objective valuation and that money is a poor palliative seem inadequate justifications for denying a victim who has been crippled or disfigured a monetary remedy. In the context of actions not brought by the primary victim, however, objections to the uncertainty of the intangible loss alleged and to the inherent inadequacy of money damages as compensation loom larger, especially since the primary victim may also recover a sum for intangible, uncertain injuries. Considerations which would not deter a court from compensating a primary victim may thus, notwithstanding the anomaly of recovery for spousal consortium, sup port a refusal further to expand the scope of liability.
Denise Berger’s misfortune highlights the difficulties that juries will encounter in valuing loss of parental society and companionship and that courts will face when asked to review jury verdicts. On the one hand, Denise was uniquely dependent on others and her mother necessarily played an overwhelmingly important role in her life; on the other hand, her cognitive faculties— and perhaps her ability to experience loss of her mother’s society and companionship — were severely impaired and the range of activities she could share with her mother was drastically limited. Is her loss greater or less than a normal child’s? What significance should be attached to the ability of other family members, e.g., her father and brother, to care for her?
In contrast to the intangibility of the alleged injury and the difficulty of appraising it stands the certainty that creating a new basis for recovery will impose an added economic burden upon society. The California Supreme Court observed, "since virtually every serious injury to a parent would engender a claim for loss of consortium on behalf of each of his or her children, the expense of settling or litigating such claims would be sizable”. The Supreme Court of New Jersey perceptively described the problem:
"If the claim were allowed there would be a substantial accretion of liability against the tortfeasor arising out of a single transaction (typically the negligent operation of an automobile). Whereas the assertion of a spouse’s demand for loss of consortium involves the joining of only a single companion claim in the action with that of the injured person, the right here debated would entail adding as many companion claims as the injured parent had minor children, each such claim entitled to separate appraisal and award. The defendant’s burden would be further enlarged if the claims were founded upon injuries to both parents. Magnification of damage awards to a single family derived from a single accident might well become a serious problem to a particular defendant as well as in terms of the total cost of such enhanced awards to the insured community as a whole.”
While the creation of other new causes of action may have affected only a handful of cases and thus generated marginal additional costs, recognizing a separate right of recovery in members of a tort victim’s family creates a potential for additional liability in a large number of cases. And a tort victim is likely to have more children than spouses.
The cost of this innovation in the law will be exacerbated if recognition of the cause of action is not limited to cases where, as alleged here, the parent is "severely” injured or disabled for an extended period — the Court eschews such a limitation. Absent some such limitation, claims could be lodged by children whose parent had been hospitalized for a period of months, perhaps even weeks, after an accident, or had been rendered physically incapable of participating in some formerly shared activities. Such claims might outnumber the more substantial ones and exceed them in aggregate dollar amount as well. The administrative expense of reviewing children’s claims and the cost of settling or litigating them will be considerable and will require significant increases in insurance premiums.
The Court acknowledges that insurance costs may rise, but suggests that an offsetting benefit for "any” increase may be realized:
"[C]ompensating a child who has suffered emotional problems because of the deprivation of a parent’s love and affection may provide the child with the means of adjustment to the loss. The child receives the immediate benefit of the compensation, but society will also benefit if the child is able to function without emotional handicap. This may well offset any increase in insurance premiums.”
It is doubtful that recognizing a child’s cause of action will produce such auspicious results. Because few automobile drivers carry adequate liability insurance, most children who are deprived of a parent’s companionship will not be benefitted. Policy limits are likely to be exhausted in the full or partial satisfaction of the injured parent’s claim and the spouse’s loss of consortium claim, without regard to children’s claims for loss of parental consortium. Even fewer drivers have sufficient resources to satisfy such claims themselves. To be sure, some fortunate plaintiffs — for example, a child whose parent happens to be injured in a collision with a common carrier’s truck instead of an ordinary citizen’s automobile, or in an indus trial accident where a third party is responsible, or by a major manufacturer’s product — will be able to recover against "deep-pocket” defendants. But in the typical auto accident case, the less serious the parent’s injury, the more likely it is that money will be available to pay claims for loss of parental consortium. The benefits of recognizing the child’s cause of action will be unevenly and adventitiously distributed, more so than ordinarily.
There is a limit to the range of injuries and the dollar amount of recovery which can be spread across society through the interaction of the tort litigation and insurance systems. Increasing the load on the reparation system by recognizing causes of action in secondary tort victims in addition to the primary victim’s action must increase insurance premiums, decrease participation in the system by marginal insureds, and perhaps decrease the amount that an insurer will willingly pay to the primary victim, thereby increasing litigation.
The proposed cause of action might seem less objectionable if its costs and benefits could be forecast more definitely. We cannot predict that the sums distributed to children whose parents are themselves entitled to compensation for injury will produce a distinct social benefit in more than a handful of cases.
The Court suggests that allowing the child to recover "may provide the child with the means of adjustment to the loss”. But it is problematic whether the means of adjustment can be purchased with money, whether awards will be so applied, or whether compensation will be received before the passage of time or the parent’s recovery has worked a better adjustment. More accurate than a vision of minor children restored to emotional health by the services of parent substitutes and mental health professionals is the scenario depicted by the California Supreme Court:
"[M]onetary compensation will not enable plaintiffs to regain the companionship and guidance of a mother; it will simply establish a fund so that upon reaching adulthood, when plaintiffs will be less in need of maternal guidance, they will be unusually wealthy men and women.”
The California Supreme Court observed that, where recognition is sought for "a wholly new cause of action, unsupported by statute or precedent”, "the inadequacy of monetary damages to make whole the loss suffered, considered in light of the social cost of paying such awards”, and of the uncertainty that paying them will produce any social benefit, "constitutes a strong reason for refusing to recognize the asserted claim”.
It is significant that, although Federal and state courts in approximately 20 jurisdictions have considered the question presented in this case, only one other jurisdiction recognizes a child’s right of action for loss of parental society and companionship. While many of the decisions withholding recognition relied upon the lack of common-law precedent, deferred to the legislature, or employed arguments which failed to make an explicit policy judgment, such substantial unanimity of result, even among courts not noted for their timidity in the development of tort law, evidences some con sensus regarding the impolicy of subjecting a negligent defendant to liability to members of the victim’s family other than the spouse.
V
The Equal Protection Clauses of the United States and Michigan Constitutions do not require recognition of a child’s cause of action for loss of parental consortium.
Plaintiffs argue that the right to recover for loss of consortium grows out of society’s interest in protecting the integrity of the family unit and its constituent relationships, and that the injury to a family relationship sustained by the child of a negligently injured parent cannot rationally be distinguished from the loss suffered by the parent’s spouse. They also contend that allowing a child to recover for loss of society and companionship in a wrongful death action if a parent is fatally injured, yet denying a child the right to recover the same element of damages if a parent’s injury is not fatal — a state of affairs the Court views as anomalous — deprives children whose parents are nonfatally injured of the equal protection of the laws. Plaintiffs thus challenge as under-inclusive two distinct classifications, one stemming from judicial recognition of a cause of action in the spouse but not in the child, the other a by-product of legislative supplementation of the common law to create a remedy for the next of kin of persons fatally injured through the fault of another.
A
The acts of a state court, as well as those of a state legislature, must comply with the dictates of the Fourteenth Amendment. It is unclear whether a court faced with an equal protection challenge to a judicially established rule of law should employ the same measure of scrutiny it would apply had that rule been promulgated by the Legislature. Plaintiffs urge that a more exacting review is required.
The traditional "rational basis” test reflects a deference to the judgment of the coordinate branch of government charged with enacting statutes, which generally draw distinctions and fall upon some more heavily than upon others. What alternative test plaintiffs would have this Court employ under the circumstances of this case is not evident.
This is not a proper case for strict scrutiny, i.e., requiring a demonstration that the classification is necessary to further a compelling state interest. Assuming that a direct state interference with a family relationship may be subjected to strict scrutiny because a fundamental interest is at stake, a classification which limits the availability of a tort remedy for injury done to family relationships does not constitute an interference with the relationship. Nor does distinguishing among family relationships constitute a suspect classification triggering strict scrutiny.
We would not be justified in invoking a more rigorous standard of review than to require that the classification bear a reasonable relation to the object of the action for loss of consortium — a modified form of "middle tier” or "means” scrutiny.
One may reasonably distinguish the husband-wife relationship from the parent-child relationship in deciding whether to provide a remedy for loss of an injured person’s society and companionship. Spousal consortium includes an element of sexual relations not present in the parent-child relationship. Close society and companionship between spouses typically endures for the length of the marital relationship, ideally for a lifetime, while the interaction of parent and child often, though not always, attenuates as the child matures. Injury to one’s spouse may have a more devastating impact upon one’s daily life and family responsibilities than injury to a parent. Finally, because the average parent has more than one child, the recognition of the child’s action poses greater problems of multiplicity of claims and complication of litigation. Limiting the action for loss of an injured person’s society and companionship to the spouse assures that the typically greater loss will be compensated without unduly burdening the judicial system or engendering excessive social costs.
B
Nor does it violate equal protection to deny the children of negligently injured parents the right to recover losses for which the children of fatally injured parents are compensated under the wrongful death act. As the California Supreme Court has noted, there are "two significant distinctions between the child whose parent is killed and one whose parent is disabled, both of which flow from the fact that in the latter case the living victim retains his or her own cause of action”.
Whether or not it was an accurate historical statement, Lord Ellenborough’s famous dictum that "[i]n a civil court, the death of a human being could not be complained of as an injury” was accepted as declaratory of the common law. The harshness of this rule and its apparent incentive to inflict death rather than injury inspired legislatures to create statutory remedies for "the most grievous of all injuries”. Allowing recovery for the lost affection and society of a fatally injured person assures that a meaningful remedy will be available in every case without regard to whether that person was a wage earner or contributed to the support of the spouse, parent or child in whose interest the action is maintained. "Recovery for loss of affection and society in a wrongful death action thus fulfills a deeply felt social belief that a tortfeasor who negligently kills someone should not escape liability completely, no matter how unproductive his victim.”
But where the parent injured by the tortfeasor’s conduct survives, so does the parent’s cause of action for the injuries inflicted. If the primary victim of the accident may bring an action, there is no need to permit other family members to recover in order to provide some compensation for the family and to prevent the tortfeasor from escaping liability altogether.
Further, where the parent survives the injury, certain aspects of the child’s loss, e.g., impairment of the parent’s ability properly to care and provide for his children, can be compensated in the parent’s own action. But where the parent dies, compensation for loss of parental care and services can be recovered only through a wrongful death action. Whether or not this compensation encompasses recovery for the child’s loss of society and companionship in addition to more pecuniary items such as lost wages from which support would have been furnished, the availability of some reparation for disadvantage to the child and to the victim’s family furnishes a sufficient basis for allowing the child to recover for lost society and companionship in the case of a parent’s death but not in the case of parental injury.
VI
Although we would not permit the child of a negligently injured parent to bring a separate action for loss of the parent’s society and companionship, we would permit the injured parent, in his or her own action, to recover certain damages resulting from the effect of the parent’s injury upon the child. Injury which removes a parent from the home for a substantial period, or which disables the parent from providing the degree of affection, society and companionship previously provided the child, may necessitate expenditures by the parent to obtain for the child services or companionship that the parent would normally have provided. Although the child should have no independent right of recovery, the cost of substitute services should be recoverable in the injured parent’s action.
VII
We would reverse the decision of the Court of Appeals and affirm the summary judgment granted by the trial court.
Coleman, C.J., and Ryan, J., concurred with Levin, J.
This cause of action occurred before the no-fault insurance act, MCL 500.3101 et seq.; MSA 24.13101 et seq., became effective.
Denise Berger was born severely retarded and physically handicapped in October of 1966. She died on July 16, 1977. No claim has been made on behalf of the Bergers’ son who was born in November of 1964.
Ferriter v Daniel O’Connell’s Sons, Inc, — Mass —; 413 NE2d 690 (1980); Anno: Child’s right of action for loss of support, training, parental attention, or the like, against a third person negligently injuring parent, 69 ALR3d 528; Borer v American Airlines, Inc, 19 Cal 3d 441; 138 Cal Rptr 302; 563 P2d 858 (1977).
In Cugell v Sani-Wash Laundry Co, 280 Mich 286, 289; 273 NW 571 (1937), our Court said: "A minor has no severable and personal right of action for injuries to his parent.” Previously in Blair v Seitner Dry Goods Co, 184 Mich 304, 313; 151 NW 724 (1915), overruled on other grounds Montgomery v Stephan, 359 Mich 33; 101 NW2d 227 (1960), our Court stated that "[t]he minor children of an injured father and those of an injured mother may suffer on account of the injury, but it has never been considered that they had an action therefor”.
Montgomery, supra. Consortium is defined as love, companionship, affection, society, comfort, sexual relations, services, solace and more. Id., 36. The wife’s cause of action was created after judicial recognition that the wife’s role in the family unit had evolved from the status of servant to the status of equal partner. Therefore, the reasons for denying the wife compensation at common law no longer existed in modern society. Id., 48-49.
It was recognized that the concept of a minor child as a breadwinner was a legal fiction in today’s society. The Court indicated that the child "has a value to others as part of a functioning social and economic unit. This value is the value of mutual society and protection, in a word, companionship”. Wycko, 339-340.
Borer v American Airlines, Inc, 19 Cal 3d 441; 138 Cal Rptr 302; 563 P2d 858 (1977); Hill v Sibley Memorial Hospital, 108 F Supp 739 (D DC, 1952); Hankins v Derby, 211 NW2d 581 (Iowa, 1973); Hoffman v Dautel, 189 Kan 165; 368 P2d 57 (1962); Russell v Salem Transportation Co, 61 NJ 502; 295 A2d 862 (1972), See also Prosser, Torts (4th ed), § 125, p 896; Note, The Child’s Right to Sue for Loss of a Parent’s Love, Care and Companionship Caused by Tortious Injury to the Parent, 56 Boston U L Rev 722, 740-741 (1976).
Ferriter v Daniel O’Connell’s Sons, Inc, — Mass —; 413 NE2d 690 (1980). The only prior decision recognizing such an action was Scruggs v Meredith, 134 F Supp 868 (D Hawaii, 1955), rev’d Meredith v Scruggs, 244 F2d 604 (CA 9, 1957), after an intervening decision of the Hawaii Supreme Court reached the opposite result. Halberg v Young, 41 Hawaii 634; 59 ALR2d 445 (1957). Other decisions rejecting the claim that a child has a cause of action for loss of parental society and companionship are listed in fn 64, infra.
The truck was owned by defendant Becker Leasing Company, Inc., and was being driven by Weber in the course of his employment with defendant Star of the West Milling Company. The accident occurred on March 13, 1973, before the effective date of the no-fault motor vehicle liability act.
Denise Berger was born on October 2, 1966. According to plaintiffs’ opening statement at trial, Denise began to have seizures when she was six weeks old. It soon became evident that her mental development would be severely limited and doctors advised the Bergers to institutionalize her. Instead, they chose to care for her at home although she continued to require the attention given an infant.
Denise died on July 16, 1977.
It appears that the problems Christine Berger experienced after the automobile accident adversely affected the quantity and quality of parental care she provided Denise. No claim has been filed on behalf of the Bergers’ other child, Paul, who was a normal 11-year-old at the time of trial.
Berger v Weber, 82 Mich App 199, 201; 267 NW2d 124 (1978).
403 Mich 846 (1979).
Ante, p 17.
Prosser, Torts (4th ed), § 124, p 874. On the meaning of consortium see, generally, 1 Harper & James, Law of Torts, § 8.9, pp 635-643; Holbrook, The Change in the Meaning of Consortium, 22 Mich L Rev 1 (1923); Lippman, The Breakdown of Consortium, 30 Colum L Rev 651 (1930).
In Montgomery v Stephan, 359 Mich 33, 35-36, 43-44; 101 NW2d 227 (1960), this Court criticized efforts to separate consortium into "material” and "sentimental” aspects and treated it as an indivisible concept.
Prosser, supra, § 125, p 888, fn 38.
"We may observe that, in these relative injuries, notice is only taken of the wrong done to the superior of the parties related, by the breach and dissolution of either the relation itself, or at least the advantages accruing therefrom; while the loss of the inferior by such injuries is totally unregarded. One reason for which may be this: that the inferior hath no kind of property in the company, care, or assistance of the superior, as the superior is held to have in those of the inferior; and therefore the inferior can suffer no loss or injury. The wife cannot recover damages for beating her husband, for she hath no separate interest in any thing during her coverture. The child hath no property in his father or guardian; as they have in him, for the sake of giving him education and nurture. Yet the wife or the child, if the husband or parent be slain, have a peculiar species of criminal prosecution allowed them, in the nature of a civil satisfaction; which is called an appeal [italics in original], and which will be considered in the next book. And so the servant, whose master is disabled, does not thereby lose his maintenance or wages. He had no property in his master; and, if he receives his part of the stipulated contract, he suffers no injury, and is therefore intitled [sic] to no action, for any battery or imprisonment which such master may happen to endure.” 3 Blackstone, Commentaries (1st ed), pp 142-143.
See, also, Prosser, supra, § 124, pp 881, 887; § 125, p 894; Note, Judicial Treatment of Negligent Invasion of Consortium, 61 Colum L Rev 1341, 1344, 1346 (1961).
Montgomery v Stephan, supra.
MCL 600.2922(2); MSA 27A.2922(2).
Ante, p 17.
Moning v Alfono, 400 Mich 425, 436; 254 NW2d 759 (1977).
Prosser, supra, §§ 3-4, pp 14-23. See, also, Montgomery v Stephan, supra, p 46. Cf. Moning v Alfono, supra, pp 453-459.
Russell v Salem Transportation Co, 61 NJ 502, 506; 295 A2d 862 (1972).
Montgomery v Stephan, supra, p 46.
On the early history of the husband’s action for loss of consortium, see Popescul, Action Per Quod Consortium Amisit, 43 Sask L Rev 27, 28-33 (1979).
Chomley v Conge, 4 Leon 88; 74 Eng Rep 748 (1586); Guy v Livesey, Cro Jac 501; 79 Eng Rep 428 (1618); Young v Pridd, Cro Car 89; 79 Eng Rep 679 (1627). Because she had no separate legal existence during coverture, the wife could sue for her injuries only if her husband joined in the action. 1 Blackstone, Commentaries (1st ed), p 431; 3 id., p 140.
Hyde v Scyssor, Cro Jac 538; 79 Eng Rep 462 (1619); Young v Pridd, supra.
Guy v Livesey, supra; Hyde v Scyssor, supra.
See 3 Blackstone, supra, p 139; Prosser, supra, § 124, pp 874-876; Popescul, supra, pp 30-31.
See, e.g., Stone v Jackson, 16 CB 199; 139 Eng Rep 732 (1855); Brockbank v Whitehaven J R Co, 7 H & N 835; 158 Eng Rep 706 (1862); McKinney v Western Stage Co, 4 Iowa 420 (1857); Hopkins v Atlantic & St L R Co, 36 NH 9 (1857). This development was an outgrowth of the practice of allowing actions for loss of a servant’s services or a wife’s consortium to be brought either in trespass or upon the case. See Chamberlain v Hazelwood, 5 M & W 515; 151 Eng Rep 218 (1839); Popescul, supra, p 31. The action on the case was the forerunner of the modern negligence action, and the significance of negligence as a distinct theoretical basis of liability was only beginning to be recognized at this time. Prosser, supra, § 28, p 140.
The first case to take this step was Hitaffer v Argonne Co, 87 US App DC 57; 183 F2d 811 (1950). Subsequent cases are listed in Love, Tortious Interference With the Parent-Child Relationship: Loss of an Injured Person’s Society and Companionship, 51 Ind L J 590, 596, fn 20 (1976). Whittlesey v Miller, 572 SW2d 665, 668, fn 6 (Tex, 1978), lists nine states as not yet recognizing the wife’s action. Four of those states have since adopted the majority rule. Hopson v St Mary’s Hospital, 176 Conn 485; 408 A2d 260 (1979); Kan Stat Ann § 23-205 (1980 Cum Supp), Nicholson v Hugh Chatham Memorial Hospital, Inc, 300 NC 295; 266 SE2d 818 (1980); Lundgren v Whitney’s, Inc, 94 Wash 2d 91; 614 P2d 1272 (1980).
A number of courts, including this one, had at one time concluded that abolition of the husband’s action was required by the enactment of statutes recognizing the separate legal existence of married women. See Blair v Seitner Dry Goods Co, 184 Mich 304, 313-314; 151 NW 724 (1915), overruled by Montgomery v Stephan, supra.
Jaffe, Damages for Personal Injury: The Impact of Insurance, 18 Law & Contemporary Problems 219, 229 (1953); Neuberg v Bobowicz, 401 Pa 146; 162 A2d 662 (1960).
Best v Samuel Fox & Co, [1952] AC 716, 733.
Lord Porter agreed and said:
"If the change is to be made I should prefer to abolish the husband’s right rather than to grant the like remedy to the wife.” Id., p 728.
See, also, id., p 735 (opinion of Lord Morton of Henryton).
We do not wish to be understood as endorsing abolition of a spouse’s action for loss of consortium, which is perhaps too firmly entrenched to be disturbed. That the common law developed an aberration is not, however, a reason for its continued expansion.
Moning v Alfono, supra, pp 438-439.
Best v Samuel Fox & Co, supra, pp 733, 731 (opinion of Goddard, L.C.J.).
Moning v Alfono, supra, p 439.
Best v Samuel Fox & Co, supra, p 731.
We do not suggest that further extension of the right to recover for loss of consortium should be denied because consortium originated as a property interest. We so conclude, rather, because policy considerations dictate that the circumstances under which one can recover in respect to injury to another should be extremely limited.
Albert v McGrath, 107 US App DC 336, 338; 278 F2d 16, 18 (1960).
Production Steel Strip Corp v Detroit, 390 Mich 508, 537; 213 NW2d 419 (1973) (opinion of Levin, J.).
" 'While it may seem that there should be a remedy for every wrong, this is an ideal limited perforce by the realities of this world. Every injury has ramifying consequences, like the ripplings of the waters, without end. The problem for the law is to limit the legal consequences of wrongs to a controllable degree.’ Tobin v Grossman, 24 NY2d 609, 619; 301 NYS2d 554, 561; 249 NE2d 419, 424 (1969).” Suter v Leonard, 45 Cal App 3d 744, 746, fn 1; 120 Cal Rptr 110, 111, fn 1 (1975).
Suter v Leonard, supra.
Ante, p 14.
Compare Baxter v Superior Court of Los Angeles County, 19 Cal 3d 461; 138 Cal Rptr 315; 563 P2d 871 (1977) (denying recovery), with Shockley v Prier, 66 Wis 2d 394; 225 NW2d 495 (1975) (permitting recovery). At present, Michigan law recognizes a distinct cause of action in favor of the parents of a wrongfully injured child, but recovery is limited to the parents’ loss of services and expenses incurred. Gumienny v Hess, 285 Mich 411; 280 NW 809 (1938). Compare Bias v Ausbury, 369 Mich 378, 380; 120 NW2d 233 (1963) (Ohio law).
The Court alludes in this regard to Wycko v Gnodtke, 361 Mich 331; 105 NW2d 118 (1960), but as it acknowledges, that case concerned the measurement of the "pecuniary loss” recoverable under the wrongful death act by the parents of a deceased minor child, not the damages recoverable by the parents of a child who survives negligently inflicted injury.
MCL 600.2922(2); MSA 27A.2922(2).
Where a deceased person is not survived by a spouse or children, "next of kin” who are potential heirs-at-law may recover under the wrongful death act for loss of society and companionship. To that extent, the common law might be thought to be "anomalous” if it does not countenance a cause of action for such loss if the injured relative survives. Furthermore, this Court is presently considering whether the brothers and sisters of a deceased person who was survived by a spouse and both parents may recover for loss of society and companionship. Crystal v Hubbard, 92 Mich App 240; 285 NW2d 66 (1979), lv granted 408 Mich 895 (1980), construed the act as excluding siblings from the "next of kin” entitled to recover under those circumstances. But in Scott v Burger King Corp, 95 Mich App 694, 703; 291 NW2d 174 (1980), another panel of the Court of Appeals held that any family member who could potentially (as distinguished from would actually) inherit the deceased’s personal property in case of intestacy might recover for loss of society, companionship and support.
Should this Court decide that brothers and sisters or other potential heirs are entitled to such recovery, irrespective of whether a closer blood relative also survives, will it not be once again "anomalous” to deny recovery for loss of society and companionship where the sibling or relative survives the injury?
Ante, p 14.
Loss of society and companionship may not be thought to be significant where the relationship can be characterized as a short-lived "affair”. But today some couples, for whatever reasons, continue relationships for many years, perhaps until death do them part. Nor is this a phenomenon observed only among the young; it has been observed that such relationships are increasingly frequent among the elderly, who may seek to form quasi-marital relationships following the death of a spouse.
Green, Relational Interests, 29 Ill L Rev 460 (1934).
Cf. Adams v Southern Pacific Transportation Co, 50 Cal App 3d 37, 43; 123 Cal Rptr 216, 219 (1975), speaking of "secondary victims” who have "no direct spatial or legal relationship with the alleged wrongdoer”.
A possible exception is recovery for loss of the deceased’s society and companionship in a wrongful death action, but the absence of the primary victim renders the wrongful death action a special case. See Part V-B. Another possible exception is an action for mental suffering, absent physical injury, occasioned by witnessing the negligent infliction of injuries on one’s child. Toms v McConnell, 45 Mich App 647; 207 NW2d 140 (1973).
Gowdy v United States, 271 F Supp 733 (WD Mich, 1967); Pierce v New York C R Co, 409 F2d 1392 (CA 6, 1969).
Comment, Loss of Enjoyment of Life — Should It Be a Compensable Element of Personal Injury Damages?, 11 Wake Forest L Rev 459, 467 (1975).
An outline of the elements of damages recoverable in bodily injury cases includes "[ijmpaired enjoyment of life” as one of 16 specific subheadings. Michigan Law of Damages (Wade ed, Ann Arbor: Institute of Continuing Legal Education), p 10-8.
Pierce v New York C R Co, supra, p 1398, citing Remey v Detroit U R Co, 141 Mich 116; 104 NW 420 (1905) (postponement of marriage), Cawood v Earl Paige & Co, 239 Mich 485, 490; 214 NW 402 (1927) (Court observed that plaintiff "will no longer be permitted to enjoy many of the things in life which it may well be said 'make life worth living’ ”); Tabor v Carey & Leach Bus Lines, 242 Mich 9; 217 NW 792 (1928) (aspiring musician surrendered his ambition to play in orchestra following injury to his arm).
Gowdy v United States, supra, p 750.
Borer v American Airlines, Inc, 19 Cal 3d 441, 448; 138 Cal Rptr 302, 307; 563 P2d 858 (1977).
Russell v Salem Transportation Co, supra, p 507.
E.g., Russell v Salem Transportation Co, Inc, supra, p 507; Duhan v Milanowski, 75 Misc 2d 1078, 1083; 348 NYS2d 696, 702 (1973).
Note, The Child’s Right to Sue for Loss of a Parent’s Love, Care and Companionship Caused by Tortious Injury to the Parent, 56 Boston U L Rev 722, 734 (1976); Borer v American Airlines, Inc, supra, pp 454-455 (Mosk, J., dissenting).
Id., p 447.
Russell v Salem Transportation Co, supra, p 506.
E.g., actions for "wrongful birth” or emotional distress at witnessing negligent infliction of injury on a family member.
Belli & Wilkinson in Loss of Consortium: Academic Addendum or Substantial Right?, 16 Trial (No. 2) 20 (February, 1980), suggest that "presently it may well be malpractice for an attorney to fail to become informed as to the marital status of a client and not advise the non-injured spouse of his or her loss of consortium rights”. (Emphasis in original.) Now that a child’s action for loss of consortium has been recognized, an attorney might be equally obligated to advise the children of an injured parent (or perhaps the parent and spouse) of their right to maintain an action for loss of consortium, with the consequence that many would accept the implicit invitation to advance the claim.
Ante, p 15.
A court does not ordinarily concern itself with the collectibility of a judgment in deciding whether liability should be imposed upon a wrongdoer. The nature of the tort reparation system is such that some injured persons obtain judgments and some do not, and some judgments are collectible while others are not. But in deciding the policy question whether to recognize a new cause of action imposing additional liability in circumstances where liability to closely related plaintiffs already exists, it is appropriate to consider whether permitting such recovery will generally provide a remedy for otherwise uncompensated injury, or whether only a handful of those on whose behalf the cause of action is claimed will realize the additional benefit. Automobile accidents are the predominant cause of serious injury in our society, and it is unlikely that the average motorist will increase his automobile insurance coverage in response to today’s decision.
Borer v American Airlines, Inc, supra, p 447.
Ante, p 15.
One court has suggested that allowing minor children to recover separately may cause family discord:
"Whether or not, under the proposed added cause of action, the aggregate damages awarded the family by a jury for the injured parent, the spouse and the minor children would generally exceed substantially total family awards under existing law and practice, as anticipated above, one can question the desirability in social policy of the expectable result of actions including the proposed cause of action whereby a portion of the total family recovery, be such recovery large or small, would be segregated and made unavailable for control and disposition by the parents as managers of the family finances. There might also arise the cognate possibility of conflicts within the family in relation to settlements over apportionment of any lump sum tendered by the defense as between the injured parent, the spouse and each of the children.” Russell v Salem Transportation Co, supra, p 507.
Borer v American Airlines, Inc, supra, p 447.
Ferriter v Daniel O’Connell’s Sons, Inc, fn 1, supra. Contra, Early v United States, 474 F2d 756, 758-759 (CA 9, 1973) (Alaska law); Pleasant v Washington Sand & Gravel Co, 104 US App DC 374, 375-376; 262 F2d 471 (1958); Meredith v Scruggs, supra (Hawaii law); Turner v Atlantic C L R Co, 159 F Supp 590 (ND Ga, 1958) (South Carolina law); Hill v Sibley Memorial Hospital, 108 F Supp 739 (D DC, 1952); Jeune v Del E Webb Construction Co, 77 Ariz 226, 227; 269 P2d 723 (1954); Borer v American Airlines, Inc, supra, p 451; Clark v Suncoast Hospital, Inc, 338 So 2d 1117, 1118-1119 (Fla App, 1976); Halberg v Young, supra; Hankins v Derby, 211 NW2d 581, 584-585 (Iowa, 1973); Hoffman v Dautel, 189 Kan 165, 167-169; 368 P2d 57 (1962); Sabatier v Travelers Ins Co, 184 So 2d 594, 595 (La App, 1966); Eschenbach v Benjamin, 195 Minn 378; 263 NW 154 (1935); Bradford v Union Electric Co, 598 SW2d 149 (Mo App, 1979); Hoesing v Sears, Roebuck & Co, 484 F Supp 478 (D Neb, 1980); General Electric Co v Bush, 88 Nev 360, 368; 498 P2d 366, 371 (1972); Russell v Salem Transportation Co, supra, p 506; Duhan v Milanowski, supra; Gibson v Johnston, 75 Ohio Law Abstract 413; 144 NE2d 310, 313 (Ohio App, 1956); Roth v Bell, 24 Wash App 92, 101-104; 600 P2d 602 (1979). The Michigan Court of Appeals reached the same result in Hayrynen v White Pine Copper Co, 9 Mich App 452; 157 NW2d 502 (1968).
See the opinions of the New Jersey and California Supreme Courts in the Russell and Borer cases, supra.
US Const, Am XIV; Const 1963, art 1, § 2.
Shelley v Kraemer, 334 US 1, 17; 68 S Ct 836; 92 L Ed 1161 (1948).
Plaintiffs direct our attention to Deems v Western Maryland R Co, 247 Md 95, 102; 231 A2d 514 (1967), where the court said, in overruling prior decisions that a wife could not recover for loss of consortium:
"[W]hen this Court is asked to examine a legal doctrine which it has laid down in past decisions in the light of a constitutional claim not previously raised, our function is somewhat different than it is when the constitutionality of a statute is attacked. In the latter situation, there is the presumption of the validity of the legislative enactment. The action reviewed is that of a separate depository of the sovereign power. When a court must review its own decisions, the action is one of self-examination.”
However, the Deems court went on to conclude, not that the failure to recognize the wife’s action violated equal protection, but that policy considerations weighed in favor of its recognition. The opinion did not articulate a standard for a court to employ in the process of "self-examination”.
See Gunther, Foreword: In Search of Evolving Doctrine on a Changing Court: A Model for a Newer Equal Protection, 86 Harv L Rev 1 (1972); Nowak, Rotunda & Young, Constitutional Law, pp 525-526.
Of course, judge-made classifications may, as here, result from the evolution of the common law rather than from conscious judicial division of some larger class.
Cf. Garza v Kantor, 54 Cal App 3d 1025, 1028; 127 Cal Rptr 164 (1976).
Borer v American Airlines, Inc, supra, p 451.
Baker v Bolton, 1 Camp 493; 170 Eng Rep 1033 (1808).
Prosser, supra, § 127, p 902.
Borer v American Airlines, Inc, supra, p 452.
The Eighteenth Century English common law recognized precisely the same distinction. See fn 10, supra. | [
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Per Curiam.
This matter comes before this Court pursuant to plaintiffs "Petition for Special Relief’. In his petition the plaintiff sets forth his objections to a number of State Bar activities and asks that the petition "be granted”.
Based on the record we have before us, three members of the Court are of the view that the plaintiff is entitled to partial relief and would order it to be afforded. Several issues, however, cannot be decided without further development.
Two members of the Court are of the opinion that the plaintiff is not entitled to relief and would deny the petition.
Two members of the Court are of the view that further hearings on this matter are required, believing that the present state of the record is such that while some of the issues could be resolved based upon an evaluation of the record, several other issues should not be decided without further development.
In light of these circumstances, there being no majority of the Court at this time for a decision which would determine this matter, we order that the Honorable James H. Lincoln be appointed to conduct an additional evidentiary hearing. At this hearing the parties shall further develop the record with regard to the following bar activities: the Young Lawyers Section and Lawyers Wives, the Lawyer Placement Service, the commercial sale of the bar’s mailing list, and bar activities addressed to influencing legislation.
The hearing on remand shall be concluded not later than July 31, 1981 and the transcript thereof filed with the Clerk of this Court within 60 days after conclusion of the hearing. Thereafter the plaintiff shall file any additional brief he wishes to present for consideration within 30 days of the filing of the transcript and the State Bar shall file any responsive brief within 60 days of the filing of the transcript.
A majority of the Justices are in favor of the action directed by this opinion. All of the Justices agree that, there being a majority for this action, an order to effectuate these directions shall be issued.
Coleman, C.J., and Kavanagh, Williams, Levin, Fitzgerald, Ryan, and Blair Moody, Jr., JJ., concurred.
Ryan, J.
The issue in this case is:
To what extent, if any, may this state, through the combined actions of the Supreme Court, the Legislature, and the State Bar, compulsorily exact dues for, and require association in, an integrated bar organization over the First Amendment objections of an affected individual attorney?
We would hold:
The State of Michigan, through the combined actions of the Supreme Court, the Legislature, and the State Bar, may compulsorily exact dues, and require association, to support only those duties and functions of the State Bar which serve a compelling state interest and which cannot be accomplished by means less intrusive upon the First Amendment rights of the objecting individuals affected.
I. Factual Background
A
This case was commenced as an original proceeding in this Court on November 30, 1977 when plaintiff attorney Allan Falk filed a pleading entitled "Petition for Special Relief’ which named the State Bar of Michigan as the defendant.
The plaintiff’s petition is a three-page document which sets forth a series of factual allegations and legal assertions expressing his First Amendment objections to various activities and expenditures of the State Bar of Michigan, to which he must belong and pay dues. While Mr. Falk brings an unusual, and relatively complex, claim to this Court, we find that his petition bears at best only a remote resemblance to a complaint under our court rules, GCR 1963, 101, 111. The petition certainly contains allegations that various activities and expenditures of the State Bar violate the plaintiff’s First Amendment rights. However, we are unable to discern the statement of any other claim or cause of action. Further, the demand for judgment or relief (see GCR 1963, 111.1[3]) requests only that the "petition for special relief be granted”. We treat the petition as a complaint for a writ of superintending control over the State Bar of Michigan, within our original jurisdiction pursuant to GCR 1963, 851(6); MCL 600.215, 600.219; MSA 27A.215, 27A.219. We further interpret the petition as seeking an order from this Court relieving the plaintiff of the obligation of paying the pro rata portion of his State Bar dues which relates to alleged "unlawful and unconstitutional activities”.
Our role under these unusual circumstances is comparable to that of a trial court, responsible for making the appropriate factual determinations and applicable conclusions of law in reaching a judgment resolving the claims presented.
Subsequent to the filing of Mr. Falk’s petition, this Court entered an order appointing former Judge Maurice E. Schoenberger to conduct a hearing and make findings of fact on the issues presented in this case. 402 Mich 960 (1978).
On June 5 and 6, 1978, the hearing was held, and both parties presented testimony relating to the various activities and functions of the State Bar. A transcript of the hearing is part of the present record. On September 29, 1978 Judge Schoenberger submitted his report to this Court. The report summarizes the presentations of the State Bar and Mr. Falk, lists the exhibits received into evidence at the hearing, and concludes that there are no controverted factual matters which require resolution.
Thereafter, plaintiff Falk filed a brief, a reply brief, and a supplemental reply brief. The defendant State Bar filed a brief in opposition and a motion to file an answer to plaintiff’s supplemental reply brief which contained the answering brief. All of this material has been considered by this Court. Finally, pursuant to our order of April 6, 1979 oral arguments were heard on June 5, 1979. 406 Mich 1117 (1979).
A review of the record establishes certain salient facts relating to plaintiff Falk’s claim. One of those uncontroverted facts is that the State of Michigan, through the combined actions of this Court, the Legislature, and the State Bar, compels all licensed attorneys to associate in and provide financial support for the integrated State Bar. Another uncontroverted fact is that the State Bar engages in various lobbying efforts in the Legislature, and that such efforts are financed, at least in part, by the compulsorily exacted dues of the bar’s members. It is likewise undisputed that compulsory bar dues are used to finance other activities which plaintiff contends are non-regulatory in nature, such as the Prepaid Legal Services programs, Lawyer Referral Service programs, the Lawyer Placement Service, and the Client Security Fund.
B
The integrated State Bar of Michigan was legislatively authorized by 1935 PA 58. Thereafter, this Court, in cognizance of the legislation and pursuant to its own inherent power to regulate the practice of law in this state, entered an order organizing, and promulgating rules concerning, the integrated bar.
Section 1 of the first Supreme Court Rules Concerning the State Bar provided:
"The State bar of Michigan is the association of the members of the bar of this State, organized pursuant to powers of the Supreme Court over the bar of the State. The association shall, under these rules, aid in the promotion of improvements in the administration of justice and the advancement of the science of jurisprudence, in the improvement of the relations between the profession and the public, and in the promotion of the interests of the legal profession in this State.”
This original declaration of the purposes of the integrated bar has not been materially altered by any restatement in the subsequent 44 years.
At all times since the formation of our integrated State Bar, all actively practicing lawyers in this state have been required to be members of, and pay dues to, that organization.
There can be no question that since 1935 the privilege of practicing law in this state has been conditioned upon association with, and financial support of, the integrated State Bar of Michigan compelled by the state.
II. Relevant United States Supreme Court Decisions
Our analysis of Mr. Falk’s claim under the First Amendment is controlled, of course, by the applicable decisions of the United States Supreme Court. We therefore here undertake the task of presenting our understanding of certain United States Supreme Court decisions which are implicated by Mr. Falk’s claims and the State Bar’s response.
A. Hanson, Street, and Lathrop
In Railway Employes’ Dep’t v Hanson, 351 US 225; 76 S Ct 714; 100 L Ed 1112 (1956), non-union employees of a railroad brought suit in a Nebraska state court against the railroad and various unions representing the railroad’s employees seeking to enjoin anticipated enforcement of a union shop agreement entered into between the railroad and the unions. The contract required that all employ ees of the railroad become members of the specified union as a condition of their employment.
The union shop agreement was permissively authorized by the Federal Railway Labor Act. That act authorized union shop agreements "notwithstanding the law of 'any State’ ”. 351 US 228.
The Nebraska state constitution contained a "right to work” provision which outlawed union shop agreements.
The Nebraska trial court enjoined enforcement of the agreement. The Nebraska Supreme Court affirmed, holding that the union shop agreement violated the First Amendment in that it deprived employees of their freedom of association, and violated the Fifth Amendment, in that it required members of the union to pay for activities above and apart from the costs relating to collective bargaining. The Nebraska Supreme Court concluded that the relevant provisions of the Railway Labor Act were unconstitutional under the Federal constitution, and therefore did not supersede the Nebraska state constitution’s right to work provision. 160 Neb 669; 71 NW2d 526 (1955).
The United States Supreme Court, in an opinion authored by Justice Douglas, reversed. While the Court’s decision in Hanson has been accorded varying interpretations in later cases, we believe that Hanson narrowly held: (1) that Congress’ bare authorization of union shops was within the consti tutional realm of legislative policy making under the Commerce Clause, in pursuit of labor peace; and (2) that the Hanson record did not present any concrete, justiciable First Amendment issues relating to the union shop agreement’s potential impairment of freedom of expression or forcing of ideological conformity, since the action had been commenced before the effective date of the agreement. 351 US 238.
In International Ass’n of Machinists v Street, 367 US 740; 81 S Ct 1784; 6 L Ed 2d 1141 (1961), a union shop agreement entered into under the Railway Labor Act was challenged by objecting railroad employees.
The employees brought an action in a Georgia state court alleging that substantial portions of their compulsory union dues were being used to finance the campaigns of political candidates, and to advance the propagation of political and economic doctrines to which the plaintiffs were opposed. The agreement in Street was in effect at the time the action was brought and a concrete record was therefore presented.
The state trial court entered a judgment for the plaintiffs, enjoining enforcement of the agreement to the extent that it permitted the use of dues for political purposes and the propagation of ideologies which the plaintiffs opposed.
The Georgia Supreme Court affirmed. 215 Ga 27; 108 SE2d 796 (1959).
On appeal, the United States Supreme Court, in an opinion by Justice Brennan signed by four Justices, with two additional Justices concurring in the decisional analysis, reversed and remanded for further proceedings.
Justice Brennan’s opinion considered the Hanson decision at length. The inadequacy of the Hanson record with respect to the justiciability of the possible First Amendment issues was emphasized. Hanson was read as only reaching the facial constitutionality of the Railway Labor Act’s authorization of union shop agreements:
"In their brief in this Court the appellees in Hanson argued that First Amendment rights would be infringed by the enforcement of an agreement which would enable compulsorily collected funds to be used for political purposes. But there was nothing concrete in the record to show the extent to which the unions were actually spending money for political purposes and what these purposes were, nothing to show the extent to which union funds collected from members were being used to meet the costs of political activity and the mechanism by which this was done, and nothing to show that the employees there involved opposed the use of their money for any particular political objective. In contrast, the present record contains detailed information on all these points, and specific findings were made in the courts below as to all of them. When it is recalled that the action in Hanson was brought before the union-shop agreement became effective and that the appellees never thereafter showed that the unions were actually engaged in furthering political causes with which they disagreed and that their money would be used to support such activities, it becomes obvious that this Court passed merely on the constitutional validity of § 2, Eleventh of the Railway Labor Act on its face, and not as applied to infringe the particularized constitutional rights of any individual. On such a record, the Court could not have done more, consistently with the re straints that govern us in the adjudication of constitutional questions and warn against their premature decision. We therefore reserved decision of the constitutional questions which the appellees present in this case. We said: "It is argued that compulsory membership will be used to impair freedom of expression. But that problem is not presented by this record * * * if the exaction of dues, initiation fees, or assessments is used as a cover for forcing ideological conformity or other action in contravention of the First Amendment, this judgment will not prejudice the decision in that case. For we pass narrowly on § 2, Eleventh of the Railway Labor Act. We only hold that the requirement for ñnancial support of the collective-bargaining agency by all who receive the beneñts of its work is within the power of Congress under the Commerce Clause and does not violate either the First or the Fifth Amendments.” Id. 351 US 238. See, also, 351 US 242 (concurring opinion). Thus all that was held in Hanson was that § 2, Eleventh was constitutional in its bare authorization of union-shop contracts requiring workers to give ñnancial support’ to unions legally authorized to act as their collective bargaining agents. We sustained this requirement — and only this requirement — embodied in the statutory authorization of agreements under which 'all employees shall become members of the labor organization representing their craft or class.’ Clearly we passed neither upon forced association in any other aspect nor upon the issue of the use of exacted money for political causes which were opposed by the employees.” (Footnote omitted, emphasis supplied.) 367 US 747-749.
Finding the Street record sufficiently concrete to present the issues not decided in Hanson, the Court went through an exhaustive analysis of the legislative histories of various Federal railroad labor acts, and then delivered the following construction of the Railway Labor Act’s union shop provision:
"We give § 2, Eleventh the construction which achieves both congressional purposes when we hold, as we do, that § 2, Eleventh is to be construed to deny the unions, over an employee’s objection, the power to use his exacted funds to support political causes which he opposes.
"We express no view as to other union expenditures objected to by an employee and not made to meet the costs of negotiation and administration of collective agreements, or the adjustment and settlement of grievances and disputes. We do not understand, in view of the findings of the Georgia courts and the question decided by the Georgia Supreme Court, that there is before us the matter of expenditures for activities in the area between the costs which led directly to the complaint as to 'free riders,’ and the expenditures to support union political activities. We are satisfied, however, that § 2, Eleventh is to be interpreted to deny the unions the power claimed in this case. The appellant unions, in insisting that § 2, Eleventh contemplates their use of exacted funds to support political causes objected to by the employee, would have us hold that Congress sanctioned an expansion of historical practices in the political area by the rail unions. This we decline to do. Both by tradition and, from 1934 to 1951, by force of law, the rail unions did not rely upon the compulsion of union security agreements to exact money to support the political activities in which they engage. Our construction therefore involves no curtailment of the traditional political activities of the railroad unions. It means only that those unions must not support those activities, against the expressed wishes of a dissenting employee, with his exacted money.” (Footnotes omitted.) 367 US 768-770.
The Street opinion emphasized that the objecting employees’ cause of action arose under the Railway Labor Act, and not the First Amendment, because the exactions complained of were not authorized by that statute. 367 US 771.
The foregoing interpretations of Hanson and Street clearly indicate that neither case was decided on First Amendment grounds, although the delimiting language of that provision arguably implicitly compelled the results reached.
In Lathrop v Donohue, 367 US 820; 81 S Ct 1826; 6 L Ed 2d 1191 (1961), a companion case to Street, Wisconsin attorney Lathrop brought an action in a state trial court to recover compulsorily exacted dues paid by him to the integrated Wisconsin State Bar, alleging the requirement to pay such dues to be unconstitutional under the First and Fourteenth Amendments of the United States Constitution. The treasurer of the Wisconsin State Bar was named as the defendant.
The defendant demurred to the complaint on three grounds, one of which was that the complaint did not state facts sufficient to constitute a cause of action. The trial court sustained the demurrer on all three grounds, and then entered an order dismissing the complaint without leave to amend, for the reason that no amendment could cure the defects in the merits of the plaintiffs case. See 367 US 868-869 (Black, J., dissenting).
On appeal to the Wisconsin Supreme Court, the judgment of the trial court was affirmed. 10 Wis 2d 230; 102 NW2d 404 (1960). The Court held that the trial court was without subject matter jurisdiction to entertain the plaintiffs complaint, but went on to treat the complaint as if it had been originally filed in the reviewing court.
We read the Wisconsin Supreme Court’s opinion as determining that the state had a sufficient interest in the achievement of the stated objectives of the integrated bar to justify the minimal compulsion of individuals effected by the requirement of association in, and payment of dues to, the integrated Wisconsin bar.
The United States Supreme Court, on appeal, divided sharply and entered a plurality judgment affirming the Wisconsin Supreme Court. That affirmance was later explained in Abood v Detroit Board of Education, 431 US 209, 233, fn 29; 97 S Ct 1782; 52 L Ed 2d 261 (1977), as follows:
"In Lathrop v Donohue, 367 US 820, a companion case to Street, a lawyer sued for the refund of dues paid (under protest) to the integrated Wisconsin State Bar. The dues were required as a condition of practicing law in Wisconsin. The plaintiff contended that the requirement violated his constitutionally protected freedom of association because the dues were used by the State Bar to formulate and to support legislative proposals concerning the legal profession to which the plaintiff objected.
"A plurality of four Justices found that the requirement was not on its face unconstitutional, relying on the analogy to Hanson. And the plurality ruled, as had the Court in Hanson, that the constitutional questions tendered were not ripe, for the Court was nowhere 'clearly apprised as to the views of the appellant on any particular legislative issues on which the State Bar has taken a position, or as to the way in which and the degree to which funds compulsorily exacted from its members are used to support the organization’s political activities.’ 367 US at 845-846. The other five Members of the Court disagreed with the plurality and thought that the constitutional questions ought to be reached. Three Justices would have upheld the constitutionality of using compulsory dues to finance the State Bar’s legislative activities even where opposed by dissenting members. See id., at 848 (Harlan, J., concurring in judgment); id., at 865 (Whittaker, J., concurring in result). The other two Justices would have held such activities to be unconstitutional. See ibid. (Black, J., dissenting); id., at 877 (Douglas, J., dissenting).
"The only proposition about which a majority of the Court in Lathrop agreed was that the constitutional issues should be reached. However, due to the disparate views of those five Justices on the merits and the failure of the other four Members of the Court to discuss the constitutional questions, Lathrop does not provide a clear holding to guide us in adjudicating the constitutional questions here presented.”
It is clear from the foregoing that the United States Supreme Court did not resolve the merits of the constitutional issues raised by the plaintiffs arguments in Lathrop.
Although none of the three decisions discussed above was decided on First Amendment grounds, some analysis of them is necessary in order to fully understand the Abood decision, upon which Mr. Falk places considerable reliance.
B. Abood
In Abood v Detroit Board of Education, supra, the defendant board entered into a collective bargaining agreement with the Detroit Federation of Teachers, the certified exclusive representative of teachers employed by the board. The agreement implemented an agency shop arrangement whereby all board-employed teachers were required to pay a service fee to the union as a condition of their employment, although they were not required to actually join the union.
Certain objecting teachers filed an action against the board, the union, and others, in circuit court alleging that the agency shop contract violated their First Amendment rights, in that the plaintiffs were opposed to collective bargaining in the public sector generally; and that the union was using the agency service fees to support ideological and political causes which were unrelated to collective bargaining activities and which were opposed by the plaintiffs.
The circuit court granted the defendants’ motion for summary judgment, finding the agency shop arrangement inoffensive to the plaintiffs’ constitutional rights.
During the pendency of the plaintiffs’ subsequent appeal from the summary judgment, this Court decided Smigel v Southgate Community School Dist, 388 Mich 531; 202 NW2d 305 (1972), which held that the Michigan public employment relations act (PERA), as then written, did not authorize or permit agency shop contracts in the public employment sphere.
The Abood application for leave to appeal then reached this Court. On the authority of Smigel the circuit court’s summary judgment was vacated and the case was remanded to that court "for further proceedings consonant herewith”, sub nom Warczak v Detroit Board of Education, 389 Mich 755 (1972).
The Legislature then amended PERA to expressly authorize agency shop contracts in the public sector. 1973 PA 25; MCL 423.210(1); MSA 17.455(10)(1).
On remand to the circuit court, the defendants filed a new motion for summary judgment based on the premise that the PERA amendment autho rizing agency shops should be given retroactive effect (thereby effectively reversing Smigel). The circuit court granted the new summary judgment motion.
On appeal to the Michigan Court of Appeals, the trial court was reversed. Abood v Detroit Board of Education, 60 Mich App 92; 230 NW2d 322 (1975). The Court of Appeals held that the legislative amendment to PERA concerning agency shop agreements was prospective only. This holding would have been dispositive of the Abood case, since Abood involved a pre-PERA amendment agency shop agreement.
However, the Court of Appeals went on to frame the following issue at 60 Mich App 98:
"Does the agency shop clause violate plaintiffs’ First and Fourteenth Amendment rights securing freedom of speech and freedom of association?”
The Court of Appeals then discussed the United States Supreme Court’s decisions in Hanson and Street and concluded:
"We have before us then, two powerful countervailing public policies. We are asked, on the one hand, to preserve freedom of expression, and, on the other, to promote labor stability. But freedom of expression is a constitutional right so basic to our form of government that it must be jealously guarded. This is particularly true where, as here, employees are compelled by the government to support the collective bargaining activities of an organization which they prefer not to join. Justice Douglas expressed this concern well in his concurring opinion in Street:
"'If an association is compelled, the individual should not be forced to surrender any matters of conscience, belief, or expression. He should be allowed to enter the group with his own flag flying, whether it be religious, political, or philosophical; nothing that the group does should deprive him of the privilege of preserving and expressing his agreement, disagreement, or dissent, whether it coincides with the view of the group, or conflicts with it in minor or major ways; and he should not be required to finance the promotion of causes with which he disagrees.’ 367 US at 776 * * *.
"Therefore, we conclude that the agency shop clause, as prospectively authorized by the amendment to MCL 423.210; MSA 17.455(10), could violate plaintiffs’ First and Fourteenth Amendment rights.” 60 Mich App 100.
The record presented was, however, found to be inadequate to merit relief:
"To reiterate briefly, employees who are forced to contribute service fees to a collective bargaining representative may not be deprived of First Amendment freedom of expression. But, in order to preserve this right, the employee must make known to the union those causes and candidates to which he objects. The remedy then would be restitution to the employee of that portion of his money expended by the union over his objection.” 60 Mich App 102.
This Court subsequently denied leave to appeal from the Court of Appeals decision. 395 Mich 755-756 (1975).
On appeal to the United States Supreme Court, the judgment of the Michigan Court of Appeals was vacated and the case was remanded to the trial court for further proceedings.
The majority opinion framed the following issue:
"The issue before us is whether [the agency shop] arrangement violates the constitutional rights of government employees who object to public-sector unions as such or to various union activities financed by the compulsory service fees.” Abood v Detroit Board of Education, 431 US 209, 211.
The majority observed that "[t]o compel employees financially to support their collective-bargaining representative has an impact on their First Amendment interests”, 431 US 222, and then considered the applicability of Hanson and Street to the Abood facts:
"The distinctive nature of public-sector bargaining has led to widespread discussion about the extent to which the law governing labor relations in the private sector provides an appropriate model. To take but one example, there has been considerable debate about the desirability of prohibiting public employee unions from striking, a step that the State of Michigan itself has taken [MCL 423.202], But although Michigan has not adopted the federal model of labor relations in every respect, it has determined that labor stability will be served by a system of exclusive representation and the permissive use of an agency shop in public employment. As already stated, there can be no principled basis for according that decision less weight in the constitutional balance than was given in Hanson to the congressional judgment reflected in the Railway Labor Act. The only remaining constitutional inquiry evoked by the appellants’ argument, therefore, is whether a public, employee has a weightier First Amendment interest than a private employee in not being compelled to contribute to the costs of exclusive union representation. We think he does not.” (Footnotes omitted.) 431 US 229.
Shortly thereafter the Court said:
"The differences between public- and private-sector collective bargaining simply do not translate into differences in First Amendment rights. Even those commentators most acutely aware of the distinctive nature of public-sector bargaining and most seriously concerned with its policy implications agree that '[t]he union security issue in the public sector * * * is fundamentally the same issue * * * as in the private sector * * *. No special dimension results from the fact that a union represents public rather than private employees.’ Wellington & Winter, The Unions and the Cities (1971), pp 95-96. We conclude that the Michigan Court of Appeals was correct in viewing this Court’s decisions in Hanson and Street as controlling in the present case insofar as the service charges are applied to collective-bargaining, contract administration, and grievance-adjustment purposes.” 431 US 232.
After the Court determined that the Abood record did not permit avoidance of the First Amendment issues raised, the following analysis and conclusion were stated:
"Our decisions establish with unmistakable clarity that the freedom of an individual to associate for the purpose of advancing beliefs and ideas is protected by the First and Fourteenth Amendments. E.g., Elrod v Burns, 427 US 347, 355-357 [96 S Ct 2673; 49 L Ed 2d 547 (1976)] (plurality opinion); Cousins v Wigoda, 419 US 477, 487 [95 S Ct 541; 42 L Ed 2d 595 (1975)]; Kusper v Pontikes, 414 US 51, 56-57 [94 S Ct 303; 38 L Ed 2d 260 (1973)]; NAACP v Alabama ex rel Patterson, 357 US 449, 460-461 [78 S Ct 1163; 2 L Ed 2d 1488 (1958)]. Equally clear is the proposition that a government may not require an individual to relinquish rights guaranteed him by the First Amendment as a condition of public employment. E.g., Elrod v Burns, supra, at 357-360, and cases cited; Perry v Sindermann, 408 US 593 [92 S Ct 2694; 33 L Ed 2d 570 (1972)]; Keyishian v Board of Regents, 385 US 589 [87 S Ct 675; 17 L Ed 2d 629 (1967)]. The appellants argue that they fall within the protection of these cases because they have been prohibited, not from actively associating, but rather from refusing to associate. They specifically argue that they may constitutionally prevent the Union’s spending a part of their required service fees to contribute to political candidates and to express political views unre lated to its duties as exclusive bargaining representative. We have concluded that this argument is a meritorious one.
"One of the principles underlying the Court’s decision in Buckley v Valeo, 424 US 1 [96 S Ct 612; 46 L Ed 2d 659 (1976)], was that contributing to an organization for the purpose of spreading a political message is protected by the First Amendment. Because '[m]aking a contribution * * * enables like-minded persons to pool their resources in furtherance of common political goals,’ id., at 22, the Court reasoned that limitations upon the freedom to contribute 'implicate fundamental First Amendment interests,’ id., at 23.
"The fact that the appellants are compelled to make, rather than prohibited from making, contributions for political purposes works no less an infringement of their constitutional rights. For at the heart of the First Amendment is the notion that an individual should be free to believe as he will, and that in a free society one’s beliefs should be shaped by his mind and his conscience rather than coerced by the State. See Elrod v Burns, supra, at 356-357; Stanley v Georgia, 394 US 557, 565 [89 S Ct 1243; 22 L Ed 2d 541 (1969)]; Cantwell v Connecticut, 310 US 296, 303-304 [60 S Ct 900; 84 L Ed 1213; 128 ALR 1352 (1940)]. And the freedom of belief is no incidental or secondary aspect of the First Amendment’s protections:
" 'If there is any fixed star in our constitutional constellation, it is that no official, high or petty, can prescribe what shall be orthodox in politics, nationalism, religion, or other matters of opinion or force citizens to confess by word or act their faith therein.’ West Virginia Bd of Ed v Barnette, 319 US 624, 642 [63 S Ct 1178; 87 L Ed 1628; 147 ALR 674 (1943)].
"These principles prohibit a State from compelling any individual to affirm his belief in God, Torcaso v Watkins, 367 US 488 [81 S Ct 1680; 6 L Ed 2d 982 (1961)], or to associate with a political party, Elrod v Burns, supra; see 427 US, 363-364, fn 17, as a condition of retaining public employment. They are no less applicable to the case at bar, and they thus prohibit the appellees from requiring any of the appellants to contribute to the support of an ideological cause he may oppose as a condition of holding a job as a public school teacher.” (Footnotes omitted.) 431 US 233-235.
With reference to the issue framed by the United States Supreme Court, p 101, supra, we read Abood as holding: (1) that, as in Hanson, the State of Michigan’s authorization of agency shop agreements in the public sector served a sufficiently compelling state interest in the achievement of labor stability to permit impingement on public employees’ First Amendment rights to the extent of requiring payment of service fees for purposes germane to the collective bargaining duties of the teachers’ union; and (2) that to the extent that agency fees were exacted and used for purposes beyond or apart from those activities related to collective bargaining, the plaintiffs had stated a claim upon which relief could be granted under the First Amendment.
With the foregoing understanding of Abood and its progenitors in mind, we now proceed to our analysis of the present case.
III. Analysis
A. Controlling Principles
While the decision in Abood is of primary significance to the instant case, it does not offer a clear statement of the controlling framework for analysis of First Amendment issues of the kind here presented. We therefore turn to the earlier United States Supreme Court decision in Elrod v Burns, 427 US 347; 96 S Ct 2673; 49 L Ed 2d 547 (1976), which does.
In Elrod, non-civil service employees of the Cook County, Illinois, Sheriffs Department challenged the constitutionality of the longstanding patronage system in that county. Under that system, employees were required to become affiliated with or sponsored by the political party in control of the office of Sheriff, or face the likelihood of being discharged.
Justice Brennan’s lead opinion in the plurality decision neatly summarized the controlling First Amendment principles:
"Although the practice of patronage dismissals clearly infringes First Amendment interests, our inquiry is not at an end, for the prohibition on encroachment of First Amendment protections is not an absolute. Restraints are permitted for appropriate reasons. Keyishian and Perry, however, not only serve to establish a presumptive prohibition on infringement, but also serve to dispose of one suggested by petitioners’ reference to this Court’s affirmance by an equally di vided court in Bailey v Richardson, 341 US 918 [71 S Ct 669; 95 L Ed 1352] (1951), aff’g 86 US App DC 248; 182 F2d 46 (1950). That is the notion that because there is no right to a government benefit, such as public employment, the benefit may be denied for any reason. Perry, however, emphasized that '[f]or at least a quarter-century, this Court has made clear that even though a person has no "right” to a valuable governmental benefit and even though the government may deny him the benefit for any number of reasons, there are some reasons upon which the government may not rely.’ 408 US, at 597. Perry and Keyishian properly recognize one such impermissible reason: The denial of a public benefit may not be used by the government for the purpose of creating an incentive enabling it to achieve what it may not command directly. ' "[T]he theory that public employment which may be denied altogether may be subjected to any conditions, regardless of how unreasonable, has been uniformly rejected.” ’ Keyishian v Board of Regents, 385 US, at 605-606. 'It is too late in the day to doubt that the liberties of religion and expression may be infringed by the denial of or placing of conditions upon a benefit or privilege.’ Sherbert v Verner, 374 US 398, 404 [83 S Ct 1790; 10 L Ed 2d 965] (1963). ' "[T]his Court now has rejected the concept that constitutional rights turn upon whether a governmental benefit is characterized as a 'right’ or as a 'privilege’.” ’ Sugarman v Dougall, 413 US 634, 644 [93 S Ct 2842; 37 L Ed 2d 853 (1973)] (quoting Graham v Richardson, 403 US 365, 374 [91 S Ct 1848; 29 L Ed 2d 534 (1971)]).
"While the right-privilege distinction furnishes no ground on which to justify patronage, petitioners raise several other justifications requiring consideration. Before examining those justifications, however, it is necessary to have in mind the standards according to which their sufficiency is to be measured. It is firmly established that a significant impairment of First Amendment rights must survive exacting scrutiny. Buckley v Valeo, 424 US, at 64-65; NAACP v Alabama [ex rel Patterson], 357 US [449, 460-461; 78 S Ct 1163; 2 L Ed 2d 1488 (1958)]. 'This type of scrutiny is necessary even if any deterrent effect on the exercise of First Amendment rights arises, not through direct government ac tion, but indirectly as an unintended but inevitable result of the government’s conduct. * * *’ Buckley v Valeo, supra, at 65. Thus encroachment 'cannot be justified upon a mere showing of a legitimate state interest.’ Kusper v Pontikes, 414 US, at 58. The interest advanced must be paramount, one of vital importance, and the burden is on the government to show the existence of such an interest. Buckley v Valeo, supra, at 94; Williams v Rhodes, 393 US [23, 31-33; 89 S Ct 5; 21 L Ed 2d 24 (1968)]; NAACP v Button, 371 US 415, 438, 444 [83 S Ct 328; 9 L Ed 2d 405 (1963)]; Bates v Little Rock, 361 US 516, 524 [80 S Ct 412; 4 L Ed 2d 480 (1960)]; NAACP v Alabama [ex rel Patterson], supra, 464-466; Thomas v Collins, 323 US 516, 530 [65 S Ct 315; 89 L Ed 430 (1945)]. In the instant case, care must be taken not to confuse the interest of partisan organizations with governmental interests. Only the latter will suffice. Moreover, it is not enough that the means chosen in furtherance of the interest be rationally related to that end. Sherbert v Verner, supra, [374 US] at 406. The gain to the subordinating interest provided by the means must outweigh the incurred loss of protected rights, see United Public Workers v Mitchell, 330 US [75, 96; 67 S Ct 556; 91 L Ed 754 (1947)], and the government must 'emplo[y] means closely drawn to avoid unnecessary abridgment. * * *’ Buckley v Valeo, supra, at 25. '[A] State may not choose means that unnecessarily restrict constitutionally protected liberty. "Precision of regulation must be the touchstone in an area so closely touching our most precious freedoms.” If the State has open to it a less drastic way of satisfying its legitimate interests, it may not choose a legislative scheme that broadly stifles the exercise of fundamental personal liberties.’ Kusper v Pontikes, supra, at 59 (citations omitted). See United States v Robel, 389 US 258 [88 S Ct 419; 19 L Ed 2d 508 (1967)]; Shelton v Tucker, 364 US 479 [81 S Ct 247; 5 L Ed 2d 231 (1960)]. In short, if conditioning the retention of public employment on the employee’s support of the in-party is to survive constitutional challenge, it must further some vital government end by a means that is least restrictive of freedom of belief and association in achieving that end, and the benefit gained must outweigh the loss of constitutionally protected rights.” (Footnotes omitted.) Elrod v Burns, 427 US 360-363. See, also, Abood v Detroit Board of Education, 431 US 259-261 (Powell, J., concurring in judgment).
As the above quoted passage states, First Amendment protections are not absolute. The compelling interests of government may justify restrictions on the First Amendment freedoms of individuals.
It remains to be determined how, if at all, the arguments of the parties before us are to be resolved by application of the above-stated constitutional principles.
B. Arguments
The essence of Mr. Falk’s First Amendment argument is that Abood mandates a ruling in this case that he cannot be compelled to pay dues which are used for non-regulatory activities of the State Bar, particularly lobbying and other political activities.
The State Bar responds that Abood is foremost a labor law case, and is not applicable in the present action. The State Bar is not a labor organization, but is rather a "public body corporate” that operates as a public or state agency. Further, the State Bar argues that the grant of permission to practice law is a privilege and not a right. The state may burden this privilege with conditions. Finally, the State Bar contends that assuming arguendo the applicability of Abood here, all that case requires is that dues be "imposed for purposes germane to the organization and existence of the State Bar”, which includes those purposes stated in State Bar Rule 1.
As shall be hereinafter developed, we find the plaintiff’s arguments and authorities to be the more convincing.
C. Holding
Certainly Abood and the case before us can be distinguished. However, neutral analysis reveals that the factual differences in the two cases lead to the conclusion that the First Amendment principles announced and applied to the facts in Abood impact with even greater force upon the present case.
In Abood, the United States Supreme Court found certain attributes of an agency shop agreement, permissively authorized by state law, potentially violative of the objecting teachers’ First Amendment rights. While all teachers must be state-certified in Michigan, they are not required to join any state-controlled organization. Indeed, the teachers in Abood could have avoided the violation of their First Amendment rights by seeking employment with an unorganized Michigan school district, or with unorganized private or parochial Michigan schools. While the state had authorized school districts and teacher organizations to voluntarily enter agency shop contracts, the state has never required individual teachers to associate with and pay dues to a teacher’s association as a condition of obtaining and maintaining certification as a teacher in Michigan.
On the other hand, we are here concerned with the propriety of state-compelled association in, and financial support of, a "public body corporate” as a condition precedent to the pursuit of one’s liveli hood as an attorney in this state, in any active legal capacity. No alternatives, even unpalatable ones, exist for the objecting individual attorney.
Mr. Falk’s petition does not specify which of his First Amendment rights are offended. However, we are satisfied that his pleading raises issues involving his rights to freedom of association and freedom of belief. The State of Michigan’s requirement of association with, and financial support of, the integrated State Bar clearly has a significant impact on these rights. See Abood v Detroit Board of Education, 431 US 222.
First Amendment guarantees are made applicable to the several states through the Due Process Clause of the Fourteenth Amendment. See Gitlow v New York, 268 US 652, 666; 45 S Ct 625; 69 L Ed 1138 (1925); De Jonge v Oregon, 299 US 353, 364-365; 57 S Ct 255; 81 L Ed 278 (1937). It is well established that state action which infringes on First Amendment rights can only be tolerated where such infringement is unavoidably required in order to further a "compelling”, "paramount”, or "vital” state interest. Unquestionably, the state has very strong, even compelling, interests in the regulation of, and maintenance of high standards in, the legal profession, "since lawyers are essential to the primary governmental function of administering justice, and have historically been 'officers of the courts’ ”. See Ohralik v Ohio State Bar Ass’n, 436 US 447, 460; 98 S Ct 1912; 56 L Ed 2d 417 (1978) (citation omitted). Nonetheless, and although the permission to practice law may rightly be regarded as a privilege, the state’s intrusion on First Amendment rights of all individuals, including attorneys, must be consciously and scrupulously minimized.
We therefore conclude that, in light of the controlling First Amendment principles as herein-above discussed, the State of Michigan, through the combined actions of this Court, the Legislature, and the State Bar, may compulsorily exact dues, and require association, to support only those duties and functions of the State Bar which serve compelling state interests and which cannot be accomplished by means less intrusive upon the First Amendment rights of objecting individual attorneys. See Abood v Detroit Board of Education, supra; Elrod v Burns, supra, at 360-363 (Brennan, J., plurality opinion); see also cases cited in fns 24, 25 and 26.
IV. Findings, Conclusions, and Relief
Having considered the pleadings, the briefs, the oral arguments of the parties, the report of the fact-finder, and other relevant material and authorities, we make the following findings of fact and conclusions of law:
1. That the original pleading in this action, entitled "Petition for Special Relief’, is in the nature of a complaint for a writ of superintending control, and is within this Court’s original jurisdiction pursuant to GCR 1963, 851(6); MCL 600.215, 600.219; MSA 27A.215, 27A.219;
2. That plaintiff Allan Falk is, and has been, like all active attorneys in this state, required as a matter of law to be a member of the State Bar of Michigan and is, and has been, required to pay dues in support of that organization;
3. That Mr. Falk has been excused of the obligation to pay any dues to the State Bar of Michigan during the pendency of this action;
4. That the State Bar of Michigan engages in many activities which the plaintiffs dues have been, and would now be, used to support, and with which the plaintiff must associate by virtue of his compulsory membership in the State Bar;
5. That Mr. Falk’s Petition for Special Relief and his briefs in support thereof express his objec tions, on First Amendment grounds and otherwise, to various activities of the State Bar of Michigan, and that such petition states a claim upon which relief can be granted under the First Amendment;
6. That the controlling United States Supreme Court decisions relevant to Mr. Falk’s claim mandate that the State of Michigan, through its various branches of government and its agencies, cannot require association with, or payment of dues in support of, the State Bar of Michigan for other than those duties and functions of the State Bar which serve compelling state interests and which cannot be achieved by means less intrusive upon the First Amendment rights of objecting attorneys;
7. That under the controlling United States constitutional principles, once an individual has stated a claim upon which relief can be granted under the First Amendment, the burden is on the state or its agency to show the existence of a compelling interest which cannot be achieved with less intrusion upon the affected individual’s First Amendment rights;
8. That the regulation of the practice of law, the maintenance of high standards in the legal profession, and the discharge of the profession’s duty to protect and inform the public are, in the context of the present challenge, purposes in which the State of Michigan has a compelling interest which will justify unavoidable intrusions on the First Amendment rights of objecting attorneys;
9. That the record in this case establishes that the defendant State Bar of Michigan has shown a compelling state interest in the following functions of the State Bar, and that such functions cannot be accomplished by means less intrusive on the First Amendment rights of an objecting attorney:
A. All regulatory activities, including attorney disciplinary proceedings as provided in GCR 1963, 950 et seq., to the extent that such activities are funded out of compulsorily exacted State Bar dues; all licensing-related activities such as those provided for in State Bar Rule 15;
B. All continuing legal education activities presently engaged in by the State Bar which are directed to the maintenance of high professional standards among Michigan attorneys;
C. The publication of the Michigan Bar Journal insofar as that publication is primarily devoted to informing the members of the State Bar on current matters relating to regulation of the profession and the improvement of professional standards;
D. The Client Security Fund insofar as it represents a discharge of a duty to protect the public from recreant members of the profession. The cost of this fund is properly distributed among all members of the profession regardless of individual predilections toward or opportunity for wrongdoing. Support of the Client Security Fund is but a logical and necessary extension of our admittedly imperfect regulatory and licensing standards and is a duty necessarily imposed on a profession committed to the public interest;
E. Those activities designed to educate the general public concerning the use of legal services and the relationship between individuals and the legal system generally. This should not be read to include those outreach programs designed to educate the public concerning specific legislation or promoting specific viewpoints. Permissible activities in this area include the publication and distribution. of such booklets as "You and the Law”, and the "Juror’s Manual”;
F. Activities designed to make legal services more accessible, including the Lawyer Referral Service and support for those legal aid organizations serving the indigent. These activities represent a part of the service every attorney owes the public and hence compelling support for them cannot be deemed constitutionally obnoxious.
10. That the political and legislative activities of the bar, which constitute a function wholly separable from its other activities, violate petitioner Falk’s First Amendment rights of association and expression.
The record clearly discloses the extent of the State Bar’s legislative and lobbying activities. These include but are not limited to: rendering technical advice to the Legislature; testifying before the State Officers Compensation Commission; adopting and publishing official positions on proposed legislation; and retaining a professional lobbyist. To the extent these efforts are funded by mandatory dues, the State Bar impermissibly infringes on the First Amendment freedoms of its individual members.
The ultimate objective of these political and legislative activities is to influence public decision-making. Even if specific legislative-political goals can be justified as advancing the public interest or improving the administration of justice, compelled support and association to further these activities is not constitutionally acceptable. The "public interest” and the "advancement of jurisprudence” are not unitary concepts subject to a single interpretation. Disagreements regarding legislative or other policy choices arise not only because they result in differing practical effects on individuals, but more importantly because they reflect differing ideological approaches to the subject matter. Such ideological beliefs, and association to promote or oppose such beliefs, lie at "the core of those activities protected by the First Amendment”. Elrod v Burns, supra, 356.
That petitioner Falk is entitled to express his disagreement within the organizational framework does not wholly diminish the fact that he is being forced to associate for purposes contrary to his beliefs. The focus is not upon freedom of expression within the organization, but rather upon whether the state can justify the forced association in the first instance.
We do not believe that for First Amendment purposes a distinction can be drawn between legislation aimed at issues loosely termed procedural, such as court reorganization and rules of evidence in product liability actions and the like, and those termed substantive. In either category of legislation, the choice of one approach over another is necessarily premise-based and thus subject to contrary opinion or belief. Compelling a dissenter to finance the encouragement of such First Amendment related legislation and associate with its advancement, whether or not he or she opposes it, cannot be justified in the absence of an overriding state need and then only by means narrowly drawn.
In light of alternative methods available to the Legislature to obtain expert legal advice as to both "substantive” and "procedural” legislation, we see no compelling interest to justify the State Bar’s legislative activities supported by compulsory dues. Specifically, the Legislature possesses subpoena power, MCL 4.101; MSA 2.181, and has access to the Legislative Service Bureau, the Attorney General, and House and Senate counsel, as well as committee counsel. Additionally, there are a number of voluntary and self-supporting sections within the State Bar from whom the Legislature can seek input on legal questions. Further, while they cannot be compelled to do so, individual members may be given the opportunity and may choose to voluntarily support legislative and lobbying activities undertaken by the State Bar.
11. That similarly the broad category of State Bar activities designed to further the commercial and economic interests of the members cannot survive First Amendment scrutiny. Unlike the union members in Abood, attorneys cannot be categorized as a group with homogeneous economic interests. In fact, the economic interests of different attorneys often are in direct conflict. Such conflicts, and the requirement that members contribute to an association which may, therefore, undercut their self-interests, cannot be brushed aside as something that will be ameliorated by the "democratic process” within the bar. Further, and more important, furtherance of the commercial interests of attorneys, just as those of doctors or accountants, can hardly be found to constitute a compelling governmental interest. Since the end itself cannot be justified, the means designed to serve that end, such as the Lawyer Placement Service, must fall in the face of a First Amendment challenge.
12. That as to all other State Bar of Michigan activities, the present record fails to demonstrate a compelling state interest which cannot be served by means less intrusive on the First Amendment rights of an objecting individual attorney.
However, apart from those permissible activities discussed in paragraph 9, the State Bar’s legislative and lobbying activities, and those activities solely designed to further the commercial interests of its membership, we acknowledge that determi nation of the state interest in the remainder of the challenged State Bar activities and whether that interest, if compelling, is served by narrowly drawn means is made difficult, indeed impossible, by a most inadequate record.
Consequently, we would order:
A. That the State Bar of Michigan be enjoined from disbursing compulsorily exacted dues for any functions or purposes other than those described in paragraphs 9A-9F effective as of October 1, 1981, the end of the State Bar of Michigan’s fiscal year and that, in the interim, the bar poll its members to identify those willing to support such other activities on a voluntary basis and permit solicitation of contributions from those members for these purposes.
The bar would be permitted, in the interim, to present further facts to this Court, through a master, only as to those activities for which we have concluded the record is inadequate for the purpose of demonstrating an as yet unrevealed compelling interest unavoidably served by mandatory dues.
B. That the State Bar of Michigan determine the proportion of dues paid by each member which does not relate to the above-declared constitutional purposes and functions, and that the amount of dues as of and after October 1, 1981 be reduced accordingly.
C. That plaintiff Allan Falk be advised of the portion of his excused bar dues which relates to the purposes of the State Bar described in paragraphs 9A-9F, and that he pay to the State Bar that amount within 30 days after he is so notified.
Fitzgerald and Blair Moody, Jr., JJ., concurred with Ryan, J.
Williams, J.
The principal issue in this case is whether an "integrated” state bar with mandatory membership of all attorneys in the state can perform specified activities, financed in part by compulsory dues, without violating First Amendment rights of those dues paying member attorneys not in accord with such activities. The complained-of activities specified are the following: (1) lobbying and other political activity, (2) compulsory membership in Young Lawyers Section, (3) promoting prepaid legal services, (4) lawyer referral, (5) lawyer placement, (6) Client Security Fund, (7) public education about legal services, (8) funding of Lawyers Wives of Michigan and Children’s Charter of Michigan activities, (9) giving and paying for social functions, including those where the Supreme Court Justices are guests of honor, (10) appearing before the State Officers Compensation Commission in support of higher Supreme Court and other judicial salaries, and (11) sale of use of State Bar mailing roster.
After careful consideration of the authority delegated to the Michigan State Bar and the compelling state interest on the one hand, and the possible infringement of petitioner’s First Amendment rights in the 11 specific instances on the other hand, this Court holds that there is no showing of an unconstitutional violation of petitioner’s First Amendment rights with respect to the above items, excepting item 11 where we find an invasion of petitioner’s right to privacy. We note there was no record reference to political activities, such as support of, or opposition to, partisan candidates and partisan issues, which would be offensive to both the State Bar Rules and the First Amendment.
I. Facts
Petitioner is required by state law and by court rule to belong to and pay dues to the Michigan State Bar. It is petitioner’s basic contention, culled from both his broad "Petition for Special Relief’ and his tripartite pleadings (brief, reply brief and supplemental reply brief), that the use of his compulsory dues monies for the aforementioned State Bar sponsored activities occasions an unconstitutional infringement of his First Amendment rights because those activities are not in furtherance of the "regulation” of the bar. Petitioner would therefore have us rule that the only State Bar activities which constitutionally "regulate” the profession and thus sanction the use of his dues monies therefor, are those which relate to "regulation and discipline of the profession, continuing legal education, and related licensing functions”, as well as "associated administrative and other overhead expenses”.
II. General Background
Petitioner’s complaint is based essentially on the following line of reasoning:
(1) Authority over the integrated state bar derives from 1935 PA 58;
(2) Authority over the integrated state bar is confined to "regulation” of the legal profession; "regulation” is limited to the "regulation and discipline of the profession, continuing legal education, and related licensing functions”, as well as "associated administrative and other overhead expenses”, which do not include the 11 specified activities to which petitioner objects;
(3) Petitioner’s First Amendment rights are infringed when the integrated state bar pursues activities other than "regulation” because the petitioner’s dues payments may then help finance activities to which petitioner may be ideologically opposed or from which petitioner derives no direct pecuniary benefit;
(4) Abood v Detroit Board of Education, 431 US 209; 97 S Ct 1782; 52 L Ed 2d 261 (1977), supports petitioner’s position.
As a consequence, this Court’s inquiry necessarily must consider the following questions among others:
(1) Is the Supreme Court’s authority over the integrated state bar derived exclusively from 1935 PA 58, or is it also derived from this Court’s inherent power in the administration of justice?
(2) Is authority over the integrated state bar confined to "regulation” of the legal profession in the sense petitioner uses regulation or is the Supreme Court’s power broader so as to cover some or all of the 11 specified activities pursued by the State Bar?
(3) What is the legal interplay between petitioner’s asserted First Amendment rights and the state’s compelling interest in this matter?
(4) What guidance is there for the present matter, where the state’s compelling interest is in the improvement of the administration of justice and advancement in jurisprudence, from Abood where the state’s compelling interest was in labor peace through collective bargaining?
III. Inherent Power of the Supreme Court and State Bar Rule 1
The keystone of petitioner’s argument is his interpretation of the word "regulation” found in 1935 PA 58, the act which, in its own words, "created” the integrated State Bar in Michigan. According to petitioner, it is this "procreative engendering legislation” from which this Court derives its power to impose dues, and which limits the State Bar to "regulatory” purposes in expending dues monies.
In view of petitioner’s assertions concerning both what he perceives to be the definitional perimeters of the word "regulation”, and this Court’s power respecting the legal profession of this state, we feel it would be advantageous, preliminary to our inquiry into petitioner’s First Amendment claims, to examine the existent schema of legislative and judicial action regarding the integration of Michigan’s Bar. In so doing we hope to shed some light on the proper scope of the State Bar’s authority over the attorneys of this state, as well as set the stage for our consideration of the constitutional issues raised by petitioner.
The first action toward integration of the Michigan Bar was taken by the Legislature through enactment of 1935 PA 58. This act, by its terms, "created” an integrated State Bar in Michigan, i.e., a bar organization in which membership and payment of dues is required as a condition of practicing law in the state. This act also authorized this Court
"to provide for the organization and regulation of the state bar of Michigan; to provide rules and regulations concerning the conduct and activities of the association and its members; the schedule of membership dues therein, * * * non-payment of which shall be ground for suspension, the ethical standards to be observed in the practice of law, and the discipline, suspension or disbarment of association members.” (Emphasis supplied.)
That same year this Court promulgated a set of rules for the organization of the State Bar, stating in § 16 of those rules that it did so "pursuant to the powers of the court over the bar of the State and the members thereof’, 273 Mich xlv (1935). Section 1 of those rules outlined in broad terms the purposes of the State Bar.
"The association [State Bar of Michigan] shall, under these rules, aid in the promotion of improvements in the administration of justice and the advancement of the science of jurisprudence, in the improvement of the relations between the profession and the public, and in the promotion of the interests of the legal profession in this State.” 273 Mich xxxv (1935).
At this point we must recognize that petitioner has expressly disclaimed any assertion that the challenged activities are in violation of the State Bar’s "internal constitution” (which we take to mean § 1 of the Rules Concerning the State Bar of Michigan, hereinafter sometimes called State Bar Rule 1 or Rule 1) and, apparently, would not contest the right of the State Bar to engage in these activities on behalf of voluntary contributors. Petitioner having chosen, instead, to base his challenge to the objected-to activities on the First Amendment, it becomes unnecessary for us to dissect each of those activities in order to interpret precisely what falls within and what without the bounds of Rule 1. We therefore, for purposes of this case, will assume that the State Bar has authority under the lawfully delegated power of Rule 1 to perform the acts herein complained of. Nevertheless, since none of the complained-of State Bar activities were expressly provided for by either the Legislature in 1935 PA 58, or subsequent amendments to that section, or the judiciary in its rules concerning the State Bar, petitioner’s constitutional challenge requires us to determine if these activities are constitutionally legitimate activities of the State Bar under the broad purposes enunciated in Rule 1. Of course, before we can undertake our First Amendment scrutiny, we must determine whether State Bar Rule 1 and the interests it advances are valid. It is to this consideration that we now turn.
In order to determine the validity of State Bar Rule 1, we must, to some extent, consider the respective powers of the Legislature and this Court over attorneys of this state. In so doing, however, it would serve no useful purpose toward the resolution of this issue to become enmeshed in an abstract discussion of the precise measure of respective control that the Legislature and this Court could constitutionally exercise in this regard. It is sufficient for the purposes of our present discussion to recognize that courts have traditionally sought to harmonize their legitimate concerns with those of the Legislature. Thus while on the one hand courts are willing to acknowledge that the Legislature has a legitimate interest in the members of the bar because of its concern on behalf of the public interest and welfare, see e.g., Button v Day, 204 Va 547, 554; 132 SE2d 292, 297 (1963); Detroit Bar Ass’n v Union Guardian Trust Co, 282 Mich 707, 712; 281 NW 432 (1938), quoting from In re Cannon, 206 Wis 374, 397; 240 NW 441 (1932), the courts have been emphatic in recognizing their own peculiar and special interest in the conduct of attorneys since, as officers of the court by virtue of the practice of their profession (see GCR 1963, 908; MCL 600.901; MSA 27A.901), attorneys are " 'indispensable to the administration of justice and [are] intimate and peculiar in [their] relation to, and vital to the well-being of, the court’ ”. Sams v Olah, 225 Ga 497, 504; 169 SE2d 790, 798 (1969). See also Button, supra, 553-554; In re Petition for Integration of the Bar of Minnesota, 216 Minn 195, 199; 12 NW2d 515, 518 (1943). Thus courts have recognized in themselves an inherent power to regulate the practice of law and to supervise those engaged therein to the extent necessary for their proper functioning and generally find legislative regulation unconstitutional only when it tends to interfere with or impair the proper administration of judicial functions. Guardian Trust Co, supra, 713; Olah, supra, 501-502.
Thus in passing on the present conjunction of legislative and judicial action relating to the integration of the State Bar in Michigan, this Court has tempered its willingness to accord legislative enactments the proper degree of deference due a co-equal branch of government with a persistent insistence on its own inherent powers. In Ayres v Hadaway, 303 Mich 589, 597-598; 6 NW2d 905 (1942), this Court stressed its own inherent power over attorneys of this state, while at the same time upholding the constitutionality of 1935 PA 58 against the contention that it violated due process since the court rules concerning the State Bar provided that inactive members of the bar were prohibited from practicing law. After citing several foreign jurisdictions on the subject of the inherent power of a court to regulate attorneys, this Court stated:
"In our opinion there is inherent power in the Supreme Court to regulate the qualifications of persons who may be permitted to practice law in this state. That the legislature has seen fit to adopt legislation [1935 PA 58] to this end does not make the act unconstitutional.”
This Court reiterated, in more detail, essentially the same position almost two decades later when it held the State Bar’s property in Lansing to be tax exempt public property in State Bar of Michigan v Lansing, 361 Mich 185, 194; 105 NW2d 131 (1960):
"The provisions of this act [1935 PA 58] are such as to clearly indicate that it was the intent of the legisla ture to provide for the organization of an agency that should function pursuant to rules and regulations prescribed by the Supreme Court for the purpose of performing, and assisting in the performance of functions that, in the final analysis, pertain to the judiciary. Clearly if such was not the intention there would have been no attempt to invest this Court with the powers of organization and regulations obviously contemplated by the language of the statute.
"These are matters [matters pertaining to the discipline, suspension, or disbarment of members of the profession and the fixing of ethical standards to be observed in the practice of law] that relate to the public welfare and protection. Likewise, they are matters within the scope of the inherent power of the judiciary. ” (Emphasis supplied.)
Because there has been legislative action on the subject, there is no necessity for this Court to now assert inherent power to integrate the Bar independent of or contrary to legislative action. See Button v Day, supra, 554.
As to whether State Bar Rule 1 — with its broad injunction to "aid in promoting improvements in the administration of justice” etc. (as opposed to petitioner’s narrowly construed "regulation”) — is valid or not, we rule in the affirmative for two reasons. First, we believe that State Bar Rule 1 is consistent with the legislative purpose, expressed in 1935 PA 58, that this Court provide for the "regulation” of the State Bar and adopt "rules and regulations concerning the conduct and activities of the association and its members”. This Court stated as much in Lansing, supra, 194:
"The rules and regulations that have been adopted are consistent with the legislative purposes, as disclosed by the act [1935 PA 58].”
Indeed, we know of no rule of statutory construction which would counsel this Court to interpret "regulation” in the narrow and confining sense petitioner advocates (remembering that we are not at this point addressing any constitutional implications of State Bar Rule 1). To provide the flexibility necessary to help this Court insure that the State Bar can achieve such worthy results as, to quote one state supreme court, " 'restoring] public confidence in the bar, enlarging] professional consciousness, energizing] the bar’s responsibility to the public, * * * improving] the administration of justice and [being] the only means presented whereby every member of the bar can share in its public and professional responsibility’ ”, In re Unification of the New Hampshire Bar, 109 NH 260, 267; 248 A2d 709, 714 (1968), quoting from Petition of Florida State Bar Ass’n, 40 So 2d 902, 909 (Fla, 1949), we believe the Legislature intended "regulation” to be defined expansively. Cf. the broad reading given the word "regulate” found in the Commerce Clause of the Federal Constitution, US Const, art I, § 8, cl 3. See Virginia R Co v System Federation No 40, 84 F2d 641, 650-651 (CA 4, 1936); Chicago, M, SP & P R Co v Public Service Comm, 332 Mich 291, 296; 50 NW2d 884 (1952).
Second, and independent of the above construction of the word "regulation”, we do not doubt that this Court possessed the inherent power to include in its rules and regulations for the integra tion of the Bar the provisions of State Bar Rule 1. In fact, the provisions of State Bar Rule 1 represent a garden variety statement of the legitimate purposes of an integrated bar which other state supreme courts have either considered when making the decision to judicially integrate a bar, see In re Unification of the New Hampshire Bar, supra, 263-264, or which the courts themselves have adopted through the exercise of their inherent powers. See Button, supra, 555; Application of the President of the Montana Bar Ass’n, 163 Mont 523, 526-527; 518 P2d 32, 34 (1974); Lathrop v Donohue, 367 US 820, 828-829; 81 S Ct 1826; 6 L Ed 2d 1191 (1961).
IV. Constitutional Challenges
Having examined the authority and scope of the State Bar Rules, we now turn to petitioner’s constitutional challenges. Petitioner maintains that his First Amendment rights are being violated by the State Bar’s expenditure of mandatory dues for activities unrelated to the licensing, education and regulation of the legal profession. Although conceding that the state may require attorneys to belong to an integrated bar association, petitioner argues that the State Bar may not constitutionally expend funds on activities which "may [support] positions inconsistent with mine”.
In order to analyze the constitutional validity of petitioner’s claim, we must determine:
a) whether First Amendment rights are absolute;
b) what type of state interest justifies intrusion on First Amendment rights;
c) what means may the state employ to promote the permissible state interest;
d) does Bar Rule 1 embody a permissible state interest; and
e) are the 11 complained-of State Bar activities permissible means to promote the permissible state interest.
We find that the First Amendment is not absolute but will give way to certain state activities which are germane to a compelling state interest. The state has a compelling interest in promoting improvements in the administration of justice and advancing the science of jurisprudence in order to fulfill its function of protecting the health, safety and welfare of its citizens. The state may employ activities which are germane to this compelling state interest. We find that insofar as State Bar Rule 1 authorizes the Bar to "aid in promoting improvements in the administration of justice and advancements in jurisprudence” it embodies a permissible state interest. After carefully reviewing petitioner’s 11 challenges, we also find that all but the last activity, regarding the use of the State Bar mailing list for commercial solicitations, are germane to the state’s compelling interest.
A. Are First Amendment Rights Absolute?
The First Amendment states:
"Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof; or abridging the freedom of speech, or of the press; or the right of the people peaceably to assemble, and to petition the Government for a redress of grievances.”
The Supreme Court has long recognized that "[fjreedom of speech and of the press are fundamental rights which are safeguarded by the due process clause of the Fourteenth Amendment”. De Jonge v Oregon, 299 US 353, 364; 57 S Ct 255; 81 L Ed 278 (1937). See Near v Minnesota ex rel Olson, 283 US 697, 707; 51 S Ct 625; 75 L Ed 1357 (1931); Gitlow v New York, 268 US 652, 666; 45 S Ct 625; 69 L Ed 1138 (1925). In contrast to the rights of freedom of religion, speech, press, and assembly, the right to freedom of association is not expressly listed in the First Amendment. Nevertheless, "[i]t is beyond debate that freedom to engage in association for the advancement of beliefs and ideas is an inseparable aspect of the 'liberty’ assured by the Due Process Clause of the Fourteenth Amendment”. NAACP v Alabama ex rel Patterson, 357 US 449, 460; 78 S Ct 1163; 2 L Ed 2d 1488 (1958). It is thus clear that freedom of speech and of association are both protected under the First and Fourteenth Amendments.
However, the rights to free speech and association are not absolute. In Konigsberg v State Bar of California, 366 US 36, 49; 81 S Ct 997; 6 L Ed 2d 105 (1961), the Court "reject[ed] the view that freedom of speech and association * * * are 'absolutes’ ” and held that the denial of petitioner’s application to the California Bar for failure to answer any questions pertaining to his membership in the Communist Party did not violate the First Amendment. The Court reaffirmed this concept 12 years later in United States Civil Service Comm v National Ass’n of Letter Carriers, AFL-CIO, 413 US 548, 567; 93 S Ct 2880; 37 L Ed 2d 796 (1973). In upholding the prohibition of federal employees from taking an active part in political management or in political campaigns in accordance with § 9 of the Hatch act, 5 USC 7324(a)(2), Justice White acknowledged: "[n]either the right to associate nor the right to participate in political activities is absolute”. That there are limits to the First Amendment’s protection was recognized in Buckley v Valeo, 424 US 1; 96 S Ct 612; 46 L Ed 2d 659 (1976), where the Court declared that "[e]ven a ' "significant interference” with protected rights of political association’ may be sustained if the State demonstrates a sufficiently important interest”. Thus it is clear that the rights of freedom of speech and association, while fundamental to our Constitution and society, are not absolute.
B. What Type of State Interest Justifies First Amendment Intrusion
Although the First Amendment is not absolute the state must demonstrate a particular type of interest to justify constitutional intrusions. The question which we must resolve is what type of state interest is necessary.
"To characterize the quality of the governmental interest which must appear, the Court has employed a variety of descriptive terms: compelling; substantial; subordinating; paramount; cogent; strong.” United States v O’Brien, 391 US 367, 376-377; 88 S Ct 1673; 20 L Ed 2d 672 (1968).
For example, in affirming an order that injunctive relief be given to state government employees threatened with being discharged solely because they were not affiliated with or sponsored by the Democratic Party, the Supreme Court held:
"It is firmly established that a significant impairment of First Amendment rights must survive exacting scrutiny. Buckley v Valeo, 424 US, at 64-65; NAACP v Alabama, 357 US 449, 460-461 (1958). * * * Thus encroachment 'cannot be justified upon a mere showing of a legitimate state interest.’ Kusper v Pontikes, [414 US 51, 58; 94 S Ct 303; 38 L Ed 2d 260 (1973)]. The interest advanced must be paramount, one of vital importance, and the burden is on the government to show the existence of such an interest.” Elrod v Burns, 427 US 347, 362; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (plurality).
Similarly when analyzing whether Illinois’ state interest in protecting the effective right to participate in political primaries justified a state court injunction prohibiting a group of party members from acting as convention delegates the Supreme Court held:
"Even though legitimate, the ' "subordinating interest of the State must be compelling” * * *’ to justify the injunction’s abridgment of the exercise by petitioners and the National Democratic Party of their constitutionally protected rights of association. NAACP v Alabama, 357 US 449, 463 (1958).” Cousins v Wigoda, 419 US 477, 489; 95 S Ct 541; 42 L Ed 2d 595 (1975).
Thus the First Amendment must yield to state intrusion when there is a compelling state interest present.
C. The Means Employed to Promote the Permissible State Interest
Having found that the state must show a compelling interest to justify First Amendment intrusion we must look to the appropriate means which the state may employ to achieve its compelling interest. Where the intrusive limitation on association directly affects the First Amendment right of expression (here political expression), as where a statute precludes voting in one party’s primary within 23 months after voting in another party’s primary, Kusper v Pontikes, 414 US 51, 58-59; 94 S Ct 303; 38 L Ed 2d 260 (1973), or where not belonging to a particular political party results in discharge from a government job, Elrod v Burns, 427 US 347, 363; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (plurality), the Court has adopted the strict, "least intrusive means” test. In contrast, where the intrusive limitation on association indirectly affects the First Amendment right of expression, as where employees, though free to express their own views without limitation, are required to belong, and pay dues, to a union which may hold views different from the employees, Abood v Detroit Board of Education, 431 US 209, 225-226; 97 S Ct 1782; 52 L Ed 2d 261 (1977), the Supreme Court has applied the less restrictive "germane” test.
The most recent case in which the Supreme Court has taken a constitutional stand on the right of association is Abood. The Court upheld against First Amendment attack MCL 423.211; MSA 17.455(11) authorizing the use of agency shop clauses in collective bargaining agreements covering government employees, Abood, supra, 222, but overturned the use of mandatory dues for political purposes and for advancing ideological causes unrelated to collective bargaining. Abood, supra, 235-236. We note that the Court did not use the strict "least intrusive means” test in analyzing Abood’s associational rights in either instance. Rather, the Court used the "germane” test and found that the Michigan Legislature had an "important governmental interest” in avoiding confusion which could arise from conflicting demands of rival teacher’s unions; promoting labor peace; and preventing "free riders” from obtaining labor contract benefits without supporting bargaining expenses. Abood, supra, 224-225. The Court similarly found that the expenditure of mandatory union dues "for the expression of political views, on behalf of political candidates, or toward the advancement of other ideological causes not germane to its duties as collective bargaining representative” violated the First Amendment right of union members who do not support such views, candidates or ideologies. Thus the Court’s test in Abood was whether the expenditures were "germane to [the union’s] duties as collective-bargaining representative”. Therefore we believe that the appropriate test to analyze petitioner’s constitutional challenges is whether the state has a compelling interest involved, and if so, whether the Bar’s complained-of activities are germane to that interest.
D. Does Rule 1 Embody a Compelling State Interest?
The underlying question we must now address is whether "promoting improvements in the administration of justice and advancements in jurisprudence” is a compelling state interest? We find that it is. The United States Supreme Court implicitly recognized the state’s compelling interest in promoting improvements in the administration of justice and advancements in jurisprudence in Lathrop, supra, 843, where Justice Brennan wrote:
"We think that the Supreme Court of Wisconsin, in order to further the State’s legitimate interests in raising the quality of professional services, may constitutionally require that the costs of improving the profession in this fashion should be shared by the subjects and beneficiaries of the regulatory program, the law yers, even though the organization created to attain the objective also engages in some legislative activity. Given the character of the integrated bar shown on this record, in the light of the limitation of the membership requirement to the compulsory payment of reasonable annual dues, we are unable to find any impingement upon protected rights of association.” (Emphasis supplied.)
In Goldfarb v Virginia State Bar, 421 US 773, 792-793; 95 S Ct 2004; 44 L Ed 2d 572 (1975), the Court explicitly recognized this legitimate state interest to be compelling:
"We recognize that the States have a compelling interest in the practice of professions within their boundaries, and that as part of their power to protect the public health, safety, and other valid interests they have broad power to establish standards for licensing practitioners and regulating the practice of professions. * * * The interest of the States in regulating lawyers is especially great since lawyers are essential to the primary governmental function of administering justice, and have historically been ’officers of the courts.’ See Sperry v Florida ex rel Florida Bar, 373 US 379, 383 [83 S Ct 1322; 10 L Ed 2d 428] (1963); Cohen v Hurley, 366 US 117, 123-124 [81 S Ct 954; 6 L Ed 2d 156] (1961); Law Students Research Council v Wadmond, 401 US 154, 157 [91 S Ct 720; 27 L Ed 2d 749] (1971).” (Emphasis supplied.)
The fair and efficient use of the state legal system is paramount to the state’s very existence. Without a legal system to make, interpret and enforce laws, without some mechanism to weigh and resolve conflicting claims, there is anarchy.
As officers of the court, lawyers play an indispensable role in the administration of justice. The state must not only protect its legal machinery from abuse through such safeguards as the attor ney grievance procedure but must also be mindful of the competence of attorneys, who are in a position to best assist, or most impede, the general public in securing justice. Authorizing the State Bar to aid the state in promoting improvements in the administration of justice is essential for the state’s continued existence. Therefore we find that the state has a compelling interest in instructing that "[t]he state bar of Michigan shall, under these rules, aid in promoting improvements in the administration of justice and advancements in jurisprudence”. We do not separately consider whether the state’s interest "in improving relations between the legal profession and the public, and in promoting the interests of the legal profession in the State”, State Bar Rule 1, are compelling.
With this determination in mind we now will examine petitioner’s individual challenges to determine if the Bar activities are germane to the state’s compelling interest.
E. Are the Bar Actions in the 11 Points Germane?
Petitioner attacks the following State Bar activities as violating his constitutional rights: (1) engaging in legislative and judicial lobbying and participating in other political activities (presumably supporting political candidates or state referendums); (2) requiring compulsory membership in the Young Lawyers Section; (3) promoting prepaid legal services; (4) supporting lawyer referral services; (5) aiding in lawyer placement; (6) maintaining a Client Security Fund; (7) promoting legal services and educating the public through pamphlets, magazines, radio and television advertisements of the availability and need of legal services; (8) funding Lawyers Wives of Michigan and Children’s Charter of Michigan; (9) giving and paying for social functions, including receptions where the Supreme Court Justices are guests of honor; (10) appearing before the State Officers Compensation Commission in support of higher Supreme Court, and other judicial, salaries; and (11) selling the use of the State Bar mailing roster to commercial interests. He bases the majority of his claims on the First Amendment right to freedom of association, with an occasional reference to the First Amendment’s freedom of speech, religion and privacy; the Commerce Clause; and various provisions of the Michigan Constitution.
(1) Lobbying and Other Political Activity
The major complaint of petitioner is that the State Bar annually expends in violation of his First Amendment rights large sums of money for two related programs: (1) "for the purpose of influencing the legislation pending before the Michigan Legislature” and (2) "to fund study projects by its constituent committees which result in recommen dations of policies to be adopted publicly by officials and agencies of the State of Michigan through executive or legislative or administrative action”. Expenditures for the various committees reviewing the Michigan Land Title Standards and Criminal Code and Criminal Procedure Code, for the committee considering this Court’s proposed Rules of Evidence, and to support the Bar’s prison paralegal project are cited by petitioner as examples of improper use of Bar dues monies. There is nothing on the record to indicate Bar participation in partisan politics. But see fn 8.
Petitioner maintains that the Bar may only disburse its funds for "regulation” purposes. As aforementioned, part I, supra, petitioner limits "regulation” to "bar grievance activities, the expenses of the character and conduct committee, and subsidies paid to the Institute for [sic: of] Continuing Legal Education (ICLE), plus associated administrative and other overhead expenses”. Petitioner argues that any other expenditure of mandatory Bar dues monies violates the First Amendment’s right to freedom of association since membership in the Michigan State Bar Association is a prerequisite to the practice of law in this state.
Petitioner supports his position by claiming: "Abood controls the instant case and mandates a ruling in petitioner’s favor.” His argument is: "Conceptually, the State Bar of Michigan is a union shop.[ ] This fact was implicitly recognized in Abood”. He then states: "The specific holding in Abood is that the employees of an agency shop[ ] who object to the use of agency shop fees for political activity are entitled to a pro rata reduction in their fee assessment equal to the proportion ideological expenditures bear to the total union budget” (emphasis supplied).
The exact words of the Court in Abood, in pertinent part, follow:
"We do not hold that a union cannot constitutionally spend funds for the expression of political views, on behalf of political candidates, or toward the advancement of other ideological causes not germane to its duties as collective-bargaining representative. Rather, the Constitution requires only that such expenditures be financed from charges, dues, or assessments paid by employees who do not object to advancing those ideas and who are not coerced into doing so against their will by the threat of loss of governmental employment.” (Emphasis supplied.) Abood, supra, 235-236. (Footnotes omitted.)
The significant language in the quotation from the Court’s opinion is in italics, because it indicates the difference between what the Court held and what petitioner asserts. The Court proscribed expenditures of dues money for "the advancement of other ideological causes not germane to its duties as collective-bargaining representative”, whereas petitioner speaks of "ideological expenditures” without any limitation. The difference, of course, is whether the ideological expenditure was or was not "germane” to the state’s compelling interest.
The significance of this distinction is emphasized by a quotation from the Abood Court as follows:
"An employee may very well have ideological objections to a wide variety of activities undertaken by the union in its role as exclusive representative. * * * To be required to help finance the union as a collective-bargaining agent might well be thought, therefore, to interfere in some way with an employee’s freedom to associate for the advancement of ideas, or to refrain from doing so, as he sees fit. But * * * such interference as exists is constitutionally justified by the legislative assessment of the important contribution of the union shop to the system of labor relations established by Congress.” Abood, supra, 222.
It is obvious from our analysis thus far that all ideological expenditures are not necessarily in derogation of compulsory membership First Amendment rights and that the Court’s critical test is whether the ideological expenditure is or is not "germane” to the state interest. This leaves the ultimate inquiries first, what is the compelling state interest, and second, whether the ideological expenditure is "germane” to that interest.
We have already considered and developed the state’s interest in the administration of justice and in the advancement of jurisprudence. As a consequence we have a clear concept of what the state’s compelling interest is in this case.
Our next inquiry therefore is whether or not the complained-of action here is "germane” to the administration of justice and the advancement of jurisprudence. "Lawyers, as members of an ancient and honorable profession, have a duty to utilize their training and experience in rendering service to the public.” The state has a valid interest in drawing upon this training and experience in order to promote improvements in the administration of justice and to advance jurisprudence. The better attuned the legal machinery is to the public’s needs of health, safety and welfare, the better the state will be able to perform its job of protecting and serving the public. The input and feedback on proposed legislation and court rules is invaluable to the state in fine-tuning its legislative and judicial systems. The State Bar’s 44 standing committees and 12 special committees ensure that the collective experience of legal ex perts in many fields will be voiced in the legislative and judicial process to promote improvements in the administration of justice and the advancement of jurisprudence. In this manner the Legislature and Court can better arrive at a fair, effective and efficient result. Thus the state’s need in receiving input and feedback from the Bar on appropriate proposed legislation and court rules is germane to its compelling interest in promoting improvements in the administration of justice and the advancement of jurisprudence.
Without more we hold that the State Bar’s use of money, including some of petitioner’s, to influence legislation and to fund committee study projects looking to that result is "germane” to the state’s legitimate and compelling interest in the administration of justice and the advancement of jurisprudence with the result that such activity survives First Amendment attack and that there is nothing in Abood to the contrary.
In passing, however, some comment might be in order on petitioner’s misunderstanding of Abood. Abood, like its predecessors, involved a labor union. The case at bar, like Lathrop v Donohue, deals with an integrated bar association.
While there are superficial similarities between an integrated state bar and a labor union, that is not the question. The question is whether the compelling state interest justifying intrusion on First Amendment rights is the same in both cases. The answer is an emphatic negative. In Abood the compelling state interest is achieving labor peace through collective bargaining. In an integrated bar the compelling state interest is the administration of justice. Obviously what might be germane to collective bargaining could be quite different from what is germane to the administration of justice. A labor union, for example, would at the most have indirect interest in improvement of court rules, whereas an integrated state bar could have intense interest in such rules.
Further, we note that petitioner in his original brief does not maintain that he holds political or ideological views contrary to those of the State Bar. Petitioner broadens his argument somewhat in his Reply Brief, p 40, when he states: "Public interest is not a unitary concept * * *; the State Bar officers have their view and plaintiff has his. Plaintiff cannot be required to underwrite the expense of the former in promulgating their views”. However, petitioner failed to specify even one conflicting view but noted instead: "plaintiff does not seek to prohibit the State Bar from lobbying, [but] merely from spending plaintiff’s money to do so”. Therefore petitioner’s challenges appear to be monetary rather than ideological.
However, even assuming petitioner has strong ideological objections to certain State Bar positions, he "is still free to voice his own views on any subject in any manner he wishes”. In re Unification of the New Hampshire Bar, 109 NH 260, 266; 248 A2d 709, 713 (1968); accord, Lathrop, supra, 861 (Harlan, J., concurring in result). He is not being forced to proclaim any ideological or political view. As Justice Harlan noted in his concurrence in Lathrop, supra, 859, "Surely the Wisconsin Supreme Court is right when it says that petitioner can be expected to realize that 'everyone understands or should understand’ that the views expressed are those 'of the State Bar as an entity separate and distinct from each individual.’ [In re Integration of the Bar, 5 Wis 2d 618, 623; 93 NW2d 601, 603 (1958)].” More importantly, petitioner has many avenues open to him to express his ideas either through the Bar or outside of it. Petitioner may or may not wish to run for election to the Board of Commissioners or the Representative Assembly (see State Bar Rules 5 and 6), but in any event he may attend their meetings, since unless specifically voted to be closed all meetings are open to Bar members. In this way he can have direct input on the two governing bodies of the Bar. Similarly if petitioner has an interest in the Michigan Rules of Evidence, Criminal Code, Land Title Standards or other legislation and rules which the Bar reviews, he may attend the committee meetings and make known his feelings. Petitioner is also free to write letters to the editor of the Michigan Bar Journal expressing his views and seeking support. If he chooses not to take part in the channels of communication within the Bar and is dissatisfied with the majority position petitioner may express and promote his views through external means such as the communications media.
In sum we find that the State Bar expenditures of dues revenues to fund committees for the purpose of examining proposed legislation and court rules is germane to the state’s compelling interest in promoting the administration of justice and advancement in the science of jurisprudence. When taking a position on a proposed bill, rule, or order, the State Bar, however, must confine itself to those subjects directly affecting the administration of justice or the advancement of jurisprudence. Since petitioner has failed to show and we cannot find in the record any specific expenditure of Bar funds to critique or lobby for any legislative or judicial action unrelated to the administration of justice we find that petitioner’s rights are not unconstitutionally infringed.
(2) The Young Lawyers Section and the Right of Association
Petitioner also challenges the constitutionality of the automatic membership of newly admitted attorneys in the Young Lawyers Section (YLS). He contends that such "compulsory” membership violates his First Amendment right to freedom of association since he is being forced to join an organization without his consent and since a part of his mandatory Bar dues supports the YLS. The State Bar argues that "[n]obody is forcing petitioner to participate in the Young Lawyers Section nor to associate with other young lawyers”. The Bar relies on Lathrop, supra, 827-828, where the majority of the Justices of the Supreme Court agreed that the Wisconsin State Bar did not, on its face, violate the right to freedom of association, noting: " '[H]is compulsory enrollment imposes only the duty to pay dues’ ” (367 US 827-828, quoting 10 Wis 2d 237 with approval).
We agree with the State Bar that "there is a definite professional/justice system interest in the integrating of young and new lawyers into the practice of law, and in dealing with the very special problems of these new professionals. Such a structure benefits not only the new attorney, but safeguards the public interest in the maintenance of the highest standards in the practice of law”. Petitioner argues that newly admitted lawyers know more general, substantive law and are better "attuned to the most modern currents of thought in the law” than experienced practitioners. It is obvious, however, that most new attorneys necessarily have a substantial gap of practical knowledge and experience. Despite the trend to expose law students to various clinical experiences, law schools still emphasize traditional textbook courses, reasoning that the student will acquire the necessary practical and procedural knowledge after being admitted to the Bar. We take judicial notice that a person is not automatically transformed from a struggling student to a skilled legal practitioner upon completion of the Bar admissions ceremony. The Young Lawyers Section can help the new attorney bridge the gap between law school and the practice of law.
Helping young attorneys find their way through the maze of rules, regulations and laws in turn helps the legal system run effectively and provides for a better distribution of legal services to the public. If petitioner feels that he does not require this valuable aid he is free to disassociate himself from the section: automatic membership does not mean that it is compulsory. Petitioner, therefore, cannot constitutionally complain that the State Bar uses a portion of its general fund to support a section which is composed of young lawyers who voluntarily give their time and energy to sponsor seminars and programs to train the new attorney. Thus we find that ensuring that the legal system runs smoothly and efficiently is germane to the state’s compelling interest of promoting improvements in the administration of justice.
(3) Prepaid Legal Services (4) Lawyer Referral
(5) Lawyer Placement (6) Client Security
The use of mandatory dues revenues for sponsoring Lawyer Referral, Prepaid Legal Services, Lawyer Placement and the Client Security Fund is also challenged by petitioner. His primary argument against such expenditures is that they do not constitute a public purpose and have not been authorized in accordance with the provisions of Const 1963, art 4, § 30. Petitioner insists that "[t]he use of State Bar dues monies to enhance the income producing opportunities, employability, and to guarantee trustworthiness of practitioners (via Client Security Fund), is thus invalid as not for a public purpose”. A secondary argument raised by petitioner is the all-inclusive charge that the First Amendment right of association prohibits any use of mandatory Bar dues revenue for non-"regulation” purposes.
As to the first argument that the expenditure of Bar funds for the challenged activities is not for a public purpose we note that petitioner’s analysis of the purpose of the Bar program is inadequate. Except perhaps for the Lawyer Placement Service, none of the programs were instituted nor are presently conducted primarily for the benefit of attorneys even though, admittedly, some attorneys may benefit incidentally. Lawyer Referral and Prepaid Legal Services were created in order to make legal services more accessible to "that segment of the population, which studies have shown runs roughly around 70 percent, who do not consult lawyers for one reason or another, partly out of fear of the unknown and of how much lawyers would charge” (testimony of Michael Franck, Executive Director of the Michigan State Bar). See Bates v State Bar of Arizona, 433 US 350, 370, fn 22; 97 S Ct 2691; 53 L Ed 2d 810 (1977). Similarly the purpose of the Client Security Fund is not to insure attorneys for malpractice but to protect the public by reimbursing victims' of a defalcation either by clients of lawyers or by a lawyer acting in a fiduciary capacity. Therefore Lawyer Referral, Prepaid Legal Services and the Client Security Fund clearly constitute a permissible public service, rather than a private or local service, within the meaning of Const 1963, art 4, § 30.
As to petitioner’s First Amendment argument relative to these services, since they either provide legal assistance to those who would otherwise be without it or protect those who do employ lawyers, the relationship to the administration of justice is clear and hence germane to a compelling state interest.
The Lawyer Placement Service presents a closer issue. For a fee of $5 any attorney, newly admitted or an experienced practitioner, may register with the Placement Service for up to 12 months, or until employment is secured. Employers searching for attorneys with certain qualifications are charged a $10 registration fee. The Placement Service acts as an information clearinghouse, gathering application forms and job descriptions and passing the collected information on to the registrants.
Petitioner objects to the State Bar subsidizing the postage, printing, staff and building space of the Placement Service. He perceives this service as being a private purpose within the meaning of Const 1963, art 4, § 30 since at any one time it only benefits a relatively few attorneys. Petitioner claims that Lawyer Placement is just another unnecessary service of the Bar which he is being unconstitutionally compelled to support in violation of his First Amendment right of freedom of association.
Lawyer Placement provides a necessary and useful service for the legal profession and the general public. By providing a focal point for the gathering and dispersal of employment information, the Bar program aids attorneys and society in efficiently utilizing legal skills and services. Placing attorneys where legal services are required aids in the administration of justice. As a consequence, Lawyer Placement, which facilitates locating attorneys where needed, is germane to the administration of justice.
(7) Informing the Public of their Legal Rights and Responsibilities
(8) Lawyers Wives and Children’s Charter
Petitioner also objects to the use of Bar funds to promote legal services and to inform the public of the availability and need of legal services. He similarly objects to the use of Bar revenues to fund Lawyers Wives and Children’s Charter. Petitioner claims that the use of mandatory Bar dues monies to promote the above activities violates his First Amendment right of association. For example, petitioner, as an unmarried attorney, has no interest in Lawyers Wives whatsoever. Being an attorney, petitioner would also have no need to be informed of the availability of legal services. Nevertheless we hold that the services performed by Lawyers Wives, Children’s Charter and the Bar public education communications are germane to the state’s interest in improving the administration of justice.
A legal system, no matter how fair or just, is of little value if no one knows of its existence or how to effectively use it. By providing the public with pamphlets explaining various areas of the law in easily understandable language the State Bar is helping Michigan citizens gain effective access to the legal system. Similarly when Lawyers Wives volunteer their time and effort to distribute brochures to school children, conduct Law Day essay contests and serve probate and juvenile courts they are aiding the state legal system. We therefore find that the expenditure of State Bar dues revenue on public communication, Lawyers Wives and Children’s Charter is germane to the state’s compelling interest in promoting improvements in the administration of justice and advancements in the science of jurisprudence.
(9) State Bar Social Functions and Judicial Attendance
Petitioner claims the State Bar violates his First Amendment rights of association by expending some of his mandatory dues on offering food and beverages on particular occasions such as the State of the Judiciary Address and Law Day. He also complains that justices and other judges improperly are present at some of these occasions.
To begin with, there is no original jurisdiction in this Court to consider the alleged judicial improprieties, and petitioner is advised to seek the proper forum.
The problem of juxtaposing the majesty of the First Amendment with a minor complaint such as petitioner’s about the offering of food and beverages is that there is a danger of focusing on whether the minor activity rises to the dignity of being a compelling state interest, which, of course, it is not. The pertinent question, however, is whether the minor activity is germane to a more significant activity which fulfills a compelling state interest.
Obviously one can easily imagine dining occasions which have no relationship to the administration of justice or the advancement of jurisprudence whatsoever. Expenditure of funds for these would be offensive not only to the First Amendment but Rule 1. On the other hand, there are other dining occasions that support activities germane to the State Bar’s performance of its duties in the improvement of the administration of justice and the advancement of jurisprudence. With that in mind let us focus, for example, on one of petitioner’s objections, dining functions in connection with Law Day.
We can take judicial notice that in connection with Law Day there is an essay contest about law-related subjects for young students. The statewide winners, their parents and teachers are brought to Lansing to a Bar-sponsored luncheon attended by prominent attorneys and judges. The highlight of the occasion, of course, is the presentation of awards to the young winners.
Is the use of mandatory bar dues monies for such an occasion germane to the administration of justice? We have already determined that educational programs acquainting the public with the operation and availability of the justice system is germane to the administration of justice. A luncheon of the kind just described is certainly a legitimate expense in the fulfillment of such an objective and therefore germane to the administration of justice.
We therefore hold that expenditure of mandatory bar dues for the holding of social functions by the State Bar is not per se an invasion of petitioner’s First Amendment rights. Such expenditures may be constitutionally permissible if in support of a social function which is a legitimate part of a Bar activity germane to the administration of justice or the advancement of jurisprudence. For example, those in connection with the State of the Judiciary Address and Law Day, if otherwise proper, do not offend petitioner’s First Amendment rights.
(10) Support of Judicial Salaries Before SOCC
Petitioner argues that the appearance by State Bar representatives before the State Officers Compensation Commission (SOCC) to support higher judicial salaries, including salaries of members of this Court, is unlawful and improper. Petitioner claims that the expenditure of Bar resources to send a person to the SOCC is unnecessary to the Bar’s "regulatory” function and therefore violates his First Amendment rights of association and speech. He also argues that permitting the State Bar to lobby for higher wages for judges is improper since it violates Canon 2(A) of the Michigan Code of Judicial Conduct as constituting an appearance of impropriety. As to this last objection, we have already indicated that the Supreme Court is an inappropriate forum in which to initiate such a complaint.
Employment of competent jurists is essential for the effective administration of justice. We take judicial notice that several years ago this country was concerned with the number of eminent federal judges who were resigning due to inadequate salaries. Congress has repeatedly found it necessary to raise the salary of federal judges in order to not only attract, but retain, the top minds of the legal profession who would otherwise engage in private practice. The Michigan Legislature established the SOCC to ensure that top positions in the public sector, such as judges, would be able to compete with the private sector for well qualified and dedicated men and women. By paying competitive salaries the SOCC ensures that the state is not handicapped in drawing and maintaining able jurists. We see nothing improper in the State Bar aiding the state in determining what salaries are necessary to have an effective judiciary, "for the labourer is worthy of his hire”. Luke 10:7.
Permitting the State Bar to express its position concerning increases in judicial salaries, whether in favor or opposed, is germane to the state’s compelling interest in the administration of justice.
(11) Use of State Bar’s Mailing List for Commercial Purposes
Finally, petitioner contests the use by the State Bar of its mailing list for commercial purposes. He maintains that he is an unwilling recipient of "junk mail” resulting from State Bar commercial mailings in violation of his right to privacy. The Bar admits that it mails insurance and travel company solicitations to Bar members but claims that it carefully screens the use of the list and takes various safeguards, such as never allowing the list to leave its possession, to ensure that only commercial offers of interest to the general membership will be mailed. Respondent also insists that "both the individual attorney and the State Bar receive a benefit from the programs” since the Bar is totally reimbursed for its mailing service while "individual attorneys receive the benefit of group rates which would otherwise be unavailable”. Finally the Bar maintains that there is no right not to receive mail, claiming that the right to privacy does not apply here in any event: "[A]ny intrusion is minimal inasmuch as anyone not wishing to receive such mail may certainly discard it without opening it, since the nature of the communication is clearly indicated on the outside of the envelope”.
We disagree. Rowan v United States Post Office Dep’t, 397 US 728; 90 S Ct 1484; 25 L Ed 2d 736 (1970), which upheld Title III of the Postal Revenue and Federal Salary Act of 1967, 39 USC 4009, now recodified as 39 USC 3008, against constitutional attack, provides guidance on this issue. Although the challenged statute was enacted in order to give recipients of obscene mail the power to remove their names from such mailing lists, Rowan, supra, 731-734, the Supreme Court took a broader approach. Chief Justice Burger, writing the opinion for the unanimous Court, noted:
"Without doubt the public postal system is an indispensable adjunct of every civilized society and communication is imperative to a healthy social order. But the right of every person 'to be let alone’ must be placed in the scales with the right of others to communicate.
"In today’s complex society we are inescapably captive audiences for many purposes, but a sufficient measure of individual autonomy must survive to permit every householder to exercise control over unwanted mail. To make the householder the exclusive and final judge of what will cross his threshold undoubtedly has the effect of impeding the flow of ideas, information, and arguments that, ideally, he should receive and consider. Today’s merchandising methods, the plethora of mass mailings subsidized by low postal rates, and the growth of the sale of large mailing lists as an industry in itself have changed the mailman from a carrier of primarily private communications, as he was in a more leisurely day, and have made him an adjunct of the mass mailer who sends unsolicited and often unwanted mail into every home. It places no strain on the doctrine of judicial notice to observe that whether measured by pieces or pounds, Everyman’s mail today is made up overwhelmingly of material he did not seek from persons he does not know. And all too often it is matter he finds offensive.
"[T]he mailer’s right to communicate is circumscribed only by an affirmative act of the addressee giving notice that he wishes no further mailings from that mailer.
"To hold less would tend to license a form of trespass and would make hardly more sense than to say that a radio or television viewer may not twist the dial to cut off an offensive or boring communication and thus bar its entering his home. Nothing in the Constitution compels us to listen to or view any unwanted communi cation, whatever its merit; we see no basis for according the printed word or pictures a different or more preferred status because they are sent by mail. The ancient concept that 'a man’s home is his castle’ into which 'not even the king may enter’ has lost none of its vitality, and none of the recognized exceptions includes any right to communicate offensively with another. See Camara v Municipal Court, 387 US 523 [87 S Ct 1727; 18 L Ed 2d 930] (1967).” Rowan, supra, 736-737.
Petitioner’s right to privacy, "to be let alone”, inherently includes the power to have some discretion in what enters his home through the mail. Congress recognized this in passing 39 USC 3008, thereby giving the addressee the authority to stop mailings to his home which he, "in his sole discretion believes to be erotically arousing or sexually provocative”. The Supreme Court expanded this power, if only by dicta, to allow the addressee to strike his name from any mailing list. To require the Bar to honor petitioner’s request to remove his name from the commercial mailing list would require the burden and added expense of keeping two mailing lists. Depending on how many attorneys opt for removal of their names the Bar may, or may not, be able to maintain the group ratés it now provides for its members. Even though petitioner can easily identify the soliciting mailing by its clearly marked envelopes, thereby lessening the intrusion into his privacy, he has the right to demand that his name be excluded from mass merchandising mailing lists since the state cannot be said to be promoting the administration of justice or advancing the science of jurisprudence through this type of mailing.
V. Conclusion
Petitioner has failed to prove a case for relief in any of the specific categories set forth in his complaint and briefs except for item 11 relating to the sale of the use of the State Bar mailing roster. (But see fn 8.)
Therefore the State Bar shall, on petitioner’s request, remove his name from the roster sold for commercial use. With respect to all other challenges petitioner’s request for relief is denied.
No costs, a public question being involved.
Coleman, C.J., concurred with Williams, J.
Levin, J.
The issues, facts and history of this proceeding are set forth in Justice Ryan’s and Justice Williams’ opinions.
We have concluded that while the record is sufficiently developed to resolve some of the issues, it is insufficiently developed to resolve others, and therefore the cause should be remanded for a further hearing.
I
The record in this case is sufficiently developed to resolve the challenges to all bar activities save the activities of the Young Lawyers Section and of the Lawyers Wives beyond those directly educating members of the bar and the public about the law and the legal system, the Lawyer Placement Service, the commercial sale of the bar’s mailing list, and activities addressed to influencing legislation. Activities addressed to influencing legislation include not only lobbying activities but also the adoption of formal bar positions on proposed legislation and social functions in furtherance of legislative activities.
In ordinary litigation, a party’s failure to develop an adequate record would, according to the appropriate allocation of the burden of proof, control the disposition of the case. This case is not, however, an ordinary litigation in which a party is limited to the relief to which he has proven himself entitled. Falk’s petition calls for the discretionary exercise of this Court’s extraordinary superintending control. We must consider, therefore, not merely the relative rights of the parties before us but, rather, the proper organization and actions of the bar in light of the rights of all its members and the interests of the state.
When this Court exercises its power of superintending control, the Court has the responsibility of ensuring that it is fully informed. To allow inadequacies in the record to shape the order affecting the rights of persons other than the parties would be to cede a measure of our discretion to the parties. We conclude that a more complete factual record is needed to determine the appropriate order as to the bar’s legislative activities, the activities of the Young Lawyers Section and of the Lawyers Wives beyond those directly educating members of the bar about the law and the legal system, the Lawyer Placement Service, and the commercial sale of the bar’s mailing list, and therefore remand for the purpose of developing such record.
II
The controlling decisions of the United States Supreme Court on the First Amendment issues in this case, Hanson, Street, Lathrop, and particularly Abood, are fully discussed in Justice Ryan’s opinion.
Some may read Abood as concluding that any compelled association and support, whether for collective bargaining purposes or otherwise, so intrudes upon the First Amendment rights of individual members as to be permissible only for purposes germane to those activities of the unified organization which serve compelling state interests and which cannot be accomplished by means less intrusive upon the First Amendment rights of objecting members.
Others may read Abood as providing that while the state interest served by required association and financial support must be a compelling interest, any activity germane to that interest, rather than only those least intrusive upon members’ First Amendment rights, is permissible.
Alternatively, still others may read Abood as applying different standards of judicial scrutiny according to the nature of the activity: dues collected to support collective-bargaining activities may be considered as assessments imposing the cost of obtaining an economic benefit on the beneficiaries, subject to the lower standard of scrutiny outlined in Hanson and Street, while mandatory dues collected for purposes other than promoting the economic self-interests of members are subject to the higher standard applied in Abood to activities not germane to the collective-bargaining process.
Application of the. principles announced in Abood to the instant case is further hampered by the indefiniteness, on this record, of the purposes and state interests served by the bar. Section 1 of the State Bar Rules, promulgated by this Court pursuant to the Court’s powers over the bar and its members, states:
"The state bar of Michigan shall, under these rules, aid in promoting improvements in the administration of justice and advancements in jurisprudence, in improving relations between the legal profession and the public, and in promoting the interests of the legal profession in this State.”
This broad statement of purpose is susceptible to both expansive and restrictive interpretations. On the one hand, the bar represents the collective experience of legal experts in many fields, and its views on legislation as substantive as revisions of the criminal code, changes to the divorce laws, and no-fault insurance may serve compelling state interests. On the other hand, the threatened and actual intrusions upon individual members’ First Amendment' rights occasioned by compelled support of substantive issues to which they are opposed may make it proper or even constitutionally necessary to limit this broad statement of purpose to the promotion of issues which are directly related to the practice of law and administration of justice as defined in their narrowest senses, such as court reform, lawyers’ education, and requirements for the practice of law, or to eliminate entirely bar legislative activities funded by compulsory dues.
The question is made more complex by the unique relationship between lawyers and the law. Laws are the tools of the lawyer’s trade; to improve those tools generally requires legislative activity. Laws are the substance of the lawyer’s business; changes in the law will often affect the economic interests of the profession. Further, both by training and daily experience, lawyers possess an expertise in the practical functioning of laws and the justice system which may make their views on legislation of unique value.
Yet it is clear that a line must be drawn. The lawyer’s relation to the law could rationally support the bar’s taking a stand on even the most basic of public policy issues. At some point, the interests of the bar and the state in collective legislative activity by the bar must yield to the constitutional freedoms of the individual lawyer.
III
It is unnecessary at this time to determine the appropriate standard of judicial scrutiny or to definitively articulate the bar’s purpose, since such of Falk’s challenges to bar activities as can be resolved on this record are clearly permissible even under the strictest standard of review and the narrowest construction of the bar’s purpose.
A
Few would argue, and Falk himself is not one of them, that maintaining high standards of competence and honesty in the legal profession does not serve a compelling state interest. The bar’s regulatory and licensing activities narrowly drawn to that end can be justified even if they impinge on members’ First Amendment rights. Included among these activities are: continuing legal education, the Michigan Bar Journal to the extent it serves an informational function, advisory opinions on ethical questions, and disciplinary proceedings.
Whatever may be the proper use by the Court of members of the bar to improve the administration of justice, it includes, at the very least, activities primarily to educate the public about the law and legal services, to provide legal services to the indigent, to help the public to select legal counsel through the Lawyer Referral Service, and to provide forums for discussion of problems facing the courts and the legal profession.
That the state has a compelling interest in improving the administration of justice through activities such as these needs no explication. Compulsory dues are a necessary means both to provide adequate funds and to equitably share the burden among those subject to the duty. Limiting the compulsory element to a reasonable level of dues is the least intrusive means available. No actual participation by Falk is required beyond the financial obligation. This Court and the majority of the profession may rely on the volunteering of time and energy by members of the bar and other groups; without, at a minimum, the financial support to meet the expenses of these activities, they might end or be severely restricted.
Some of the non-legislative bar activities challenged by Falk fall comfortably within the permissible range of this category of activities. Without attempting to be exhaustive, activities such as the preparation and distribution by the Young Lawyers of the Juror’s Manual, the distribution to junior high school students of the "You and the Law” booklet by the Lawyers Wives of Michigan, and funding of the Children’s Charter, which provides a forum for discussing problems of juvenile delinquency requiring participation of third parties, are examples of clearly permissible activities.
B
Other activities of the bar challenged by Falk, including activities of the Young Lawyers Section and Lawyers Wives other than those described above, the Lawyer Placement Service, the commer cial sale of the bar’s mailing list, and particularly bar activities addressed to influencing legislation, require development of a fuller and more particularized record before their permissibility can be determined.
On remand, the burden will be on Falk to show specific activities which allegedly infringe upon his First Amendment rights. The burden will be on the State Bar to establish the requisite state interest, the appropriate connection between particular activities and the state interest (or, if a valid criterion for First Amendment purposes, the economic self-interest of the bar’s members), and the unavailability or impracticability of alternative means of realizing the asserted state interest. Particular attention should be given to specific evidence of what the bar is doing; how it came to be doing it; how and under what standards it chooses issues on which to take an official stand and which stand to take; whether any ground rules exist for declining to take an official position, with details of instances when the bar has so declined; whether any procedure exists for encouraging, receiving and presenting dissenting opinions; what alternatives are possible to accommodate the First Amendment rights of dissenting members; what impact alternatives will have on the effectiveness of the bar’s assistance to its members, the public and this Court; and the proposed times and procedures for implementing alternatives.
We emphasize that the Court is not now deciding, nor intimating an opinion on, either the appropriate standard of judicial scrutiny or a definition of the state interests served by the bar. These issues have been discussed to indicate the kind of record which should be developed on remand and to provide focus for briefing and argument after remand.
After remand, the Court will also consider, and the parties should address, whether a fair analysis of the purposes served by those bar activities presenting close questions of constitutional conflict and of alternatives thereto indicate that a better course would be to exercise the superintending authority of this Court by court rule to limit the activities of the bar to a greater degree than is absolutely compelled by the Constitution, and thereby eliminate the potential for constitutional conflict. Such an approach may not only serve the important goal of avoiding unnecessary decision of constitutional questions, but may also provide a desirable measure of flexibility in an area that will almost certainly change with time. Further, a proper respect for the "breathing room” necessary for full enjoyment of First Amendment rights suggests that this Court should be reluctant to allow bar activities to press upon the border of constitutional prohibition, absent a clearly demonstrated need therefor.
An appropriate order will enter. No costs, a public question.
Kavanagh, J., concurred with Levin, J.
No further evidence need be taken with regard to the preparation and distribution of the Juror’s Manual, the distribution of the "You and the Law” booklet, and funding of the Children’s Charter.
The First Amendment of the United States Constitution provides:
"Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof; or abridging the freedom of speech, or of the press; or the right of the people peaceably to assemble, and to petition the Government for a redress of grievances.”
Mr. Falk’s petition makes reference to the United States Supreme Court’s decision in Abood v Detroit Board of Education, 431 US 209; 97 S Ct 1782; 52 L Ed 2d 261 (1977), reh den 433 US 915; 97 S Ct 2989; 53 L Ed 2d 1102 (1977).
Mr. Falk’s briefs include discussion and argument relating to a tortious invasion of his privacy which he contends is caused by the State Bar’s alleged distribution of its membership lists, with addresses, to various commercial entities for use in mail solicitation efforts.
Mr. Falk’s original pleading nowhere states a claim, or requests relief, for tortious invasion of privacy. See GCR 1963, 111.1, 117.2(1). Adequate proofs were not presented to the fact-finder on such a claim. Further, at oral arguments, Mr. Falk acknowledged that he had never requested the State Bar to refrain from so distributing his name and address.
Since we find that no claim was pled for invasion of privacy, no relief requested, and inadequate proofs offered, we will not reach the issue, and we intimate no opinion as to its merit, if any.
Similarly, Mr. Falk’s brief discusses an asserted violation of his First Amendment rights to religious freedom under the following heading:
“The use of State Bar dues monies to purchase alcoholic beverages, pork and shellfish for consumption at social functions, particularly when not all State Bar members are invited to such functions or offered alternatives of equal value for dues paid, and which are unnecessary to the accomplishment of any goal central to the viability of the State Bar as a regulatory body, violates the rights of petitioner and other State Bar members under the free exercise and establishment of religion clauses of the First Amendment.”
Mr. Falk characterizes the referenced State Bar social functions as "bacchanalian revelries” which are unnecessary to the furtherance of the constitutionally permitted objectives of the State Bar.
Here again, the petition neglects to state any claim, or seek any relief, for violation of the plaintiffs First Amendment religious freedoms. For that reason, and also because we are satisfied that our disposition of this case renders moot the freedom of religion issues intimated by Mr. Falk, we do not reach the merits of those asserted First Amendment infringements.
Mr. Falk’s briefs, but not his petition, also request that all members of the State Bar be notified, through the State Bar Journal, of their right to "opt into” this lawsuit and obtain like relief. The pendency of this action has been reported in the Michigan State Bar Journal. See 57 Mich State Bar J 224-225 (March, 1978). As of the date of the issuance of this opinion, no other member of the State Bar has "opted into” this suit. See GCR 1963, 209.
Mr. Falk, again in his briefs, and not his pleading, further requests that he be granted an attorney’s charging lien on all of the dues that might be refunded in this action. It appears from the record that Mr. Falk has been excused of his obligation to pay any bar dues during the pendency of this action. This fact, coupled with the absence of any intervening plaintiffs, combine to result in the generation of no pool of bar dues refunds upon which such a lien could be imposed. Instead, our decision today requires Mr. Falk to pay that portion of his excused bar dues which relates to the constitutional purposes of the bar.
It should also be noted that this action was filed by Mr. Falk solely on his own behalf. He has expressed his belief that a Michigan Court of Appeals decision, Ball v Detroit, 84 Mich App 383, 398; 269 NW2d 607 (1978), authoritatively precluded the filing of an original class action in this Court in this case. Because of Mr. Falk’s decision to not so proceed, we are not presented with any issue relating to the applicability of the Court of Appeals Ball decision in this action, and we therefore intimate no opinion as to the correctness of the plaintiffs understanding of Ball.
That act provided, in its entirety:
"An act to create the state bar of Michigan; and to authorize the supreme court to provide for the organization, regulation and rules of government thereof.
"The People of the State of Michigan enact:
"Sec. 1. There is hereby created an association to be known as the state bar of Michigan, the membership of which shall consist of all persons in the state now or hereafter regularly licensed to practice law in this state.
"Sec. 2. The supreme court is hereby authorized to provide for the organization and regulation of the state bar of Michigan; to provide rules and regulations concerning the conduct and activities of the association and its members; the schedule of membership dues therein, which dues shall not exceed five dollars per annum, nonpayment of which shall be ground for suspension, the ethical standards to be observed in the practice of law, and the discipline, suspension or disbarment of association members. Under such regulations and restrictions as the supreme court may prescribe, the power of subpoena may be conferred upon the association or its officers and committees for the purpose of aiding in the cases of discipline, suspension or disbarment; the rules promulgated by the supreme court and the proceedings and records of the state bar association to be published by the judicial council of Michigan and in the Michigan reports and advance sheets thereof.”
See also 1947 PA 34; 1948 CL 601.48, 601.61, 691.51, 691.52; 1961 PA 236, §§ 901, 904; MCL 600.901; MSA 27A.901; MCL 600.904; MSA 27A.904.
See Const 1963, art 6, § 5; In the Matter of Mills, an Attorney, 1 Mich 392, 393-394 (1850); In re Hartford, 282 Mich 124; 275 NW 791 (1937); In re Schlossberg v State Bar Grievance Board 388 Mich 389, 395; 200 NW2d 219 (1972).
273 Mich xxxv (1935).
Id.
See 340 Mich xxxviii (1954) for the text of current State Bar Rule 1.
It is here worthwhile to consider the analysis of the integrated bar’s purposes which was expressed by its first president, Roberts P. Hudson, in his "Message from the President” which appeared in 15 Mich State Bar J 7-8 (1936):
"Your organization is designed not only for the benefit and betterment of its members, but primarily for the public at large who require the services of the profession. It must never be subservient to political dictation or intimidation, nor control from outside its membership. It cannot represent the interests of any group or political faith. It must not draw distinctions of color, race or creed. It must not submit to politically minded leadership. It must not stand aloof from its membership. It must purge itself of the unfit. It must not recognize geographic boundaries. It is now and must remain democratic, independent and representative of the best ideals of citizenship.”
Supreme Court Rules Concerning the State Bar of Michigan, §§ 2 and 3; now State Bar Rules 2, 3.
Supreme Court Rules Concerning the State Bar of Michigan, § 4; now State Bar Rule 4.
A union shop agreement requires that all affected employees must actually join the union, maintain their membership, and pay union dues, as a condition of their employment.
An agency shop agreement is one under which affected employees are not required to actually become members of the union, but are required to pay "service fees” bearing a relationship to union dues to help defray the collective bargaining costs of the agent-union which acts as the exclusive bargaining agent of all affected employees, union members and non-members alike. See, generally, 48 Am Jur 2d, Labor and Labor Relations, §§ 12-20, 355-356, 361; pp 86-93, 273-275, 278-279; 48A Am Jur 2d, id., § 1904, p 324. See also Abood v Detroit Board of Education, supra, 431 US 217, fn 10.
US Const, Am V provides:
"No person shall be held to answer for a capital, or otherwise infamous crime, unless on a presentment or indictment of a Grand Jury, except in cases arising in the land or naval forces, or in the Militia, when in actual service in time of War or public danger; nor shall any person be subject for the same offence to be twice put in jeopardy of life or limb; nor shall be compelled in any criminal case to be a witness against himself, nor be deprived of life, liberty, or property, without due process of law; nor shall private property be taken for public use, without just compensation.”
US Const, art I, § 8, cl 3.
Of interest in Justice Douglas’ Hanson opinion is the following statement:
"On the present record, there is no more an infringement or impairment of First Amendment rights than there would be in the case of a lawyer who by state law is required to be a member of an integrated bar.” 351 US 238.
Justice Douglas later disavowed the analogy. Lathrop v Donohue, 367 US 820, 879; 81 S Ct 1826; 6 L Ed 2d 1191 (1961). See also Abood v Detroit Board of Education, supra, 431 US 246, fn 1 (Powell, J., concurring).
Section 1 of the Fourteenth Amendment of the United States Constitution provides:
"All persons born or naturalized in the United States, and subject to the jurisdiction thereof, are citizens of the United States and of the State wherein they reside. No State shall make or enforce any law which shall abridge the privileges or immunities of citizens of the United States; nor shall any State deprive any person of life, liberty, or property, without due process of law; nor deny to any person within its jurisdiction the equal protection of the laws.”
See fn 12, supra.
The motion was brought pursuant to GCR 1963, 117.2(1), on the ground that the opposing party had failed to state a claim upon which relief could be granted.
See the United States Supreme Court’s analysis on this point in Abood v Detroit Board of Education, 431 US 209, 216, fn 9; 97 S Ct 1782; 52 L Ed 2d 261 (1977).
The Court drew no lines between the permissible and the impermissible, 431 US 236, and further clarified the context in which its decision was made:
"All that we decide is that the general allegations in the complaints, if proved, establish a cause of action under the First and Fourteenth Amendments.” 431 US 237.
This language suggests that as to the compulsion of service fees for activities relating to collective bargaining, the complaints in Abood failed to state a claim upon which relief could be granted under the First and Fourteenth Amendments. As to the compulsion of service fees for other purposes, the plaintiffs’ complaint did state a claim, and further proceedings going to the proof of that claim were required before a delineation of what activities were constitutionally permissible could be made. Established First Amendment principles indicate that, once an individual has stated a valid claim under the First Amendment, the burden of proof shifts to the state to show the infringement on individual rights that is claimed is unavoidable in order to accomplish a compelling state interest. See, e.g., Elrod v Burns, 427 US 347, 363; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (Brennan, J., plurality opinion).
As previously stated, in the present case, this Court sits, under these unusual circumstances, as the trial court. Indeed, our order appointing a fact-finder for the purpose of conducting a hearing on the factual matters here involved necessarily implicitly recognized that Mr. Falk’s pleading stated a claim in First Amendment terms which required development of an appropriate factual record. See 402 Mich 960 (1978).
See MCL 380.1531 et seq.; MSA 15.41531 et seq.; MCL 388.551, 388.553; MSA 15.1921, 15.1923.
See Abood v Detroit Board of Education, fn 2 supra, 431 US 233; Cousins v Wigoda, 419 US 477, 487; 95 S Ct 541; 42 L Ed 2d 595 (1975); Kusper v Pontikes, 414 US 51, 56-57; 94 S Ct 303; 38 L Ed 2d 260 (1973).
See Abood v Detroit Board of Education, fn 2 supra, 431 US 234-235; Stanley v Georgia, 394 US 557, 565; 89 S Ct 1243; 22 L Ed 2d 542 (1969); Cantwell v Connecticut, 310 US 296, 303-304; 60 S Ct 900; 84 L Ed 1213; 128 ALR 1352 (1940); Wooley v Maynard, 430 US 705, 714-715; 97 S Ct 1428; 51 L Ed 2d 752 (1977). See also Elrod v Burns, 427 US 347, 355-356; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (Brennan, J., plurality opinion).
See Bates v Little Rock, 361 US 516, 524; 80 S Ct 412; 4 L Ed 2d 480 (1960); NAACP v Button, 371 US 415, 438-439; 83 S Ct 328; 9 L Ed 2d 405 (1963); Williams v Rhodes, 393 US 23, 30-32; 89 S Ct 5; 21 L Ed 2d 24 (1968); Storer v Brown, 415 US 724, 729; 94 S Ct 1274; 39 L Ed 2d 714 (1974); American Party of Texas v White, 415 US 767, 780; 94 S Ct 1296; 39 L Ed 2d 744 (1974); Wooley v Maynard, 430 US 705, 715-716; 97 S Ct 1428; 51 L Ed 2d 752 (1977). See also Ohralik v Ohio State Bar Ass’n, 436 US 447, 462; 98 S Ct 1912; 56 L Ed 2d 444 (1978).
See Elrod v Burns, 427 US 347, 362; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (Brennan, J., plurality opinion).
American Party of Texas v White, fn 24 supra, 415 US 780-781. See also Elrod v Burns, fn 25 supra, 427 US 360-363; Buckley v Valeo, 424 US 1, 93-94; 96 S Ct 612; 46 L Ed 2d 659 (1976).
As previously indicated, fn 4 supra, no other member of the State Bar has sought to intervene in this case, although pendency of this action was reported in the Michigan State Bar Journal. See 57 Mich State Bar J 224-225 (March, 1978).
We realize that, to the extent that this decision has retroactive application, restitution of improperly used bar dues would be the appropriate equitable remedy. However, we are equally aware of the pertinence here of the maxim of equity that "equity aids the vigilant, not those who sleep on their rights”. See Zoellner v Zoellner, 46 Mich 511, 515; 9 NW 831 (1881); Douglass v Douglass, 72 Mich 86, 98-99; 40 NW 177 (1888); Henderson v Connolly’s Estate, 294 Mich 1, 18-20; 292 NW 543 (1940); Gustin v Alpena Power Co, 307 Mich 241, 244; 11 NW2d 873 (1943). We find this principle particularly forceful in the present circumstances, since the group of persons affected by this decision is composed of trained and qualified lawyers, presumably well-informed on such matters, and certainly on notice as to the pendency of this action.
1935 PA 58. This act, in pertinent part, provided:
"An act to create the state bar of Michigan; and to authorize the supreme court to provide for the organization, regulation and rules of government thereof.
"The People of the State of Michigan enact:
"Sec. 1. There is hereby created an association to be known as the state bar of Michigan, the membership of which shall consist of all persons in the state now or hereafter regularly licensed to practice law in this state.
"Sec. 2. The supreme court is hereby authorized to provide for the organization and regulation of the state bar of Michigan; to provide rules and regulations concerning the conduct and activities of the association and its members; the schedule of membership dues therein, * * * non-payment of which shall be ground for suspension, the ethical standards to be observed in the practice of law, and the discipline, suspension or disbarment of association members. * * *”
Supreme Court Rules Concerning the State Bar of Michigan provide in pertinent part:
"Rule 2. Membership.
"Those persons who are licensed to practice law in this State on December 2, 1935, and those who shall become licensed thereafter to practice law in this State, shall constitute the membership of the State Bar of Michigan subject to the provisions of these rules.”
"Rule 4. Membership Dues.
"(a) An active member’s dues for each fiscal year (October 1 through September 30), payable at the State Bar’s principal office by October 1 of each year, are:
"(1) $150, for a member admitted to practice 3 years or more (counting the fiscal year in which admission took place as a full year), admitted from another jurisdiction, or admitted under Board of Law Examiners Rule 5(D);
"(2) $90, for a member admitted to practice less than 3 years. For the fiscal year of admission, dues are $90 if admitted between October 1 and March 31, and $45 if admitted between April 1 and September 30.”
In addition to his Federal First Amendment arguments (freedom of association, freedom of speech, freedom of religion, and right to privacy), petitioner’s brief also discusses possible violations of the Federal Commerce Clause, US Const, art I, § 8, cl 3, and Const 1963, art 4, § 24 (title-body clause); art 4, § 30 (assent of two-thirds of each house of the Legislature required for appropriating public money for private purposes); and art 3, § 2 (separation of powers principle).
This case was commenced as an original proceeding in this Court on November 30, 1977 when the petitioner filed his "Petition for Special Relief’, naming the State Bar of Michigan as defendant. Acting on this petition, this Court subsequently appointed former Judge Maurice E. Schoenberger to conduct hearings and make findings of fact on the issues petitioner raised. 402 Mich 960 (1978). These hearings were held on June 5 and 6, 1978. Both parties presented testimony and exhibits relating to the various activities and functions of the State Bar, and Judge Schoenberger concluded that there were no controverted factual matters which required resolution.
We agree with Justice Ryan’s treatment of this petition as a complaint for writ of superintending control over the State Bar, within our original jurisdiction, GCR 1963, 851(6); MCL 600.215, 600.219; MSA 27A.215, 27A.219, and with his interpretation of the petition for special relief as a request that we relieve petitioner of the obligation of paying the pro rata portion of his State Bar dues which relates to the complained-of activities, except insofar as petitioner requests in his brief that the State Bar be required to remove his name from its "commercial solicitation mailing list”.
See fn 1, supra.
The present version of this section is MCL 600.904; MSA 27A.904. There have been several substantive changes in this section, none of which, however, affect our discussion. The present version reads as follows:
"The supreme court has the power to provide for the organization, government, and membership of the state bar of Michigan, and to adopt rules and regulations concerning the conduct and activities of the state bar of Michigan and its members, the schedule of membership dues therein, the discipline, suspension, and disbarment of its members for misconduct, and the investigation and examination of applicants for admission to the bar.”
Section 1 of the State Bar Rules has undergone little change since its promulgation in 1935. In its present form it states, in relevant part:
"The state bar of Michigan shall, under these rules, aid in promoting improvements in the administration of justice and advancements in jurisprudence, in improving relations between the legal profession and the public, and in promoting the interests of the legal profession in this state.” State Bar Rule 1, 340 Mich xxxviii (1954).
In passing, we observe that if petitioner in referring to political activities had in mind the support of and opposition to partisan candidates and partisan issues, Rule 1 certainly does not sanction such activity, as the State Bar has properly recognized.
In Michigan this inherent power derives in part from article 6, § 5 of our 1963 Constitution which states that:
“The supreme court shall by general rules establish, modify, amend and simplify the practice and procedure in all courts of this state.” See In re Schlossberg, 388 Mich 389, 395; 200 NW2d 219 (1972).
State Supreme Courts that have directly confronted the question of their inherent power to integrate their State Bars have, to the best of our knowledge, unanimously held themselves to possess such power. See, e.g., Wallace v Wallace, 225 Ga 102, 109-110; 166 SE2d 718, 723 (1969); In the Matter of Integration of the Bar of Hawaii, 50 Hawaii 107, 109; 432 P2d 887, 888 (1967); In re Unification of the New Hampshire Bar, 109 NH 260, 264; 248 A2d 709, 712 (1968).
Justice Harlan pointed out: "the law relating to libel, slander, misrepresentation, obscenity, perjury, false advertising, solicitation of crime, complicity by encouragement, conspiracy, and the like” cannot be logically reconciled with the absolutist position. Konigsberg, supra, 49, fn 10. Even Justice Douglas conceded that the right to associate is not absolute. Lathrop v Donohue, 367 US 820, 882; 81 S Ct 1826; 6 L Ed 2d 1191 (1961) (dissent).
Buckley v Valeo, 424 US 1, 25; 96 S Ct 612; 46 L Ed 2d 659 (1976) (upholding the limitation on, and reporting of, political contributions by the Federal Election Campaign Act of 1971, 2 USC 431 et seq., but finding the limitation of independent and candidate expenditures violative of the First Amendment).
For example, holding that the Illinois Election Code violated the First Amendment by prohibiting a person from voting in a primary election of a political party if that person had voted in another party’s primary within the previous 23 months, Justice Stewart described when and how the least intrusive means test applies:
"[A] significant encroachment upon associational freedom cannot be justified upon a mere showing of a legitimate state interest. ** * * For even when pursuing a legitimate interest, a State may not choose means that unnecessarily restrict constitutionally protected liberty. * * * If the State has open to it a less drastic way of satisfying its legitimate interests, it may not choose a legislative scheme that broadly stifles the exercise of fundamental personal liberties.” Kusper, supra, 58-59.
See also Lathrop v Donohue, 367 US 820, 843; 81 S Ct 1826; 6 L Ed 2d 1191 (1961), where the Supreme Court held:
"Both in purport and in practice the bulk of [the Wisconsin] State Bar activities serve the function * * * of elevating the educational and ethical standards of the Bar to the end of improving the quality of the legal service available to the people of the State, without any reference to the political process. It cannot be denied that this is a legitimate end of state policy. We think that the Supreme Court of Wisconsin, in order to further the State’s legitimate interests in raising the quality of professional services, may constitutionally require that the costs of improving the profession in this fashion should be shared by the subjects and beneficiaries of the regulatory program, the lawyers, even though the organization created to attain the objective also engages in some legislative activity. Given the character of the integrated bar shown on this record, in the light of the limitation of the membership requirement to the compulsory payment of reasonable annual dues, we are unable to find any impingement upon protected rights of association.’’ (Emphasis supplied.)
The plurality of four was unwilling to decide whether Lathrop’s "rights of free speech are infringed if his dues money is used to support the political activities of the State Bar” because they felt the record was insufficiently developed. Lathrop, supra, 844-845. However, three justices would have found that none of the Wisconsin Bar’s activities violated any of Lathrop’s constitutional rights. Lathrop, supra, 848 (opinion of Harlan, J., Frankfurter, J., concurring); 865 (opinion of Whittaker, J., concurring in result). The other two justices who addressed the freedom of speech issue, would have prohibited Wisconsin Bar from using mandatory dues revenue to advocate positions which any of its members opposed, Lathrop, supra, 865 (opinion of Black, J.); 877 (opinion of Douglas, J.).
Abood, supra.
We have, of course, decided upon the rationale of germaneness to a compelling state interest. However, we believe that an integrated state bar would be the least intrusive means to effectuate the compelling state interest. See Application of the President of the Montana Bar Ass’n, 163 Mont 523, 526; 518 P2d 32, 33 (1974).
Nowhere in either his complaint or brief does petitioner specifically allege a violation of his right to freedom of speech. However, since petitioner claims that the use of Bar dues for non-"regulation” purposes constitutes “a violation of [petitioner’s] First Amendment rights” and places strong reliance on Abood, supra, we will analyze petitioner’s charges in light of both his right of freedom of association and freedom of speech.
Petitioner argues that certain State Bar expenditures violate the First Amendment’s prohibition on the establishment of religion:
"The use of State Bar dues monies to purchase alcoholic beverages, pork and shellfish for consumption at social functions, particularly when not all State Bar members are invited to such functions or offered alternatives of equal value for dues paid, and which are unnecessary to the accomplishment of any goal central to the viability of the State Bar as a regulatory body, violates the rights of petitioner and other State Bar members under the free exercise and establishment of religion clauses of the First Amendment.”
Petitioner has failed to show any instance when only these objectionable foods and beverages were served. If a person attends a cocktail party, luncheon, or dinner, he or she may select nonobjectionable food and beverage to consume. For example, cocktail parties have nonalcoholic drinks, such as sodas, gingerale, fruit juices, tonic water, etc., in order to serve mixed drinks. Luncheons and dinners rarely serve only pork and shellfish. Even a vegetarian, whether for religious or health purposes, can find sufficient quantities of vegetables, cereals, baked goods and other nonmeat foods to form a nutritious meal. Petitioner, therefore, cannot complain that he is being forced to either consume objectionable victuals or go hungry. Nor may petitioner impose his religious views on proper consumption on others. Simply put, petitioner has the right to attend general Bar functions and choose from a reasonable selection of foods and beverages that which he finds satisfactory to consume. He does not, however, have the right to limit other Bar members to his self-imposed diet. By providing a reasonable selection of foods and beverages to its members the Bar cannot be accused of establishing or promoting any religion.
Petitioner’s right to privacy argument is treated in section IV, E(11), infra.
US Const, art I, § 8, cl 3. Petitioner argues that "[t]he Due Process Clause of the Fourteenth Amendment in conjunction with the Commerce Clause requires that fees which affect interstate commerce must not be 'excessive in comparison with the governmental benefits conferred.’ Evansville-Vanderburgh Airport Authority Dist v Delta Airlines, Inc, 405 US 707, 717; 92 S Ct 1349; 31 L Ed 2d 620 (1972) * * * *. Moreover, the imposition of economic burdens on activities in interstate commerce must be 'reasonable and fixed according to some uniform, fair and practical standard’. Hendrick v Maryland, 235 US 610; 35 S Ct 140; 59 L Ed 385 (1915)”.
We recognize that the practice of law may be subject to the Commerce Clause in certain instances, see Goldfarb v Virginia State Bar, 421 US 773, 785; 95 S Ct 2004; 44 L Ed 2d 572 (1975) (minimum fee schedules published by county bar association and enforced by state bar violated § 1 of the Sherman act, 15 USC 1). However, petitioner has failed to show how the expenditure of State Bar mandatory dues for the promotion of the administration of justice is either excessive or a burden on interstate commerce. Therefore we find petitioner’s claim to be spurious.
Petitioner claims that 1) "[t]he use of State Bar dues monies for 'public’ purposes not germane to its regulatory functions [as narrowly defined by petitioner] violates the title-body clause, Const 1963, art 4, § 24” [Petitioner’s Brief, p 8]; 2) that such use "is illegal as * * * not having been authorized pursuant to the procedure required by Const 1963, art 4, § 30” to expend public money for a private purpose; and 3) that "[t]he Supreme Court lacks the power to authorize use of State Bar dues for non-regulatory purposes. * * * [T]o purport to authorize expenditures for additional purposes * * * would run afoul of the separation of powers principle ensconced in Const 1963, art 3, § 2”.
Having recognized that this Court has the inherent power to regulate the legal profession in addition to any legislative authorization and having further found promulgation of State Bar Rules to be a valid exercise of that power, we reject petitioner’s assertions as to the title-body clause, find that the Bar expenditures are for a public purpose, and rule that there is no violation of the separation of powers clause.
"Under a union-shop agreement, an employee must become a member of the union within a specified period of time after hire, and must as a member pay whatever union dues and fees are uniformly required.” Abood, supra, 217, fn 10. See 43 Words and Phrases, Union Shop, p 494.
An agency shop is an "arrangement, whereby every employee represented by a union — even though not a union member — must pay to the union, as a condition of employment, a service fee equal in amount to union dues”. Abood, supra, 211. See 2A Words and Phrases (1978-1979 Supp), Agency Shop, pp 78-74.
In the Matter of the Florida Bar Board of Governors’ Action on Adoption of Proposed New State Constitution, 217 So 2d 323, 324 (Fla, 1969). See Roscoe Pound, The Lawyer from Antiquity to Modern Man (St Paul: West Pub, 1953).
Justice Harlan noted how important input from the legal profession is to the legislative and judicial branches:
" '[T]he composite judgment of the members of the bar of the state on measures directly affecting the administration of justice and the practice of law’ [Lathrop v Donohue, 10 Wis 2d 230, 239-240; 102 NW2d 404 (1960)] may well be as helpful and informative to a state legislature as the work of individual legal scholars and of such organizations as the American Law Institute, for example, is to state and federal courts. * * * The function such groups serve is a rationalizing one and their power flows from and is limited to their ability to convince by arguments from generally agreed upon premises. They are exercising the techniques and knowledge which lawyers are trained to possess in the task of solving problems with which the legal profession is most familiar. The numberless judicial citations to their work is proof enough of their own usefulness in the judicial decision-making process.
"Legislatures too have found that they can benefit from a legal 'expert’s effort to improve the law in technical and noncontroversial areas.’ Dulles v Johnson, 273 F2d 362, 367 [CA 2, 1959]. In the words of the Executive Secretary of the New York Law Revision Commission, there are areas in which 'lawyers as lawyers have more to offer, to solve a given question, than other skilled persons or groups.’ [MacDonald, Foreword to the Symposium,] 40 Cornell L Q 641, 644 [1955]. See also Cardozo, A Ministry of Justice, 35 Harv L Rev 113 [1921].” Lathrop, supra, 863 (Harlan, J., concurring).
"The office of attorney is indispensable to the administration of justice and is intimate and peculiar in its relation to, and vital to the well-being of, the court.” 7 CJS, Attorney and Client, § 4, p 802, quoted with approval in Sams v Olah, 225 Ga 497, 504; 169 SE2d 790, 798 (1969).
For example the Revision of Criminal Procedure Special Committee helps draft and critique "proposed codification of all laws and court rules pertaining to criminal procedure”. Bylaws of the State Bar of Michigan, art V, 59 Michigan Bar J 49r, 54r (April, 1980). See also the Special Committees on the Criminal Code Revision and the Standard Criminal Jury Instructions and the Standing Committees on Civil Procedure and Legislation. Id., 52r-54r. By obtaining input from members of both plaintiffs’ and defendants’ bar this Court has had a strong foundation upon which to build a comprehensive judicial system. However, any expenditures toward objectives other than the administration of justice or the advancement of jurisprudence, such as promotion of sports or arts, would be offensive both to Rule 1 and petitioner’s First Amendment rights.
See Brotherhood of Railway & Steamship Clerks v Allen, 373 US 113; 83 S Ct 1158; 10 L Ed 2d 235 (1963) (manifestation of opposition to any political expenditure of union shop dues is sufficient to state a cause of action); International Ass’n of Machinists v Street, 367 US 740, 768; 81 S Ct 1784; 6 L Ed 2d 1141 (1961) (Railway Labor Act, 45 USC 152[11], held to permit compulsory union dues only for collective bargaining purposes and not for partisan political purposes); Railway Employes’ Dep’t v Hanson, 351 US 225; 76 S Ct 714; 100 L Ed 1112 (1956) (Railway Labor Act, supra, upheld against First and Fifth Amendment challenges).
367 US 820; 81 S Ct 1826; 6 L Ed 2d 1191 (1961) (Wisconsin integrated Bar is not unconstitutional insofar as it merely requires lawyers practicing within the state to become members and pay reasonable annual dues). We reject petitioner’s claim that Abood essentially overruled Lathrop. Justice Stewart, writing for the majority, noted that the Court could not avoid making a ruling in Abood on the constitutionality of using mandatory union dues for political and ideological purposes as they had in Street. He then footnoted the following observation:
"In Lathrop v Donohue, 367 US 820, a companion case to [International Ass’n of Machinists v] Street [367 US 740; 81 S Ct 1784; 6 L Ed 2d 1141 (1961)], a lawyer sued for the refund of dues paid (under protest) to the integrated Wisconsin State Bar. The dues were required as a condition of practicing law in Wisconsin. The plaintiff contended that the requirement violated his constitutionally protected freedom of association because the dues were used by the State Bar to formulate and to support legislative proposals concerning the legal profession to which the plaintiff objected.
"A plurality of four Justices found that the requirement was not on its face unconstitutional, relying on the analogy to [Railway Employes’ Dep’t v] Hanson [351 US 225; 76 S Ct 714; 100 L Ed 1112 (1956)]. And the plurality ruled, as had the Court in Hanson, that the constitutional questions tendered were not ripe, for the Court was nowhere 'clearly apprised as to the views of the appellant on any particular legislative issues on which the State Bar has taken a position, or as to the way in which and the degree to which funds compulsorily exacted from its members are used to support the organization’s political activities.’ 367 US, at 845-846. The other five Members of the Court disagreed with the plurality and thought that the constitutional questions ought to be reached. Three Justices would have upheld the constitutionality of using compulsory dues to finance the State Bar’s legislative activities even where opposed by dissenting members. See id., at 848 (Harlan, J., concurring in judgment); id., at 865 (Whittaker, J., concurring in result). The other two Justices would have held such activities to be unconstitutional. See ibid. (Black, J., dissenting); id., at 877 (Douglas, J., dissenting).
"The only proposition about which a majority of the Court in Lathrop agreed was that the constitutional issues should be reached. However, due to the disparate views of those Uve Justices on the merits and the failure of the other four Members of the Court to discuss the constitutional questions, Lathrop does not provide a clear holding to guide us in adjudicating the constitutional questions here presented.” Abood v Detroit Board of Education, 431 US 209, 233, fn 29; 97 S Ct 1782; 52 L Ed 2d 261 (1977) (emphasis added).
Thus the Supreme Court did not overrule Lathrop but merely noted in passing that the plurality opinion was not based on constitutional grounds and therefore, like Street, could be of no precedential guidance.
In addressing the two dissenting opinions in Lathrop, Justice Harlan noted:
“I do not understand why it should become unconstitutional for the State Bar to use appellant’s dues to fulfill some of the very purposes for which it was established. I am wholly unable to follow the force of reasoning which, on the one hand, denies that compulsory dues-paying membership in an Integrated Bar infringes 'freedom of association,’ and, on the other, in effect affirms that such membership, to the extent it entails the use of a dissident member’s dues for legitimate Bar purposes, infringes 'freedom of speech.’ ” Lathrop, supra, 850.
Thus endorsing a particular candidate for office or lobbying for a bill which is unrelated to the improvement of the administration of justice is outside the scope of State Bar Rule 1 and also violates the First Amendment rights of free speech and association. See fn 8, supra.
Indeed, a Bar applicant could notify the YLS prior to the admissions ceremony of his wish not to become a section member, thereby never being "forced” to join the section. Or a newly admitted attorney can become a member for a trial period and, if dissatisfied, terminate membership.
The State Constitution provides:
"The assent of two-thirds of the members elected to and serving in each house of the legislature shall be required for the appropriation of public money or property for local or private purposes.” Const 1963, art 4, § 30.
Since we have based the Bar’s authority to promote the improve ment in the administration of justice and advancement in jurisprudence upon State Bar Rule 1 we will not address plaintiff’s attack on the constitutionality of MCL 600.901 et seq.; MSA 27A.901 et seq. See fn 19, supra.
When asked to explain his objections to the Lawyer Referral Service, however, petitioner stated:
"I don’t understand why I should be required to subsidize the income-producing opportunities of the attorneys in private practice when I have no interest in enhancing my own income-producing opportunities.
"Q: So it is your own economic interest that is the touchstone of this objection, is that correct?
"A: Yes, and the fact that an agency of the state for which I work precludes me from taking advantage of the service that I am required to subsidize.”
Lawyer Referral Service provides members of the public with the opportunity to consult with an attorney for a half an hour for a $15 fee to determine whether a legal problem exists, whether the problem merits further action by an attorney or whether it may be satisfactorily settled by the client. Thus a person seeking a divorce may be referred to an attorney, randomly selected from a list of lawyers competent in that area who agree not to charge over a set amount, while someone wanting to change his or her name would likely be instructed to go to probate court.
Prepaid Legal Services is analogous to Blue Cross insurance in that an annual premium is usually paid by an employer and/or employee ensuring that up to a fixed amount of legal services would be available should the need arise. The purpose of Prepaid Legal Services is essentially the same as of Lawyer Referral in that both programs help deliver legal services to members of the public who otherwise might lack legal advice except that Prepaid Legal Services is more extensive in its scope of coverage.
Petitioner admits that the Client Security Fund benefits the public but complains that it does not aid the general welfare of lawyers, "many of whom, like petitioner herein, either do not engage in professional activity related to the protective function of the Client Security Fund, or are precluded from doing so by the State as employer”.
Petitioner would have this Court create a mandatory Bar Rule requiring private practitioners obtain insurance to replace the Client Security Fund.
There is a problem that the present malpractice insurance coverage, and indeed the whole concept of insurance, does not include protection for an intentional wrong. As Mr. Franck noted:
"[M]alpractice insurance, by the terms of all the policies, specifically excludes intentional misconduct and only covers errors and omissions to use a general term, so that claims that are eligible for payment by the Client Security Fund would, by definition, not be eligible for coverage under professional liability insurance.”
Lawyers Wives of Michigan, composed of spouses of both male and female attorneys,
"is an organization which provides a home * * * for spouses of those in our profession. Its particular interest and activity has been in the area of law related education.”
Lawyers Wives distributes the booklet “You and the Law” to junior high school students throughout the state; conducts an annual Law Day essay contest for junior high school students; and provides volunteer services in probate and juvenile courts.
Children’s Charter of Michigan
"is a Michigan non-profit corporation which is essentially a consortium of juvenile judges, social workers and officers assigned to juvenile work in the various police departments throughout the state, including the Michigan State Police. They deal with collective problems of juvenile delinquency and other juvenile problems that require the interjection of third parties in the process, including non-status offenders. They meet regularly during the summer months at regional conferences to hear papers, to discuss issues and to educate one another on the subject. * * * The contribution has been fixed at $1,000, as Mr. Franck has testified, for some years, in order to underwrite the cost of these conferences which consist of travel for the speakers and renting of the hall.”
Canon 2(A) states:
"Public confidence in the judiciary is eroded by irresponsible or improper conduct by judges. A judge must avoid all impropriety and appearance of impropriety. He must expect to be the subject of constant public scrutiny. He must therefore accept restrictions on his conduct that might be viewed as burdensome by the ordinary citizen and should do so freely and willingly.”
The recodified statute, virtually unchanged from its predecessor, states:
"(a) Whoever for himself, or by his agents or assigns, mails or causes to be mailed any pandering advertisement which offers for sale matter which the addressee in his sole discretion believes to be erotically arousing or sexually provocative shall be subject to an order of the Postal Service to refrain from further mailings of such materials to designated addresses thereof.
"(b) Upon receipt of notice from an addressee that he has received such' mail matter, determined by the addressee in his sole discretion to be of the character described in subsection (a) of this section, the Postal Service shall issue an order, if requested by the addressee, to the sender thereof, directing the sender and his agents or assigns to refrain from further mailings to the named addressees.” 39 USC 3008, subds (a) and (b).
We restrict our ruling to commercial mailings unrelated to the Bar’s authorization to aid in the improvement of the administration of justice and to promote the advancement of jurisprudence. Thus insurance and travel advertisements may be restricted while mailings announcing continuing legal education programs, which plaintiff concedes are within the Bar’s proper function, may not be so limited.
Falk commenced this action as an original proceeding in this Court denominating it "Petition for Special Relief’. No statute or court rule expressly authorizes such a petition. If the petition were an ordinary lawsuit claiming violations of Falk’s constitutional rights, it should have been filed in a circuit court. If regarded as an action for a writ of mandamus against a state officer, it should have been commenced in the Court of Appeals, or the circuit court for Ingham County or other county in which venue was proper. MCL 600.4401; MSA 27A.4401. This Court has elected to treat Falk’s petition as a request to exercise the Court’s statutory power to regulate the conduct and activities of the bar. MCL 600.904; MSA 27A.904.
As such, this proceeding is more in the nature of a rule-making proceeding than a lawsuit; what character it has as a lawsuit is the result of this Court’s action in appointing a judge to conduct a hearing and make findings of fact.
Since this is not a lawsuit, or even an action whose procedure is delineated by statute, court rule or precedent, it is inappropriate to limit our consideration of the issues presented in this proceeding according to the rules circumscribing lawsuits. To determine the scope or content of an order regulating the bar according to burdens of proof or inadequate showings in the record we ordered would be to treat this proceeding as the lawsuit it clearly is not.
Railway Employes’ Dep’t v Hanson, 351 US 225; 76 S Ct 714; 100 L Ed 1112 (1956).
International Ass’n of Machinists v Street, 367 US 740; 81 S Ct 1784; 6 L Ed 2d 1141 (1961).
Lathrop v Donohue, 367 US 820; 81 S Ct 1826; 6 L Ed 2d 1191 (1961).
Abood v Detroit Board of Education, 431 US 209; 97 S Ct 1782; 52 L Ed 2d 261 (1977).
The Court in Abood observed, as to the collection of dues to support collective-bargaining activities:
"To compel employees financially to support their collective-bar gaining representative has an impact upon their First Amendment interests. An employee may very well have ideological objections to a wide variety of activities undertaken by the union in its role as exclusive representative. His moral or religious views about the desirability of abortion may not square with the union’s policy in negotiating a medical benefits plan. One individual might disagree with a union policy of negotiating limits on the right to strike, believing that to be the road to serfdom for the working class, while another might have economic or political objections to unionism itself. An employee might object to the union’s wage policy because it violates guidelines designed to limit inflation, or might object to the union’s seeking a clause in the collective-bargaining agreement proscribing racial discrimination. The examples could be multiplied. To be required to help finance the union as a collective-bargaining agent might well be thought, therefore, to interfere in some way with an employee’s freedom to associate for the advancement of ideas, or to refrain from doing so, as he sees fit. But the judgment clearly made in Hanson and Street is that such interference as exists is constitutionally justified by the legislative assessment of the important contribution of the union shop to the system of labor relations established by Congress.” Abood, supra, p 222.
The Court further observed, as to dues collected for purposes other than collective bargaining:
"Our decisions establish with unmistakable clarity that the freedom of an individual to associate for the purpose of advancing beliefs and ideas is protected by the First and Fourteenth Amendments. * * * Equally clear is the proposition that a government may not require an individual to relinquish rights guaranteed him by the First Amendment as a condition of public employment. * * * The appellants argue that they fall within the protection of these cases because they have been prohibited, not from actively associating, but rather from refusing to associate. They specifically argue that they may constitutionally prevent the Union’s spending a part of their required service fees to contribute to political candidates and to express political views unrelated to its duties as exclusive bargaining representative. We have concluded that this argument is a meritorious one.
“One of the principles underlying the Court’s decision in Buckley v Valeo, 424 US 1 [96 S Ct 612; 46 L Ed 2d 659 (1976)], was that contributing to an organization for the purpose of spreading a political message is protected by the First Amendment. Because '[m]aking a contribution * * * enables like-minded persons to pool their resources in furtherance of common political goals,’ id., at 22, the Court reasoned that limitations upon the freedom to contribute 'implicate fundamental First Amendment interests,’ id., at 23.
"The fact that the appellants are compelled to make, rather than prohibited from making, contributions for political purposes works no less an infringement of their constitutional rights. For at the heart of the First Amendment is the notion that an individual should be free to believe as he will, and that in a free society one’s beliefs should be shaped by his mind and his conscience rather than coerced by the State. * * * And the freedom of belief is no incidental or secondary aspect of the First Amendment’s protections:
" 'If there is any fixed star in our constitutional constellation, it is that no official, high or petty, can prescribe what shall be orthodox in politics, nationalism, religion, or other matters of opinion or force citizens to confess by word or act their faith therein.’ West Virginia Bd of Ed v Barnette, 319 US 624, 642 [63 S Ct 1178; 87 L Ed 1628 (1943)].
"These principles prohibit a State from compelling any individual to affirm his belief in God, * * * or to associate with a political party * * * as a condition of retaining public employment. They are no less applicable to the case at bar, and they thus prohibit the appellees from requiring any of the appellants to contribute to the support of an ideological cause he may oppose as a condition of holding a job as a public school teacher.” Abood, supra, pp 233-235.
The Court in Abood stated:
“We do not hold that a union cannot constitutionally spend funds for the expression of political views, on behalf of political candidates, or toward the advancement of other ideological causes not germane to its duties as collective-bargaining representative. Rather, the Constitution requires only that such expenditures be financed from charges, dues or assessments paid by employees who do not object to advancing those ideas and who are not coerced into doing so against their will by the threat of loss of governmental employment.” Abood, supra, 235-236. (Emphasis supplied.)
Where the intrusive limitation on association directly affects the First Amendment right of expression (here political expression), as where a statute precludes voting in one party’s primary within 23 months after voting in another party’s primary, Kusper v Pontikes, 414 US 51, 58-59; 94 S Ct 303; 38 L Ed 2d 260 (1973), or where not belonging to a particular political party results in discharge from a government job, Elrod v Burns, 427 US 347, 363; 96 S Ct 2673; 49 L Ed 2d 547 (1976) (plurality), the Court has adopted the strict, "least intrusive means” test. For example, in concluding that the Illinois Election Code violated the First Amendment by prohibiting a person from voting in a primary election of a political party if that person had voted in another party’s primary within the previous 23 months, Justice Stewart described when and how the least intrusive means test applies:
"[A] significant encroachment upon associational freedom cannot be justified upon a mere showing of a legitimate state interest. * * * For even when pursuing a legitimate interest, a State may not choose means that unnecessarily restrict constitutionally protected liberty. * * * If the State has open to it a less drastic way of satisfying its legitimate interests, it may not choose a legislative scheme that broadly stifles the exercise of fundamental personal liberties.” Kusper, supra, pp 58-59.
In contrast, where the intrusive limitation on association indirectly affects the First Amendment right of expression, as where employees, though free to express their own views without limitation, are required to pay dues to a union which may hold views different from the employees, Abood, supra, pp 225-226, the Supreme Court may have adopted the less restrictive "germane” test.
While the Court in Abood recognized that compulsory support of collective bargaining activities had an "impact” on First Amendment "interests”, and that such support "might well be thought * * * to interfere in some way with an employee’s freedom to associate”, Abood, supra, p 222, the opinion may be read by some as concluding that strict scrutiny was not appropriate to assess that interference. The Court relied on the analysis in Hanson and Street, saying "the judgment clearly made in Hanson and Street is that such interference as exists is constitutionally justified by the legislative assessment of the important contribution of the union shop to the system of labor relations established by Congress”. Id.
Both Hanson and Street dealt summarily with the First Amendment issues posed by mandatory dues, initiation fees and assessments for collective bargaining activities. Finding that the congressional provision for union shops was a permissible exercise of the power to regulate interstate commerce, the Court in both cases found that requiring " 'support of the collective-bargaining agency by all who receive the benefits of its work * * * does not violate either the First or the Fifth Amendments’ ”, As expressed by Justice Douglas, the author of Hanson, concurring in Street:
"We * * * concluded in * * * Hanson * * * that it was permissible for the legislature to require all who gain from collective bargaining to contribute to its cost. That is the narrow and precise holding of the Hanson case * * *."
Collective bargaining is an effort primarily aimed at furthering the economic or commercial interests of a union’s membership. The commercial nature of conduct claimed to be constitutionally protected has sometime led the Court to adopt a lower standard of protection than is accorded non-commercial activities. Similarly, compelled association and support in furtherance of commercial activities, as distinguished from ideological activities, might be considered by the United States Supreme Court to be less intrusive on First Amendment rights. See, e.g., In re Primus, 436 US 412, 437-438, and fn 32; 98 S Ct 1893; 56 L Ed 2d 417 (1978), distinguishing Ohralik v Ohio State Bar Ass’n, 436 US 447; 98 S Ct 1912; 56 L Ed 2d 444 (1978), and the solicitation of clients for expressive as opposed to commercial purposes:
"Normally the purpose or motive of the speaker is not central to First Amendment protection, but it does bear on the distinction between conduct that is 'an associational aspect of "expression” ’ * ** * and other activity subject to plenary regulation by government. * * * As shown above, appellant’s speech — as part of associational activity — was expression intended to advance 'beliefs and ideas.’ In Ohralik * * *, the lawyer was not engaged in associational activity for the advancement of beliefs and ideas; his purpose was the advancement of his own commercial interests. The line, based in part on the motive of the speaker and the character of the expressive activity, will not always be easy to draw * * *, but that is no reason for avoiding the undertaking.”
It should be noted, however, that the Court in Abood said that "[njothing in the First Amendment or our cases discussing its meaning makes the question whether the adjective 'political’ can properly be attached to those beliefs the critical constitutional inquiry”. Abood, supra, p 232.
Assuming that the State Bar may, without contravening First Amendment rights, engage in activity designed to promote the economic interests of its members, it should be noted that any group similar in size and variety of membership to that of the bar may be expected to face difficult questions when allocating resources. Activities enhancing the economic opportunities of litigators may not similarly benefit corporate lawyers, for example. Indeed, activities such as lobbying for defeat of motor vehicle no-fault insurance legislation might work to further the interests of personal injury litigators at the expense of other types of litigators by committing limited judicial resources to motor vehicle tort actions, thereby increasing delays and other disincentives to the bringing of other types of actions. Such conflicts, and the requirement that members contribute to an association which may, therefore, undercut their self-interests, may not be adequately ameliorated by the democratic process within the bar.
340 Mich xxxviii (1954).
Selections from the record illustrate the bar’s tendency to blur the interests of attorneys qua attorneys with the general public interest. Unless noted, all questions were posed by counsel for the bar; all answers are those of the Executive Director of the bar.
As to the lobbying activity of the bar:
"Q. Mr. Franck, is it not fair to say that given the complexities of society today, given the increasing participation of governmental agencies in the life of our society, that for any group, let alone a formally organized group of lawyers, to function, that there must be constant contact with government at every level by that organization?
"A. Yes. And then of course it’s particularly true, in my judgment, of the legal profession since its function and contribution to society is to deal with the law and the law, obviously, is the function of the three branches of government. So it is almost by definition that the profession can carry out those functions assigned to it by society only by involving itself in the governmental process which creates the law with which the profession deals.
"Q. Ergo the bar must lobby?
"A. Yes, sir.”
As to the distinction between bar lobbyists and other lobbyists:
"Q. (Mr. Falk): The question was: Doesn’t a lobbyist for the UAW have an interest in labor. * * *
”[A] I’m sure he does, but he is paid to produce a certain result and therein lies a tremendous distinction between any activity the State Bar has with members of the Legislature.
"Q. (Mr. Falk): Doesn’t the State Bar attempt to get legislation favorable to the legal profession as it views it?
'A. To the legal profession, but — and the judiciary, but more important to the public because our profession, as we all recognize, the bottom line is to better serve the public. That’s what it’s all about.
"Q. [Mr. Falk]: Is what constitutes service to the public judgmental or objective?
"A. Well, I suppose that what you think is service to the public may be different than what I think, but it is the collective judgment of the State Bar.”
As to the political activities, in general, of the bar:
”Q. Why are those activities related to the life of the organized bar?
"A. Because the life of the profession is to work through law, whether that law is specific statute, court rule, municipal regulation, and that is where the profession works; that is where its expertise and where its ability to contribute to the public’s understanding and development and welfare lies. So those are the areas in which the profession works and the organization of the profession works in those areas as an organization.”
As to the types of legislation of interest to the bar:
"A. [W]e are now increasingly both choosing to involve ourselves with non-lawyer organizations in the consideration of issues involving substantial elements of public policy and by contrast from the other side major representatives of non-lawyer organizations, consumer organizations, union organizations and organizations of that kind are seeking out the State Bar in the consideration of problems of major public concern and seeking development of appropriate solutions to those problems.
"Q. Are these issues germane to the life of the State Bar?
"A. Yes, sir. They involve facets of the administration of justice.
”Q. In your opinion, Mr. Franck, are they germane to the life of the profession of law in this state?
"A. Yes, sir.
"Q. Why?
"A. Because they all affect the contribution of the profession to the evolution and existence of the society in which we live and those unique aspects of societal problems that the law and profession of the law concern themselves with.”
"A. * * * The entire public skepticism about institutions, about laws, about the obligations of government, has, as we all know, increased dramatically. That has had tremendous ramifications in terms of proposed legislation, areas that are now fair game for legislative intervention so that that has to be considered, for the courts’ rule-making powers have increased tremendously and the bar is almost a unique institution, for example, in terms of legislative process, whereas almost every other organization which has a membership component is interested in a very limited number of bills each session. For example,, namely only those that affect membership. Most legislation does not directly affect lawyers as members of the State Bar of Michigan, but it does affect lawyers and their clients and their lives, and therefore, compared to other organizations we have an interest in almost every bill that is introduced over in the Legislature.
"Q. Now, is that interest in behalf of the profession or is that interest on behalf of the public, in fulfillment of the profession’s judiciary responsibilities or a combination of both?
"A. It is—
"Q. Characterize it.
"A. It is really a combination of both. The viewpoint of the lawyers on public questions is very much shaped, obviously, by whom they represent, but in that reflection is the views and the concerns and indeed the experience of their clientele and those persons in the public that they represent. And of course another thing that is unique about the profession is that there are lawyers on every issue who reflect every shade of opinion, every portion of the public that would be affected by proposed legislation, indeed has an interest or viewpoint on proposed legislation.” | [
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Per Curiam.
Effective March 29, 1974, we adopted a new GCR 1963, 785.13:
"Providing Indigent Defendants with Facsimile Copies of Documents and Transcripts for Post-Conviction Proceedings. Without regard to whether an indigent defendant convicted of a crime has exercised his right of appeal or his right to appellate counsel or whether his conviction has or has not been reviewed or affirmed by the Court of Appeals or the Supreme Court, if defendant makes a request of the court which pronounced sentence for specific documents or transcripts or both which have been theretofore filed with that court, said request being in writing and indicating such materials are required to pursue post-conviction remedies, whether in state or Federal court, the clerk of the court which pronounced sentence shall provide the defendant with facsimile copies of such specific documents or transcripts or both without cost to him; this subrule applies to all criminal cases in which sentence has been heretofore or is hereafter pronounced.”
Ronald Larkin was convicted of a felony in Kent Circuit Court in 1974. His request for certain documents and transcripts was denied by the circuit judge because an attorney, acting under court appointment, was then representing defendant in post-conviction proceedings. In fact, Larkin’s appeal of right remains pending in the Court of Appeals. Larkin filed a complaint for superintending control in the Court of Appeals, asking that the judge be directed to order the county clerk to forward facsimile copies, as requested under sub-rule 785.13. The Court of Appeals responded favorably, and said: "Defendant [judge] is advised that the fact that plaintiff has had appellate counsel appointed for him is not grounds for denial of facsimile copies.”
Michael E. Panko similarly had an appointed attorney pursuing an appeal of right in his behalf, when the Saginaw county clerk denied his request for copies of court records with the explanation that subrule 785.13 was limited to pro per indigent defendants. Since the State Court Administrator shared that opinion, Panko filed a complaint for mandamus in this Court, naming the State Court Administrator as defendant and requesting an order directing him to notify the courts that all requests by indigent defendants under subrule 785.13 must be honored.
While the introductory clause of subrule 785.13 may be read to require that facsimile copies be furnished without regard to whether an indigent defendant is then represented by counsel, that was not our intent.
We hold that the introductory clause means that an indigent defendant is entitled to facsimile copies to facilitate his pursuit of post-conviction remedies:
(1) if he is represented by counsel on appeal, only after his appeal of right has been concluded; or
(2) upon failure to exercise his appeal as of right or right to assigned counsel.
In lieu of leave to appeal, pursuant to GCR 1963, 853.2(4), we reverse the order of the Court of Appeals and dismiss Larkin’s complaint for superintending control. Panko’s complaint for mandamus is denied.
Kavanagh, C. J., and Williams, Levin, Coleman, Fitzgerald, Lindemer, and Ryan, JJ., concurred. | [
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Fitzgerald, J.
The issues on appeal are whether the circuit court of the county of a taxpayer’s residence has jurisdiction to entertain an action alleging that property has been illegally, seized pursuant to the state jeopardy assessment procedures and, if so, what relief is obtainable by the taxpayer.
Í
On March 8, 1972, the Michigan Department of Treasury prepared jeopardy tax assessments and a warrant of levy in the amount of $12,985.82 against plaintiffs. The jeopardy assessments and warrant of levy were issued under the authority of the Use Tax Act and the Income Tax Act. The jeopardy assessments claimed taxes due for the completed tax years 1967 through 1971 and additionally listed taxes due for the then-current 1972 taxable period.
On March 9, the warrant of levy was served on four banks thought by the Treasury to hold plaintiffs’ funds and on the Detroit Police Department, then in possession of $2,560 which it had seized pursuant to a search warrant. As a result of the levy, Treasury acquired possession of $5,045.86. On March 11, the notices of assessment were sent by certified mail to plaintiffs.
On June 5, 1972, plaintiffs commenced an action in the Wayne Circuit Court requesting that Treasury be ordered to show cause why the confiscated funds should not be returned. In response, Treasury moved for accelerated judgment on the grounds that the circuit court lacked jurisdiction over the subject matter of the complaint.
On November 21, 1972, the circuit judge ruled that the circuit court possessed jurisdiction and issued a written opinion denying Treasury’s motion for accelerated judgment. The court ordered the funds returned based on its finding that defendants had not followed the statutory requirements and therefore had violated plaintiffs’ right to due process of law.
The Court of Appeals reversed at 49 Mich App 599; 212 NW2d 235 (1973), holding that plaintiffs had failed to exhaust their administrative remedies and that the Wayne Circuit Court had no jurisdiction, absent an unconstitutional statute. We reverse the Court of Appeals and remand this matter to the circuit court for further proceedings.
II
Normally, it is only after notice to the taxpayer and an opportunity for a departmental hearing that deficiencies, interest and penalties may be collected.* The jeopardy assessment procedure, however, permits simultaneous demand for taxes claimed owing and seizure of the taxpayer’s property to satisfy this demand. While the language of the jeopardy provisions of the Use Tax Act and the Income Tax Act vary slightly, the procedures are essentially the same. Treasury may make a finding that collection of taxes is in jeopardy due to some act of the taxpayer. The taxpayer is given notice of this finding and a demand for payment is made either personally or by certified mail addressed to the last known address of the taxpayer. Simultaneous with the mailing of notice and demand, a warrant may immediately issue for seizure of the taxpayer’s property. The statutes do not provide for any prompt post-seizure hearing to determine whether the assessment for taxes owing has any basis in fact. 6There is no provision for taxpayer challenge of the departmental finding that an act tending to jeopardize collection has been or is about to be committed. Yet, it is this determination of jeopardy which sets into motion the extraordinary procedure permitting simultaneous demand and seizure. The potential for abuse or for injury due to mistake is obvious.
The statutes do permit the taxpayer to present evidence to the department that there is no default in the payment of any tax and that any tax found due will be paid. MCLA 206.423(2) refers to regulations to be promulgated by the department governing procedure by which the taxpayer might give such security. No such regulations have come forth from the department to date.
Ill
Because of the statutory deficiencies above noted, we disagree with the Court of Appeals which held that the Wayne Circuit Court had no jurisdiction of this matter because review had "otherwise been provided for by law”. The statutes make no provision for a prompt post-seizure hearing into the factual basis for the assessment. Absent such a provision, the circuit court of the county of the residence of the taxpayer provides a logical forum for such a hearing. As will be dis cussed, infra, the only issues before the circuit court are whether irreparable injury exists and whether the assessment has a basis in fact. Assuming that seizure has injured a taxpayer in a way that could not be adequately remedied by a judgment in a refund suit, and assuming that there is no basis in fact for the assessment, it seems to us fair that the taxpayer not be required to pursue his property — seized with perfunctory notice and without hearing — beyond the county of his residence. The Legislature is free to provide otherwise by law for a prompt post-seizure hearing.
IV
The United States Supreme Court has most recently dealt with the question of procedure under the Internal Revenue Code in the context of jeopardy terminations and assessments. In Laing v United States, 423 US 161; 96 S Ct 473; 46 L Ed 2d 416 (1976), the Court construed the relevant statutes in such a way as to make the procedures for assessment and collection of jeopardy deficiencies under 26 USC 6861 et seq. applicable when assessing and collecting unreported tax due after a jeopardy termination under 26 USC 6851(a)(1). The procedural safeguards found necessary were: (1) taxpayer access to the Tax Court within 60 days of the jeopardy assessment; (2) taxpayer ability to stay collection of the amount assessed by posting an equivalent bond; and (3) prohibition on sale of any property seized pending final determination of the deficiency by the Tax Court. It is clear that such a statutory construction in Laing made decision as to the constitutionality of § 6851 absent such procedural safeguards unnecessary. Furthermore, in footnote 26 the Court posed but expressly did not answer the question of whether even these safeguards would be constitutionally adequate without the additional protection of a "prompt post-assessment hearing”:
"The taxpayers do not question here, and we do not consider whether, even if the jeopardy assessment procedures of § 6861 et seq. are followed, due process demands that the taxpayer in a jeopardy assessment situation be afforded a prompt post-assessment hearing at which the Government must make some preliminary showing in support of the assessment. See North Georgia Finishing, Inc v Di-Chem, Inc, 419 US 601, 607 [95 S Ct 719; 42 L Ed 2d 751] (1975); Mitchell v W T Grant Co, 416 US 600, 610-611 [94 S Ct 1895; 40 L Ed 2d 406] (1974); Fuentes v Shevin, 407 US 67, 72 [92 S Ct 1983; 32 L Ed 2d 556] (1972).”
See, also, the concurring opinion by Justice Brennan, 423 US 161 at 185-188.
The issue of whether some opportunity for a prompt post-seizure hearing is required was addressed in Commissioner of Internal Revenue v Shapiro, 424 US 614; 96 S Ct 1062; 47 L Ed 2d 278 (1976). The precise question there involved was the scope of the Internal Revenue Code’s Anti-Injunction Act, 26 USC 7421(a), in the context of a summary seizure of a taxpayer’s assets pursuant to a jeopardy assessment. Looking to Enochs v Williams Packing & Navigation Co, Inc, 370 US 1; 82 S Ct 1125; 8 L Ed 2d 292 (1962), and its judicially created exception to the anti-injunction provision of the code, the Court held in Shapiro that a taxpayer may obtain injunctive relief against collection upon a finding by the trial court that (1) a taxpayer’s remedy in a refund suit is "inadequate to repair any injury that might be caused by an erroneous assessment or collection of an asserted tax liability”, and that (2) the tax assessment has no basis in fact. Resolution of the question of whether the assessment has a basis in fact will depend upon disclosure by the government of the information available to it at the time of suit. Disclosure may be made by affidavits "so long as they disclose basic facts from which it appears that the Government may prevail”. If however the facts do not disclose probable cause to support the assessment, and equity jurisdiction otherwise exists, an injunction may issue in spite of the statute.
Although the Court in Shapiro did not base its holding on the Fifth Amendment, but rather on the Williams Packing exception to the Anti-Injunction Act, it was clear that its standard was "at least as favorable to the taxpayer as that required by the Constitution”. In rejecting the government’s claim that the district court was without jurisdiction to grant the injunctive relief requested, the Court said:
"[C]onstruing the Act to permit the Government to seize and hold property on the mere good-faith allegation of an unpaid tax would raise serious constitutional problems in cases, such as this one, where it is asserted that seizure of assets pursuant to a jeopardy assessment is causing irreparable injury. This Court has recently and repeatedly held that, at least where irreparable injury may result from a deprivation of property pending final adjudication of the rights of the parties, the Due Process Clause requires that the party whose property is taken be given an opportunity for some kind of predeprivation or prompt post-deprivation hearing at which some showing of the probable validity of the deprivation must be made. Here the Government seized respondent’s property and contends that it has absolutely no obligation to prove that the seizure has any basis in fact no matter how severe or irreparable the injury to the taxpayer and no matter how inadequate his eventual remedy in the Tax Court.”
The result of the Laing-Shapiro decisions in the context of Federal jeopardy assessments is that the taxpayer’s property cannot be sold pending a judicial determination of the legality of the assessment and, because an injunction restraining collection may issue upon a finding of irreparable injury and lack of factual basis for the assessment, the taxpayer has a judicial forum for a prompt post-seizure hearing.
V
A statute prohibits the issuance of injunctions "to stay proceedings for the assessment and collection of any tax levied under” the Income Tax Act. Another statute prohibits the maintenance of an action for replevin of "any property taken by virtue of any warrant for the collection of any tax * * * in pursuance of any statute of this state”. Following the reasoning of Shapiro, and because of the unique nature of summary seizures, we find that the state cannot lay valid claim to acting "under” or "pursuant to” statute if it is determined that there is no factual basis for the assessment. Accordingly, if the circuit court makes such a finding in favor of the taxpayer and equity jurisdiction otherwise exists, the court may enter an appropriate order for the return of the seized property.
VI
The circuit court determined that plaintiffs had been denied due process of law because Treasury, contrary to the procedure set forth in the statutes, seized plaintiffs’ property prior to notice by certified mail of the finding of jeopardy and prior to demand for immediate return and payment of the tax. However, it is clear that when plaintiffs filed their action on June 5, 1972, the levies were in technical compliance with the statute. Therefore, the issues more appropriately before the court on remand are whether plaintiffs’ remedy in a refund suit is adequate and whether the tax assessment has a basis in fact. An affirmative finding on either issue will result in a dismissal of plaintiffs’ suit. Plaintiffs have the burden of pleading and ultimately proving that a refund suit is an inadequate remedy. So also is it their burden of proving that the assessment lacked a factual basis — judged according to the information available to Treasury at the time of suit. The relevant facts in Treasury’s possession must be made available to plaintiffs either through voluntary disclosure or discovery. Disclosure in the form of affidavits is sufficient, the question being whether they demonstrate probable cause to support the assessment.
The Court of Appeals is reversed, and the matter remanded to the circuit court for proceedings not inconsistent with this opinion. Costs to abide the outcome.
Kavanagh, C. J., and Williams and Levin, JJ., concurred with Fitzgerald, J.
Lindemer and Ryan, JJ., took no part in the decision of this case.
Coleman, J.
(to affirm). Plaintiffs filed an action in replevin and seek a return of funds held by the Department of Treasury. Although I am sympathetic with the results reached by the majority, I cannot agree with the chosen route. I would affirm the Court of Appeals. Plaintiffs did not exhaust their statutory remedies nor did they state a claim which warranted the early circuit court intervention.
On March 3, 1972, the Detroit police seized funds from a safety deposit box belonging to plaintiffs. The Department of Treasury made a jeopardy tax assessment on March 8. The following day pursuant to tax warrants issued with the assessments, the department seized some of the money held by the police. Notice was mailed to plaintiffs on March 11.
Plaintiffs filed a complaint in Wayne County Circuit Court on June 5, 1972, claiming that "the alleged jeopardy assessment by the Michigan Department of Treasury is both unjust and incorrect”. They sought a return of the funds. The Department of Treasury moved for accelerated judgment claiming that the circuit court lacked jurisdiction of the subject matter.
In an opinion filed November 21, 1972, the circuit court found:
" * * * that the legal procedure for the state to collect or receive and hold property has not been followed; i.e., the department had not determined the amount of tax due from the taxpayer. Further, the taxpayer was never notified of the state’s intent to levy or determine a taxable amount. This court feels that notice is absolutely required, and the lack of such notice is a fatal defect in the proceedings by the state.”
Thus, "the procedural due process of laws due the petitioners” was found violated. The money was ordered returned.
The Court of Appeals reversed on September 25, 1973. It found the circuit court was not a proper forum since the complaint did not claim that the statute was unconstitutional on its face. The Court noted that the parties conceded "the Michigan statutes authorizing tax warrants are not unconstitutional”. The Court held "that the plaintiffs failed to exhaust their administrative remedies under the available statutes”.
The department acted in this case under the jeopardy assessment provisions of the Income Tax Act and the Use Tax Act. The former is MCLA 206.423(2); MSA 7.557(1423X2), which reads in part:
"If the department finds that a person liable for tax under any provisions of this act designs quickly to depart from the state or to remove his property therefrom, or to conceal himself or his property herein, or to do any other act tending to prejudice or to render wholly or partly ineffectual proceedings to collect the tax unless the proceedings are brought without delay, the department shall give notice of such findings to the person, together with a demand for an immediate return and immediate payment of the tax. Warrant may issue immediately upon issuance of a jeopardy assessment. Thereupon, the tax shall become immediately due and payable.”
The use tax provision is almost identical. See MCLA 205.110;'MSA 7.555(10).
The Income Tax Act provides that any taxpayer "aggrieved by any determination of tax liability made by the department may appeal to the State Board of Tax Appeals * * * or, after payment, * * * may bring an action” in the Ingham Circuit Court. MCLA 206.421(3); MSA 7.557(1421X3). The Use Tax Act does not have such a provision. However, MCLA 205.7; MSA 7.657(7) states a person "aggrieved by any assessment, decision or order of the department of revenue may pursue any appropriate procedure provided by law for the judicial review of the issues involved or have an appeal * * * to the state board of tax appeals”.
In Judges of the 74th Judicial Dist v Bay County, 385 Mich 710, 727, 728; 190 NW2d 219 (1971), it was said "the theory of administrative law dictates that courts move very cautiously when called upon to interfere with the assumption of jurisdiction by an administrative agency”. There are also practical considerations. Administrative agencies handle matters "often technical in nature, and closely related to the carrying out of some statutorily defined public policy”. The agencies have "technical fact-finding expertise”. Judicial restraint permits utilization of this expertise "while minimizing the burden on court resources”. Such considerations result in a policy "by which the courts have declined to act in contravention of administrative agencies where the remedies available through administrative channels have not been pursued to completion”.
Courts will not interfere with the administrative process when the agency is authorized to decide the question presented. See Hippensteel v System Federation No 9, 337 Mich 251; 59 NW2d 278 (1953), and Cicotte v Damron, 345 Mich 528; 77 NW2d 139 (1956). The plaintiffs in French v Ingham County, 342 Mich 690, 697, 698, 700; 71 NW2d 244 (1955) challenged certain annexation petitions. The courts said the statutes "clearly indicate that the legislature intended to vest the board of supervisors with the authority to pass on the legality and sufficiency of annexation petitions”. The Court stated:
"[T]he question presented here is whether a court of equity should interfere to prevent the defendant board of supervisors from performing the duty expressly vested in it by statute. It may not be assumed that a proper conclusion will not be reached on the question as to whether the petitions comply with the home-rule act. We have repeatedly recognized that there shall be no judicial usurpation of the functions of administrative bodies. Goodfellow v Detroit Civil Service Commission, 312 Mich 226, 232 [20 NW2d 170 (1945)]; Purdie v Detroit Police Department Trial Board, 318 Mich 430 [28 NW2d 283 (1947)].”
The Court affirmed the trial court’s refusal "to prevent the defendant board of supervisors from performing the duty resting on it under the statute”.
However, it is recognized that the Court’s reluctance to interfere with administrative procedures can be properly overcome. The plaintiff in Diggs v State Board of Embalmers & Funeral Directors, 321 Mich 508, 514, 518; 32 NW2d 728 (1948), had his license revoked. The statute provided an appeal process. Plaintiff chose another route claiming that the statute under which the board acted was unconstitutional. The board’s motion to dismiss this claim was denied.
In affirming, the Court noted that it had "repeatedly held that in cases where an irreparable injury will result from the acts of public officials in attempting to proceed under an invalid law” courts could fashion injunctive relief and determine the statute’s constitutionality. The Court stated:
"[T]he appeal provided for by the statute that plaintiff attacks may not be said to afford him an adequate remedy. It is by its terms limited to a review of the orders and procedure of the board under the statute. Obviously it was not intended by the legislature in its enactment that it should furnish a means of challenging the constitutionality of the entire statute.”
Also see Long v Highland Park, 329 Mich 146; 45 NW2d 10 (1950), where plaintiff challenged the constitutionality of a zoning ordinance. The Court said the administrative process did not have to be followed. Plaintiffs did not want a building permit and the zoning authorities could not determine the constitutionality of the ordinance.
In Hardy v State Personnel Director, 392 Mich 1; 219 NW2d 61 (1974), the plaintiff sought an injunction against the transfer he claimed was "unconstitutional, illegal and amounted to a demotion without just cause”. The circuit court issued a temporary injunction, retained jurisdiction and remanded the case to the Department of Civil Service for a hearing to determine if the transfer was a demotion.
In footnote 1 of the opinion, the remand was supported:
"Appellant has not persuaded us that he came within an exception to the exhaustion doctrine. His 'constitutional’ challenge to his transfer was not of the type that warranted immediate court review. Appellant did not challenge the basic constitutionality of the Commission’s authority. Rather he primarily raised a fact question that was within the competency of the agency to determine in the first instance. The rights of appellant were adequately safeguarded by court review after the administrative fact-finding. See generally, Crampton and Holmes, ed, The New Michigan Administrative Procedures Act Court Handbook, 172-177 (1970); Crampton, The Doctrine of Exhaustion of Administrative Remedies in Michigan, 44 Mich State Bar J 10 (July, 1965); Davis, Administrative Law, 382-389 (1972).”
The note also said plaintiff had not shown "sufficient evidence of prejudgment on the part of the Civil Service Commission to allow him to immediately proceed to circuit court”.
It is improbable that the Legislature intended failure to follow a statutory procedure to be good cause to trigger bypass of the administrative appeals provided. The agency should have an opportunity to correct its own mistakes through administrative appeal procedures prior to recourse to the courts.
Also, the statutory route allows issues to be defined and facts to be distilled so that they relate to those issues. Most cases are satisfactorily concluded in this manner. The remainder are made ripe for judicial consideration.
The plaintiffs in the case at bar filed a complaint alleging that the jeopardy assessment is "both unjust and incorrect”. There was no claim that the statute was unconstitutional. There was no claim that the statutory procedures as they fell upon plaintiffs were unconstitutional. Treasury had not followed the statute. Plaintiffs’ sole request was for the return of the money.
The Income Tax Act provides an appeal process for taxpayers "aggrieved by any determination of tax liability made by the department”. For actions under the Use Tax Act taxpayers "may pursue any appropriate procedure provided by law for the judicial review of the issues involved or have an appeal * * * to the state board of tax appeals”. The cases discussed above indicate that plaintiffs should exhaust the administrative procedures before there is a "judicial review of the issues involved”, especially since their claim did not involve constitutional questions. Compare Diggs and Long.
In this day of courts inundated by litigation, it is especially important to remember that, in addition to doing, courts have the ability not to do, or not to act until a case for judicial appraisal is well formed.
I would affirm the Court of Appeals.
MCLA 205.110; MSA 7.555(20).
MCLA 206.423(2); MSA 7.557(1423X2).
MCLA 205.101; MSA 7.555(11) (Use Tax). MCLA 206.421(2); MSA 7.557(1421X2) (Income Tax).
MCLA 205.100; MSA 7.555(10) (Use Tax). MCLA 206.422(1); MSA 7.557(1422X1) (Income Tax).
The hearings provided under MCLA 205.101 and 206.421(2) do not apply because under these sections the tax is levied upon written decision of the department following the hearing. Pursuant to MCLA 205.7; MSA 7.657(7), the taxpayer may appeal to the State Board of Tax Appeals and is entitled to a hearing within 60 days of the filing of Treasury’s answer to the taxpayer’s statement of appeal. However, even if the board were to comply in every instance with the timetable set forth in the statute (see Sears v Department of Treasury, 57 Mich App 218; 226 NW2d 63 [1974]), a decision might not be forthcoming until the 95th day after the taxpayer had filed his statement of appeal. In the absence of express provisions allowing the taxpayer, upon filing his statement of appeal, to obtain a stay of sale and to obtain possession of the seized property upon posting an equivalent bond, a review procedure entailing up to 95 days before decision is not in our opinion a prompt post-seizure hearing.
MCLA 600.631; MSA 27A.631.
423 US at 184.
424 US at 629.
424 US at 633.
424 US 633.
424 US at 629-630 (footnotes omitted).
MCLA 206.422(2); MSA 7.557(1422X2). See also MCLA 205.72; MSA 7.543 (Sales Tax),
MCLA 600.2920(l)(a); MSA 27A.2920(l)(a).
See fn 7 of Shapiro, 424 US at 622-623, and the Court’s resolution of the parties’ factual dispute as to whether that levy was in conformity with the statute.
49 Mich App 599; 212 NW2d 235 (1973).
The case at bar is an excellent example of a case not ready for judicial deliberation. | [
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Fitzgerald, J.
Plaintiff Joel Tuttle suffered severe injuries in an intersectional collision with a vehicle driven by Loretta Lowe on November 29, 1970. Thereafter, plaintiffs, husband and wife, brought this action in the Court of Claims alleging negligent construction, opening and signing of the intersection by defendant Department of State Highways. It was plaintiffs’ contention that the newly-opened intersection, which was under defendant’s jurisdiction, was not "reasonably safe and fit for travel” by reason of inadequate signali zation. The Court of Claims found that defendant was not negligent and entered a judgment of no cause of action against plaintiffs. The judgment was affirmed by the Court of Appeals which, at 60 Mich App 642, 647-648; 231 NW2d 482 (1975), took an unduly restrictive view of its reviewing function in this non-jury case:
"In order for us to accept plaintiffs premise [that the trial court’s finding of no negligence was against the great weight of the evidence] we would have to substitute our judgment for that of the trial court. This we may not do.”
We reverse the Court of Appeals and the trial court, remanding to the Court of Claims for a determination as to damages. Under GCR 1963, 517.1, an appellate court will set aside the findings of fact of a trial court sitting without a jury when such findings are clearly erroneous. In construing comparable "clearly erroneous” language in Rule 52(a) of the Federal Rules of Civil Procedure, the United States Supreme Court has stated that "[a] finding is 'clearly erroneous’ when although there is evidence to support it, the reviewing court on the entire evidence is left with the definite and firm conviction that a mistake has been committed”. After a review of the entire record of this case, we are left with such a definite and firm conviction. Appropriately, the "judicial sieve” with which we have sifted the evidence in this non-jury case is "of finer mesh than the one correspondingly employed on review” of a jury’s verdict.
The collision occurred at approximately 6 p.m. on November 29, 1970 at the intersection of M-43 (Gull Road) and Sprinkle Road in Comstock Township, Kalamazoo County, Michigan. Central to the resolution of this case are the circumstances surrounding the construction, opening and signing of this intersecting stretch of Sprinkle Road. Sprinkle Road is a five-lane, semi-limited access arterial road running north from highway 1-94, east of the City of Kalamazoo. The first section, between 1-94 and East Main Street, was opened for travel in 1968 by the County Road Commission. Prior to its opening, traffic signals were installed at all five major intersections on Sprinkle, and speed limits were set at 55 miles per hour.
In 1969 and 1970, Sprinkle Road was extended north from Main Street across highway M-43 to G Avenue. It was this intersection that was opened on November 19, 1970, some ten days prior to the Tuttle-Lowe collision. The five-lane road was 60 feet in width, had a curve design speed of 70 miles per hour, and like its southern portion had day-night speed limits of 55 miles per hour. Banked curves approximately 300 feet to 500 feet north and south of M-43 were designed to provide a right angle intersection with M-43 which is a two-lane, state trunkline, 55-mile-per hour highway running northeast out of the City of Kalamazoo.
Because of the high approach speeds, the existing signalization on the southern portion of Sprinkle Road, the width and curves of the road, and because of the anticipated high volume (8,000 to 10,000 vehicles per day) using Sprinkle across M-43, the Kalamazoo County Road Commission requested more than a year in advance of the opening that defendant consider signalization of the intersection. The county had made its traffic volume estimate based on known traffic counts on M-43, on nearby roads parallel to Sprinkle, and on the southern portion of Sprinkle. The intersection was, however, under defendant’s jurisdiction by virtue of the fact that M-43 is a state trunkline highway. In an October 30, 1969 letter to defendant’s district traffic and safety engineer, the County Road Commission requested as follows:
"In the construction of the new Sprinkle Road extension (East Main to G Avenue), scheduled for the spring of 1970, the Commission feels that the above reference intersection be brought to your attention and consideration given by your department to the following:
"1. That a signalized intersection be established at the corner of Gull Road and Sprinkle Road to control the anticipated high traffic volume.
"2. That turning lanes be established on Gull Road in conjunction with our construction to facilitate traffic flow.” The request for a signal was denied by defendant pending a study of the actual volume of traffic which would use the new intersection.
In February of 1970, more than nine months prior to the opening, the County Road Commission submitted a written application to defendant "[t]o construct an at-grade intersection with existing M-43 with turning lanes as illustrated on the attached plans. This will also include installation of an overhead 2-way flashing stop (12”) on Sprinkle with flashing yellow on M-43.” This application was received by defendant, marked approved, except that the sentence referring to the flashing beacon was stricken, and thereafter returned to the county. Having received the county’s requests for a full signal and thereafter for a flashing beacon, defendant did not at any time request in return that the county justify its concern for the safety of the intersection.
On November 9, 1970, defendant ordered traffic counts to be made at the intersection after opening. These were made on November 24 and 25, and prompted the following memorandum from the supervising engineer of defendant’s electrical service unit:
"The attached signal warrant graph was completed from the manual portion of the survey which was recently received. The twenty-four hour machine counts are not yet available. It appears from a review of the graph that the standard rural signal warrant will be exceeded in a few months since Sprinkle Road now meets the warrant for at least six of the required eight hours and has been open to traffic for only a short length of time.
"As a result, we are approving the installation of traffic signal at the subject intersection. Since approaching traffic speeds on M-43 (Gull) generally exceed forty miles per hour and since Sprinkle Road also exhibits high approach speeds and is five lanes wide, we are recommending that oversize signals be installed. Since a new traffic signal is already scheduled for M-43 (Gull) and Nazareth, located about three quarters of a mile west of the subject intersection, interconnection will be required.”
Meanwhile, the intersection had been opened with but one 36-inch reflectorized Stop Ahead sign and one 36-inch reflectorized Stop sign on each approach on Sprinkle Road to the intersection. Defendant’s trafile and safety engineer testified that approximately one day after opening he began receiving reports of people not stopping and that he therefore drove the intersection at night. Upon inspection, he became concerned as to the noticeability of the signs, and ordered installation of large black and white cross-hatch backboards to be attached behind each Stop Ahead sign. He also ordered the installation of intersection symbol ana name signs on highway M-43. This work order was to be completed by November 27, 1970. All evidence indicates that it was not so completed on November 29, the date of the accident.
On or about November 23, 1970, defendant’s trafile and safety engineer was still concerned about violations of the stop control. He again drove the intersection and issued another work order requiring the installation of eight red and eight yellow battery-operated flashers. Two yellow flashers were to be attached to each of the Stop Ahead signs and the red flashers were to be similarly secured to the Stop signs. Again, the evidence establishes that this work order had not been carried out by the date of the accident.
Paul and Nancy Klomparens witnessed the accident. They had been traveling north on Sprinkle Road toward the M-43 intersection. It was dark. There had been intermittent mist and fog, but there apparently were no visibility problems as they approached the intersection. Mr. Klomparens testified that he was anticipating the new intersection because he wanted to make a right turn on M-43. Nevertheless, he did not see the Stop Ahead sign, and only saw the Stop sign after he had rounded the approach curve and was approximately 50 feet from it. The Klomparenses testified that as they were stopped and preparing to make their turn, they saw the plaintiff’s Volkswagen van traveling northeast on M-43 at approximately 45 miles per hour and saw Mrs. Lowe’s Chevrolet station wagon proceeding south on Sprinkle at approximately the same speed when she entered the intersection without stopping. Both vehicles had their lights on. Neither slowed prior to impact. Mrs. Lowe testified that she did not see any signs on Sprinkle on her approach to the intersection and had no knowledge of it until she collided with plaintiffs vehicle. She testified that her brakes were in working order, and that she had consumed no alcohol or drugs on the day of the accident.
It is defendant’s contention that it was a legitimate exercise of its legislatively granted discretion to choose not to signalize the subject intersection prior to opening. Defendant refers us to the uniform trafile signal control statute and to the Michigan Manual on Uniform Traffic Control Devices which calls for "careful studies made at the location” before installation of full signalization, and to that portion of the manual which says that "it is best to consider installation of the flashing beacon only after lesser control devices have been tried”. We need not reach the question of whether defendant negligently exercised its "discretion” regarding traffic control device installation at the intersection as of the date it was opened. We do predicate clear error in the finding that defendant was not negligent when the undisputed facts show that defendant failed to carry out its own work orders after defendant had determined that the existing stop control was not sufficiently noticeable. One full working week elapsed between the date that defendant itself first determined that additional safeguards were needed and the date of the accident. Furthermore, the undisputed testimony of all witnesses convinces us that defendant’s failure to take those additional safeguards was a proximate cause of plaintiff Joel Tuttle’s injuries.
The Court of Appeals is reversed. Since full trial was had below and there are no claimed erroneous rulings on evidentiary matters, the judgment of the Court of Claims is set aside and the case remanded to that court for further proceedings as to damages only. Plaintiffs may tax their costs.
Kavanagh, C. J., and Williams, Levin, Coleman, Lindemer, and Ryan, JJ., concurred with Fitzgerald, J.
MCLA 691.1402; MSA 3.996(102).
United States v United States Gypsum Co, 333 US 364, 395; 68 S Ct 525, 542; 92 L Ed 746, 766 (1948). See, also, In re Lavacs’ Estate, 16 Mich App 521, 525, fn 4; 168 NW2d 414 (1969).
Schneider v Pomerville, 348 Mich 49, 54-55; 81 NW2d 405 (1957): "Our duty under said Rule 64, the question being duly posed and saved for review, is to sift the evidence for determination whether it clearly preponderates in favor of the appellant’s cause. Necessarily, the judicial sieve will be of finer mesh than the one correspondingly employed here on review of denial of motion for new trial in a jury case. This is as it should be. A jury’s verdict-view of facts is entitled to an even higher degree of appellate respect than is a judge’s verdict-view of the same facts, learned though the judge may be in law. For reasons known well to students of American history, a finding of fact by 'the twelvers’ is more apt to be sound than that of one man. If this be right, our task at bar is bound to be a more difficult one than if the judgment below had been entered on verdict of a jury. When in rare instance a jury’s verdict is judged contrary to overwhelming weight of evidence, the conclusion must be so obvious that verdict-sustaining argument loses all force. On the other hand, when evidence is appraised to determine clear preponderance thereof, forceful argument each way subsists to the last and usually survives final judgment.” (Footnotes omitted.) See, also, Brady v Michigan Consolidated Co, 31 Mich App 498, 499, fn 1; 188 NW2d 58 (1971).
We emphasize that in this case there was little conflict between trial testimony and documents contemporaneous to the events surrounding the accident. Therefore, we do not ignore the command of GCR 1963, 517.1 to give special regard to the opportunity of the trial court to judge the credibility of witnesses who appeared before it. After thorough review of the admittedly cold record, this is a case where we can say without hesitation that mistake was committed below.
MCLA 257.608 etseq.;MSA 9.2308 etseq.
See, however, Mullins v Wayne County, 16 Mich App 365, 380; 168 NW2d 246 (1969), where then-Judge T. G. Kavanagh stated: "When Michigan adopted the uniform traffic signal control statute (MCLA § 257.610 [Stat Ann 1960 Rev § 9.2310]), which authorized the erection of traffic control devices in the discretion of the sign-erecting authority, it did not thereby relieve the road authority of the duty imposed over 75 years ago to construct and keep the road reasonably safe and convenient for public travel. See State v Watson, 7 Ariz App 81; 436 P2d 175 (1968).”
We note that the county authority having jurisdiction of Sprinkle Road above and below the M-43 intersection gave notice to defendant more than a year in advance of its belief that some type of signal was warranted. The county, of course, makes its determinations according to the same manual as does defendant. Furthermore, compliance with the manual does not necessarily satisfy the road authority’s duty to maintain the highways in a condition reasonably safe and fit for travel. Fraley v Flint, 54 Mich App 570; 221 NW2d 394 (1974). | [
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Petitioner’s complaint for mandamus against the State Bar Grievance Board is considered and the same is dismissed for lack of merit in the grounds presented. The motion for production of the report of the Board’s investigator is considered, and the same is denied. | [
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Leave to appeal is considered and, it appearing to this Court that the cases of Turkish v City of Warren (Docket No. 57342) and Zaagman, Inc v City of Kentwood (Docket No. 57225) are presently pending on appeal before this Court and that the decision in those cases may be decisive of an issue raised in the present application for leave to appeal, it is ordered that the present application be held in abeyance pending those cases. | [
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Rehearing denied.
Reported at 410 Mich 531. | [
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Fitzgerald, J.
Charged with assault with intent to commit murder, MCLA 750.83; MSA 28.278, defendant was convicted by a jury of assault with intent to do great bodily harm less than murder. MCLA 750.84; MSA 28.279. He was sentenced to a term of three to ten years in prison. The Court of Appeals affirmed, per curiam. We likewise affirm.
On May 20, 1972, at approximately 8:30 p.m., the Michigan State Police responded to calls reporting a domestic disturbance at defendant’s home. Gunshots had been heard by the caller. Upon arriving, three officers observed defendant, another adult male, and several children inside the house. The children exited upon request. The other male, after a brief discussion with the officer in charge, refused to leave. Defendant could be seen moving back and forth between various rooms carrying a rifle. Defendant was called upon to leave the house, but did not oblige.
Meanwhile, officers from the Roscommon County Sheriffs Department and Township Police arrived. Deputies Roy Anderson and Floyd Fultz went to the rear of the house. Anderson and Fultz testified that they observed an adult male, not the defendant, pointing out the bedroom window at their position. The individual said something. Seconds later, two shots were fired. The officers testified that they felt air disturbance from the first shot and that it narrowly missed them. All who testified were in agreement that the shots were fired from a rifle rather than a shotgun.
John Haveman, defendant’s stepson, testified that he was in the bedroom with defendant, and that he drew defendant’s attention to a shadow outside the window. Defendant turned and fired his rifle through the window. Haveman then departed rapidly from the house with his girlfriend. Of the approximately ten officers who testified at trial, only Walter Bair testified that he observed anyone leave the house shortly aftér the shots were fired. Bair stated that he saw a young man walk away from the building into the crowd.
Defendant was then told by loudspeaker to come out of the house. He appeared in the living room window with a green case from which he removed a shotgun. Shortly thereafter, he emerged from the front door carrying the shotgun, and walked towards the police uttering threats. He was disarmed by the officers, handcuffed, and placed in a patrol car. Several officers were then ordered into the house by Sergeant Hancock. Hancock testified that it was his understanding that there was another male inside the house. There was also a weapon, the rifle from which the shots had been fired, which had not been accounted for. All but one of the officers who entered the house testified that they were looking for weapons and persons, or that they were backing up other officers.
There was no one else in the house. The officers did seize an M-l rifle and spent cartridge from the floor of the rear bedroom. Another spent cartridge was found nearby when an officer dumped out a cardboard box filled with toys.
On the basis of the preliminary examination transcript, defendant moved pretrial to suppress the rifle and spent cartridges. The motion was denied, but the trial court did indicate that the motion could be renewed at trial.
The defense at trial was intoxication. To rebut the defense, the prosecution elicited testimony from two police officers that they had seen defendant in an intoxicated condition on a previous occasion, when he was under arrest for drunk driving. It was their opinion that, on the evening in question, defendant was not intoxicated — although he had been drinking. A third, officer volunteered, in explanation for his actions upon arriving at defendant’s residence, that he had responded to similar calls to the house before, so that he was acquainted with the layout of the house and with defendant. The details of the prior occasions were pursued by defense counsel on cross-examination, and there was no objection to any of the testimony relating to defendant’s prior conduct.
Defendant predicates reversible error on the trial court’s refusal to suppress as evidence the rifle and spent cartridges, and on the basis of the testimony of the police officers relating to prior intoxication. A third issue regarding the jury instruction on voluntary intoxication as it relates to specific intent is controlled by our opinion in People v Rich, 397 Mich 399; 245 NW2d 24 (1976), defendant having been tried previous to the decisional date of People v Crittle, 390 Mich 367; 212 NW2d 196 (1973).
I. The Warrantless Entry
In ruling pretrial on the motion to suppress, the trial judge realized that the crucial question was the officers’ state of mind at the time of the warrantless entry. The validity of that entry depends upon the reasonableness of their response to the situation as perceived by them. The question is whether a reasonable person would have perceived a need to immediately secure the house and missing weapon in order to insure the safety of those outside. In Warden, Maryland Penitentiary v Hayden, 387 US 294, 298; 87 S Ct 1642; 18 L Ed 2d 782 (1967), the United States Supreme Court ruled that under the circumstances of that case the warrantless entry and search of a private residence was a proper response to the exigencies of the situation:
"The police were informed that an armed robbery had taken place, and that the suspect had entered 2111 Cocoa Lane less than five minutes before they reached it. They acted reasonably when they entered the house and began to search for a man of the description they had been given and for weapons which he had used in the robbery or might use against them. The Fourth Amendment does not require police officers to delay in the course of an investigation if to do so would gravely endanger their lives or the lives of others. Speed here was essential, and only a thorough search of the house for persons and weapons could have insured that Hayden was the only man present and that the police had control of all weapons which could be used against them or to effect an escape.”
Defendant’s motion to suppress was based on the examination transcript. However, the testimony at the preliminary examination had focused on the facts surrounding the assault rather than the entry. Sergeant Hancock, who had ordered the entry, was not questioned during the examination as to his reasons. Officer Ross, who had been the first to enter and who had seized the rifle and cartridges, was not cross-examined. The M-l rifle was admitted into evidence without objection. With this state of the examination record, it was within the trial court’s sound discretion to allow renewal at trial of the motion to suppress. Cf. People v Ferguson, 376 Mich 90; 135 NW2d 357 (1965). People v Carroll, 396 Mich 408; 240 NW2d 722 (1976).
It is against the facts as more fully developed at trial that we shall review the propriety of the denial of defendant’s motion. At the moment that defendant emerged from the house carrying a shotgun and uttering threats, the officers present were aware of three things: they had been shot at twice from the inside and narrowly missed; there were at least two individuals inside when the shots were fired; at least one weapon remained unaccounted for. The record does not support the allegation that the officers knew prior to entry that no one was inside. Their response was therefore reasonable given the existing confusion and emergency nature of the circumstances. The case closely parallels the facts of Hopkins v Alabama, 524 F2d 473, 475 (CA 5 1975), wherein the Court reasoned:
"Hopkins argues that the gun seized during the warrantless search of the house is the fruit of an illegal search and should not have been admitted into evidence. Chimel v California, 395 US 752; 89 S Ct 2034; 23 L Ed 2d 685 (1969), clearly limits searches incident to lawful arrest to areas within the immediate control of the arrested person. Chimel found unconstitutional a search which extended beyond the room in which the arrest took place. Vale v Louisiana, 399 US 30; 90 S Ct 1969; 26 L Ed 2d 409 (1970), holds unconstitutional the search of a house as incident to a lawful arrest which occurred outside the house. Both of these cases, however, are distinguishable from the facts presented here. Vale involved a search for narcotics and Chimel for evidence relating to the burglary of a coin shop. Neither case presented the exigent circumstances and fact setting shown in this case. While Hopkins was arrested outside the house his presence there was the direct result of tear gas fired into the house to dislodge the shooter or shooters who were firing on the surrounding officers. The search of the house was made immediately after Hopkins was driven out and arrested. Since the gun had not been found before the search, the officers could have reasonably feared that the weapon and its user still remained in the house. The immediate need to ensure that no one remained in the house preparing to fire the yet unfound weapon obviously justified this warrantless search.”
We hold that the M-l rifle and the spent cartridge seized from the floor of the bedroom were admissible as evidence. We do not decide whether the cartridge taken from the toy box should have been suppressed. On this record, if there was error in its admission, it was harmless beyond a reasonable doubt.
II. Testimony of Prior Intoxication
This Court has recently and unanimously reaffirmed that, except under very unusual circumstances, it will not reverse on the basis of erroneous introduction of testimony where there was neither timely objection nor request at trial for curative instruction. People v Moss, 397 Mich 69; 245 NW2d 389 (1976). The testimony regarding defendant’s prior intoxication and contacts with the police entered without objection. Not only were curative instructions not requested, but the details of the matter were actively pursued by defense counsel. It would not be unfair to infer that counsel’s decision in this regard was tactical. The defense was intoxication, and the testimony allowed the jury to glimpse a history of drinking problems. In any event, it does not appear that admission of the testimony resulted in a miscarriage of justice. MCLA 769.26; MSA 28.1096. See People v Robinson, 386 Mich 551, 563; 194 NW2d 709 (1972).
Affirmed.
Kavanagh, C. J., and Williams, Levin, Coleman, Lindemer, and Ryan, JJ., concurred with Fitzgerald, J. | [
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Motion by plaintiff-appellant for reconsideration of this Court’s order of December 19, 1975 (395 Mich 815) is considered and the same is denied because it does not appear that said order was entered erroneously.
T. G. Kavanagh, C. J., and Levin, J., would grant reconsideration and on reconsideration grant leave to appeal. | [
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Request for appointment of counsel granted. Defendant shall file with Genesee Circuit Court an affidavit concerning his present financial status (see guidelines at 387 Mich xxxi). The prosecutor shall be furnished a copy of the financial affidavit and may challenge defendant’s asserted indigency within 20 days after receiving the affidavit. The challenge, if brought, shall be resolved at a hearing before Genesee Circuit Court at which the prosecution, defendant, and counsel for defendant shall appear personally to aid the court’s inquiry. Genesee Circuit Court, upon a finding of indigency, shall appoint counsel for defendant and shall furnish any portion of the record counsel may require. | [
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Request for appointment of counsel denied.
Case below, Court of Appeals No. 21764, per curiam opinion of November 10, 1975. | [
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The request for appointment of a Master considered, and Timothy C. Quinn, Judge of the Court of Appeals, hereby is designated as Master to consider Formal Complaint No. 18. | [
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WILDER, P.J.
In this appeal and cross-appeal arising out of a contested administrative proceeding, the par ties challenge the circuit court’s order reversing the decision of an administrative law judge (ALJ) and awarding attorney fees to petitioner, Grass Lake Improvement Board (the Board). We reverse the circuit court and reinstate the decision of the ALJ.
I. FACTUAL BACKGROUND
The attorney fees at issue were incurred in a previous contested case under the Administrative Procedures Act (APA), MCL 24.201 et seq., that was initiated by the Board against respondent, the Department of Environmental Quality (DEQ). The dispute between the parties arose after the Board filed an application seeking a permit to use an augmentation well to pump water into Grass Lake and thereby increase its water level. In June 2009, the DEQ denied the Board’s application. In response, the Board filed a petition seeking review of the DEQ’s decision and initiated the first contested case.
The pivotal issue in the first contested case was whether the Board’s proposed augmentation well would “enlarge” Grass Lake as that term is used in Part 301 of the Natural Resources and Environmental Protection Act (NREPA), MCL 324.30101 et seq., specifically in MCL 324.30102(1) (“Except as provided in this part, a person without a permit from the department shall not. . . [c]reate, enlarge, or diminish an inland lake or stream.”) (emphasis added). Part 301 of the NREPA does not define the term “enlarge,” but at the time the DEQ denied the Board’s application, the Michigan Administrative Code provided a definition at Mich Admin Code, R 281.811(l)(e):
“Enlarge or diminish an inland lake or stream” means the dredging or filling of bottomlands, or the dredging of adjacent shorelands, to increase or decrease a body of water’s surface area or storage capacity or the placement of fill or structures, or the manipulation, operation, or removal of fill or structures, to increase or decrease water levels in a lake, stream, or impoundment.[ ]
The Board argued that, under this definition of “enlarge,” its proposed activity of raising the water level by constructing an augmentation well did not constitute an enlargement of Grass Lake. Thus, the Board argued, DEQ’s denial of the Board’s application was improper under the DEQ’s own administrative rules.
The DEQ responded that, as interpreted by both the DEQ and an advisory opinion of our Attorney General’s office, “the plain language of the statute [MCL 324.30102(1)] . . . clearly includes adding water to a lake to increase its volume and surface area[.]” The DEQ acknowledged that this interpretation of MCL 324.30102(1) was contrary to Mich Admin Code, R 281.811(l)(e). Nevertheless, citing the well-settled principle that “when a statute and an administrative rule conflict, the statute controls,” the DEQ argued that, to the extent its administrative rule conflicted with the plain meaning of MCL 324.30102(1), the DEQ was required to follow the statute and ignore the rule.
In reply, the Board argued that, under established Michigan law, administrative agencies, such as the DEQ, have a duty to follow their own duly promulgated administrative rules. Citing in support Micu v City of Warren, 147 Mich App 573; 382 NW2d 823 (1985), the Board further argued that the DEQ’s duty to follow Rule 281.811(l)(e) extended even to a situation, such as this one, in which the DEQ believed the rule was contrary to the plain meaning of a statute.
After considering the matter, the ALJ decided in the Board’s favor, reasoning as follows:
The [DEQ] contends that it ‘Ras worked for years to change the existing administrative rule [Rule 281.811(l)(e)], but such changes can take a very long time due to debate amongst the relevant stakeholders as to what should be changed, and how it should be changed, etc.” By making this statement, the [DEQ] is acknowledging the very reason why it must follow its administrative rules. When the [DEQ] is able to ignore its own administrative rule, it is able to create and enforce policy without considering the input and interests of relevant stakeholders. Reconciling stakeholder interests is an important part of the rulemaking process. Allowing the [DEQ] to circumvent its rules through an alternate interpretation bypasses the steps which were created in the APA to account for and protect relevant stakeholders and public interests. The statutory language taken on its own seems broad enough to include the [Boardfs proposed activity (i.e. lake enlargement). However, the rule defining the term “enlargement” clearly limits the [DEQ] ’s jurisdiction to activities taking place on bottomlands. Based upon the application of the Rule . . . and other documentary evidence submitted, the proposed lake augmentation project does not implicate Part 301 jurisdiction.
I conclude as a matter of law that the proposed lake augmentation project, that is the act of adding water to the lake without activity on bottomlands, does not implicate the Department’s jurisdiction under Part 301. There is no enlargement of Grass Lake.
Following a motion for reconsideration, the ALJ’s opinion and order was adopted by DEQ Director Dan Wyant. Thereafter, the remaining issues were summarily dismissed by stipulation of the parties, the contested case was concluded, and the DEQ issued the requested permit to the Board.
Afterward, the Board initiated a second contested case, in which it sought its attorney fees related to the first contested case. Kelevant to this appeal, the Board argued that, under MCL 24.323(1), it was entitled to such fees because the DEQ’s legal position in the prior contested case was “devoid of arguable legal merit.” The ALJ denied the Board’s request for attorney fees, deciding that the DEQ’s legal position had at least some arguable legal merit:
Entitlement to relief under § 123(l)(c) may... be summarily eliminated based on the [Board] ⅛ argument, that “[t]his case is one that has numerous complex legal and technical issues.” In reviewing the proceedings and pleadings in this case, the [BoardJ’s characterization of the “numerous complex legal... issues,” is accurate. Given this, the [DEQ] ’s positions cannot be deemed to be devoid of arguable legal merit under MCL 24.323(l)(c).
The Board appealed in the circuit court, which reversed the ALJ’s fee decision:
The ALJ below found that the [DEQ] ’s position was not devoid of arguable legal merit.... The [Board] argues, and this Court agrees, that this determination fails as a reasoned determination by an administrative agency. The ALJ failed to make any conclusions of fact or law. The ALJ failed to point out any particulars within the record to support such a conclusion. He cited no legal authority and provided no reasoning whatsoever in support of his conclusion. This is the very definition of arbitrary and capricious: unreasoned, without reference to guiding principles or considerations, and a decisive exercise of will or caprice.
Furthermore, [the Board] argues that the [DEQ] ’s position was frivolous by being devoid of legal merit. This Court agrees. The [DEQ] ’s position was that there existed a conflict of law between a statute,... MCL 324.0101 et seq., and an administrative rule,. . . Rule 281.811. The [DEQ] argued that where such conflicts exist, the statute prevails over the rule ....
However, the Director [Wyant] found in his final order that.. . the language of the statute and the language of the Rule were not conflicting per se. The statute at issue does not define what it means to “enlarge” a lake or stream, where that is precisely what the Rule does. The Rule’s narrow interpretation of the statute is not a direct conflict.
Furthermore, Michigan case law makes it clear that administrative agencies must follow their own rules once properly promulgated. MICU v City of Warren, 147 Mich App 573, 584; 882 NW2d 823 (1985).. . . Here, not only did the [DEQ] knowingly violate its own rule, it apparently did so for years without attempting to re-promulgate a new rule. Given the overwhelming case law that condemns this exact behavior, it is clear the reliance on a policy that prescribes that behavior is devoid of legal merit, and therefore, the [DEQl’s position in this case was frivolous. This Court grants [the Board]’s motion for fees and costs incurred defending its case in the Michigan Administrative Hearing System.
The instant appeals followed.
II. STANDARDS OF REVIEW
We review the circuit court’s decision to determine whether it “applied correct legal principles and whether it misapprehended or grossly misapplied the substantial evidence test to the agency’s factual findings.” City of Sterling Heights v Chrysler Group, LLC, 309 Mich App 676, 681; 873 NW2d 342 (2015) (quotation marks and citation omitted). We review de novo the circuit court’s interpretation and application of statutes. Glenn v TPI Petroleum, Inc, 305 Mich App 698, 702; 854 NW2d 509 (2014). On the other hand, an administrative agency’s statutory interpretation is reviewed under the standard first enunciated in Boyer-Campbell Co v Fry, 271 Mich 282; 260 NW 165 (1935):
[T]he construction given to a statute by those charged with the duty of executing it is always entitled to the most respectful consideration and ought not to be overruled without cogent reasons. However, these are not binding on the courts, and [w]hile not controlling, the practical construction given to doubtful or obscure laws in their administration by public officers and departments with a duty to perform under them is taken note of by the courts as an aiding element to be given weight in construing such laws and is sometimes deferred to when not in conflict with the indicated spirit and purpose of the legislature. [In re Complaint of Rovas, 482 Mich 90, 103; 754 NW2d 259 (2008) (quotation marks and citations omitted; second alteration in original), quoting Boyer-Campbell, 271 Mich at 296-297.]
“Respectful consideration” of an agency’s statutory interpretation is not akin to “deference,” at least as that “term is commonly used in appellate decisions” today. Rovas, 482 Mich at 108. While an agency’s interpretation can be a helpful aid in construing a statutory provision with a “doubtful or obscure” meaning, our courts are responsible for finally deciding whether an agency’s interpretation is erroneous under traditional rules of statutory construction. Id. at 103, 108.
III. ANALYSIS
On appeal, the DEQ argues that the circuit court applied incorrect legal principles when it reversed the ALJ’s decision. We agree.
In pertinent part, MCL 24.323 provides;
(1) The presiding officer that conducts a contested case shall award to a prevailing party, other than an agency, the costs and fees incurred by the party in connection with that contested case, if the presiding officer finds that the position of the agency to the proceeding was frivolous. To find that an agency’s position was frivolous, the presiding officer shall determine that at least 1 of the following conditions has been met:
(a) The agency’s primary purpose in initiating the action was to harass, embarrass, or injure the prevailing party.
(b) The agency had no reasonable basis to believe that the facts underlying its legal position were in fact true.
(c) The agency’s legal position was devoid of arguable legal merit.
(2) If the parties to a contested case do not agree on the awarding of costs and fees under this section, a hearing shall be held if requested by a party, regarding the awarding of costs and fees and the amount thereof. [Emphasis added.]
Under MCL 24.325(1), “a party that is dissatisfied with the final action taken by the presiding officer under section 123 [MCL 24.323] in regard to costs and fees may seek judicial review of that action pursuant to chapter 6.” The reviewing court “may modify” the presiding officer’s “action only if the court finds that the failure to make an award or the making of an award was an abuse of discretion, or that the calculation of the amount of the award was not based on substantial evidence.” MCL 24.325(2); Widdoes v Detroit Pub Sch, 218 Mich App 282, 289-290; 553 NW2d 688 (1996). “If the court awards costs and fees to a prevailing party upon judicial review of the final action of a presiding officer in a contested case,” then “the court shall award those costs and fees provided for in [MCL 24.323], if the court finds that the position of the state involved in the contested case was frivolous.” MCL 600.2421d; see also Widdoes, 218 Mich App at 289.
The circuit court decided that, under MCL 24.323(l)(c), the DEQ’s legal position in the original contested case was frivolous. In reaching that conclusion, the circuit court applied an incorrect legal standard. The circuit court reasoned that because the DEQ’s legal position was “devoid of legal merit,” it necessarily followed that the DEQ’s legal “position in this case was frivolous.” But whether an argument has “legal merit” is not the proper legal question to be considered by the circuit court. Rather, the standard, as set forth in MCL 24.323(l)(c), is whether the DEQ’s legal position “was devoid of arguable legal merit.” (Emphasis added.)
There is little authority interpreting the language of MCL 24.323(l)(c). Fortunately, however, there are many cases interpreting the nearly identical language found in MCL 600.2591(3)(a). See, e.g., Adamo Demolition Co v Dep’t of Treasury, 303 Mich App 356, 367 & n 27; 844 NW2d 143 (2013), citing Pontiac Country Club v Waterford Twp, 299 Mich App 427, 439; 830 NW2d 785 (2013). We find such authority highly persuasive here. “A claim is not frivolous merely because the party advancing the claim does not prevail on it.” Adamo, 303 Mich App at 368. Instead, “a claim is devoid of arguable legal merit if it is not sufficiently grounded in law or fact, such as when it violates basic, longstanding, and unmistakably evident precedent.” Id. at 369 (quotation marks and citations omitted; emphasis added).
Here, although the DEQ did not prevail in the prior contested case, its legal position was sufficiently grounded in law so as to have some arguable legal merit. There is an undeniable tension between the legal rules cited by the parties in the prior contested case. On one hand, as the DEQ argued below, Michigan courts have long recognized that, due to the very nature of an administrative agency’s rulemaking power, when a statute and an administrative rule conflict, the statute necessarily controls. See Rovas, 482 Mich at 98 (“While administrative agencies have what have been described as ‘quasi-legislative’ powers, such as rulemaking authority, these agencies cannot exercise legislative power by creating law or changing the laws enacted by the Legislature.”); Mich Sportservice, Inc v Dep’t of Revenue Comm’r, 319 Mich 561, 566; 30 NW2d 281 (1948) (“The provisions of the rule must, of course, be construed in connection with the statute itself. In case of conflict, the latter governs. It is not within the power of the department of revenue to extend the scope of the act.”); Acorn Iron Works, Inc v State Bd of Tax Admin, 295 Mich 143, 151; 294 NW 126 (1940) (“The State board of tax administration from time to time has changed its construction and method of enforcing the sales tax law as it affects building trade transactions; but in this connection it is sufficient to note that liability for payment of the sales tax is controlled by statute. It cannot be imposed by rulings or regulations of the board.”); Guardian Indus Corp v Dep’t of Treasury, 243 Mich App 244, 254; 621 NW2d 450 (2000) (“[interpretative rules are invalid when they conflict with the governing statute, extend or modify the statute, or have no reasonable relationship to a statutory purpose.”).
On the other hand, it is equally well settled, as the Board argued below, that agencies are bound to follow their own duly promulgated rules. See Detroit Base Coalition for Human Rights of the Handicapped v Dep’t of Social Servs, 431 Mich 172, 189; 428 NW2d 335 (1988) (“An agency is under a duty to follow its own rules.”); Micu, 147 Mich App at 584 (“[0]nce promulgated, the rules made by an agency to govern its activity cannot be violated or waived by the agency that issued the rules.”); Rand v Civil Serv Comm, 71 Mich App 581, 586; 248 NW2d 624 (1976) (“An administrative agency, in addition to following constitutional and statutory mandates, must also comply with its own rules.”).
Given the tension between such precedents as they apply to the facts of the prior contested case, we conclude that the ALJ did not clearly abuse his discretion. The DEQ’s legal position was sufficiently grounded in law as to have at least some arguable legal merit, and hence it was not frivolous under MCL 24.323(l)(c).
Accordingly, we reverse the circuit court and reinstate the decision of the ALJ. As the prevailing party, the DEQ may tax costs pursuant to MCR 7.219.
Murphy and O’Connell, JJ., concurred with Wilder, P.J.
Mich Admin Code, R 281.811 has since been amended to remove the definition at issue here. 2015 Mich Reg 5, p 75 (April 1, 2015).
MCL 600.2591(3)(a) provides:
(a) “Frivolous” means that at least 1 of the following conditions is met:
(i) The party’s primary purpose in initiating the action or asserting the defense was to harass, embarrass, or injure the prevailing party.
(ii) The party had no reasonable basis to believe that the facts underlying that party’s legal position were in fact true.
(iii) The party’s legal position was devoid of arguable legal merit.
Having reached that conclusion, we need not address the additional issues raised in the appeals regarding the propriety of the amount of costs and attorney fees awarded by the circuit court. | [
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O’BRIEN, J.
In Docket No. 311798, plaintiff, Bank of America, NA (BOA), appeals as of right a final order granting BOA’s motion to dismiss its remaining claims following an earlier order granting summary disposition in favor of defendant Fidelity National Title Insurance Company (FNTIC) with respect to BOA’s breach of contract claims against FNTIC. In Docket No. 312426, BOA appeals as of right an order granting FNTIC’s motion for costs and awarding FNTIC costs in the amount of $19,580.04. In Docket No. 313797, BOA appeals as of right an order granting FNTIC’s motion for attorney fees in the amount of $164,539. In Docket No. 316538, plaintiff, BOA, appeals as of right a final order dismissing BOA’s claims against defendant Chicago Title Insurance Company (CTIC), formerly known as Ticor Title Insurance of Florida, and dismissing CTIC’s counterclaims against BOA following an earlier order granting summary disposition in favor of defendant FNTIC, formerly known as Lawyers Title Insurance Corporation (LTIC), with respect to BOA’s breach of contract claims against FNTIC. The appeals were consolidated to advance the efficient administration of the appellate process. Bank of America, NA v Fidelity Nat’l Title Ins Co, unpublished order of the Court of Appeals, entered August 6, 2015 (Docket Nos. 311798, 312426, 313797, and 316538).
In Docket No. 311798, we reverse the order granting summary disposition to FNTIC regarding BOA’s breach of contract claims, reverse the order denying BOA’s motion for summary disposition concerning FNTIC’s counterclaims and affirmative defenses, and remand for further proceedings consistent with this opinion. In Docket Nos. 312426 and 313797, we vacate the order striking the case evaluation award and the orders awarding costs and attorney fees to FNTIC. In Docket No. 316538, we reverse the order granting summary disposition to FNTIC regarding BOA’s breach of contract claims, affirm the order denying BOA’s motion for summary disposition concerning its breach of contract claims, affirm the order granting summary disposition to BOA regarding FNTIC’s counterclaims and affirmative defenses, and remand for further proceedings consistent with this opinion.
These cases arise from allegations of mortgage fraud perpetrated by various individuals and entities against BOA, the mortgage lender that commenced both of the lower court actions that led to the present appeals. Pertinent to these appeals, BOA filed breach of contract claims against FNTIC, the title insurer that had issued closing protection letters (CPLs) that promised to indemnify BOA for any actual losses arising from fraud or dishonesty in handling BOA’s funds or documents on the part of the closing agent, who was also the title agent of FNTIC, in each action. In each underlying action, the trial court granted summary disposition to FNTIC on BOA’s breach of contract claims, and BOA challenges those respective determinations on appeal in Docket Nos. 311798 and 316538. In Docket Nos. 312426 and 313797, BOA challenges the trial court’s order striking the case evaluation award and the trial court’s award of costs and attorney fees to FNTIC in the same underlying action that led to the appeal in Docket No. 311798.
I. STANDARDS OF REVIEW
“This Court reviews de novo a trial court’s decision on a motion for summary disposition.” Hackel v Macomb Co Comm, 298 Mich App 311, 315; 826 NW2d 753 (2012).
A motion under MCR 2.116(C)(8) tests the legal sufficiency of the complaint on the basis of the pleadings alone to determine if the opposing party has stated a claim for which relief can be granted. A reviewing court must accept all well-pleaded allegations as true and construe them in the light most favorable to the nonmoving party. The motion should be granted only if no factual development could possibly justify a recovery.
A motion brought under MCR 2.116(C)(9) seeks a determination whether the opposing party has failed to state a valid defense to the claim asserted against it. A motion under MCR 2.116(C)(9) is analogous to one brought pursuant to MCR 2.116(C)(8) in that both motions are tested by the pleadings alone, with the court accepting all well-pleaded allegations as true. When a party’s defenses are so untenable as a matter of law that no factual development could possibly deny the plaintiffs right to recovery, the motion is properly granted. [Id. at 315-316 (citations and quotation marks omitted).]
“In reviewing a motion under MCR 2.116(C)(10), this Court considers the pleadings, admissions, affidavits, and other relevant documentary evidence of record in the light most favorable to the nonmoving party to determine whether any genuine issue of material fact exists to warrant a trial.” Walsh v Taylor, 263 Mich App 618, 621; 689 NW2d 506 (2004). “Summary disposition is appropriate if there is no genuine issue regarding any material fact and the moving party is entitled to judgment as a matter of law.” Latham v Barton Malow Co, 480 Mich 105, 111; 746 NW2d 868 (2008). “A genuine issue of material fact exists when the record, giving the benefit of reasonable doubt to the opposing party, leaves open an issue upon which reasonable minds might differ.” West v Gen Motors Corp, 469 Mich 177, 183; 665 NW2d 468 (2003).
The interpretation of a contract presents a question of law that is reviewed de novo. Kloian v Domino’s Pizza, LLC, 273 Mich App 449, 452; 733 NW2d 766 (2006).
In interpreting a contract, this Court’s obligation is to determine the intent of the parties. This Court must examine the language of the contract and accord the words their ordinary and plain meanings, if such meanings are apparent. If the contractual language is unambiguous, courts must interpret and enforce the contract as written. Thus, an unambiguous contractual provision is reflective of the parties’ intent as a matter of law. [In re Smith Trust, 274 Mich App 283, 285; 731 NW2d 810 (2007) (citations and quotation marks omitted).]
II. FNTIC’S LIABILITY UNDER THE CLOSING PROTECTION LETTERS
To prevail on a breach of contract claim, a party “must establish by a preponderance of the evidence that (1) there was a contract, (2) the other party breached the contract, and (3) the breach resulted in damages to the party claiming breach.” Bank of America, NA v First American Title Ins Co, 499 Mich 74, 100; 878 NW2d 816 (2016) (FATCO).
A CPL is a contract between the title company and the lender whereby the title insurance company agrees to indemnify the lender for any losses caused by the failure of the title agent to follow the lender’s closing instructions. A CPL is necessary because, while a title agent is the agent of the title insurance company for purposes of selling the title insurance policy (and binding the company to the insurance contract), that agency relationship does not extend to the title agent’s conduct at the closing. As a result, a lender who also wants the title insurer to be responsible for the agent’s acts in connection with escrow closing activities and services must separately contract with the title insurer for such additional protection by entering into an insured closing letter or closing protection letter. [Id. at 104 (citations, brackets, and quotation marks omitted).]
See also New Freedom Mtg Corp v Globe Mtg Corp, 281 Mich App 63, 80; 761 NW2d 832 (2008) (“A closing protection letter is typically issued by a title insurance underwriter '[t]o verify the agent’s authority to issue the underwriter’s policies and to make the financial resources of the national title insurance underwriter available to indemnify lenders and purchasers for the local agent’s errors or dishonesty with escrow or closing funds.’ ”) (citation omitted; alteration in original), overruled in part on other grounds by FATCO, 499 Mich 74.
The CPLs issued for the closings at issue in Docket No. 311798 provided, in relevant part, that FNTIC would reimburse BOA “for actual loss incurred by [BOA] in connection with such closings . . . when such loss arises out of: . . . (2) Fraud or dishonesty of [the closing agent, Fidelity Title Company (FTC)] in handling [BOA’s] funds or documents in connection with such closings.” This contractual language plainly makes FNTIC liable if BOA suffered actual losses arising out of FTC’s fraud or dishonesty in handing BOA’s funds or documents in connection with the closings.
The common meaning of “dishonesty” is the opposite of “honesty;” it is “a disposition to lie, cheat, or steal” or a “dishonest act; fraud.” . . . [T]he plain meaning of “fraud” includes both actual fraud—an intentional perversion of the truth—and constructive fraud—an act of deception or a misrepresentation without an evil intent. Fraud may also be committed by suppressing facts—silent fraud— where circumstances establish a legal duty to make full disclosure. Such a duty of full disclosure may arise when a party has expressed to another some particularized concern or made a direct inquiry. [FATCO, 499 Mich at 106-107 (citations and quotation marks omitted).]
A lender is not required to present evidence of concealed disbursements, shortages, or unpaid prior lien holders in order to recover for a closing agent’s fraud or dishonesty if no such restrictions are contained in the CPL. Id. at 107.
In the case appealed in Docket No. 311798, there is evidence establishing a genuine issue of material fact concerning whether BOA suffered an actual loss arising out of the fraud or dishonesty of FTC in handling BOA’s funds or documents in connection with the closings. There is evidence that FTC or its agents were aware of misrepresentations in documents submitted to BOA and that BOA’s funds were dishonestly or fraudulently distributed. The evidence indicates that the loans at issue were sham transactions that used straw borrowers and artificially inflated property values to induce BOA to lend significant sums of money and that FTC or its agents were aware of the misrepresentations and the fraudulent nature of the transactions at the time of closing.
In particular, with respect to BOA’s loan to Jacqueline Buie (the Buie loan or transaction), Buie agreed to purchase 5228 Deer Run Circle, Orchard Lake, Michigan, from Robert Harden for $3.4 million. But Harden purchased that property from Mike Awdish and Raidah Awdish for a significantly smaller sum, $2.1 million, on August 16, 2005, a mere 10 days before the Buie closing. The warranty deeds for both of these closings were notarized by Jeanenne Foster Keely (Foster), who was FTC’s employee, and they were received for recording at the register of deeds on the same date. Under FNTIC’s own guidelines, those facts suggest that the Buie transaction was a so-called “property flip” transaction, i.e., “a conveyance of real estate from A to B followed very shortly thereafter, or almost simultaneously, with another conveyance at a much higher sale price from B to a third party, C.” The $1.3 million increase in the sales price over 10 days and the lack of evidence of financing for the earlier transfer indicated that FNTIC’s approval was required for the Buie transaction. Also, FTC prepared title commitments for the Buie loan that listed Harden as the owner of 5228 Deer Run Circle before August 16, 2005, i.e., when he did not yet own the property. A request to show an intermediary party such as Harden as the title owner is designated by FNTIC as a “red flag” to alert the closing agent to a possible flip transaction.
Further, the United States Department of Housing and Urban Development settlement statement (HUD-1 settlement statement) prepared by FTC and signed by Foster stated that Buie made a down payment of $651,348.95 at closing. As purported documentation of Buie’s down payment, the FTC closing file contained a copy of a purported Charter One cashier’s check for $735,000 made out to FTC. A subpoena of Charter One records established that this check was a counterfeit alteration of a check made out to State Farm in the amount of $137.33. According to FTC’s ledger and check copies, Harden provided the $651,348.95 down payment listed on the HUD-1 settlement statement as having come from Buie. As part of the Buie closing, FTC issued three checks to Harden in the respective amounts of $651,348.95, $517,584.01, and $2,115,667.04, and Harden then endorsed the check for $651,348.95 back to FTC with the phrase “Buyer Funds” written on the front of the check. The $2,115,667.04 check was endorsed back to FTC with the phrase “Funds to Purchase” written on the front of the check. FTC’s owner, Harry Ellman, testified that Harden used the funds from BOA to pay off the prior sellers, the Awdishes.
In short, these facts support inferences that the HUD-1 settlement statement prepared by FTC was falsified with knowledge that the supposed down payment check drawn on Charter One was counterfeit and that Harden purchased the property in a so-called “double escrow” transaction whereby Harden purchased the property from the Awdishes with the funds supplied by BOA to finance Buie’s purchase from Harden. FNTIC’s own guidelines indicate that such transactions, in which the first transaction is funded by proceeds from the second transaction, are improper unless the first buyer comes to the first transaction with the funds necessary to close that transaction before the second transaction commences. Ellman admitted that this requirement was not complied with in the Buie transaction.
FTC’s ledger also showed a $10,000 disbursement to Sanford M. Hoskow as a consulting fee in the Buie transaction even though Hoskow was not identified on the HUD-1 settlement statement. Ellman admitted that he was aware that Hoskow had been disbarred as an attorney and that he had been warned by Oakland Circuit Court Judge Norman Lippitt in late 2004 or early 2005 that Hoskow had a “nefarious background” and to be “leery or careful” with respect to Hoskow. Ellman also knew that Hoskow was a convicted felon who had served jail time “for something to do with checks.” Ellman nevertheless continued to do business with Hoskow after learning of his background, including 97 transactions in which Hoskow received disbursements, some of which were flip transactions.
With regard to BOA’s loan to Jon Holmes (the Holmes loan or transaction), Holmes agreed to buy 2785 Cranbrook Ridge Court, Rochester, Michigan, for $5.4 million. BOA agreed to provide a $3.78 million loan for the transaction. The HUD-1 settlement statement signed by Foster indicated that Holmes made a $1,787,824.91 down payment at closing. FTC’s closing file contained a copy of a purported cashier’s check for $1.8 million made out to FTC as apparent documentation of Holmes’s down payment. A subpoena of the bank from which the check was to be drawn indicated that the check was a counterfeit alteration of a $10.00 check. In fact, the receipts and disbursements ledger for the Holmes transaction indicated that the funds for Holmes’s purported down payment actually came from one of FTC’s own accounts. In addition, FTC’s ledger showed a $10,000 disbursement to Hoskow, and Hoskow was not identified on the HUD-1 settlement statement. Ellman admitted that FTC failed to list other payees on the HUD-1 settlement statement, and this practice was frowned on by 2005 because mortgage fraud was becoming more prevalent.
Ellman testified that it was FTC’s practice to deposit a borrower’s down payment check into an escrow account and to confirm that the check cleared, and he admitted that this was not done in this case, which was improper. Ellman also acknowledged that all of the funds disbursed in this case were BOA’s funds given that no down payments were actually made. Ellman conceded that some employee of FTC must have known that the checks were counterfeit given that the checks were never actually deposited.
This evidence supports a conclusion that FTC fraudulently or dishonestly handled BOA’s funds or documents. In the Buie transaction, FTC participated in arranging a flip transaction of the property with BOA’s funds used to finance the second sale. That second sale was based on an inflated value of the property, and FTC prepared the warranty deeds for both sales in this flip transaction. FTC also prepared title commitments that listed Harden as the owner before he owned the property, and FTC prepared a HUD-1 settlement statement inaccurately showing a down payment made by Buie. FTC did not attempt to deposit a counterfeit check submitted as a purported down payment for Buie, which was contrary to FTC’s normal practice, suggesting knowledge by one or more FTC employees of the fraudulent scheme. FTC made payments to Harden, apparently using BOA’s funds meant to finance the second sale, to help Harden pay the sales price for the first sale, in contravention of FNTIC’s own guidelines. There was also a disbursement to Hoskow, a convicted felon who was not identified on the HUD-1 settlement statement. Taken together, these facts support an inference that FTC was aware of, and participated in, the fraudulent scheme, as well as that FTC thereby fraudulently or dishonestly handled BOA’s funds or documents in the Buie transaction.
In the Holmes transaction, there was again a counterfeit check in FTC’s file as documentation of the purported down payment of the borrower, and FTC never deposited that check as would have been its normal practice, suggesting awareness by one or more FTC employees that the check was counterfeit. The funds for Holmes’s supposed down payment actually came from one of FTC’s own accounts. There was again a disbursement to Hoskow, who was not identified on the HUD-1 settlement statement, and Ellman admitted that other payees were not identified on the HUD-1 settlement statement. These facts suggest that FTC participated in the scheme and fraudulently or dishonestly handled BOA’s funds or documents.
FNTIC likens the facts of this case to those of New Freedom, but the evidence in this case suggests that FTC both had knowledge of, and participated in, the fraudulent scheme as described earlier. In New Freedom, 281 Mich App at 83, this Court found no evidence that the closing agent committed any fraud or dishonesty in handling the lender’s funds or documents because there was no evidence the closing agent was aware at closing that the borrower did not intend to occupy the property and because discrepancies in the HUD-1 settlement statement did not matter given that the document did not belong to the lender. And with respect to another transaction in New Freedom, this Court found no evidence of fraud or dishonesty in handling the lender’s funds or documents because there was no evidence that the closing agent was aware of the borrower’s false assertion on the loan application that he intended to occupy the property. Id. at 84. By contrast, there was extensive evidence here that one or more FTC employees had knowledge of, and participated in, the fraudulent scheme for the reasons discussed earlier at considerable length. New Freedom is therefore distinguishable. Given the evidence that these were sham transactions from the outset and that one or more FTC employees participated in the fraudulent schemes, a trier of fact could reasonably conclude that FTC dishonestly or fraudulently handled BOA’s funds or documents. See Walsh Securities, Inc v Cristo Prop Mgt, Ltd, 858 F Supp 2d 402, 419 (D NJ, 2012), recon gtd on other grounds in an unpublished opinion of the United States District Court for the District of New Jersey, issued August 10, 2012 (Docket No. 97-3496) (finding CPL coverage existed when there was a fraudulent scheme involving a straw buyer and an inflated appraised value of the property resulting in a mortgage loan for an amount far greater than the true value of the property, with full knowledge and participation by the closing attorneys in the fraudulent scheme); First American Title Ins Co v Vision Mtg Corp, Inc, 298 NJ Super 138, 144; 689 A2d 154 (1997) (Vision Mtg) (the closing agent’s fraud eliminated the possibility of recouping a foreclosure loss through a deficiency proceeding against the mortgagor, given that the case involved “a sham transaction from the outset” and there was no bona fide mortgagor, thus triggering CPL liability).
A genuine issue of material fact also exists concerning whether BOA’s losses arose out of FTC’s fraud or dishonesty. As discussed earlier, the CPLs require FNTIC to reimburse BOA if BOA’s loss “arises out of’ FTC’s fraud or dishonesty in handling BOA’s funds or documents. In general, the phrase “arises out of’ does not mean proximate cause in the strict legal sense; rather, almost any causal connection will suffice if it is more than merely incidental or fortuitous. See People v Johnson, 474 Mich 96, 100-101; 712 NW2d 703 (2006); Scott v State Farm Mut Auto Ins Co, 483 Mich 1032, 1033-1035 (2009) (KELLY, C.J., concurring); Schultz v Blue Cross Blue Shield, unpublished opinion per curiam of the Court of Appeals, issued March 18, 2010 (Docket Nos. 288128, 288224, 288225, and 288423), p 23, citing Shinabarger v Citizens Mut Ins Co, 90 Mich App 307, 313-314; 282 NW2d 301 (1979); Lawyers Title Ins Corp v New Freedom Mtg Corp, 285 Ga App 22, 30; 645 SE2d 536 (2007) (“[W]here a contract provides that a loss must ‘arise out of a specified act, it ‘does not mean proximate cause in the strict legal sense’ but instead encompasses ‘almost any causal connection or relationship.’ ”). In this case, a trier of fact could find that a causal connection exists between FTC’s fraud or dishonesty and BOA’s losses. It is reasonable to infer that if FTC had disclosed the true nature of the transactions, then BOA would not have funded the transactions. Even FTC’s owner, Ellman, and its employee, Foster, claimed that they would not have closed the transactions if they had known of the counterfeit checks or the fraudulent nature of the transactions. And this causal connection is not negated by any deficiency in BOA’s underwriting process. See JP Mor gan Chase Bank, NA v First American Title Ins Co, 795 F Supp 2d 624, 632-633 (ED Mich, 2011) (stating that a lender’s allegedly negligent underwriting is irrelevant in a breach of contract action under a CPL), aff'd 750 F3d 573 (CA 6, 2014); Lawyers Title Ins Corp, 285 Ga App at 29-30 (concluding that indemnification was required under a CPL even if the lender’s own negligence may have partially caused its loss).
Accordingly, for the foregoing reasons, the trial court erred by granting FNTIC’s motion for summary disposition on BOA’s breach of contract claim under the CPLs in Docket No. 311798. Genuine issues of material fact exist concerning BOA’s breach of contract claim. Therefore, a trial is required.
Next, the trial court in Docket No. 311798 erred by denying BOA’s motion for summary disposition concerning FNTIC’s counterclaims and affirmative defenses that were based on BOA’s allegedly deficient underwriting. In its counterclaims, FNTIC alleged that BOA failed to employ objectively reasonable underwriting standards and that BOA failed to inform FNTIC that the Holmes and Buie loans did not meet objectively reasonable underwriting standards. FNTIC sought to rescind the CPLs on the grounds that BOA or its agents made fraudulent misrepresentations or omissions or, alternatively, on the basis of contractual mistake related to BOA’s purported failure to use objectively reasonable underwriting standards. FNTIC also sought a declaratory judgment that FNTIC was not liable to BOA under the CPLs because of BOA’s failure to follow objectively reasonable underwriting standards, as well as because BOA failed to give prompt notice of its claims and thereby prejudiced FNTIC. Further, in its affirmative defenses to BOA’s complaint, FNTIC asserted that BOA’s claims were barred by BOA’s contributory or comparative negligence. The affirmative defenses also sought rescission on the same grounds as the counterclaim and asserted that BOA failed to satisfy the duty of good faith and fair dealing given the failure to use objectively reasonable underwriting standards.
FNTIC’s counterclaims and affirmative defenses based on BOA’s allegedly deficient underwriting fail as a matter of law. “Kescission of a contract is an equitable remedy to be exercised in the sound discretion of the trial court.” Schmude Oil Co v Omar Operating Co, 184 Mich App 574, 587; 458 NW2d 659 (1990). In order to rescind a contract on the basis of fraudulent inducement, a party must show that:
(1) the defendant made a material representation; (2) the representation was false; (3) when the defendant made the representation, the defendant knew that it was false, or made it recklessly, without knowledge of its truth and as a positive assertion; (4) the defendant made the representation with the intention that the plaintiff would act upon it; (5) the plaintiff acted in reliance upon it; and (6) the plaintiff suffered damage. [Custom Data Solutions, Inc v Preferred Capital, Inc, 274 Mich App 239, 243; 733 NW2d 102 (2006) (citations and quotation marks omitted).]
FNTIC is unable to satisfy the materiality requirement because BOA’s underwriting practices are not material to the terms of the CPLs. See Fifth Third Mtg Co v Chicago Title Ins Co, 758 F Supp 2d 476, 487-488 (SD Ohio, 2010) {Fifth Third I); JP Morgan Chase, 795 F Supp 2d at 632-633.
In Fifth Third I, 758 F Supp 2d at 486, the federal district court noted that the terms of the title policy at issue in that case did not mention underwriting practices or requirements. Therefore, the plaintiff-lender’s underwriting guidelines were irrelevant under the terms of the policy. Id. Nonetheless, the defendant-title insurer filed a rescission counterclaim alleging that the plaintiff defrauded the defendant by implicitly representing that the plaintiff followed reasonable underwriting standards. Id. at 487. The federal district court reasoned that the title policy did not mention underwriting or require the plaintiff to provide documentation of its underwriting standards. Id. The court found that if the underwriting standards were material to the defendant’s decision to issue the policy, then the policy would have expressly provided that the underwriting would be subject to the defendant’s approval. Id. at 488. The court therefore granted summary judgment to the plaintiff with respect to the defendant’s counterclaim for rescission. Id. In Fifth Third Mtg Co v Chicago Title Ins Co, 692 F3d 507, 511, 513 (CA 6, 2012) (Fifth Third II), the federal appellate court affirmed the decision in Fifth Third I, concluding that the title policy said nothing about the plaintiffs underwriting obligations and noting that the alleged misrepresentation in failing to disclose underwriting practices was not written into the policy itself. See also JP Morgan Chase, 795 F Supp 2d at 632-633 (concluding that the title insurer could not avoid its indemnification obligations under a CPL by arguing that the lender was negligent in underwriting the loan because such negligence was irrelevant and contributory negligence was not a valid defense in a breach of contract case). In the present case, the CPLs do not mention BOA’s underwriting practices. Therefore, BOA’s underwriting was not material to the terms of the CPLs. FNTIC consequently cannot establish the materiality element required for rescission on the basis of fraudulent inducement.
FNTIC’s reliance on the implied covenant of good faith and fair dealing is similarly misplaced. “It has been said that the covenant of good faith and fair dealing is an implied promise contained in every contract that neither party shall do anything which will have the effect of destroying or injuring the right of the other party to receive the fruits of the contract.” Hammond v United of Oakland, Inc, 193 Mich App 146, 151-152; 483 NW2d 652 (1992) (citation and quotation marks omitted). “However, Michigan does not recognize a cause of action for breach of the implied covenant of good faith and fair dealing.” Fodale v Waste Mgt of Mich, Inc, 271 Mich App 11, 35; 718 NW2d 827 (2006). Moreover, the failure to refer to underwriting guidelines in a title policy does not constitute a gap to be filled by the implied duty of good faith and fair dealing when the policy is clear and specific regarding the parties’ rights and obligations. Fifth Third I, 758 F Supp 2d at 490. FNTIC fails to identify any lack of clarity or specificity in the CPLs that warrants resort to the implied covenant in this case. See also Van Arnem Co v Mfr Hanover Leasing Corp, 776 F Supp 1220, 1223 (ED Mich, 1991) (“The implied covenant of good faith under Michigan law, as well as under the law of other jurisdictions having persuasive effect, neither overrides nor replaces any express contractual term.”).
A contract may also be rescinded on the basis of a mutual mistake of the parties. Shell Oil Co v Estate of Kert, 161 Mich App 409, 421; 411 NW2d 770 (1987). A mutual mistake is “an erroneous belief, which is shared and relied on by both parties, about a material fact that affects the substance of the transaction.” Ford Motor Co v Woodhaven, 475 Mich 425, 442; 716 NW2d 247 (2006). “A court need not grant rescission in every case in which the mutual mistake relates to a basic assumption and materially affects the agreed performance of the parties.” Lenawee Co Bd of Health v Messerly, 417 Mich 17, 31; 331 NW2d 203 (1982). In the present case, there is no evidence that the parties shared and relied on a mutual mistake concerning BOA’s underwriting standards or that this mistake affected the substance of the transaction. Even accepting FNTIC’s claim that it assumed BOA had agreed to use different or more stringent underwriting standards, there is no evidence from which to conclude that BOA shared this belief or that it affected the substance of the parties’ transaction. Hence, there is no basis to rescind the' CPLs on the ground of a mutual mistake of the parties. Accordingly, BOA is entitled to summary disposition with respect to FNTIC’s counterclaim for rescission.
Summary disposition for BOA is also required for the portion of FNTIC’s declaratory judgment counterclaim that alleges the same underlying theory as the rescission counterclaim, i.e., that BOA failed to employ objectively reasonable underwriting standards. Summary disposition shall also be granted to BOA on FNTIC’s fifth affirmative defense asserting that FNTIC is entitled to rescind the CPLs because of fraudulent misrepresentations or contractual mistake, FNTIC’s eleventh affirmative defense asserting that BOA failed to satisfy the duty of good faith and fair dealing when it approved loans that did not meet objectively reasonable underwriting standards, and FNTIC’s twelfth affirmative defense asserting that BOA’s claims are barred by contributory or comparative negligence. See JP Morgan Chase, 795 F Supp 2d at 633 (noting in the context of CPL claims that “contributory negligence is not a valid defense in a breach of contract case”), citing Nelson v Northwestern Savings & Loan Ass’n, 146 Mich App 505, 509; 381 NW2d 757 (1985).
BOA is also entitled to summary disposition with respect to the portion of FNTIC’s declaratory judgment counterclaim asserting that BOA failed to provide prompt notice of its damages claims to FNTIC as required by the CPLs and that FNTIC was thereby prejudiced. Paragraph E of the “conditions and exclusions” section of the CPLs provides as follows: “Claims shall be made promptly to [FNTIC] .... When the failure to give prompt notice shall prejudice [FNTIC], then liability of [FNTIC] hereunder shall be reduced to the extent of such prejudice.”
Provisions in liability insurance contracts requiring the insured to give the insurer immediate or prompt notice of accident or suit are common, if not universal. The purpose of such provisions is to allow the insurer to make a timely investigation of the accident in order to evaluate claims and to defend against fraudulent, invalid, or excessive claims. [Wendel v Swanberg, 384 Mich 468, 477; 185 NW2d 348 (1971).]
It is the insurer’s burden to demonstrate prejudice arising from the lack of prompt notice. Id. at 478. “[Prejudice will be found if the insurer demonstrates that a delay in providing notice materially impaired the insurer’s ability to contest its liability to an insured.” Triple Investment Group, LLC v Hartford Steam Boiler Inspection & Ins Co, 71 F Supp 3d 733, 740 (ED Mich, 2014). The insurer is not required to prove that it would have avoided liability but for the delay. Id.
An insurer must do more than simply claim that evidence was lost, physically altered, or has otherwise become unavailable and that witnesses have died, disappeared, or their memories have faded. Instead, an insurer must establish what is in fact lost by the missing evidence, how this prejudices its position, and why information available from other sources is inadequate.
The question of prejudice is generally to be left to the trier of fact. However, where the facts are so clear that one conclusion only is reasonably possible, the question is one of law.
In determining whether an insurer’s position has actually been prejudiced by the insured’s untimely notice, courts consider whether the delay has materially impaired the insurer’s ability: (1) to investigate liability and damage issues so as to protect its interests; (2) to evaluate, negotiate, defend, or settle a claim or suit; (3) to pursue claims against third parties; (4) to contest the liability of the insured to a third party; and (5) to contest its liability to its insured. [Id. (citations and quotation marks omitted).]
In this case, the parties agree that BOA became aware of the fraudulent scheme at some point in 2006. The parties disagree about when BOA provided notice of its claim to FNTIC. BOA argues that it provided notice of its CPL claims to FNTIC in February 2008. FNTIC argues, however, that it did not receive notice until BOA commenced this action on October 20, 2010. FNTIC acknowledges that BOA provided written notice of potential claims to FNTIC in February 2008 but asserts that BOA never provided further details regarding its potential claims in response to FNTIC’s April 15, 2008 (for the Buie loan) and June 12, 2008 (for the Holmes loan) written requests for more complete descriptions of the basis of BOA’s claims. However, FNTIC’s own letters from April and June 2008 reflect that BOA’s February 2008 claim letters provided notice of both the property and the borrower at issue for each loan, that BOA was alleging that FTC failed to comply with BOA’s written instructions, and that FNTIC committed fraud or dishonesty in handling BOA’s funds. FNTIC fails to articulate why this was insufficient to provide the notice required by the CPLs. We conclude that BOA’s February 2008 claim letters provided the requisite notice of BOA’s claims to FNTIC such that FNTIC could commence its investigation.
FNTIC has failed to demonstrate a genuine issue of material fact about whether it was prejudiced by BOA’s delay in providing notice. In his deposition, FNTIC’s corporate representative, David Golub, referred vaguely to the fading of memories and the loss of documents and asserted a lack of knowledge about whether the brokers who produced the loans were contractually obligated to repurchase the loans. FNTIC suggests this loss of documents and fading of memories may have impaired FNTIC’s right of subrogation under the CPLs. FNTIC also notes the deposition testimony of BOA’s corporate representative, Vicky Olson, indicating that BOA’s original loan files and the files of its mortgage brokers had been lost. FNTIC’s assertions fail to demonstrate with a sufficient level of specificity “what is in fact lost by the missing evidence, how this prejudices its position, and why information available from other sources is inadequate.” Triple Investment Group, LLC, 71 F Supp 3d at 740 (citation and quotation marks omitted). In addition, the purported failure of BOA’s senior underwriter, Shirley Robert, to remember at deposition certain aspects of BOA’s underwriting training or procedures does not establish prejudice given the irrelevancy of BOA’s underwriting practices, as explained earlier. Accordingly, BOA is entitled to summary disposition on this aspect of FNTIC’s declaratory judgment counterclaim.
In Docket No. 316538, BOA argues that the trial court erred by denying BOA’s motion for summary disposition on its CPL claims against FNTIC. FNTIC, on the other hand, contends that BOA’s CPL claims fail as a matter of law, thereby entitling FNTIC to summary disposition in its favor on this basis even if, as discussed later, this Court reverses the trial court’s determination regarding the applicability of the full credit bid rule on the basis of which the trial court granted summary disposition to FNTIC. We conclude that genuine issues of material fact exist precluding summary disposition for either party on BOA’s CPL claims. The language of the CPLs issued by FNTIC’s predecessor, LTIC, in Docket No. 316538 is identical in all relevant respects to the language of the CPLs issued by FNTIC in Docket No. 311798. There is evidence demonstrating a genuine issue of material fact concerning whether the closing agent in Docket No. 316538, Wolverine Title Agency, Inc. (WTA), was aware of and participated in the fraudulent scheme and whether BOA sustained an actual loss arising out of WTA’s fraud or dishonesty in handling BOA’s funds or documents.
With respect to BOA’s loan to Giles Marks (the Marks loan or transaction), WTA closed Marks’s purchase from Michigan Land Development (MLD) of 9430 Highland Court, Davison, Michigan, in January 2006 for a purported sales price of $1.15 million with BOA loaning $920,000 to fund the purchase. This property was purported to be Marks’s intended residence. The HUD-1 settlement statement indicated that Marks made a down payment of $235,086.59. The loan went into default because the loan payment due on December 1, 2006, was not made. Warranty deeds reflect that this transaction was a same-day property flip. MLD purchased the property from Michael Jarvinen and Lamis Jarvinen on January 11, 2006, for $548,000. On the same date, MLD sold the property to Marks for $1.15 million. Foster, a WTA employee, notarized both warranty deeds in the flip transaction. WTA prepared a title commitment dated August 8, 2005, signed by WTA’s owner, Amira Butler, showing MLD as the owner of the property even though the Jarvinens owned the property on that date and MLD did not obtain title to this property until January 11, 2006, the date of the Marks closing. Butler invoked the Fifth Amendment privilege against compelled self-incrimination when questioned at deposition about WTA’s knowledge of the same-day property flip.
In an affidavit, Marks explained that he was approached by loan officer James Lamar about buying this property as an investment opportunity. Marks did not intend to occupy the property and was told that he would not be responsible for making loan payments. Marks did not make the down payment shown on the HUD-1 settlement statement. At his deposition, Marks confirmed that he had provided the facts stated in his affidavit. Butler again invoked the Fifth Amendment when questioned about these matters. The facts concerning this fraudulent scheme are also set forth in a felony information against Thomas Keller, the principal of MLD, and a guilty plea agreement filed in the United States District Court for the Eastern District of Michigan, in which Keller pleaded guilty to one count of financial institution fraud, 18 USC 1344. The plea agreement set forth the following factual basis for the plea:
[MLD] purported to be a real estate investment company doing business in the State of Michigan. Defendant Thomas Keller operated MLD and used it to facilitate the purchase and sale of properties with fraudulently inflated appraised values and false buyer asset and income information.
From in or about December 2005 through January 2006, Defendant Thomas Keller devised a scheme to defraud Bank of America, a financial institution in the Eastern District of Michigan. On January 11, 2006, Keller used MLD to purchase 9430 Highland Court in Davison, Michigan for $548,000. On that same day, using a false and inflated appraisal for the property, Keller sold 9430 Highland Court to a straw buyer for $1,150,000. In addition to the inflated appraisal Keller help[ed] arrange for the straw buyer’s asset and income information to be grossly inflated on the loan application. The lending institution was Bank of America which relied on the material and false appraisal and asset and income information in approving and disbursing the loan. The resulting illegally gained proceeds were split between Keller and others involved in the fraud.
Although Keller is pleading guilty to one instance of financial institution fraud, he admits that he was involved in other instances of fraudulent conduct which have been used as relevant conduct in calculating his sentencing guidelines and for which he will be responsible for paying restitution. The parties agree that the fraud loss will be more than $1 million and less than $2.5 million.
WTA’s disbursement summary indicated that Butler’s company, Centurion Land Management (CLM), was paid $236,586.59 as part of the Marks closing. This disbursement was not shown on the HUD-1 settlement statement. Butler invoked the Fifth Amendment in response to deposition questions about this payment to CLM. An appraisal later obtained by BOA indicated that the true value of the property on the date of the origination appraisal was $370,000. BOA sold the property for $189,000 in April 2010 in an effort to mitigate its losses.
As for BOA’s loan to Nicklas Williams (the Williams loan or transaction), on January 13, 2006, WTA closed Williams’s purchase of 3231 Rivershyre Parkway, Da-vison, Michigan, from MLD for the supposed sales price of $1.2 million, with BOA loaning $960,000 to fund the purchase. The HUD-1 settlement statement indicated that Williams made a down payment of $244,776.71. Williams signed a document indicating that he intended to occupy the property. This transaction was supported by an appraisal that valued the property at $1.2 million. The Williams loan went into default because the November 1, 2006 loan payment was not made.
Public records reflect that the Williams transaction was a same-day property flip as well. Warranty deeds show that MLD purchased the property from Brad Townsend and Kyra Townsend for $469,000 on January 13, 2006; on the same date, MLD sold the property to Williams for $1.2 million. WTA assisted in the preparation of both warranty deeds, with Foster notarizing both deeds. WTA prepared a title commitment for this property, signed by Butler and dated December 12, 2005, showing MLD as the owner of the property, even though the Townsends owned the property on that date, and MLD did not obtain title to the property until January 13, 2006. Butler invoked the Fifth Amendment when questioned about this matter. WTA’s disbursement summary indicates that Butler’s company, CLM, was paid $281,276.71 as part of the Williams transaction, but this payment was not shown on the HUD-1 settlement statement. The disbursement summary also reflects other payments by WTA that are not shown on the HUD-1 settlement statement, including a payment of $20,000 to WTA denoted as “3 MOS PAYMENTS.” Williams owed $19,646.70 to BOA for the first three months of loan payments. Again, Butler invoked the Fifth Amendment when questioned about these payments.
In his deposition, Williams admitted that the information about his income and assets on the loan application was overstated, that he only saw the property one time and never entered it, that he viewed the transaction as an investment, that he was paid $20,000 to make loan payments, and that he did not have the money needed to make the down payment. Butler invoked the Fifth Amendment when questioned about these facts. BOA ultimately obtained another appraisal indicating that the property was worth $385,000 on the date of the origination appraisal. After foreclosure, BOA sold the property for $190,000 in an effort to mitigate its losses.
This evidence presents a material factual dispute concerning whether WTA fraudulently or dishonestly handled BOA’s funds or documents. The Marks transaction was a same-day property flip with an inflated appraisal, a significantly higher sum for the second sale, and misrepresentations on the HUD-1 settlement statement indicating that Marks made a substantial down payment. WTA assisted in preparing the warranty deeds for both sides of the flip transaction, with Foster notarizing both deeds. WTA prepared a title commitment incorrectly showing MLD as the owner of the property when the Jarvinens still owned it. Another participant in the scheme has pleaded guilty to financial institution fraud in relation to this loan. WTA disbursed $236,586.59 to Butler’s company as part of the Marks transaction, a disbursement that was not shown on the HUD-1 settlement statement.
Likewise, the Williams transaction was a same-day property flip with an inflated appraised value for the property and overstated information concerning Williams’s income and assets on the loan application. Williams did not intend to live on the property as his primary residence. WTA prepared the warranty deeds for both sides of the flip transaction, with Foster notarizing both deeds, and WTA prepared a title commitment that incorrectly listed MLD as the owner of the property when it was still owned by the Townsends. WTA made disbursements that were not shown on the HUD-1 settlement statement, including a disburse ment of $281,276.71 to Butler’s company and a disbursement to WTA of $20,000 to pay the first three months of Williams’s loan payments.
Although the other evidence described earlier suffices to support BOA’s claims, we note that, in a civil action, Butler’s invocation of the Fifth Amendment privilege against compulsory self-incrimination gives rise to a legitimate inference that Butler was engaged in criminal activity. Baxter v Palmigiano, 425 US 308, 318; 96 S Ct 1551; 47 L Ed 2d 810 (1976); Phillips v Deihm, 213 Mich App 389, 400; 541 NW2d 566 (1995); Davis v Mut Life Ins Co of New York, 6 F3d 367, 384 (CA 6, 1993). BOA is therefore entitled to an adverse inference that WTA was complicit in the fraudulent scheme given Butler’s assertion of the Fifth Amendment.
Taken together, the evidence supports an inference that WTA was aware of and participated in the fraudulent scheme for both the Marks and the Williams transactions, and that WTA thereby fraudulently or dishonestly handled BOA’s funds or documents in those transactions. New Freedom is distinguishable because the evidence here suggests that WTA had knowledge of and participated in the fraudulent schemes in the ways described earlier in this opinion. Given the evidence that these were sham transactions from the outset and that WTA personnel participated in the fraudulent schemes, a trier of fact could reasonably conclude that WTA dishonestly or fraudulently handled BOA’s funds or documents. See Walsh Securities, Inc, 858 F Supp 2d at 419; Vision Mtg Corp, Inc, 298 NJ Super at 144. And a material factual dispute exists regarding whether BOA’s losses arose out of WTA’s fraud or dishonesty, i.e., whether there is a causal connection between WTA’s fraud or dishonesty and BOA’s losses. See Johnson, 474 Mich at 100-101; Scott, 483 Mich at 1033-1035 (KELLY, C.J., concurring); Lawyers Title Ins Corp, 285 Ga App at 30. It is reasonable to infer that if WTA had disclosed the true nature of the transactions, then BOA would not have funded the transactions. As discussed, such a causal connection is not negated by any deficiency in BOA’s underwriting process. See JP Morgan Chase, 795 F Supp 2d at 632-633; Lawyers Title Ins Corp, 285 Ga App at 29-30.
Accordingly, for the foregoing reasons, the trial court erred by granting FNTIC’s motion for summary disposition on BOA’s breach of contract claim under the CPLs in Docket No. 316538. Genuine issues of material fact exist concerning BOA’s breach of contract claim. Therefore, a trial is required.
Although BOA presented sufficient evidence to avoid summary disposition in favor of FNTIC on BOA’s CPL claims, we are not convinced by BOA’s argument in Docket No. 316538 that BOA is entitled to summary disposition in its favor on its CPL claims. It is for the trier of fact to assess credibility; a jury may choose to credit or discredit any testimony. Taylor v Mobley, 279 Mich App 309, 314; 760 NW2d 234 (2008), citing Kelly v Builders Square, Inc, 465 Mich 29, 38-39; 632 NW2d 912 (2001). That is, a jury is free to disbelieve and to discredit the testimony offered in support of a plaintiffs case. Taylor, 279 Mich App at 314. A trial court may not weigh evidence when ruling on a summary disposition motion, Hines v Volkswagen of America, Inc, 265 Mich App 432, 437; 695 NW2d 84 (2005), or make credibility determinations, White v Taylor Distrib Co, Inc, 275 Mich App 615, 625; 739 NW2d 132 (2007). As discussed, much of the evidence that supports BOA’s claims is composed of witness testimony. It is for the trier of fact to decide whether to credit this testimony. Also, causation is generally a question for the trier of fact, although it may be decided by the court as a matter of law if no issue of material fact exists. Holton v A+ Ins Assoc, Inc, 255 Mich App 318, 326; 661 NW2d 248 (2003). BOA fails to demonstrate that there are no material issues of fact concerning whether CPL coverage is triggered in this case. It is for the trier of fact to assess the evidence at trial and to determine whether BOA’s losses arose out of WTA’s fraud or dishonesty in handling BOA’s funds or documents; the issue is not amenable to resolution as a matter of law. Accordingly, BOA is not entitled to summary disposition on its CPL claims.
In Docket No. 316538, FNTIC suggests other alternative grounds on which to grant summary disposition to FNTIC. Because, as discussed later, the trial court’s grant of summary disposition to FNTIC on the basis of the full credit bid rule must be reversed, and because FNTIC raised in the trial court the alternative grounds that it now asserts on appeal, we will address those alternative grounds for granting summary disposition to FNTIC. See Peterman v Dep’t of Natural Resources, 446 Mich 177, 183; 521 NW2d 499 (1994) (a litigant who raised an issue in the trial court should not be punished for the trial court’s failure to address the issue).
FNTIC’s first alternative ground for granting summary disposition in its favor is that BOA suffered no actual loss because it sold the loans “without recourse” to third-party investors on the secondary mortgage market. FNTIC notes that BOA relinquished “all of its ‘right, title, and interest’ ” in the mortgage loans. FNTIC argues that the mortgage loan purchase agreements (MLPAs) did not require BOA to repurchase the loans because of a title agent’s fraud; therefore, FNTIC reasons, any loss BOA suffered did not arise out of an act protected by the CPLs. FNTIC suggests that BOA voluntarily repurchased the loans from the third-party investors and that any loss was thus because of BOA’s own voluntary actions. FNTIC contends that BOA cannot recover payments that BOA voluntarily made in a breach of contract action.
In responding to this argument in the trial court, BOA explained that it repurchased the loans from the third-party investors after discovering that the loans were fraudulent because BOA was contractually obligated to do so. Under the MLPAs, BOA sold the loans to Banc of America Funding Corporation (BAFC). As part of the MLPAs, BOA made representations and warranties, including that there was “no default, breach, violation or event of acceleration existing under the [mortgages or mortgage notes].” BOA further explained that it was required to cure the breach or repurchase a defective mortgage loan when it discovered a breach of the representations and warranties in the MLPAs that had a material adverse effect on the value of the loan. BAFC then sold “without recourse” all of BAFC’s right, title, and interest in the loans that it purchased from BOA, including BAFC’s rights under the MLPAs, to trustees for the benefit of certificate holders of mortgage-backed securities. The pooling and servicing agreements (PSAs) governing the sales of the loans by BAFC to the trustees contain language effectively providing that the representations and warranties in the MLPAs survived delivery of the mortgage files to the trustees, thereby carrying over BOA’s obligation to repurchase defective mortgage loans after the loans were sold to the trustees under the PSAs.
In May 2007, BOA referred the loans at issue for further review after learning of potential fraud. Less than 30 days after this internal review was initiated, BOA repurchased the loans at issue. Judy Lowman, who was, at the time of these transactions, a BOA vice-president transaction manager working with mortgage-backed securities, testified that BOA did not have a choice about whether to repurchase the loans; she indicated that the repurchase was because of a breach of the representations in light of the fraud in connection with the origination of the loans and that BOA was contractually obligated to repurchase the loans. BOA prepared repurchase reports for each of the loans, which also indicate that BOA repurchased the loans because of the fraudulent nature of the loans. The repurchase reports set forth BOA’s internal findings that the loans were fraudulent and indicate that Lowman agreed that the loans should be repurchased. After Lowman authorized the repurchases, a BOA employee calculated the amounts owed to the investors, and the amounts were disbursed to the investors.
FNTIC identifies no evidence and presents no argument disputing that BOA repurchased the loans at issue after learning of the fraud associated with those loans. FNTIC instead contends that BOA voluntarily repurchased the loans and, therefore, cannot recover in this breach of contract action for payments that it voluntarily made. But the evidence summarized earlier provides support for BOA’s contention that it repurchased the defective loans because of what BOA understood to be its contractual obligation to do so. Moreover, in arguing that BOA suffered no actual loss because it voluntarily repurchased the loans, FNTIC again fails to appreciate that the “arises out of’ language in the CPLs does not require proximate cause in the strict legal sense and that, rather, almost any causal connection that is more than incidental or fortuitous is sufficient. Johnson, 474 Mich at 100-101; Scott, 483 Mich at 1033-1035 (KELLY, C.J., concurring); Lawyers Title Ins Corp, 285 Ga App at 30. As discussed earlier, evidence exists of a causal connection between WTA’s fraud or dishonesty and BOA’s losses. The fact that BOA sold the loans and then later repurchased the loans after concluding that it was contractually obligated to do so does not require a conclusion as a matter of law that the requisite causal connection has been negated or rendered incidental or fortuitous. See generally Holton, 255 Mich App at 326 (stating that causation is typically a question for the trier of fact). FNTIC cites no authority establishing that the existence of other possible causes precludes a conclusion that a lender’s losses arose out of a closing agent’s fraud or dishonesty under a CPL claim. Moreover, it has been recognized that an entity may sustain actual losses for the purpose of CPL claims if it repurchased loans that it had previously sold. See Walsh Securities, Inc, 858 F Supp 2d at 419 (noting, in the context of CPL claims, that the plaintiff, a mortgage loan wholesaler, “would only have sustained actual losses if it repurchased the twenty-one aforementioned mortgage loans”). Accordingly, FNTIC has failed to establish that BOA’s sale and subsequent repurchase of the loans requires a conclusion as a matter of law that BOA suffered no actual losses that arose out of WTA’s fraud or dishonesty.
As a related alternative ground for granting summary disposition in its favor, FNTIC argues that BOA lacks standing to make claims under the CPLs because BOA sold its interest in the CPLs to investors, and no evidence exists that BOA ever repurchased its interest in the CPLs. We disagree. “[A] litigant has standing whenever there is a legal cause of action.” Lansing Sch Ed Ass’n v Lansing Bd of Ed, 487 Mich 349, 372; 792 NW2d 686 (2010). FNTIC fails to explain why, even if BOA had not repurchased the loans, BOA would lack standing to pursue the CPL claims on behalf of the third-party investors in its capacity as a servicer of the loans. FNTIC identifies no language in the CPLs that required BOA to retain its loans in order to bring claims under the CPLs. Also, BOA repurchased the loans. FNTIC asserts that BOA’s repurchase of the loans did not return to BOA the interest in the CPLs, but FNTIC fails to cite authority establishing that the interest in a CPL is not reacquired when a loan is repurchased.
A party may not leave it to this Court to search for authority to sustain or reject its position. An appellant may not merely announce his position and leave it to this Court to discover and rationalize the basis for his claims, nor may he give issues cursory treatment with little or no citation of supporting authority. Argument must be supported by citation to appropriate authority or policy. An appellant’s failure to properly address the merits of his assertion of error constitutes abandonment of the issue. [Peterson Novelties, Inc v Berkley, 259 Mich App 1, 14; 672 NW2d 351 (2003) (citations and quotation marks omitted).]
Missing from FNTIC’s cursory argument is any articulation of why BOA’s repurchase of the loans excluded any rights under the CPLs that had been transferred when BOA sold the loans. There is no evidence that the trustees retained any rights associated with the loans after BOA repurchased the loans, such as the ability to pursue CPL claims against FNTIC after BOA repurchased the loans. No document has been presented explicitly saying that the interest in the CPLs was transferred back to BOA, but this does not preclude a conclusion that, in these circumstances, BOA reacquired any rights under the CPLs when it repurchased the loans. Cf. Burkhardt v Bailey, 260 Mich App 636, 658; 680 NW2d 453 (2004) (stating that if “a legal instrument fails to create an assignment but the circumstances clearly establish the assignor’s intent to presently transfer an interest, an equitable assignment may arise”).
Next, FNTIC asserts an alternative ground for denying BOA’s request for summary disposition in Docket No. 316538: FNTIC was prejudiced by BOA’s failure to provide prompt notice of its claims as required by the CPLs. This issue is not properly before this Court because FNTIC did not file a cross-appeal and is requesting greater relief than it received in the trial court. The trial court dismissed FNTIC’s counterclaims, which included FNTIC’s declaratory judgment counterclaim asserting, in relevant part, that FNTIC was prejudiced by BOA’s failure to provide prompt notice of its CPL claims. Although an appellee need not file a cross-appeal in order to assert an alternative ground for affirmance, “an appellee that has not sought to cross appeal cannot obtain a decision more favorable than was rendered by the lower tribunal.” ABATE v Public Serv Comm, 192 Mich App 19, 24; 480 NW2d 585 (1991). In this argument, FNTIC is effectively seeking to reverse in part the trial court’s dismissal of FNTIC’s declaratory judgment counterclaim, which would thereby result in a decision more favorable to FNTIC than was rendered by the trial court. Therefore, because FNTIC did not file a cross-appeal, FNTIC may not properly seek a partial reversal of the order dismissing its counterclaims by making the argument at issue.
But, even if this argument were properly before this Court, we would conclude that FNTIC’s argument is devoid of merit. Condition and Exclusion (F) of the CPLs in Docket No. 316538 contains the following notice provision: “Claims shall be made promptly to [FNTIC’s predecessor, LTIC] .... When the failure to give prompt notice shall prejudice [LTIC], the liability of [LTIC] hereunder shall be reduced to the extent of such prejudice.” As discussed earlier, it is FNTIC’s burden to demonstrate prejudice arising from the lack of prompt notice. Wendel, 384 Mich at 478.
An insurer must do more than simply claim that evidence was lost, physically altered, or has otherwise become unavailable and that witnesses have died, disappeared, or their memories have faded. Instead, an insurer must establish what is in fact lost by the missing evidence, how this prejudices its position, and why information available from other sources is inadequate. [Triple Investment Group, LLC, 71 F Supp 3d at 740.]
FNTIC argues that BOA waited more than four years after learning of the alleged fraud to notify FNTIC of the CPL claims. In suggesting that it was prejudiced, FNTIC refers to BOA’s destruction of its original loan files, the borrowers’ destruction of their copies of documents, the cessation of operations by WTA and by BOA’s broker, the disappearance of WTA’s original files for these transactions, and the deaths of one LTIC employee and one WTA employee. FNTIC has failed to demonstrate a genuine issue of material fact that it was prejudiced by BOA’s delay in providing notice. FNTIC asserts in a conclusory fashion that the loss of evidence and deaths of witnesses have prejudiced FNTIC’s ability to investigate liability and damages and impaired its ability to evaluate or settle BOA’s claims. FNTIC’s assertions fail to demonstrate with a sufficient level of specificity “what is in fact lost by the missing evidence, how this prejudices its position, and why information available from other sources is inad equate.” Id. Accordingly, BOA was properly granted summary disposition on the aspect of FNTIC’s counterclaim asserting prejudice arising from the alleged failure to give prompt notice.
FNTIC also argues that BOA impaired FNTIC’s right of subrogation by failing to confirm the value of the properties and the borrowers’ ability to repay the loans and by approving the loans without independently verifying the accuracy of the inflated appraisals. Condition and Exclusion (B) of the CPLs provided that FNTIC’s predecessor, LTIC, was subrogated to all rights and remedies that BOA would have had and provided for the reduction of LTIC’s liability to the extent that BOA knowingly and voluntarily impaired the value of the subrogation right. FNTIC fails to cite any pertinent authority in support of its argument on this issue and also fails to present an argument that BOA knowingly and voluntarily impaired the subrogation right as required to reduce FNTIC’s liability under the language of the CPLs. FNTIC’s cursory appellate presentation results in abandonment of this issue. Peterson Novelties, Inc, 259 Mich App at 14. In any event, FNTIC’s argument is devoid of merit. There is no evidence that BOA knowingly and voluntarily impaired the value of FNTIC’s subrogation right. BOA’s purported failure to confirm the value of the properties or the borrowers’ ability to repay the loans constituted at most mere negligence. FNTIC’s suggestion that the value of its subrogation right was impaired because BOA made full credit bids for the properties, thereby precluding FNTIC from pursuing deficiency judgments against the borrowers, is unsupported. FNTIC identifies no evidence that the borrowers possessed assets from which any deficiency judgments could be collected. It is therefore groundless for FNTIC to assert that BOA’s full credit bids impaired the value of FNTIC’s subrogation right.
III. FULL CREDIT BID RULE
Next, BOA argues in Docket Nos. 311798 and 316538 that the trial court in each case erred by concluding that the full credit bid rule barred one or both of BOA’s breach of CPL claims. We agree.
Before addressing the substance of this issue, we note that in Docket No. 316538, the trial court had initially rejected FNTIC’s argument that the full credit bid rule applied, but later revisited that determination and agreed with FNTIC’s argument. BOA contends that the trial court lacked authority to do this because the trial court had already denied both FNTIC’s motion for summary disposition on this issue and FNTIC’s motion for reconsideration of that decision. But we agree with FNTIC that the trial court had authority to revisit its earlier determination concerning the applicability of the full credit bid rule. MCR 2.604(A) provides that “an order or other form of decision adjudicating fewer than all the claims, or the rights and liabilities of fewer than all the parties, does not terminate the action as to any of the claims or parties, and the order is subject to revision before entry of final judgment adjudicating all the claims and the rights and liabilities of all the parties.” “As a general matter, courts are permitted to revisit issues they previously decided, even if presented with a motion for reconsideration that offers nothing new to the court.” Hill v City of Warren, 276 Mich App 299, 307; 740 NW2d 706 (2007). Aparty is permitted to file more than one motion for summary disposition. MCR 2.116(E)(3); Dep’t of Social Servs v Baayoun, 204 Mich App 170, 176-177; 514 NW2d 522 (1994). The denial of a motion for summary disposition does not preclude such a motion on the same ground from being granted later in the same case. See Goodrich v Moore, 8 Mich App 725, 728; 155 NW2d 247 (1967). In this case, although the trial court exhibited a lack of awareness that it had previously denied FNTIC’s motion for reconsideration of the order denying FNTIC’s first motion for summary disposition, the trial court nonetheless had authority to revisit its previous determination regarding the applicability of the full credit bid rule. A final judgment had not yet been entered, and FNTIC had filed another motion for summary disposition again raising the issue of the full credit bid rule as permitted by court rule. Consequently, the trial court possessed authority to revisit the issue.
Nevertheless, we agree with BOA that the trial courts in Docket Nos. 311798 and 316538 erred by concluding that the full credit bid rule barred some of BOA’s breach of CPL claims. Our Supreme Court recently provided guidance in this area of the law. In FATCO, 499 Mich at 88-89, our Supreme Court explained the full credit bid rule as follows:
A mortgagee who bids on the property at a foreclosure sale is not required to bid the full amount of the debt. If a mortgagee bids a lower amount, it may then pursue a deficiency judgment against the debtor, subject to the limitations set forth in the anti-deficiency statute [MCL 600.3280], However, a mortgagee can make a full credit bid—i.e., a credit bid in an amount equal to the unpaid principal and interest of the mortgage debt, together with costs, fees, and other expenses of the foreclosure. If a mortgagee’s full credit bid is successful, i.e., results in the acquisition of the property, the lender pays the full outstanding balance of the debt and costs of the foreclosure to itself and takes title to the security property, releasing the borrower from further obligations under the defaulted note.
Under the full credit bid rule, a lender who takes title following a full credit bid is precluded for purposes of collecting its debt from later claiming that the property is actually worth less than the bid. This is because the mortgagee who enters such a bid is deemed to have irrevocably warranted that the value of the security foreclosed upon was equal to the outstanding indebtedness and not impaired. Thus, the full credit bid rule makes a properly conducted nonjudicial foreclosure sale the dis-positive device through which to resolve the question of value. And, in its most direct application, the rule bars a mortgagee who takes title at a nonjudicial foreclosure sale following a full credit bid from pursuing a deficiency judgment against the mortgagor. [Citations and quotation marks omitted.]
In FATCO, our Supreme Court held “that the New Freedom panel erred to the extent it held that the full credit bid rule bars contract claims against nonbor-rower third parties, such as defendants in this case. Therefore, the Court of Appeals in the instant case erred by concluding that plaintiffs full credit bids barred its contract claims against the nonborrower third-party defendants.” Id. at 80. Our Supreme Court in FATCO further explained:
[T]he full credit bid rule is related to the anti-deficiency statute, and its purpose is merely to resolve the question of the value of the property for purposes of determining whether the mortgage debt was satisfied. It is not concerned with the relationship between the lender and third parties and was simply not intended to cut off all remedies a mortgagee might have against nonborrower third parties.
* * *
In sum, although the full credit bid rule is not a creature of statute, we are cognizant of its relationship to the foreclosure by advertisement and anti-deficiency statutes. Those statutes are carefully designed to govern the relationship between, and. establish the rights and liabilities of, the mortgagee and mortgagor—not nonborrower third parties.... [W]e conclude that there is no justification for extending the protections of the rule to alter the contractual rights and liabilities between a mortgagee and nonborrower third parties. Therefore, we hold that the full credit bid rule does not bar contract claims by a mortgagee against nonborrower third parties, and we overrule New Freedom to the extent that it conflicts with our decision today. [Id. at 96, 98-99.]
In Docket No. 311798, the trial court partially premised its grant of summary disposition to FNTIC on the fact that BOA made a full credit bid in the Buie transaction, and in Docket No. 316538, the trial court likewise granted summary disposition to FNTIC on the ground that BOA made full credit bids in the Marks and Williams transactions. In other words, the trial court in each lower court action applied the full credit bid rule to bar one or both of BOA’s CPL claims. As the quotations from FATCO reflect, however, our Supreme Court has now clarified that the full credit bid rule is inapplicable to a mortgagee’s claims against nonbor-rower third parties. Indeed, the claims at issue in the present cases, i.e., breach of CPL claims against a title insurer related to a closing agent’s fraud or dishonesty, were among the types of claims at issue in FATCO and with respect to which our Supreme Court held that the full credit bid rule was inapplicable. See FATCO, 499 Mich at 98-99. Therefore, the trial courts in the present cases erred by holding that some of BOA’s breach of CPL claims against FNTIC were barred by the full credit bid rule.
IV. CASE EVALUATION, ATTORNEY PEES, AND COSTS
In light of our resolution of the earlier issues, we need not address the substance of the remaining issues raised by BOA on appeal, which are raised in Docket Nos. 312426 and 313797, and which arise from the same lower court file as Docket No. 311798. Specifically, BOA argues that the trial court erred by striking the case evaluation award. The trial court’s decision to strike the case evaluation award was premised on the fact that it had granted summary disposition to FNTIC with respect to BOA’s claims against FNTIC and its view that it was, therefore, inappropriate for the case evaluation to have been held on the dismissed claims. Because we have concluded that the trial court erred by granting summary disposition to FNTIC, it follows that the trial court’s decision to strike the case evaluation award premised on what we have concluded was an erroneous grant of summary disposition to FNTIC must be vacated. Accordingly, it is unnecessary for us to address whether the decision to strike the case evaluation award would otherwise have been appropriate if the grant of summary disposition had been proper.
Likewise, we need not address the substance of BOA’s arguments challenging the award of attorney fees to FNTIC. The offer-of-judgment sanctions at issue here were imposed on the ground that the order granting summary disposition to FNTIC was more favorable to FNTIC, the offeror, than the average offer, thereby entitling FNTIC to recover its costs and attorney fees under MCR 2.405(D). But because, as discussed earlier, we are reversing the order granting summary disposition to FNTIC, the award of sanctions premised on that grant of summary disposition must be vacated, thereby making it unnecessary to address the specific issues concerning sanctions raised by BOA. Cf. McManamon v Redford Charter Twp, 273 Mich App 131, 141; 730 NW2d 757 (2006) (“ ‘[I]t is the ultimate verdict that the parties are left with after appellate review is complete that should be measured against the mediation evaluation to determine whether sanctions should be imposed on a rejecting party pursuant to MCR 2.403(0).’ ”), quoting Keiser v Allstate Ins Co, 195 Mich App 369, 374-375; 491 NW2d 581 (1992). In other words, because we are reversing the order granting summary disposition to FNTIC, this action has not yet proceeded to verdict, and the sanctions award must therefore be vacated.
V. CONCLUSION
In sum, in Docket No. 311798, we reverse the order granting summary disposition to FNTIC regarding BOA’s breach of contract claim, reverse the order denying BOA’s motion for summary disposition concerning FNTIC’s counterclaims and affirmative defenses, and remand this matter for further proceedings consistent with this opinion. In Docket Nos. 312426 and 313797, we vacate the order striking the case evaluation award and the orders awarding costs and attorney fees to FNTIC. In Docket No. 316538, we reverse the order granting summary disposition to FNTIC regarding BOA’s breach of contract claim, affirm the order denying BOA’s motion for summary disposition concerning its breach of contract claim, affirm the order granting summary disposition to BOA regarding FNTIC’s counterclaims and affirmative defenses, and remand for further proceedings consistent with this opinion.
Affirmed in part, reversed in part, vacated in part, and remanded for further proceedings consistent with this opinion. We do not retain jurisdiction. BOA, as the prevailing party, may tax costs in accordance with MCR 7.219.
Meter, P.J., and Shapiro, J., concurred with O’Brien, J.
The appeal in Docket No. 316538 arises from a different lower court file than the appeals in Docket Nos. 311798, 312426, and 313797.
Although this Court is not bound by decisions of federal courts or courts of other states, we may consider them persuasive. Mettler Walloon, LLC v Melrose Twp, 281 Mich App 184, 221 n 6; 761 NW2d 293 (2008); People v Jackson, 292 Mich App 583, 595 n 3; 808 NW2d 541 (2011). | [
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METER, J.
Defendant Michael Metcalf appeals by leave granted the trial court’s order denying his motion for summary disposition. Metcalf challenges the trial court’s determination that genuine issues of fact exist regarding whether he owned a boat at the time of its allegedly negligent operation. We reverse and remand for entry of judgment in favor of Metcalf.
Plaintiff Madison P. Williams, through her next friend and mother, Kellie A. Williams, brought this negligence action after a boat struck Madison in Silver Lake in Kent County, causing partial amputation of her right foot. Plaintiff claims entitlement to relief against Metcalf under MCL 324.80157, which holds watercraft owners liable for damages resulting from the negligent operation of their vessels. Defendant Mark R. Kennedy piloted the boat on September 1, 2013, when the accident occurred.
Kennedy had obtained the boat from Metcalf on August 26, 2013, for $45,000. Kennedy paid with two $22,500 checks, one drawn from his own account and one from the account of defendant Turner Land Jack LLC, a business owned by defendant Jack Visser. In exchange, Metcalf signed and delivered the boat’s “Watercraft Certificate of Title,” which contains a section entitled “Title Assignment by Seller.” The certificate states that “the ownership of the watercraft. . . has been transferred to the following purchaser(s)” and lists Kennedy as transferee. Kennedy left Metcalfs residence with both the boat and the “Watercraft Certificate of Title” when the transaction was complete. Metcalf expected Kennedy to apply to the Secretary of State to transfer legal title using the paperwork he completed and delivered to Kennedy at the point of sale. Twice, on August 28 and August 30, 2013, Kennedy attempted to do so at an office of the Secretary of State. On both occasions, long lines deterred him from completing the process. Therefore, when Kennedy piloted the boat that struck Madison in Silver Lake on September 1, 2013, the boat’s sale had not yet been formally reported to the Secretary of State.
Kennedy successfully completed the transaction at the Secretary of State on September 5, 2013. The transfer-of-title documents list the date of purchase from Metcalf as August 26, 2013.
In addition to her complaint alleging that all defendants are liable for damages, plaintiff filed a motion for summary disposition, requesting that the trial court find that Metcalf qualified as an “owner” of the boat at the time of the accident. Metcalf subsequently filed a cross-motion for summary disposition, asking the court to determine that he did not own the boat at the pertinent time. The trial court found genuine issues of material fact regarding the question of Metcalfs ownership and denied both motions. Metcalf presently appeals by leave granted the denial of his cross-motion for summary disposition.
This Court reviews de novo the trial court’s order denying summary disposition. Johnson v Recca, 492 Mich 169, 173; 821 NW2d 520 (2012). The subrule at issue here is MCR 2.116(C)(10). When reviewing a motion under this subrule, “our task is to determine whether any genuine issue of material fact exists in order to prevent entering a judgment for the moving party as a matter of law.” Morales v Auto-Owners Ins Co, 458 Mich 288, 294; 582 NW2d 776 (1998). “We must consider the pleadings, affidavits, depositions, admissions, and any other evidence in favor of the party opposing the motion, and grant the benefit of any reasonable doubt to the opposing party.” Id. (quotation marks and citation omitted).
This appeal also involves issues of statutory interpretation, which we review de novo. 2000 Baum Family Trust v Babel, 488 Mich 136, 143; 793 NW2d 633 (2010).
“[T]he proper role of the judiciary is to interpret and not write the law . . . .” Koontz v Ameritech Servs, Inc, 466 Mich 304, 312; 645 NW2d 34 (2002). Accordingly, this Court enforces a statute as written if the statutory language is unambiguous. Wickens v Oakwood Healthcare Sys, 465 Mich 53, 60; 631 NW2d 686 (2001). While a term “must be applied as expressly defined” within a given statute, Barrett v Kirtland Community College, 245 Mich App 306, 314; 628 NW2d 63 (2001), undefined words are to be given their “plain and ordinary meaning, taking into account the context in which the words are used,” Krohn v Home-Owners Ins Co, 490 Mich 145, 156; 802 NW2d 281 (2011) (citations omitted). We may consult a dictionary to ascertain “common and ordinary meaning[s].” Id. This Court must avoid an interpretation that would render any part of a statute surplusage or nugatory. Robinson v Lansing, 486 Mich 1, 21; 782 NW2d 171 (2010).
The Natural Resources and Environmental Protection Act (NREPA), MCL 324.101 et seq., sets forth procedures for selling and transferring title to watercraft. MCL 324.80304(1) states that, except in a situation not applicable here, a person may not sell a watercraft “without delivering to the purchaser or transferee of the watercraft a certificate of title with such assignment on the certificate of title as is necessary to show title in the purchaser.” MCL 324.80304(2), a complementary provision, states that a person “shall not purchase or otherwise acquire a watercraft without obtaining a certificate of title for it in the person’s name[.]” In this case, it is indisputable from the evidence that Metcalf qualifies as a seller and Kennedy qualifies as a purchaser under these provisions of NREPA. Metcalf successfully delivered the “Watercraft Certificate of Title” to Kennedy at the point of sale and expressly assigned ownership to Kennedy with this document in the section entitled “Title Assignment by Seller.”
NREPA further provides that “[a]pplication for a certificate of title for a watercraft. . . shall be filed with the secretary of state within 15 days after the date of purchase or transfer.” MCL 324.80307(1). In a case such as this, in which a “certificate of title was previously issued for the watercraft, [the application] shall be accompanied by the certificate of title duly assigned, unless otherwise provided in this part.” Id. Thus, Kennedy was required to apply to the Secretary of State to register the transfer of title within 15 days after purchase of the watercraft. Kennedy successfully completed this requirement on September 5, 2013, after the boating accident occurred, by presenting to the Secretary of State the certificate of title that had been delivered to him by Metcalf on the date of purchase.
The issue in this appeal is whether the seller of a boat qualifies as an owner during the period after a seller delivers the certificate of title to a purchaser but before the transfer of title has been registered with the Secretary of State. Whether Metcalf is deemed an owner during this period determines his liability under MCL 324.80157 for damages resulting from the boating accident.
We note, initially, that after discussing the requirements for applying for a certificate of title, MCL 324.80307(1) goes on to state that, “[i]f satisfied that the applicant is the owner of the watercraft and that the application is in the proper form, the secretary of state shall issue a certificate of title.” This sentence suggests that ownership precedes completion of legal transfer of title with the Secretary of State. Indeed, legal transfer is impossible if the Secretary of State is not satisfied that “the applicant is the owner” of the watercraft. The statute implies, then, that Kennedy, not Metcalf, was the owner at the time of the accident.
More significantly, MCL 324.80103(i) sets forth an explicit definition of the term “owner”: “a person who claims or is entitled to lawful possession of a vessel by virtue of that person’s legal title or equitable interest in a vessel.” No party suggests that Metcalf claimed lawful possession of the boat at the time of the accident. Nor does any party argue that Metcalf was entitled to lawful possession by virtue of an equitable interest. Indeed, in exchange for Kennedy’s full $45,000 payment, Metcalf assigned the boat to Kennedy with the boat’s certificate of title by signing his name to a declaration that ownership had been transferred. Delivery to Kennedy was completed when Kennedy accepted both the certificate and the boat into his possession. Metcalf testified that he expected Kennedy to fulfill the remaining requirements for title transfer by applying to the Secretary of State in accordance with MCL 324.80307(1).
In light of these facts, it is only possible that Metcalf qualified as an owner under MCL 324.80103(i) if he was entitled to lawful possession by virtue of his legal title at the time of the accident. Legal title, as defined by Black’s Law Dictionary (10th ed), exists when a title “evidences apparent ownership but does not necessarily signify full and complete title or a beneficial interest.” Metcalfs name did appear on the certificate of title registered with the state at the time of the accident because Kennedy had not yet successfully transferred title with the Secretary of State. Accordingly, Metcalf arguably had legal title to the boat at the time of the accident. We cannot conclude, however, that Metcalf was entitled to lawful possession of the boat “by virtue of’ any legal title. MCL 324.80103(i).
“By virtue of’ means “through the force of’ or “by authority of.” Merriam-Webster’s Collegiate Dictionary (11th ed). Even if Metcalf had legal title to the boat at the time of the accident, it is clear that Metcalf was not entitled to lawful possession through the force of or by authority of this title. Black’s Law Dictionary (10th ed) defines “possession” as “having or holding property in one’s power” or “the right under which one may exercise control over something to the exclusion of all others,” and it defines “lawful possession” as possession that is “based on a good-faith belief in and claim of ownership” or “granted by the property owner to the possessor.” Metcalf expressly transferred his posses-sory interest in the boat to Kennedy at the point of sale. Kennedy had not granted Metcalf a possessory interest in the boat, nor could Metcalf possess the boat on the basis of a good-faith claim of ownership.
Additionally, Kennedy was to apply to the Secretary of State to transfer official title within 15 days after the sale in accordance with MCL 324.80307(1). Any suggestion that Metcalfs right to lawful possession continued into this 15-day postpurchase period conflicts with MCL 324.80307(1). Indeed, the Secretary of State would be unable to determine that the applicant for title registration, the purchaser, is the owner of a vessel if the seller retains the right to possession after a proper transfer of possession and title at the point of sale.
For the foregoing reasons, Metcalf did not qualify as an owner of the boat for purposes of the present lawsuit.
Eeversed and remanded for entry of judgment in favor of Metcalf. We do not retain jurisdiction.
BOONSTRA, P.J., and WILDER, J., concurred with Meter, J.
Plaintiff cites Hunt v Adams, unpublished opinion per curiam of the Court of Appeals, issued June 14, 2012 (Docket No. 304563), in support of her appeal. We decline to rely on this case because it is nonbinding, see MCR 7.215(C)(1), and also because it is sufficiently distinguishable. Indeed, in Hunt, the Secretary of State refused to issue a certificate of title to a purported purchaser, Janis Jones, because of an outstanding hen on the boat. Hunt, unpub op at 2-3. The Hunt Court’s holding that Jones “never legally took title to the boat,” id. at 4, does not apply here, when the Secretary of State found that Kennedy was indeed the owner and issued a formal certificate of title on September 5, 2013, and when the transfer-of-title documents filed with the Secretary of State specified a purchase date of August 26, 2013. We note that, even if we were to conclude that Kennedy did not acquire legal title to the boat until he obtained a certificate of title from the Secretary of State, this would not mean that Metcalf was an owner under MCL 324.80103(i) after the sale. The question at issue in this case—whether, at the time of the accident, Metcalf was an owner of the boat under the definition set forth in MCL 324.801036)—does not involve an inquiry into whether the assignee acquired legal title to the boat. Kennedy was, in fact, an “owner” under MCL 324.801036) at the time of the accident, in that he had lawful possession by virtue of his equitable title. See Black’s Law Dictionary (10th ed) (defining “equitable title” as “[a] title that indicates a beneficial interest in property and that gives the holder the right to acquire formal legal title”). Finally, we note that the additional opinion cited by plaintiff—Jerry v Second Nat’l Bank of Saginaw, 208 Mich App 87; 527 NW2d 788 (1994)—is distinguishable because in the present case, as contrasted with Jerry, an assignment of title from Metcalf to Kennedy occurred. Cf. id. at 92-93. | [
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WILDER, J.
In this employment matter, plaintiff, Tammy McNeill-Marks, appeals as of right the trial court’s order granting summary disposition to defendant, MidMichigan Medical Center-Gratiot (MMCG). We affirm in part, reverse in part, and remand to the trial court for further proceedings consistent with this opinion.
I. FACTUAL BACKGROUND
This case arises out of plaintiffs discharge from her position at MMCG. In 1991, plaintiff was hired as a registered nurse at a different MidMichigan Medical Center, which is located in Midland. She subsequently transferred to the Gratiot location, where she began to serve as clinical manager of perioperative services and ambulatory care.
Between 2006 and 2008, plaintiff adopted two children and had a third placed in her custody (collectively, the children). Each child has a different father, but the biological mother of all three is Sandi Lee Freeze, who is plaintiffs second cousin. Freeze’s mother—the children’s grandmother—is Marcia Fields. According to plaintiff, Fields suffers from several psychiatric disorders, including “paranoid schizophrenia, multiple personality disorder,” and “bipolar depression.” During the adoption process, Fields began to threaten plaintiff. She threatened to kill plaintiff, the children, and plaintiffs biological children. Such threats led plaintiff to seek a personal protection order (PPG) against Fields, which was eventually granted on an ex parte basis.
It is unclear from the record precisely when the initial PPG was issued, but presumably because it had expired, on December 19, 2012, plaintiff, through her legal counsel, Richard Gay, filed a petition again seeking an ex parte PPO against Fields. That same day, a circuit court judge granted plaintiffs ex parte petition, entering a PPO that prohibited Fields from having any contact with the children and from “posting a message through the use of any medium of communication, including the Internet or a computer or any electronic medium, pursuant to MCL 750.411s.”
After its entry, Fields allegedly violated the PPO on several occasions by sending electronic messages to plaintiff. When plaintiff contacted local police regarding Fields’s purported violations of the PPO and attempted to file a police report, the police “told [her] that [she] needed to contact [her] attorney, not [the police],” because the PPO had never been properly entered in the Law Enforcement Information Network (LEIN). On January 14, 2013, the circuit court entered an amended PPO, this time ordering Fields, among other things, to refrain from “stalking” plaintiff, as that term is “defined under MCL 750.411h and MCL 750.411Í, which includes but is not limited to” (1) “following or appearing within sight of’ plaintiff, (2) appearing at plaintiffs workplace or residence, and (3) “approaching or confronting [plaintiff] in a public place or on private property.” The amended PPO explicitly noted that it would “remainO in effect until 12/31/2013.” Ignoring the amended PPO, Fields continued to contact plaintiff.
On December 27, 2013—four days before the expiration date of the amended PPO—plaintiff filed a motion, through Gay, to extend the amended PPO for another year. Later that day, the circuit court granted plaintiffs motion on an ex parte basis. The court entered a new PPO, which again ordered Fields to refrain from “stalking” plaintiff, as that term is “defined under MCL 750.411h and MCL 750.411Í,” and which specified that the order was “effective when signed, enforceable immediately,” and would “remain 0 in effect until 12/31/2014.”
While at work roughly two weeks later, on January 13, 2014, plaintiff encountered Fields in a hallway at MMCG. At her deposition, plaintiff described the encounter as follows:
Q. ... Okay. You were walking down the hallway?
A. I came out of the operating room door .... I said “Hello” because you’re trained to always speak to people. I didn’t even realize who she [Fields] was .or who the transporter was that was transporting her. I got three steps down the hallway and [Fields] said, “Hello, Tammy,” in one of those little voices she does, and my stomach sank.
Q. She was being transported, in the sense that she was not walking herself?
A. Correct. She was in a wheelchair.. ..
Q. Do you know what area of the hospital she had been admitted into?
A. No, I do not. Nor did I at that time.
Q. Did you understand that she was inpatient?
A. No, I did not.
Q. You didn’t know, or you understood something different than that?
A. No, I had no way of knowing where [Fields] had came from [sic] in the hospital. Those transporters transport from ER, the tower, all outpatient services, she could have came from [sic] anywhere and be going anywhere.
Q. After you had passed, [Fields] said, “Hello, Tammy”?
A. Yes.
Q. In whatever voice you had described?
A. A little sing-songy voice she has when she feels she has passed something over on you like a little kid. It’s very specific.[ ]
Q. Were any other words exchanged?
A. No. I immediately went into another door.
Q. Do you have any reason to think that she somehow planned that encounter with you, meaning that she knew that you were going to be coming down the hallway in the moment that she was getting wheeled to a procedure?
[Plaintiffs counsel places an objection to foundation on the record, then instructs plaintiff to answer.]
A. I believe on more than one occasion she has admitted herself in the hospital with the hopes that she could ... make contact with me, yes.
Q. Well, I’m talking about with regard to this particular encounter, and then if you want we can expand on that; okay?
A. Okay.
Q. So with this particular encounter, the two of you passed each other in the hallway.
A. I don’t believe that. . . that anybody could necessarily — that wouldn’t be a reasonable expectation, that she could plan to pass me in the hallway.
Q. After that encounter in the hallway, did you see her again at [MMCG]?
A. No, I did not.
After encountering Fields, plaintiff immediately went into an employee break room. She was “visibly upset and shaking,” so much so that a coworker voiced concern, asking plaintiff what was wrong. Plaintiff was particularly upset that, through their encounter, Fields had learned “specifically where in the hospital” plaintiff worked. She feared that such knowledge would make Fields a danger to not only plaintiff but also her fellow employees. A short time later, plaintiff called her supervisor, Theresa Baily, who was already aware that plaintiff held a PPO against Fields, and informed Baily about what had transpired.
After speaking with Baily, plaintiff called her attorney, Gay, and told him, “[Fields] showed up today at my workplace.” According to plaintiff, Gay never asked for further explanation about what plaintiff “meant” when she said that Fields “showed up” at MMCG. At no time did plaintiff inform Gay that Fields “was there in any form as a patient” or that Fields had been in a wheelchair. Likewise, plaintiff said nothing to Gay about the possibility of serving Fields with the latest PPO while Fields was at MMCG. Rather, questioning whether it was advisable to serve the PPO, plaintiff instructed Gay “not to serve [Fields] at all. . . .” Gay confirmed that, through his conversation with plaintiff, he “was aware that. . . Fields had approached [plaintiff] at the hospital in violation of the PPO,” but he “did not have any information from [plaintiff] that [Fields] was a patient at the hospital. . . .”
It is undisputed, however, that later that evening, while still a patient at MMCG, Fields was served with the PPO in her hospital room. According to plaintiff and Gay, Fields’s service occurred as a matter of happenstance that bore no causal relationship to the encounter between plaintiff and Fields earlier that day. At the time, Gay’s secretary, Deborah Brown, was dating Gay’s process server, Lynn Beetley. Brown was at MMCG visiting another patient when “she thought she saw . . . Fields as a patient” there. Brown called Gay, asking whether “it would be okay to serve [Fields] at the hospital” despite the fact that Fields was a patient. Gay responded, “ [I] t sounds okay to me . . . .” Brown evidently informed Beetley of the opportunity because, according to Gay, Beetley went to MMCG “during regular visiting hours, . . . went to the desk,” identified himself, asked for and received Fields’s room number, then went to her room and served her.
Fields and her family reported the incident to MMCG as a suspected violation of federal privacy regulations, specifically those set forth by the Health Insurance Portability and Accountability Act (HIPAA). Fields alleged that, after encountering Fields at MMCG, plaintiff must have “accessed her record somehow electronically,” used such access to obtain Fields’s room number, and then informed Gay of Fields’s patient status and room number. An electronic audit later revealed that plaintiff did not improperly access Fields’s electronic records.
On January 16, 2014, which was three days after plaintiff encountered Fields at MMCG, Gay filed, on plaintiffs behalf, a motion seeking to have Fields held in contempt for alleged violations of the PPO; however, the motion did not include Fields’s encounter with plaintiff at MMCG as an alleged violation. A motion hearing was scheduled, but it was subsequently adjourned at Fields’s request.
In reaction to Fields’s HIPAA complaint, MMCG began an investigation, which involved several staff members, including MMCG’s privacy officer, Suzanne Broudbeck. During the investigation, plaintiff admit ted that she told Gay that Fields was “at the hospital” on January 13, 2014, but plaintiff denied ever revealing Fields’s patient status to Gay. According to plaintiff, when she explained to Broudbeck how Fields had been located and served—without plaintiff divulging Fields’s patient status—Broudbeck called plaintiff “a liar.” Moreover, in the course of the investigation, after learning of the upcoming hearing on plaintiffs motion to hold Fields in contempt for violating the PPO, Broudbeck “threatened” that plaintiff would be terminated if she testified at the hearing, as planned, regarding her interaction with Fields at MMCG:
I was told by... Broudbeck that if I even mentioned . . . seeing [Fields] in the hallway ... that would be grounds for being fired. And at that time I was still. .. employed at [MMCG].
I said, “If the judge asks me outright if I saw [Fields], am [I] allowed to answer truthfully?” And [Broudbeck] said no, that I am not allowed to answer that, or it would be grounds for termination.
And she said ... if you answer those questions you will be fired.
At her deposition, Broudbeck categorically denied making such statements or ever discussing the circuit court proceedings with plaintiff.
Following her investigation, Broudbeck concluded that plaintiff had violated both HIPAA and MMCG’s privacy policies by disclosing Fields’s “protected health information” (PHI) to Gay, specifically by “disclos[ing] that the patient [Fields] was here at the hospital.” As a result, plaintiff was terminated on February 14, 2014. The “Corrective Action and Disciplinary Form” that she was given at the time of termination cited plaintiffs telephone conversation with Gay as a “severe breach of confidentiality and violation 0 of HIPAA privacy/practices,” which was the reason for her discharge.
Several months later, a motion hearing took place regarding plaintiffs motion to hold Fields in contempt for violating the PPO. Fields pleaded guilty to violating the PPO. According to plaintiff, at the hearing, Fields admitted that she “violated the PPO by being present” at MMCG.
II. PROCEDURAL BACKGROUND
Plaintiff instituted this action by filing a two-count complaint against MMCG. She alleged that her termination violated both the Whistleblowers’ Protection Act (WPA), MCL 15.361 et seq., and Michigan public policy because MMCG terminated her for either reporting Fields’s violation of the PPO to Gay or being about to report that violation to the circuit court.
Following discovery, MMCG moved for summary disposition under MCR 2.116(C)(10). In support, MMCG argued that plaintiff had failed to establish a prima facie case of unlawful retaliation under the WPA because (1) plaintiff never reported Fields’s alleged violation of the PPO to a “public body” as defined under the WPA and (2) plaintiff could not have reasonably suspected that Fields’s conduct— encountering plaintiff by accident while being transported in a wheelchair—violated the “stalking” prohibition in the PPO. MMCG further argued that, even if plaintiff could state a prima facie case under the WPA, she had failed to introduce any evidence that MMCG’s stated reason for terminating her—i.e., its conclusion that she had violated HIPAA privacy regulations—was pretextual. With regard to plaintiffs public policy claim, MMCG argued that the WPA preempts any such claim. In any event, MMCG argued, plaintiff had presented no evidence that her termination was based on her refusal to violate the law or conceal a crime in contravention of this state’s established public policy.
In response, plaintiff argued that (1) under the WPA, Gay qualifies as a member of a “public body” because he is, as an attorney, an officer of the court and therefore a “member or employee of the judiciary,” (2) likewise, Gay qualifies as a member of a “body which is created by state . . . authority,” specifically the State Bar of Michigan, (3) as such, plaintiffs telephone conversation with Gay constituted a report to a member of a “public body” of a violation, or suspected violation, of law, (4) plaintiffs activity was also protected under the WPA because, at the time she was terminated, she was “about to report” Fields’s conduct to the circuit court, was threatened with termination if she did so, and was subsequently terminated under circumstances from which a reasonable inference of retaliation could be drawn, and (5) the stated reason for plaintiffs termination was pretextual because there is no evidence that plaintiff violated HIPAA by revealing Fields’s patient status. Kegarding her public policy claim, plaintiff argued that (1) the claim was not preempted by the WPA, (2) she had presented sufficient evidence to create a genuine issue of material fact about whether she was, contrary to Michigan public policy, discharged for refusing to conceal a criminal act, and (3) as with the WPA claim, the stated reason for plaintiffs termination was pretextual.
The trial court ultimately granted MMCG’s motion for summary disposition of both claims. The trial court reasoned that plaintiffs telephone conversation with Gay was not “a communication to a public body,” further reasoning that, “[a]bsent such a communication, there is no [WPA] claim . . . The trial court also concluded that, as a matter of law, Fields’s conduct at MMCG did not violate the PPO and that it was unreasonable for plaintiff to suspect that such conduct violated the PPO. Finally, concerning the public policy claim, the trial court held that there was, in its “judgment, no request by the hospital... to conceal or hide the existence of a, quote, crime, close quote, even if that, quote, crime, close quote, was simply the misdemeanor violation of a criminal contempt [PPO].”
III. ANALYSIS
A. STANDARD OF REVIEW
We review de novo “[a] trial court’s decision on a motion for summary disposition.” DeFrain v State Farm Mut Auto Ins Co, 491 Mich 359, 366; 817 NW2d 504 (2012). “A motion for summary disposition under MCR 2.116(C)(10) challenges the factual sufficiency of the complaint, with the trial court considering the entire record in a light most favorable to the nonmov-ing party.” LaFontaine Saline, Inc v Chrysler Group, LLC, 496 Mich 26, 34; 852 NW2d 78 (2014). “The moving party has the initial burden of supporting its position with documentary evidence, but once the moving party meets its burden, the burden shifts to the nonmoving party to establish that a genuine issue of disputed fact exists.” Peña v Ingham Co Rd Comm, 255 Mich App 299, 310; 660 NW2d 351 (2003) (quotation marks and citation omitted). Judgment as a matter of law is appropriate when the evidence demonstrates that no genuine issue of material fact remains. Karbel v Comerica Bank, 247 Mich App 90, 97; 635 NW2d 69 (2001) (citation omitted). Circumstantial evidence can be sufficient to establish a genuine issue of material fact, but mere conjecture or speculation is insufficient. Id. at 97-98 (citation omitted). We also review de novo, as legal questions, the proper interpretation of the WPA, Wurtz v Beecher Metro Dist, 495 Mich 242, 249; 848 NW2d 121 (2014), and issues regarding preemption, Ter Beek v City of Wyoming, 495 Mich 1, 8; 846 NW2d 531 (2014).
B. WHISTLEBLOWER CLAIM
Section 2 of the WPA provides:
An employer shall not discharge, threaten, or otherwise discriminate against an employee regarding the employee’s compensation, terms, conditions, location, or privileges of employment because the employee, or a person acting on behalf of the employee, reports or is about to report, verbally or in writing, a violation or a suspected violation of a law or regulation or rule promulgated pursuant to law of this state, a political subdivision of this state, or the United States to a public body, unless the employee knows that the report is false, or because an employee is requested by a public body to participate in an investigation, hearing, or inquiry held by that public body, or a court action. [MCL 15.362.]
To establish a prima facie case under the above provision, “a plaintiff must show that (1) the plaintiff was engaged in a protected activity as defined by the WPA, (2) the plaintiff was discharged, and (3) a causal connection existed between the protected activity and the discharge.” Manzo v Petrella, 261 Mich App 705, 712; 683 NW2d 699 (2004). “ ‘Protected activity’ under the WPA consists of (1) reporting to a public body a violation of a law, regulation, or rule; (2) being about to report such a violation to a public body; or (3) being asked by a public body to participate in an investiga tion.” Chandler v Dowell Schlumberger Inc, 456 Mich 395, 399; 572 NW2d 210 (1998). An employee asserting the second type of claim—an “about to report” claim— must support that claim with “clear and convincing evidence that he or she or a person acting on his or her behalf was about to report, verbally or in writing, a violation or a suspected violation ... to a public body.” MCL 15.363(4); see also Chandler, 456 Mich at 400. “The first two types of activity are protected, ‘unless the employee knows that the report is false.’ ” Truel v City of Dearborn, 291 Mich App 125, 138; 804 NW2d 744 (2010), quoting MCL 15.362. “In other words, reporting or being about to report violations or suspected violations is protected if the report is or is about to be made in good faith.” Id. (emphasis added). The violation or suspected violation at issue need not be one committed by the employer or one of the plaintiffs coworkers; rather, the scope of the WPA is “broad enough to cover violations of the law by a third person.” Chandler, 456 Mich at 404; see also Kimmelman v Heather Downs Mgt Ltd, 278 Mich App 569, 575; 753 NW2d 265 (2008) (“There is absolutely nothing, express or implied, in the plain wording of the statute that limits its applicability to violations of law by the employer or to investigations involving the employer”).
To establish a prima facie case, a plaintiff can rely on either direct evidence of retaliation or indirect evidence. See Debano-Griffin v Lake Co, 493 Mich 167, 176; 828 NW2d 634 (2013), citing Hazle v Ford Motor Co, 464 Mich 456, 464; 628 NW2d 515 (2001). “ ‘Direct evidence’ is evidence that, if believed, requires the conclusion that unlawful discrimination was at least a motivating factor in the employer’s actions.” Powers v Post-Newsweek Stations, 483 Mich 986, 987 n 3 (2009) (KELLY, C.J., concurring), citing Hazle, 464 Mich at 462. If the plaintiff establishes a prima facie case, a pre sumption of retaliation arises, which the employer can rebut by offering “a legitimate reason for its action . . . Debano-Griffin, 493 Mich at 176. To avoid summary disposition after the employer offers such a reason, the plaintiff must “show that a reasonable fact-finder could still conclude that the plaintiffs protected activity was a ‘motivating factor’ for the employer’s adverse action,” i.e., that the employer’s articulated “legitimate reason” was a pretext disguising unlawful animus. Id., quoting Hazle, 464 Mich at 465.
A plaintiff can establish that a defendant’s articulated legitimate . . . reasons are pretexts (1) by showing the reasons had no basis in fact, (2) if they have a basis in fact, by showing that they were not the actual factors motivating the decision, or (3) if they were factors, by showing that they were jointly insufficient to justify the decision. [Feick v Monroe Co, 229 Mich App 335, 343; 582 NW2d 207 (1998).]
The germane inquiry is whether the employer was motivated by retaliatory animus, “not whether the employer is wise, shrewd, prudent, or competent.” Hazle, 464 Mich at 476 (quotation marks and citation omitted).
In dismissing plaintiffs WPA claim, the trial court concluded, inter alia, that it was immaterial whether plaintiff made a report regarding Fields’s conduct to a “public body” before she was terminated, or was about to make such a report, because Fields’s conduct did not violate an existing PPO. The trial court further found that plaintiff could not have reasonably believed that Fields’s conduct violated an existing PPO.
By so ruling, the trial court erred. Among other things, the December 27, 2013 PPO ordered Fields to refrain from “stalking” plaintiff, as that term is “de fined under MCL 750.411h and MCL 750.411Í,” and specified that it was both “effective when signed” and “enforceable immediately.”
MCL 600.2950(l)(i) prohibits stalking, which MCL 750.411h(l)(d) defines as “a willful course of conduct involving repeated or continuing harassment of another individual that would cause a reasonable person to feel terrorized, frightened, intimidated, threatened, harassed, or molested and that actually causes the victim to feel terrorized, frightened, intimidated, threatened, harassed, or molested.”
“Harassment” is defined in MCL 750.411h(l)(c) as
conduct directed toward a victim that includes, but is not limited to, repeated or continuing uncon-sented contact that would cause a reasonable individual to suffer emotional distress and that actually causes the victim to suffer emotional distress. Harassment does not include constitutionally protected activity or conduct that serves a legitimate purpose.
“Unconsented contact” is defined as
any contact with another individual that is initiated or continued without that individual’s consent or in disregard of that individual’s expressed desire that the contact he avoided or discontinued. Unconsented contact includes, but is not limited to, any of the following:
(i) Following or appearing within the sight of that individual.
(ii) Approaching or confronting that individual in a public place or on private property.
{Hi) Appearing at that individual’s workplace or residence.
(iv) Entering onto or remaining on property owned, leased, or occupied by that individual.
(v) Contacting that individual by telephone.
(vi) Sending mail or electronic communications to that individual.
(vii) Placing an object on, or delivering an object to, property owned, leased, or occupied by that individual. [MCL 750.411h(l)(e).]
There must be evidence of two or more acts of unconsented contact that caused the victim to suffer emotional distress and that would cause a reasonable person to suffer emotional distress. MCL 750.411h(l)(a). [Hayford v Hayford, 279 Mich App 324, 329-330; 760 NW2d 503 (2008) (emphasis added).]
It is true that, to constitute stalking, there must be a “willful course of conduct.” MCL 750.411h(l)(d) (emphasis added). But even if Fields’s initial encounter with plaintiff in the hallway at MMCG was not willful, and was instead accidental, Fields’s subsequent verbal communication with plaintiff constituted willful, un-consented contact under MCL 750.411h(l)(e); it was “contact with [plaintiff] that [was] initiated or continued without [plaintiffs] consent or in disregard of [her] expressed desire that the contact be avoided or discontinued.” Plaintiff has been granted a series of PPOs against Fields—on an ex parte basis—because Fields persists in contacting plaintiff against her wishes, and in such communications Fields has threatened the lives of both plaintiff and her children. Even if Fields could not have planned her contact with plaintiff or avoided such contact, after she saw plaintiff, Fields made a deliberate choice to speak to her, and such deliberation made the communication willful. Moreover, the record establishes that Fields did so in a decidedly willful tone—a tone indicating that she knew she had “gotten away with something she’s not supposed to do.” Thus, viewing the evidence in the light most favorable to plaintiff, Fields’s conduct, in concert with her prior unconsented contacts with plaintiff, qualified as “stalking” in violation of the PPO.
Furthermore, even assuming for the sake of argument that Fields’s conduct did not actually violate the PPO, plaintiff is still afforded the protection of the WPA so long as she, in good faith, reported, or was about to report, Fields’s conduct to a public body as a suspected violation of the PPO. See Truel, 291 Mich App at 138 (“The first two types of activity are protected, ‘unless the employee knows that the report is false.’ MCL 15.362. In other words, reporting or being about to report violations or suspected violations is protected if the report is or is about to be made in good faith.”). There is no evidence that plaintiff acted in bad faith, i.e., that she did not actually believe that Fields’s conduct violated the PPO. Hence, if plaintiff reported such conduct to a public body, or was about to do so, she was engaged in protected activity under the WPA.
Thus, the crucial inquiry is whether plaintiff reported Fields’s conduct to a public body before she was terminated or was about to do so at the time of termination. The trial court decided that she did not, reasoning that plaintiffs telephone conversation with Gay was not “a communication to a public body.” Plaintiff argues that the trial court’s decision was erroneous because, as a licensed Michigan attorney, Gay qualifies as a member of a “public body” for WPA purposes. We agree.
In Hoffenblum v Hoffenblum, 308 Mich App 102, 109; 863 NW2d 352 (2014), this Court reiterated certain principles of statutory construction that are germane to our instant analysis:
The primary goal when interpreting a statute is to ascertain and give effect to the Legislature’s intent. The words contained in a statute provide us with the most reliable evidence of the Legislature’s intent. Statutory provisions are not to be read in isolation; rather, context matters, and thus statutory provisions are to be read as a whole. If statutory language is unambiguous, the Legislature is presumed to have intended the plain meaning of the statute. An unambiguous statute must be enforced as written. [Quotation marks, citations, and brackets omitted.]
“If a statute specifically defines a term, the statutory definition is controlling.” City of Holland v Consumers Energy Co, 308 Mich App 675, 684; 866 NW2d 871 (2015).
The phrase “public body” is statutorily defined by the WPA as “all of the following”:
(i) A state officer, employee, agency, department, division, bureau, board, commission, council, authority, or other body in the executive branch of state government.
Hi) An agency, board, commission, council, member, or employee of the legislative branch of state government.
(Hi) A county, city, township, village, intercounty, intercity, or regional governing body, a council, school district, special district, or municipal corporation, or a board, department, commission, council, agency, or any member or employee thereof.
(iv) Any other body which is created by state or local authority or which is primarily funded by or through state or local authority, or any member or employee of that body.
(v) A law enforcement agency or any member or employee of a law enforcement agency.
(vi) The judiciary and any member or employee of the judiciary. [MCL 15.361(d) (emphasis added).]
It is undisputed that Gay was a licensed Michigan attorney and a member in good standing of the State Bar of Michigan (SBM) when plaintiff called him and reported her contact with Fields. Indeed, as a practicing attorney, Gay’s licensure and active membership in the SBM were both mandatory. See MCL 600.916(1); see also Morris & Doherty, PC v Lockwood, 259 Mich App 38, 49; 672 NW2d 884 (2003) (“A person engaged in the practice of law in Michigan must be an active member of the State Bar.”), quoting SBR 3(A). Moreover, under MCL 600.901,
[t]he state bar of Michigan is a public body corporate, the membership of which consists of all persons who are now and hereafter licensed to practice law in this state. The members of the state bar of Michigan are officers of the courts of this state, and have the exclusive right to designate themselves as “attorneys and counselors,” or “attorneys at law,” or “lawyers.” No person is authorized to practice law in this state unless he complies with the requirements of the supreme court with regard thereto.
And under MCL 600.904, our Supreme Court is empowered “to provide for the organization, government, and membership of the [SBM], and to adopt rules and regulations concerning the conduct and activities of the [SBM] and its members,” including “the schedule of membership dues therein . . . .”
Hence, under the plain language of the WPA, specifically MCL 15.361(d)(m), Gay qualified as a member of a “public body” for WPA purposes. As a practicing attorney and member of the SBM, Gay was a member of a body “created by” state authority, which, through the regulation of our Supreme Court, is also “primarily funded by or through” state authority. By holding otherwise, the trial court erred. It further erred by concluding that a report to a public body is a necessary prerequisite to establish a prima facie case under the WPA. A report to a public body is only one of the three types of “protected activity” under the WPA. Chandler, 456 Mich at 399.
Having reviewed the record evidence in the light most favorable to plaintiff, we conclude that she presented sufficient evidence to establish a prima facie case under the WPA. As we have already discussed, her report to Gay was a report to a member of a public body, and therefore it was protected activity under the WPA, which satisfies the first element for a prima facie case. Moreover, the second element is satisfied by the fact that plaintiff was discharged. Finally, plaintiff has presented direct evidence supporting the third element— i.e., a causal connection between the discharge and the report to Gay—specifically the “Corrective Action and Disciplinary Form,” which explicitly cites plaintiffs telephone conversation with Gay as a factor motivating MMCG’s discharge decision. Given such direct evidence of unlawful retaliation, plaintiff is not required to proceed under the McDonnell Douglas framework. See DeBrow v Century 21 Great Lakes, Inc (After Remand), 463 Mich 534, 539-540; 620 NW2d 836 (2001) ("Where direct evidence is offered to prove discrimination, a plaintiff is not required to establish a prima facie case within the McDonnell Douglas framework, and the case should proceed as an ordinary civil matter.”) (quotation marks and citation omitted). Likewise, the direct evidence presented by plaintiff is sufficient to survive summary disposition despite the legitimate reason MMCG offers for its action—-that it suspected plaintiff of violating HIPAAby disclosing Fields’s patient status. Given the record evidence, even if HIPAA concerns were part of MMCG’s ultimate decision, “a reasonable fact-finder could still conclude that. .. plaintiffs protected activity was a ‘motivating factor’ for [MMCG] ’s adverse action.” See Debano-Griffin, 493 Mich at 176, quoting Hazle, 464 Mich at 465.
Therefore, regarding plaintiffs WPA claim, the trial court erred by granting summary disposition to MMCG under MCR 2.116(C)(10). A genuine issue of material fact remains about whether plaintiffs report of Fields’s conduct to Gay was a motivating factor in MMCG’s decision to terminate plaintiff.
C. PUBLIC POLICY CLAIM
“[T]he remedies provided by the WPA are exclusive and not cumulative.” Landin v Healthsource Saginaw, Inc, 305 Mich App 519, 532; 854 NW2d 152 (2014). Thus, when a plaintiff alleges discharge in retaliation for engaging in activity protected by the WPA, "[t]he WPA provides the exclusive remedy for such retaliatory discharge and consequently preempts common-law public-policy claims arising from the same activity.” Anzaldua v Neogen Corp, 292 Mich App 626, 631; 808 NW2d 804 (2011).
Plaintiff alleges that she was discharged for reporting a violation of the law, or being about to report such a violation, to a public body or a member of such a body. Both activities constitute protected activity under the WPA. Chandler, 456 Mich at 399. And contrary to plaintiffs argument on appeal, her public policy claim arises out of the “same activity” as the WPA claim for preemption purposes. Plaintiff argues that, aside from discharging her for reporting Fields’s conduct to Gay and for being about to report that conduct to the trial court, MMCG also discharged her for refusing to conceal Fields’s violation of the PPO. Plaintiff further argues that her refusal to conceal the violation is different than the affirmative act of reporting it or being about to report it. But plaintiffs refusal to conceal the violation was effectuated by her report to Gay, and there is no record evidence that plaintiff was instructed to conceal such activity before her telephone conversation with Gay.
Under the circumstances, we see no logical distinction between the refusal to conceal and the report by which that refusal manifested itself; rather, the two are flip sides of the same coin. Because plaintiffs public policy claim arises out of the same activity as her WPA claim, the trial court properly concluded that the latter claim preempts the former. Therefore, summary disposition of the public policy claim was appropriately granted.
IV. CONCLUSION
We affirm the trial court’s ruling regarding plaintiffs public policy claim, reverse its summary dismissal of the WPA claim, and remand this matter to the trial court for further proceedings consistent with this opinion. We do not retain jurisdiction. Each having prevailed in part, the parties may not tax costs under MCR 7.219.
SAWYER, P.J., and HOEKSTRA, J., concurred with Wilder, J.
Plaintiff later described Fields’s vocal tone metaphorically as the tone of “the cat that just ate the canary”—a tone that indicated Fields knew she had “gotten away with something she’s not supposed to do.”
HIPAAis codified at 29 USC 1181 et seq., 42 USC 300gg, and 42 USC 1320d et seq.
Having concluded that Gay was a member of a public body as defined under MCL 15.361(d)(¿o), we need not consider plaintiffs alternative argument that, as a licensed attorney and officer of the court, Gay also qualified as a “member or employee of the iudiciary” under MCL 15.361(d)(w).
McDonnell Douglas Corp v Green, 411 US 792; 93 S Ct 1817; 36 L Ed 2d 668 (1973). | [
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BOONSTRA, J.
In this action under the Freedom of Information Act (FOIA), MCL 15.231 et seq., defendant village of Oakley appeals by right the order of the trial court granting plaintiff Brandi Cramer’s motion for summary disposition under MCR 2.116(0(10) (no genuine issue of material fact) on all six counts of plaintiffs complaint. Defendant also challenges the trial court’s order awarding plaintiff attorney fees, costs, and disbursements. Plaintiff cross-appeals, requesting an award of appellate attorney fees, costs, and disbursements. We reverse the grant of summary disposition in favor of plaintiff, remand for the issuance of an order granting summary disposition in favor of defendant, and vacate the award of attorney fees, costs, and disbursements. Finally, we decline to award plaintiff appellate attorney fees, costs, and disbursements.
I. PERTINENT FACTS AND PROCEDURAL HISTORY
On May 15, 2015, plaintiff sent defendant six separate FOIA requests, each seeking information pertaining to defendant’s reserve police department unit. On May 20, 2015, defendant sent plaintiff six letters stating that the FOIA requests were “granted” and that it would “conduct a search of the Village records and provide you a copy of any documents we are able to locate.” All of the responses were signed, “Cheryl Bolf[,] Village FOIA Coordinator.” That same day, plaintiffs counsel sent an e-mail to Bolf acknowledging receipt of the letters, but stating that simply providing a written statement granting the requests was not sufficient to comply with FOIA; defendant also needed to produce the requested documents. The e-mail further stated that the documents should be provided by May 22,2015, and if they were not, further legal action would follow. On May 28, 2015, just three business days after the May 22, 2015 deadline, plaintiff filed suit. She alleged that because defendant had granted her FOIA requests, actual production of the documents was due on May 22, 2015, and that defendant’s failure to provide the documents by that date was a wrongful denial of her requests. The complaint included six counts, each separately alleging the wrongful denial of plaintiffs six FOIA requests. Plaintiff requested an order directing defendant to immediately produce the requested documents, an order awarding reasonable attorney fees, costs, and disbursements, and an award of $3,000 in punitive damages.
Plaintiff moved for summary disposition on October 15, 2015, notwithstanding her admission in the motion that in early June 2015 defendant informed her that certain requested documents did not exist and that she had received from defendant the requested documents that did exist. In responding to the motion, defendant submitted an affidavit, signed by Bolf, stating that “after researching and assembling the documents requested, she transmitted copies of the documents to the party making the request on June 2, 2015.” The trial court concluded that defendant’s May 20,2015 responses did not comply with MCL 15.235(2) because the requested documents were not themselves produced within the statutory time frame for a response, suggested that the responses therefore effectively constituted denials of the requests, and granted plaintiffs motion for summary disposition. The court also concluded that plaintiff was entitled to an award of attorney fees, costs, and disbursements. Plaintiff was awarded $6,048.50. This appeal and cross-appeal followed.
II. STANDARD of review
We “review [] the grant or denial of summary disposition de novo to determine if the moving party is entitled to judgment as a matter of law.” Maiden v Rozwood, 461 Mich 109, 118; 597 NW2d 817 (1999). An award of attorney fees under FOIA is reviewed for an abuse of discretion. Prins v Mich State Police, 299 Mich App 634, 641; 831 NW2d 867 (2013). “A trial court abuses its discretion when its decision falls outside the range of principled outcomes.” King v Mich State Police Dep’t, 303 Mich App 162, 175; 841 NW2d 914 (2013). A trial court’s factual findings are reviewed for clear error; that is, this Court must defer to the trial court unless we are “left with the definite and firm conviction that a mistake has been made.” Id. at 174-175. We review questions of statutory interpretation de novo. Bush v Shabahang, 484 Mich 156, 164; 772 NW2d 272 (2009).
III. SUMMARY DISPOSITION
Defendant argues that it did not violate FOIA by sending letters granting plaintiffs requests and producing the requested documents a short time later and that the trial court therefore erred by granting summary disposition to plaintiff. We agree.
MCL 15.235(2) states:
Unless otherwise agreed to in writing by the person making the request, a public body shall respond to a request for a public record within 5 business days after the public body receives the request by doing 1 of the following:
(a) Granting the request.
(b) Issuing a written notice to the requesting person denying the request.
(c) Granting the request in part and issuing a written notice to the requesting person denying the request in part.
(d) Issuing a notice extending for not more than 10 business days the period during which the public body shall respond to the request. A public body shall not issue more than 1 notice of extension for a particular request.
Failure on the part of a public body to respond to a FOIA request in the manner provided in Subdivisions (a) through (d) “constitutes a final determination to deny the request.” King, 303 Mich App at 188-189, citing MCL 15.235(3).
We conclude that defendant complied with MCL 15.235(2), and that MCL 15.235(2) does not mandate that a FOIA recipient, after granting a FOIA request, deliver the requested documents within the period statutorily specified for responding to the FOIA request.
The trial court interpreted MCL 15.235(2), as does plaintiff, to mean that a public body can only “grant” a request by delivering the requested documents within the period specified by the statute for a response. We disagree. The first step in interpreting a statute is to “focus on the language of the statute itself.” Petersen v Magna Corp, 484 Mich 300, 307; 773 NW2d 564 (2009). “The words of a statute provide the most reliable evidence of the Legislature’s intent, and as far as possible, effect should be given to every phrase, clause, and word in a statute.” Id. A court construing a statute should “avoid a construction that would render any part of the statute surplusage or nugatory.” American Federation of State, Co & Muni Employees v Detroit, 468 Mich 388, 399; 662 NW2d 695 (2003) (quotation marks and citation omitted). Accordingly, the various “parts of a statute must be harmonized to discern and carry out the intent of the Legislature.” Niles Twp v Berrien Co Bd of Comm’rs, 261 Mich App 308, 315-316; 683 NW2d 148 (2004).
The term “grant” is not defined in FOIA. This Court may use a dictionary to aid in the interpretation of undefined terms. See Cain v Waste Mgt, Inc (After Remand), 472 Mich 236, 247; 697 NW2d 130 (2005). The word “grant,” in the context of a request, is defined by Random House Webster’s College Dictionary (2001), p 572, as “to agree to: to grant a request.” This definition is not synonymous with completion of the task to which the one to whom the request was made agreed. Id. Compare, e.g., id. at p 530 (defining the word “fulfill” as “to carry out, or bring to realization, as a prophecy or promise”).
Further, in amendments that took effect after plaintiffs FOIA requests were made, the Legislature did, in a different subsection of FOIA, indicate that the words “granted” and “fulfilled” with regard to a FOIA request are not synonymous. MCL 15.234(11) refers in relevant part to a public body’s having “granted and fulfilled a written request from an individual under this act. . . .” (Emphasis added.) The Legislature’s use of two separate terms suggests that the terms have different meanings. US Fidelity & Guaranty Co v Mich Catastrophic Claims Ass’n (On Rehearing), 484 Mich 1, 14; 795 NW2d 101 (2009); see also Macomb Co Prosecutor v Murphy, 464 Mich 149, 159; 627 NW2d 247 (2001) (indicating that “[w]ords . . . are given meaning by context or setting”). Its use of the conjunctive phrase “granted and fulfilled” indicates that the Legislature was aware, at the time of the amendments to MCL 15.235, that a public body may grant a request without fulfilling it. To hold that “grant” is synonymous with “fulfill” in MCL 15.235(2)(a) would render the phrase “and fulfilled” in MCL 15.234(11) nugatory. American Federation, 468 Mich at 399. In addition, MCL 15.234(8) now expressly provides that a public body’s “response” under MCL 15.235 “shall also contain a best efforts estimate by the public body regarding the time frame it will take the public body to comply with the law in providing the public records to the requestor.” This subsection provides further evidence that the Legislature intended that granting a request under MCL 15.235 be distinct from the fulfillment of that request. Further, in light of the remainder of our analysis, as well as the fact that the nature of the amendment to MCL 15.234 was to substantially revise the procedures relating to charging fees and deposits for FOIA requests, we do not construe the Legislature’s amendment of MCL 15.234 to reflect a change in the meaning of the words “grant” or “response.” Rather, the Legislature’s language in these revised subsections supports our conclusion that the Legislature did not intend the word “grant” in MCL 15.235 to be synonymous with “fulfill.” See Bush, 484 Mich at 167, 169.
Federal courts have also drawn a distinction between granting a federal FOIA request and fulfillment of that request. See Nat’l Security Archive v Central Intelligence Agency, 564 F Supp 2d 29, 34 (D DC, 2008) (holding that the plaintiffs case for a federal FOIA violation was moot because the defendant granted the requests and placed them in the “FOIA queue” for processing).
Finally, we note that plaintiff and the trial court have suggested that unless the grant of a FOIA request is interpreted to require its immediate fulfillment, a public body could grant a request yet never actually fulfill it. However, our holding does not afford a public body carte blanche to not produce responsive documents. As we have stated in the past, courts will look past a public body’s label of its response to a FOIA request. King, 303 Mich App at 189. Thus, nothing precludes a plaintiff, if faced with an inordinate delay in the production of requested documents, from filing suit on the ground that a public body’s actions in response to a FOIA request effectively constitute a denial in whole or in part, notwithstanding that body’s labeling of a response as a “grant” of the request. See MCL 15.240(l)(b). Indeed, FOIA allows a trial court to award punitive damages for arbitrarily and capriciously refusing to disclose or provide public records or delaying their disclosure or provision. MCL 15.240(7). And, as stated earlier, the public body is required to provide a good-faith time estimate, MCL 15.234(8), and a public body’s failure to meet an estimate (although it is nonbinding) may in some circumstances tend to show that a public body’s response was effectively a denial notwithstanding its choice of labels.
In sum, we conclude that the trial court erred by holding that defendant failed to comply with MCL 15.235(2) and by determining that defendant’s responses to plaintiffs FOIA requests were effectively denials of those requests because the requested documents were not produced in the period provided for a response. We accordingly reverse the trial court’s grant of summary disposition in favor of plaintiff and remand for issuance of an order granting summary disposition in favor of defendant pursuant to MCR 2.116(I)(2).
IV. ATTORNEY FEES, COSTS, AND DISBURSEMENTS
Regarding attorney fees, costs, and disbursements, FOIA provides:
If a person asserting the right to inspect, copy, or receive a copy of all or a portion of a public record prevails in an action commenced under this section, the court shall award reasonable attorneys’ fees, costs, and disbursements. If the person or public body prevails in part, the court may, in its discretion, award all or an appropriate portion of reasonable attorneys’ fees, costs, and disbursements. The award shall be assessed against the public body liable for damages under subsection (7). [MCL 15.240(6).]
In light of our determination that defendant was entitled to summary disposition, plaintiff was not entitled to attorney fees, costs, and disbursements. Amberg v City of Dearborn, 497 Mich 28, 34; 859 NW2d 674 (2014). Although a party may be entitled to attorney fees when his or her action is rendered moot by subsequent disclosure, see Thomas v City of New Baltimore, 254 Mich App 196, 202; 657 NW2d 530 (2002), such entitlement is still based on proof of an underlying FOIA violation. See id. at 205, quoting Walloon Lake Water Sys, Inc v Melrose Twp, 163 Mich App 726, 733-734; 415 NW2d 292 (1987):
“[W]e believe that a plaintiff‘prevails’ in the action so as to be entitled to a mandatory award of costs and fees where he is forced into litigation and is successful with respect to the central issue that the requested materials were subject to disclosure under the FOIA, even though the action has been rendered moot by acts of the public body in disposing of the documents. An otherwise successful [FOIA] claimant should not assume the expenses of the litigation solely because it has been rendered moot by the unilateral actions of the public body.”
Additionally, “[t]o ‘prevail’ in a FOIA action within the meaning of MCL 15.240(6), a court must conclude that ‘the action was reasonably necessary to compel the disclosure [of public records], and [that] the action had a substantial causative effect on the delivery of the information to the plaintiff.’ ” Amberg, 497 Mich at 34, quoting Scharret v City of Berkley, 249 Mich App 405, 414; 642 NW2d 685 (2002) (second and third alterations in Amberg-, emphasis in Scharret omitted).
In this case, there is no evidence in the record, apart from the mere fact that the requested documents were produced after suit was filed, to support the contention that this action was necessary or had a substantial causative effect on defendant’s production of the requested documents. Amberg, 497 Mich at 34. To the contrary, Bolfs uncontested affidavit indicates that defendant had the intent to fully grant the requests and provide the requested documents once it had time to sort through its records—which it accomplished within 10 days of submitting its responses (and less than a week after the complaint was filed). Thus, the record shows that defendant intended in good faith to fulfill plaintiffs requests, produced the requested documents promptly, and took no action that could be seen as an attempt to withhold any documents from disclosure. See Scharret, 249 Mich App at 414. Yet plaintiff filed suit immediately after the period provided in MCL 15.235(2) for a response had lapsed. Nothing other than the mere fact that plaintiffs suit was initiated before the documents were delivered supports plaintiffs argument that a lawsuit was necessary to compel production of the documents. Under these circumstances, we conclude that the trial court in this action abused its discretion by awarding attorney fees, costs, and disbursements to plaintiff. King, 303 Mich App at 175.
Because we conclude that plaintiff did not violate FOIA, that plaintiffs suit in the lower court was not necessary to compel defendant’s production of documents, and that the lawsuit did not have a substantial causative effect on production of the docu ments, we also decline to award appellate attorney fees, costs, or disbursements in plaintiffs cross-appeal. See Rataj v City of Romulus, 306 Mich App 735, 756; 858 NW2d 116 (2014).
We reverse the grant of summary disposition in favor of plaintiff, remand for the issuance of an order granting summary disposition in favor of defendant, and vacate the award of attorney fees, costs, and disbursements. We do not retain jurisdiction.
MAKKEY, P.J., and OWENS, J., concurred with Boonstra, J.
The trial court concluded that the documents were sent on June 3 or 4, 2015.
See 2014 PA 563, effective July 1, 2015, which also amended MCL 15.235.
Although MCL 15.234 principally deals with charging fees and deposits related to FOIA requests, the quoted language of MCL 15.234(8) is not limited to a response that involves charging a fee. Rather, like certain other subsections of MCL 15.234, e.g., MCL 15.234(4) (providing that public bodies “shall establish procedures and guidelines to implement this act”), MCL 15.234(8) applies more broadly, and provides that for “either the public body’s initial response or subsequent response as described under section 5(2)(d),” the public body “shall” provide “in good faith” a best efforts time estimate for fulfilling the request. The provision of this good-faith time estimate, although “nonbinding,” id., is mandatory. See Walters v Nadell, 481 Mich 377, 383; 751 NW2d 431 (2008) (noting that “the term shall is clearly mandator/’). The fact that defendant did not provide a time estimate because it was not required to do so at the time of plaintiff’s requests does not affect our analysis of the proper interpretation of MCL 15.235, and in any event, defendant did produce the requested documents in short order.
While decisions of lower federal courts are not binding on this Court, they may be persuasive. See Abela v Gen Motors Corp, 469 Mich 603, 606; 677 NW2d 326 (2004).
We note that in King, this Court held that a response from a public body purporting to grant a FOIA request but distinguishing between exempt and nonexempt material was effectively a grant of the request with respect to nonexempt material and a denial of the request with respect to exempt material. See King, 303 Mich App at 189-190. See also Arabo v Mich Gaming Control Bd, 310 Mich App 370, 386; 872 NW2d 223 (2015). However, this Court did not hold that failure of a public body to produce nonexempt material within the statutory time frame effectively constituted a denial of the request.
Under the circumstances of this case, we conclude that defendant’s responses were not effectively denials of plaintiffs requests.
We note that even if the trial court’s analysis was not erroneous, the court should have dismissed plaintiff’s claims as moot because of defendant’s subsequent production of the requested documents. See Herald Co, Inc v Ann Arbor Pub Sch, 224 Mich App 266, 270-271; 568 NW2d 411 (1997) (“When the [FOIA] disclosure that a suit seeks has already been made, the substance of the controversy disappears and becomes moot.”). | [
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Fellows, J.
Plaintiff Carrie E. Plate is administratrix of the estate of her father, Edson L. Potter; she is joined in this suit with her mother, Melvina M. Potter. She is plaintiff individually in Plate v. Detroit Fidelity & Surety Co., ante, 482, handed down herewith. The sale of stock of defendant company to Mr. and Mrs. Potter was made by the same agent and upon the same representations as in the other case; the same questions are involved in this case as in that one and this case is controlled by the opinion in that case.
For the reasons stated by Mr. Justice Wiest in that case, the decree in this case will be affirmed. Plaintiffs will recover costs in this court.
Clark, C. J., and McDonald, Sharpe, Steere, and Wiest, JJ., concurred. Bird and Moore, JJ., did not sit. | [
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Steere, J.
This is a mandamus proceeding brought against Christopher E. Stein, a judge of the recorder’s court of the city of Detroit, on petition of Frank H. McClellan, an officer of the metropolitan police department of that city, to test the constitutionality of Act No. 99, Pub. Acts 1923, entitled “An act for the suppression of gaming.”
On Monday, October 6, 1924, McClellan laid before the prosecuting attorney of Wayne county the facts which he claimed to have discovered on the previous Saturday evening, October 4th, showing that certain individuals had been guilty of violating the provisions of the act in question. A recommendation for a warrant was given him by the prosecutor together with a form of complaint and warrant charging violation of the act, which he presented to defendant for the purpose of making a complaint and having a warrant issue based on the violation of said act. Defendant refused to entertain the complaint and issue a warrant, assigning as a reason therefor that the act in question was unconstitutional. Acting under direction of the prosecuting attorney, who appeared as his counsel, McClellan then made application to this court for an order to show cause why a writ of mandamus should not issue requiring the said complaint to be entertained. An order to show cause was issued and return made by defendant admitting the proceedings as alleged, and stating his only reason for refusal to entertain said complaint was the unconstitutionality of Act No. 99, Pub. Acts 1923.
Most of the provisions of this act have been upon our statute books for more than half a century and few of the numerous grounds of unconstitutionality alleged in the return and stated in defendant’s brief present any meritorious questions. The ground calling for most serious consideration at this time is the claim pressed in the brief of defendant’s counsel that the entire Act No. 99 is invalid because never passed by the house of representatives in compliance with the constitutional requirement that it should be read three times in each house before its final passage. To sustain that proposition defendant’s counsel'points to and relies on the records of the house of representatives as they stood, and had been printed and published, at the close of the regular session of 1923.
Introductory to that issue, it may be noted that our legislative department is a creature of the Constitution, with its duties, powers and limitations well defined. Article 5 of that fundamental law is devoted to the subject. Providing that the legislative power of the State is vested in a senate and house of representatives, with many mandates and restrictions not material here, Article 5 plainly provides in mandatory terms as follows:
Section 15 states that:
“Each house except as otherwise provided in this Constitution shall choose its own officers and determine the rules of its proceedings,” * * *
Section 16 requires that:
“Each house shall keep a journal of its proceedings and publish the same,” * * *
Section 22 provides that:
“No bill shall be altered or amended on its passage through either house SO’ as to change its original purpose.”
Section 23 requires that:
“Every bill shall be read three times in each house before the final passage thereof. No bill shall become a law without'the concurrence of a majority of all the members elected to each house. On the final passage of all bills the vote shall be by yeas and nays and entered on the journal.”
Under the powers conferred upon it by the Constitution the legislature in prescribing the duties of the secretary of the senate and clerk of the house of representatives during the interim of sessions of the legislature, provided (1 Comp. Laws 1915, § 17):
“The secretary of the senate and the clerk of the house of representatives, at the close of each regular or special session of the legislature, shall compile and prepare for publication, make indexes to, and superintend the publication of the journals and documents of the senate and house of representatives respectively.” * * *
On convening the house of representatives of the regular legislative session of 1928 chose its own officers, determined upon and adopted the rules of its proceedings. These rules, over 70 in number, follow for the most part the customary forms adopted by such bodies. Amongst other things they provide for keeping, making up and completing the house journal, in conformity to its rules, “making such corrections therein from day to day as may be necessary” and for daily publication thereof.
House Rule No. 59 provides in part:
_ “Every bill shall receive three several readings previous to its passage. The first and second readings may be by its title only, but the third reading shall be in full, unless otherwise ordered by the house, and on a day subsequent to that on which it receives its second reading or passed the committee of the whole house. No bill shall be passed until it has been printed and in the possession of the house for at least five days.” * * *
While the method of first and second reading by title has been criticized as not in strict conformance with the constitutional, provision upon the subject, in view of the customary legislative rule and practice of supplying each member with a printed copy at least five days before passage of any bill, this court has declined to hold invalid laws so passed where the journal showed the third reading was in full. The question was disposed of in Hart v. McElroy, 72 Mich. 446 (2 L. R. A. 609), in part as follows:
“The legislative practice of reading the same twice by title, and only once at length, has been maintained too long in this State to be now overthrown by the courts. * * * The Constitution, in terms, does not direct that the reading shall be at length, and, while such reading might be the better practice, we cannot hold that it is imperatively required that it should be so: -read more than once. This act, as it passed, was read once in each house at length, as appears from the journals.”
Unfortunately the journal of the house in the instant case, as made up, completed from day to day and daily printed and published until the close of the regular session of the legislature, fails to show that Act No. 99 was read in full before the house on its final passage, or at any other time.
Beginning with Green v. Graves, 1 Doug. 351, it has long been held in this State that the court may, and when forced upon its notice by proper proceedings should, look behind the enrollment of a statute to determine whether the records of its enactment show that in its passage the mandatory requirements of the Constitution have been observed.
“We have heretofore uniformly held, in this State, that the courts would take cognizance of the journals of the legislature, and look into them, for the purpose of determining whether the methods of the Constitution have been followed in the passage of laws, considering that the safety and permanency of our institutions would be best promoted by such holding.” Rode v. Phelps, 80 Mich. 598.
Vide, also, Detroit Common Council v. Board of Assessors, 91 Mich. 78 (16 L. R. A. 59).
The bound volumes of “House Journal, 1923,” as compiled, indexed and prepared for publication at the close of the legislative session of that year by the secretary of the senate and clerk of the house, and published by authority, show that Act No. 99, Pub. Acts 1923, p. 129, had its legislative origin as senate bill No. 56 and was on March 9th transmitted to the house with a message reporting that it had passed the senate. It was then, read in the house a first and second time by its title and referred to the committee of State affairs. Later reported out favorably by that committee it was placed on order of third reading. It was next called up on April 19th and the following proceedings recorded:
“Mr. Woodruff moved that the rules be suspended and that Senate bill No. 56 (file No. 23) — A bill for the suppression of gaming, be placed on its immediate passage. The motion prevailed, two-thirds of all the members present voting therefor. The question being on the passage of the bill. The bill was then passed, a majority of all the members-elect voting therefor, by yeas and nays as follows:” — 2 House Journal, p. 822.
The same entry appears in the printed copy of the journal of that date as officially published at the time and distributed as provided by rule. It was the same in the “official journal” permanently kept amongst the records of that department and so remained long after the close of that legislative session. That journal now shows such entry, but with a type-written rider attached changing the entry to read as follows:
“Mr. Woodruff moved that the rules be suspended and that Senate bill No. 56 (file No. 23), entitled A bill for the suppression of gaming, be placed on its immediate passage. The motion prevailed, two-thirds of all the members present voting therefor. The bill was then read- a third time and passed, a majority of all the members-elect voting therefor by yeas and nays, as follows.”
Though not appearing in the record, it is said in defendant’s brief, and not disputed, that an affidavit of the clerk of the house served upon defendant’s counsel after the pleadings were closed stated that said clerk caused the alteration found in the journal to be made on or about March.7, 1924, after his attention had been called to the error in that entry by an article in a newspaper relative to the constitutionality of said Act No. 99.
The Constitution of this State requires each house, not its clerk, to keep a journal of its proceedings and publish the same. While authority is given to choose a clerk who for it and under its supervision could properly be given charge of its journal, with the clerical duty of recording and publishing its proceedings as directed, the responsibility rested on the house to see that its journal was properly kept, and its proceedings duly recorded and published in compliance with constitutional mandate. Its rule requiring the clerk to make up, complete and daily publish its journal was a legitimate means to that end, as it provided each member daily with full information upon the state of the journal, but it did not in any sense relieve the house of the authority and duty to keep a journal of its proceedings and see that they were correctly recorded and published during the session. Undoubtedly the clerk with approval or under direction of the house could make corrections in the journal before final close of the session (People, ex rel. Attorney General, v. Burch, 84 Mich. 408), but no express or implied authority exists for him to do so after the house is dissolved by final adjournment and the official journal which it kept during the session has been closed. The change made in the entry in question by direction of the clerk, though honestly done in the belief that he had such authority, was an unwarranted interpolation of the journal without legal effect.
It is true that in some jurisdictions decisions go far in holding that where the legislative records are silent as to various requirements being observed they will presume the legislature has done what it should do, and excerpts from some of the opinions of this court can be found pointing in that direction, but in cases which involved other controlling essentials more particularly dwelt upon. To follow such rule of presumption to its logical conclusion, in practical effect leaves it optional with1 the legislature to follow the course expressly commanded by the Constitution in passing a bill, and makes the journal a bulwark behind which constitutional mandates may be ignored.; If silence upon the subject is sufficient and a statute must be presumed valid unless it affirmatively appears: by the legislative journal that some constitutional requirement was disregarded, all the legislature need do is to record in its journal the final vote showing the bill passed, and presumptions do the rest. It is safe to suggest that the legislature would seldom affirmatively record in its journal that it had failed to comply with any constitutional requirement.
The object of these requirements of the Constitution is to guard against hasty and impulsive legislation by giving each member opportunity and time to familiarize himself with and maturely consider the wisdom of a proposed law, and also to give the public time and opportunity to know what legislation is proposed and being enacted by their law-making body. The manifest important purpose of requiring the legislature to keep a journal is that the people whom they represent may be able to learn whether a published law has in truth been constitutionally enacted, and to have a permanent and reliable primary record evidencing its validity.
Justice Cooley in his work on Constitutional Limitations (7th Ed.), 200, note 1, in commenting on an Ohio decision holding the constitutional requirements for reading a bill directory only, said in part:
“But the rule respecting three separate readings on different days is specific and capable of being precisely complied with-, and we do not see how, even under the rules applied to statutes, it can be regarded as directory merely, provided it has a purpose beyond the mere regular and orderly transaction of business. That it has such a purpose, that it is designed to prevent hasty and improvident legislation, and is therefore not a mere rule of order, but one of protection to the public interests and to’ the citizens at large, is very clear; and independent of the question whether definite constitutional principles can be dispensed with in any case on the ground of their being merely directory, we cannot see how this can be treated as anything but mandatory.”
The Constitution in no uncertain terms directs the legislature to keep a record of its proceedings. If such record does not show that the constitutional requirements have been observed in enactment of the laws of the country, what was its purpose and why was it required to be kept? This court early held that resort could be had to such journal to ascertain whether the law had been, enacted in accordance with constitutional requirements. In harmony with such holding our legislative bodies have by long usage and settled practice recorded in their journals the succeeding steps of a bill from its introduction until final passage as a law, showing amongst other things how many times read and at what stage of the proceedings, thus in practical application construing it as mandatory that the journal should disclose observance of all constitutional requirements. An old and stereotyped form of entry frequently appearing in this and other house journals is that the bill “was read a third time and passed, a majority of all the members-elect voting therefor,” etc. This journal as kept according to long established practice assumes to give in detail the various steps taken in the enactment of this law. If any presumptions arise in that connection they are that all which .occurred was recorded. It does not show that the act was passed in mode prescribed by the Constitution. We can indulge in no presumption that it was, but are bound by the journal as it reads. We are therefore constrained to hold the law invalid, which leaves all preceding laws upon that subject in force.
The writ will be denied, without costs to either party.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Fellows, and WiEST, JJ., concurred. | [
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Fellows, J.
(after stating the facts). Relief is not sought on the ground of mental incapacity of Mrs. DeBar although it is claimed that her mental and physical condition made her more susceptible to undue influence which it is charged was exercised in procuring the deed. A careful reading of the record, however, convinces us that plaintiff is not entitled to relief on the ground of undue influence and we proceed at once to the only question meriting discussion.
Mrs. DeBar’s interest in the premises was that of a vendee under a land contract, an equitable interest or title. The claim of plaintiff who stands in her shoes is that this interest may not be conveyed or surrendered except “by a deed or conveyance in writing” in accordance with the provisions of section 11975, 3 Comp. Laws 1915.
There can be no question under our decisions that the vendee’s interest under an executory contract is an equitable title in the land; the vendor holds the legal title. In the instant case the vendee, Mrs. DeBar, directed the vendor, Mrs. Hardy, to convey the legal title to herself and her former husband jointly with the right of survivorship; Mrs. Hardy complied with such direction, and as a part of the one transaction Mrs. DeBar in writing ratified it by executing with her former husband a mortgage for the balance of the purchase price. May the plaintiff whose sole rights are as heir at law of Mrs. DeBar and whose rights can be no greater than Mrs. DeBar’s assail in a court of equity this transaction, this executed contract? We think not. This court has consistently held that title to real estate may not be created by estoppel, but in numerous cases this court has also held that a party may estop himself after the arrangements have been fully executed from asserting that the title he by his own acts has created or aided in creating is not the true title. In Gugins v. Van Gorder, 10 Mich. 523 (82 Am. Dec. 55), Gugins and wife conveyed by deed certain real estate to one Goodrich; within a few days Goodrich returned the deed, it was destroyed and Goodrich was repaid the purchase price. Plaintiffs were the heirs at law of the Gugins and defendant claimed title through Goodrich. The court held that under the statute here involved Goodrich could only surrender or convey the title acquired by him by a writing, 'but having received back the consideration and participated in the destruction of the deed, he and those claiming under him were estopped from giving parol evidence of the contents of the deed destroyed by his consent. That this case goes beyond deciding a technical rule of evidence is made clear by the case of First National Bank of Kalamazoo v. McAllister, 46 Mich. 397. In this case McAllister held an unrecorded deed to the land in question. He at that time owed Ms wife considerable money and to secure her the deed' to- him was destroyed and a new deed executed direct to her. Afterwards an arrangement was made that she should advance a further sum of $500 and become the absolute owner. She advanced the money. and surrendered the evidence of her indebtedness. Complainant having obtained judgment against McAllister levied on the land and filed the bill in aid of execution. It was held that complainant could take no greater interest than McAllister and that he by his conduct was estopped. It was said by Justice Campbell, speaking for the court:
“As between the parties, it is we think settled law that one who has deliberately and without any fraud or deceit practiced on him, but on the contrary with the intent for good reasons to have the legal title placed in some one else, obtained a transfer which has all the apparent qualities of such a title, cannot assail it by parol evidence, and show the existence of a former deed to himself which he has suppressed without recording, for the very purpose of having the land re-conveyed by his own grantor. The case comes within the rule laid down in Gugins v. Van Gorder, 10 Mich. 523. It seems to be supposed that that case merely decided a technical point of evidence, and is not consistent with Hayes v. Livingston, 34 Mich. 384 (22 Am. Rep. 533), and some other decisions which hold that title to land cannot pass by mere estoppel shown by parol. In this case it is complainants and not defendants! that rely on parol evidence to show a title. Mrs. McAllister holds the legal title of record. The presumptions in her favor cannot be destroyed without proof of an earlier right which is based on superior equities, because the first deed recorded is presumptively the best. There would be no equity ■whatever in allowing a party who has been the procuring agent in giving her this legal priority to destroy it in his own favor, by showing by parol evidence that he once had an unrecorded deed from the same grantor. Complainants show no equity whatever, and are bound by the estoppel against McAllister.”
This case in turn was followed in Crittenden v. Canfield, 87 Mich. 152, in which it was said:
“Edward C. Gallup having an equitable right to a reconveyance from James, had an undoubted right to relinquish such equitable interest, and bestow it by way of gift upon Elizabeth; and when the title was conveyed to her at his request, it became a gift as valid as if he had taken a reconveyance from James, and conveyed direct to her, in consideration of love and affection, and in anticipation of approaching death.”
In Sullivan v. Dunham, 42 Mich. 518, the vendee in a land contract had given the contract back to the vendor under an agreement that the vendor should trade the land and pay him one-half the “boot money.” The entire transaction rested in parol. The land having been traded the vendee brought suit to recover his share of the “boot money.” The defense relied upon was the statute here invoked but it was without avail. The contract although resting in parol had been executed and ratified by plaintiff bringing suit. This was followed in the recent case of Campbell v. Kruce, 226 Mich. 699, where a number of cases here relied upon were also relied upon. It was there said by Justice Bird, speaking for the court:
“We think the cases cited are not in point because they involve executory contracts and contracts surrendered by operation by law, whereas these facts involve an executed contract where nothing was left to be done except the payment of the consideration. If plaintiff’s version of the affair is to be accepted he surrendered his duplicate contract, went to. the premises with defendant and put him in possession thereof, and subsequently it is conceded defendant sold them to another. These circumstances also bring the case clearly within the ruling in Sullivan v. Dunham, 42 Mich. 518.”
See, also, Logan v. Anderson, 2 Doug. 101; Munch v. Shabel, 37 Mich. 166; White v. Cleaver, 75 Mich. 17; Gerber v. Upton, 123 Mich. 605; Craig v. Crossman, 209 Mich. 462; Stevens v. Wakeman, 213 Mich. 559; Atkinson v. St. Matthias Church, 217 Mich. 204.
The executing of the deed by Mrs. Hardy to defendant and his former wife and the executing of the mortgage by them to Mrs. Hardy- constituted but a single transaction (Hammel v. National Bank, 129 Mich. 176 [95 Am. St. Rep. 431]); it was a fully executed transaction; it was all done by the direction of Mrs. DeBar through whom plaintiff claims title. Mrs. DeBar not only orally directed it, but she ratified it in writing by signing the purchase money mortgage given back to Mrs. Hardy. She knew she could not long survive; the nucleus at least of the property came from her former husband; it represented the earnings of a lifetime. She was still fond of him and in her troubles he had been kind to her; she was in default in payments, taxes worried her and by the arrangement made she was secured from further trouble over the contract and the little home went at her death to the man with whom she had lived for ten years.
Plaintiff was not entitled to this property as matter of law or of equity and the decree dismissing her bill will stand affirmed, with costs of this court.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Steere, and Wiest, JJ., concurred. | [
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McDonald, J.
The plaintiff is a devisee under the will of Frances E. Lyon, deceased. The second paragraph of the will provides:
“I give, devise and bequeath to Hiram Wilson and his wife, Eva Wilson, my real estate, except two lots on Court street in city of St. Joseph, Berrien county, Michigan, I give and bequeath to Angie Howard, and to her also cameo broach set with earrings.”
Mrs. Lyon at one time owned two lots on Court street, but about two years before her death, and before the making of her will, she sold one of them, so that at the time she made the will and at the time of her death she had only one lot on that street. Immediately in the rear of the Court street lot and facing on Church street she owned another lot. The plaintiff claims that this lot was one of the two lots bequeathed to her in the will. Before the assignment of the estate the administrator filed a petition in the probate court asking for a construction of the second paragraph of the will. On the hearing of this petition the probate judge made an order from which we quote the following:
“It appears from the inventory that deceased owned but one lot on Court street in said city. There can be but one inference to be drawn and that is that testator intended to give Angie Howard only real estate which is situated on Court street in the city of St. Joseph.
“It is therefore ordered that it is the will of the deceased that the said Angie Howard take and have the lot situated in the city of St. Joseph on Court street, and that Hiram Wilson and wife, Eva Wilson, take all other real estate owned by the testator at the time of her death.”
From this order the plaintiff appealed to the circuit court. After the taking of the testimony the circuit judge discharged the jury and entered the following order.
“The above matter having come on to be heard and the court having been fully advised in the premises, the court finds that the probate court has no inherent power to construe a will in so far as the same devises and bequeaths real estate, and that consequently the order made by the probate court of said county on June 7, 1923, purporting to place a certain construction upon the last will and testament of Frances E. Lyon is void because said court had no jurisdiction to make said order. It is therefore ordered that said order of the probate court be and hereby is set aside.”
The circuit judge was in error. In Calhoun v. Cracknell, 202 Mich. 430, this court said that in distributing estates,
“The probate court is obviously called upon to construe a will dealing with real as well as personal estate. Under the statute cited the probate court is invested with power and at the time of the distribution of the estate, has jurisdiction to construe a will and make disposition accordingly.”
In Dudley v. Gates, 124 Mich. 440, it is said:
“After the estate is settled and is before the probate court for distribution, it must be distributed according to the terms of the will, which is the sole guide for the court in its order of distribution. The probate court then has jurisdiction to interpret the various provisions of the will, but not otherwise” (citing Glover v. Reid, 80 Mich. 228; Byrne v. Hume, 84 Mich. 185).
The rule as laid down in the earlier cases limits the power of the probate court to construe wills to the time when the estate is settled and the construction is necessary for its assignment. This is as far as the court intended to go in Reibow v. Ensch, 220 Mich. 450, and in Jones v. Harsha, 225 Mich. 416.
In the instant case it was alleged by the petitioner in his petition for the construction of the will that he had completed the administration of the estate, and that it was ready for settlement, but
“That by reason of the uncertainty or apparent error on the part of the scrivener in preparing said will, he is unable to make settlement of said estate without the opinion of this court construing said will, and correcting said apparent error.”
Having reached this stage in the administration of the estate, the probate judge must construe the will in order to determine how it should be distributed. All of the authorities recognize his power to do this. The merits of the appeal from the order entered should have been determined in the circuit court.
Our examination of the record convinces us that the probate court properly construed the will. The testimony offered by the plaintiff in support of her construction for the most part was incompetent and has no tendency to show that the testatrix intended to give the plaintiff anything more than the property which she owned on Court street at the time the will was made. Under the evidence submitted the trial court should have dismissed the petition. The case will be remanded to the circuit court where a judgment should be entered dismissing the appeal and certifying to the probate court the affirmance of its order on the construction of the will.
The judgment of the circuit court is reversed. Neither party will have costs.
Clark, C. J., and Bird, Sharpe, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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Clark, C. J.
Plaintiff sold and delivered to defendant 1,021 yards of gravel and 575 yards of sand at the price, it claims, of $2 per yard, or $8,192. Defendant contends that the agreed price was $1.50 for gravel and $.75 for sand, a total of $1,962.75, and he tendered into court that sum and the costs. The issue was submitted to a jury, who found for defendant, and plaintiff brings error, urging that the verdict is against the great weight of the evidence and that the motion for a new trial therefore ought not to have been denied.
A witness, managing plaintiff’s business, testified that the agreed price was “$2 straight.” Another witness, who heard a conversation between plaintiff’s manager and defendant, said that he heard defendant ask the price of gravel and the manager reply “$2.” Defendant testified squarely in support of his contention as stated. Some rather unsatisfactory testimony of “current or running” prices of sand and gravel in that locality was adduced by both parties. There was no other evidence worthy of note. The disparity in number of witnesses sworn by the parties does not determine the question. We determine it after careful consideration of all the evidence. We think the judge was right in denying the motion.
A witness, in the gravel business, testified that he knew the “running price of * * * gravel at that time,” and he was permitted, over objection, to state what it was. On cross-examination it was developed that he was not qualified so to testify, and on motion of plaintiff the testimony was stricken. We are not impressed that the incident requires reversal.
We find no reversible error.
Judgment affirmed.
McDonald, Bn®, Sharpe, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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Fellows, J.
(after stating the facts). The partnership came to an end not later than the fall of 1884. Before that it had ceased to function. At that time William took a portion of the partnership property and went into business for himself; James kept the balance and thereafter conducted business for himself. This bill filed for a partnership accounting over a third of a century after the partnership was at an end and after one of the partners is dead presents too stale a claim for consideration in a court of equity.
Nor can relief be granted in this case based on an agreement to transfer or deed the premises. Plaintiff’s testimony as to his dealings with his brother was put into the record over objection. The trial judge intimated that it was incompetent under the statute but allowed the record to be made. We do not consider it; it comes clearly within the statute (3 Comp. Laws 1915, § 12553). Without it there is no testimony in the record of any contract between James and William when William went north. Nor does the testimony of plaintiff’s sons, that their uncle told them shortly before he died that he would deed the property to their father, establish satisfactorily to us that plaintiff had a right to the title to the premises or that he had a contract for a deed. The allegations of plaintiff’s bill negative any such claim. Giving the allegations of paragraph 6 of plaintiff’s bill, which we have quoted and which set up the purported arrangement, the most favorable construction to plaintiff that it is possible to give, he had an option to use the premises to pay the debts or at his election to take the property and pay the-debts himself. But the allegation in paragraph 11, which we have quoted, also- negatives any claim that he elected to take the property and pay the debts because it alleges that as late as 1911 he went to see William at Newberry and importuned him to come to a settlement with reference to the debts. His contingent claim filed with the commissioners on claims shows that even at that time, months after his brother’s death, he had not elected to take the property. Without proof the allegations of plaintiff’s bill do not entitle him to relief but they majr be considered by the court in so far as they are admissions against interest.
In a supplemental brief in this court, plaintiff for the first time insists that he is entitled to- the premises because of adverse possession. Ño such claim was made in the bill, nor was it suggested in the court below. In plaintiff’s original brief in this court no claim of adverse possession was even intimated and we might well dismiss it with the statement that it comes too late. But we have already shown that plaintiff’s possession was not adverse or hostile to his brother William. We have already shown that under the allegations of his bill he entered possession with the permission of his brother and at best with an option to use the premises to pay the debts or at his election to take the premises and himself pay the debts, and that he had never exercised the option to take the premises. We have already shown that these allegations may be treated as admissions against interest. Surely they show that the possession was not adverse, was not hostile in any degree.
After the death of William his representatives paid the balance due the State and received a patent of the 8-0 acres from the State. A patent had been issued by the Federal government for the other 80 many years before. Defendants ask by way of cross-bill that their title be quieted. From what we have said it follows that they are entitled to such a decree. They are not, however, entitled to an accounting from plaintiff for use and occupation. We have refused plaintiff an accounting because his claim is. stale; so is defendants’. A court of equity should leave the parties where they left themselves.
A decree will be entered in this court in conformity with this opinion. Defendants will recover costs of both courts.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Steere, and Wiest, JJ., concurred. | [
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Fellows, J.
Plaintiff is a corporation organized under the laws of the State of Michigan. It did not comply with the provisions of Act No. 46, Pub. Acts 1915 (3 Comp. Laws 1915, § 11945 el seq.), commonly known as the “blue sky law.” As the transaction here involved occurred prior to Act No. 404, Pub. Acts 1921 (Comp. Laws Supp. 1922, § 11945 el seq.), we shall refer to the sections of the original act. Shortly after its incorporation plaintiff sold 20 shares of its treasury stock to defendant at its par value of $100 a share. He paid $200 cash for which he received 2 shares of stock and gave his note for $1,800 and 18 shares were issued to him but were indorsed by him and held by the company as collateral to his note. It is apparent from the record that both parties desired that defendant should have some financial interest in the company and should become employed by it. This suit is brought to recover on the note of $1,800. Defendant interposed the defense that the transaction was in violation of the provisions of the blue sky law, a penal statute, and therefore void. The case was tried by the court without a jury and written findings of fact and conclusions of law were filed. Following the holding in this court in Edward v. Ioor, 205 Mich. 617 (15 A. L. R. 256), it was held that the transaction was void and judgment was entered for defendant for the amount of cash paid by him less a small amount received by him as dividends.
We quote some of the applicable provisions of the act. In section 2 (3 Comp. Laws 1915, § 11946) is found the following provision:
“Every person, corporation, copartnership, company, or association (except those exempt under the provisions of this act) organized, or which shall hereafter be organized in this State, whether incorporated or unincorporated, which shall either himself, themselves or itself, or by or through others, sell or negotiate for the sale of any stocks, bonds or other securities issued by him, them or it within the State of Michigan, shall be known for the purposes of this act as a domestic investment company.” * * *
Section 4 (§ 11948) provides:
“Before selling, offering for sale, taking subscriptions for, or negotiating for the sale in any manner whatever in this State, any stocks, bonds or other securities of its own issue, every investment company, domestic or foreign, shall file in the office of the commission a statement showing in full detail the plan upon which it proposes to transact business.” * * *
And then follows details of information required and the proceeding finally resulting in the approval or disapproval of the sale of the securities.
Section 14 (§ 11958) provides:
“It shall be unlawful for any investment company or dealer, or representative thereof, either directly or indirectly, to sell or cause to be sold, offer for sale, take subscriptions for, negotiate for the sale in any manner whatever in this State, any stock, bonds or other securities (except as expressly exempted herein), unless and until said commission has approved thereof and issued its certificate in accordance with the provisions of this act.”
Section 23 (§ 11967) is the penal clause of the act.
It is here urged on behalf of plaintiff that we should construe the act as not applicable to the transaction here involved. It is urged that although defendant was not a subscriber to the articles of association the parties desired that he should be interested both financially and as an employee of the company, and that the sale to him of this stock and to two others similarly situated should be construed as not falling within the provisions of the act. But this argument overlooks the fact that before we are called upon to construe a statute we must find it to be ambiguous in terms. If it is ambiguous we are called upon to construe it. If it is not ambiguous, we are only called upon to enforce it. The statute is clear and unambiguous in its terms. By the express and unambiguous terms of section 4 of the act when plaintiff negotiated with and sold its treasury stock to defendant it became a domestic investment company for the purposes of the act. When it sold this stock to defendant it made an unlawful sale, one in violation of the provisions of section 14 of the act.
In Edward, v. loor, supra, this court said:
“The sale, and it was a sale as we have seen, of its stock to plaintiff and others was in violation of the act and submitted all connected therewith as vendors to the penalties for its violation. The sale of stock without approval by a public board or commission was not bad at common law, is not malum in se, but by the terms of the act it is malum prohibitum. * * *
“This sale to plaintiff of the stock of the Arizona Piano Company was in conflict with the terms of a penal statute, malum prohibitum, and void, although not expressly declared so to be by the statute.”
Upon principle this case is somewhat analogous to that of People v. Watters, 192 Mich. 462. In that case defendant was arrested for violating an ordinance against peddling without a license. His business consisted almost entirely of taking orders and filling them by interstate commerce shipments. This business was not subject to State regulation. But defendant directly sold two cans of toilet cream of the value of 25 cents each. It was held that such sales violated the ordinance and it was pointed out that if he could sell two cans without violating the ordinance he could sell 50. The case was affirmed by the Supreme Court of the United States in Watters v. Michigan, 248 U. S. 65 (39 Sup. Ct. 29).
It is further urged that defendant is estopped to urge the defense here made. This contention can not be sustained. Defendant had nothing to do with the organization .of the company. He was not one of its officers, but was its employee, and there is nothing upon the record indicating that he did not earn the wages paid him. In Edward v. Ioor, supra, we pointed out that the act was passed for the benefit of the purchaser and that the penalties of the act were laid on the seller, not the buyer. •
We have noted that defendant had judgment for the $200 paid for the stock issued to him less dividends received by him. There was no testimony that this stock had been tendered back to plaintiff. There is no finding on this subject and the record does not disclose that any question of tender was raised in the court below. In appellant’s brief the failure to make a tender was mentioned in the statement of facts and it was also noted in the discussion of the question of estoppel. But nowhere was it urged to defeat defendant’s right to affirmative relief. On the argument attention of counsel was called to Joslin v. Noret, 224 Mich. 240. In a supplemental brief filed since the argument it is urged that the rule announced in that case defeats defendant’s claim for affirmative relief. There is no doubt that the rule there announced would defeat the recovery of a judgment for the defendant for the amount he claimed if the point had been made in the court below and properly saved in this court for review. It, however, does not appear that it was made in the court below, and it is not here definitely raised until the filing of the supplemental brief. Under the rule (Supreme Court Rule No. 40) and the decisions of this court (among them see Smith v. Construction Co., 175 Mich. 600, 603; Ward v. Carey, 200 Mich. 217; People v. Oprita, 213 Mich. 13), it is too late to raise the question for the first time by supplemental brief. The plaintiff, however, is entitled to a return of this stock and we think the affirmance of the judgment should be on condition that defendant deliver the stock to the clerk of the court below for plaintiff’s use and benefit within twenty days from the filing of this opinion. Lackovic v. Campbell, 225 Mich. 1.
The judgment is, therefore, affirmed, conditionally.
Clark, C. J., and McDonald, Bird, Sharpe, Moore, Steere, and Wiest, JJ., concurred. | [
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Bird, J.
Plaintiff brought suit to recover on a life insurance policy issued by defendant, agreeing to pay her as beneficiary $1,000 in the event of the death of her husband, Joseph Repala. When the proofs were concluded the trial court directed a verdict for the plaintiff for the amount of the policy with accrued interest.
The policy was issued on May 27, 1921, and contained the following clause, which is material to this controversy:
“This policy contains no restrictions, * * * and shall be incontestable after one year from its date of issue except for nonpayment of premium.” * * *
The insured, Joseph Repala, died November 18,1921. Proofs of death were perfected and delivered to the company, but it declined to pay, on the ground that the insured obtained the policy by means of false state-: ments concerning his health. With this declination it tendered to plaintiff the premiums which had been paid by the insured. Plaintiff filed her suit on June 13,. 1922. On October 2, 1922, defendant filed its plea of the general issue and gave notice of its special defenses of fraud. At the trial plaintiff introduced the policy and the proofs of death, and rested. Defendant offered to show that:
“On January 3,1922, the premiums paid on the policy were tendered to the plaintiff, and she was at that time notified that the policy was considered void by reason of the fact that the company had been induced to enter into it through the misrepresentations of the deceased, as to the condition of his health at the time of the application for insurance.”
This offer was objected to by the plaintiff under the incontestable clause of the policy. The court sustained the objection, and this raises one of the principal questions of the case, namely, whether a tender of the premiums to plaintiff within the year, with the statement that the policy was obtained by the misrepresentations of the insured, was a contest within the meaning of the incontestable clause of the policy.
It is clear from the holding in Becker v. Insurance Co., 227 Mich. 388, that the trial court was right in excluding defendant’s offer, unless it can be said that a denial of liability on the ground of misrepresentations in the application concerning the insured’s health and a tender of the premiums paid was so far in the nature of a contest that the defense was permissible.
It appears to be settled by many Federal and State courts that a denial of liability and a tender of the premiums paid is not a contest within the meaning of those clauses. In Northwestern Mut. Life Ins. Co. v. Pickering, 293 Fed. 496, the situation was very similar to the one in the present case. Within the contestable period the company repudiated the claim and tendered the premiums paid. In discussing the effect of this the court said:
“The effect of the provision in question was to fix a time limit for a contest of the policy by the insurer, on a ground other than the nonpayment of premium. A contest so provided for imports litigation, the invoking of judicial action to cancel or prevent the enforcement of the policy, either by a suit to that end, or by a defense to an action on the policy. A mere denial or repudiation by the insurer of its liability under the policy, accompanied by a tender of the premium paid, is not a contest, within the meaning of the provision. American Trust Co. v. Insurance Co., 173 N. C. 558 (92 S. E. 706); Lavelle v. Insurance Co., 209 Mo. App. 330 (238 S. W. 504); Pratt v. Breckenridge, 112 Ky. 1, 23 (65 S. W. 136, 66 S. W. 405). The stricken part of the answer does not show that prior to the filing of the answer the defendant took any action amounting to the institution of a contest of the policy. So far as the record discloses there was no contest of the policy until defendant’s answer was filed more than a year after the date of the reinstatement.”
Similar holdings are: Jefferson Standard Life Ins. Co. v. McIntyre, 294 Fed. 886; Humpston v. Assurance Co., 148 Tenn. 439 (256 S. W. 438); Powell v. Insur ance Co., 229 Ill. App. 59. While there have been some exceptions to this rule under peculiar circumstances, we are inclined to follow it and hold that what was done by defendant in this case, within the contestable period, did not amount to a contest.
In another assignment complaint is made that the trial court should have directed a verdict for the defendant at the close of the case because plaintiff’s proofs showed on their -face that the insured was guilty of making fraudulent statements concerning his health in his application. This is based upon the answer of Dr. Johnson that on April 28, 1921, he examined the chest of the insured and “made diagnosis of pulmonary T. B. and confirmed it on May 6, 1921, by positive sputum.” If this statement of Dr. Johnson were otherwise competent to bind plaintiff as an admission it would be rendered incompetent by the statute. Dr. Johnson’s certificate shows that he gained his knowledge or information by treating the deceased professionally. This would render it privileged under the statute. 3 Comp. Laws 1915, § 12550. The' plaintiff, by submitting it as a part of the proofs of death, could not, by so doing, waive the privilege of the statute. Gilchrist v. Mystic Workers, 188 Mich. 466 (Ann. Cas. 1918C, 757).
Counsel cite several cases opposed to our holding in Becker v. Insurance Co., supra, and ask us to reconsider and reverse our construction of the contestable period. When that case was decided we were aware that the courts were not in unison on the question, but our consideration of the question, however, led us to the belief that the rule announced in the Becker Case was the better one. There would seem to be no injustice in holding that the contestable period is a short statute of limitations, which continues until the end of the period fixed by the contract or statute, and is not interrupted by the death of the insured. If the death of the insured occurs within the period it is no great hardship for the insurer to file a bill to cancel the policy if it desires to make a defense.
The judgment of the trial court is affirmed.
Clark, C. J., and McDonald, Sharpe, Moore, Steere, Fellows, and Wiest, JJ., concurred. | [
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Application by defendant-appellee for allowing an act after expiration of time is considered and the Court orders that defendant-appellee’s pleadings be considered on their merits, lateness notwithstanding. The motion by defendant-appellee for clarification is considered and, pursuant to GCR 1963, 865.1(7), the case is remanded to the Saginaw Circuit Court for a factual hearing. If the trial judge is convinced by the evidence that Thomas C. Price did not attend college in the 1972-73 school year for reasons other than financial inability, the trial court’s order of September 18, 1972 shall be vacated. See 46 Am Jur 2d, Judgments, § 443; Zwerg v Zwerg, 179 So 2d 821, 825 (Miss, 1965). The petition by plaintiff for extraordinary attorney fees also is remanded for further consideration by the trial judge.
Ryan, J., not participating. | [
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Levin, J.
In People v Keen, 396 Mich 573, 575; 242 NW2d 405 (1976), we held that "where a blood alcohol test is administered pursuant to the statute the test result is not admissible in a criminal prosecution other than for driving while under the influence of intoxicating liquor (DUIL) or for driving while ability to operate a vehicle was impaired due to the consumption of intoxicating liquor (DI)”.
The common issue in these appeals concerns the admissibility of the result of a blood alcohol test in civil litigation, specifically actions for wrongful death commenced by the administrator of the estate of the allegedly drunken driver in McNitt and against the allegedly drunken driver in Gilbert.
We hold the results of tests administered pursuant to the statute cannot be used in civil litigation.
I
As in Keen, we see no need to decide this case on constitutional grounds because "[e]ven if we were to conclude, on reconsideration of Lebel [v Swincicki, 354 Mich 427; 93 NW2d 281 (1958)], that the drawing of blood from an apparently drunken driver does not violate his rights under the Michigan Constitution, the statute limits the authority of police officers to request the.taking of blood and limits the use that may be made of a test result obtained pursuant to exercise of that authority”. People v Keen, supra at 576-577.
The Michigan Vehicle Code makes admissible in DUIL prosecutions the result of a blood alcohol test.
It is further provided that a person who operates a motor vehicle "is deemed to have given consent” to a blood alcohol test if he is "arrested while driving under the influence of intoxicating liquor or while his ability to operate a vehicle has been impaired due to the consumption of intoxicating liquor”.
It is also provided, however, that "[a] person under arrest shall be advised of his right to refuse to submit to chemical tests; and if he refuses the request of a law enforcement officer to submit to chemical tests, no test shall be given”. If the driver refuses to take a test, the Secretary of State may suspend, revoke or deny issuance of a driving license.
In Keen, this Court said:
"Even though the taking of an automobile driver’s blood without consent does not violate the Federal Constitution and even if on reconsideration of Lebel we were to conclude that it did not violate the Michigan Constitution, it would still be within the legislative prerogative to limit the right of police officers and others to take blood from allegedly drunken drivers. Whether consent is or is not constitutionally required, the Legislature may decide that the interest in enforcement of the drunk driving laws does not justify subjecting unconsenting drivers to blood alcohol tests — imposition of the sanction of revocation of driver’s license for unreasonable refusal to consent to a test appropriately protects the public interest.”
II
In McNitt, the driver, who was unconscious, did not consent.
In Gilbert, the trial judge found, after an evidentiary hearing, that the driver did not consent.
While the relevant provisions of the Michigan Vehicle Code are sometimes called the "implied consent law” and it is provided that a person who operates a motor vehicle "is deemed to have given consent” to a blood alcohol test, it is also provided that "no test shall be given” to a person who refuses to consent. As the trial judge in McNitt declared, under the statute the issue "is not to be viewed in the ordinary search and seizure context, but solely in terms of consent”.
The contention of the defendant in McNitt that statutory authority is not needed to authorize the administration of blood alcohol tests or to make test results admissible in evidence elides the fact that but for the statute the tests probably would not have been administered by the hospital personnel.
In both Gilbert and McNitt the blood sample was taken at the request of a police officer to determine alcohol content and not for diagnostic purposes.
There is no suggestion that the hospitals would have allowed their personnel to draw blood for determination of alcohol content without a "request of a police officer” or that they would have allowed this to be done if they did not have the resulting statutory protection from civil and criminal liability.
In administering the tests, the hospital personnel appear to have acted on the requests of police officers pursuant to the statute.
It has not been established that, as claimed by the defendant in McNitt, the officer, in requesting that a test be administered, was exercising an asserted common-law right to cause a blood alcohol test to be administered.
We do not preclude a showing at trial that the officer in requesting that the hospital personnel administer a test made known to them that he was not making the request pursuant to the statute so that they would be aware that if they administered the test they could not claim the statutory protection from civil and criminal liability. Upon such a showing the question whether the statute occupies the field and supersedes the asserted common-law right would be properly presented and require resolution; absent such a showing, we intimate no opinion on the question.
Ill
In People v Keen, supra, holding that a blood alcohol test result was not admissible in a prosecution for manslaughter, this Court said:
"In the context of an arrest for 'driving a vehicle while under the influence of intoxicating liquor’, advice that results of a consensual test will be used to determine the innocence or guilt of the driver means innocence or guilt of the offense for which the driver was arrested.” 396 Mich 583.
If the drivers in McNitt and Gilbert had been told, as the driver in Keen was told, that blood alcohol test results might be admitted in a DUIL prosecution and had, as contended by Gilbert, consented to the administration of such tests, the results could not, for essentially the reason stated in People v Keen, have been used against them in civil litigation. The test result would have been obtained on a representation of limited use made by a police officer acting pursuant to a statute providing for limited use. That limitation encourages drivers to consent to the test and assists in the prosecution of those who drive under the influence of intoxicating liquor or while their ability to drive is impaired due to intoxication.
It would be anomalous to construe the statute to allow a broader use of the results of tests taken under the authority of the statute but not in conformity with its terms than of test results obtained in conformity with statutory requirements.
IV
Test results obtained pursuant to the exercise of statutory authority are not admissible unless obtained in conformity with the requirements of the statute.
The statute provides that a person under arrest "shall be advised of his right to refuse” a test and "if he refuses” the request "no test shall be given”. In Gilbert the judge found that the request of the officer was refused. McNitt’s state of unconsciousness precluded a request in conformity with the requirements of the statute. The tenor of this statute giving drivers the right to refuse to submit to a test is that "no test shall be given” unless the driver submits to a test.
The meaning of the statutory edict, "no test shall be given”, is that the driver has a choice whether to submit to a test;* if he does not submit, this evidence of his condition shall not be extracted from him. If, as has been here contended, there is a right to use test results in civil litigation even if the driver does not submit because the test .was nevertheless administered, then — the statute to the contrary — the driver has no choice.
In precluding the use of test results obtained under color of statutory authority but in violation of the terms of the statute, we protect the driver’s statutory choice.
We also observe that the language of the statute, "in determining the innocence or guilt of the defendant”, is not the language of civil litigation.
A different question might be presented if the test had not been requested by a police officer, but had been administered by hospital personnel for diagnostic purposes.
The test results are not admissible in Gilbert or McNitt but this does not preclude a showing at trial that the officer eschewed his statutory authority.
We appreciate that drunk drivers are a menace and that strict enforcement of drunk driving laws is in the public interest. The Legislature has, however, limited the authority of police officers to request hospital personnel to withdraw blood or otherwise test for blood alcohol content without consent and has limited the use that may be made of blood alcohol test results obtained pursuant to exercise of that authority.
The Court of Appeals is affirmed. The cases are remanded to the trial courts for trial.
Kavanagh, C. J., and Williams and Fitzgerald, JJ., concurred with Levin, J.
Our Holding is in accord with the conclusions of the Court of Appeals in McNitt and Gilbert:
"We have not disregarded appellants’ argument that Michigan’s 'implied consent law’ as to chemical tests in drunken or impaired driving situations applies in the instant case. That statute gives implied consent for the purpose of that act.” McNitt v Citco Drilling Co, 60 Mich App 81, 85; 230 NW2d 318 (1975).
"[W]e conclude that the trial court properly excluded the evidence because of the invalidity of any alleged consent.” Gilbert v Leach, 62 Mich App 722; 233 NW2d 840 (1975).
Lebel v Swincicki, 354 Mich 427; 93 NW2d 281 (1958), held that the result of a blood alcohol test, based on a blood sample taken from an unconscious driver, was inadmissible in a civil action as the Michigan constitutional provision securing persons from unreasonable searches and seizures (Const 1908, art 2, § 10 [now Const 1963, art 1, § 11]) precludes the drawing of blood without consent. The Court, citing Breithaupt v Abram, 352 US 432; 77 S Ct 408; 1 L Ed 2d 448 (1957), said that the result of such a test would be inadmissible in a Federal prosecution. In Schmerber v California, 384 US 757; 86 S Ct 1826; 16 L Ed 2d 908 (1966), the United States Supreme Court concluded that Federal constitutional guarantees had not been violated by the extraction of blood without consent from an apparently drunken driver and the admission in evidence in a drunk driving prosecution of the result of a chemical test of his blood.
MCLA 257.625a; MSA 9.2325(1).
MCLA 257.625c; MSA 9.2325(3).
MCLA 257.625d; MSA 9.2325(4).
MCLA 257.625Í; MSA 9.2325(6).
See People v Keen, 396 Mich 573, 580-581, fn 12; 242 NW2d 405 (1976).
Some blood was taken for diagnostic purposes but the judge found that another sample was taken at the request of a police officer and, although hospital personnel claimed consent had been given, that the sample taken at the request of the officer was without the defendant’s consent. The hospital personnel said they would not have performed a blood alcohol test absent a request of an officer. The Court of Appeals stated that the blood sample was taken by the hospital personnel at the request of the police. Gilbert v Leach, 62 Mich App 722, 729; 233 NW2d 840 (1975).
"Samples and specimens of urine, breath and saliva shall be taken and collected in a reasonable manner; but only a duly licensed physician, or a licensed nurse or medical technician under the direction of a licensed physician and duly qualified to withdraw blood, acting in a medical environment, at the request of a police officer, can withdraw blood for the purpose of determining the alcoholic content therein under the provisions of this act. No liability for a crime or civil damages predicated on the act of withdrawing blood and related procedures attaches to a qualified person who withdraws blood or assists in the withdrawal in accordance with this act unless the withdrawal is performed in a negligent manner.” MCLA 257.625a(2); MSA 9.2325(1)(2). (Emphasis added.)
The exculpation from liability is we think triggered by "the request of a police officer”. Absent disclaimer by the officer that he is acting under the statute, hospital personnel are protected in relying on such a request as authorization to proceed to administer a test under the statute without independent investigation and determination whether statutory requirements have been observed.
Cf. Gallagher v Secretary of State (On Rehearing), 59 Mich App 269; 229 NW2d 410 (1975).
Collins v Secretary of State, 384 Mich 656, 667; 187 NW2d 423 (1971); People v Hayes, 64 Mich App 203, 208; 235 NW2d 182 (1975).
MCLA 257.625a(3); MSA 9.2325(1X3).
Our conclusion makes it unnecessary to consider whether the trial judge properly decided the issue of consent.
Since the statute provides for limited use of a test result, the death of the driver after administration of the test does not enlarge the use that may be made of such result. | [
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Coleman, J.
Of the many questions raised in this appeal, two are of primary importance. The first is whether the trial judge must instruct the jury on the crime of manslaughter, according to both the prosecution and defense theories of the case, when there is evidence to support both theories and proper requests are made. The Court of Appeals did not reach this question. Our answer is yes. The second question is whether manslaughter committed with a motor vehicle must be formally pled in the information in order for the jury to consider negligent homicide as a possible lesser offense. The Court of Appeals answered yes, relying on People v Jordan, 347 Mich 347; 79 NW2d 873 (1956). People v McIntosh, 62 Mich App 422; 234 NW2d 157 (1975). Our answer is no. We respectfully believe Jordan was incorrectly decided and should be overruled.
I
The information against the defendant formally pled the crime of murder in the general language of the statute. MCLA 750.316; MSA 28.548.
The evidence presented at the defendant’s trial indicated that the decedent, Mr. Turner, went to the rescue of a young woman who was in the defendant’s automobile and appeared to be in some distress. Turner and the defendant began a fight outside the car, and, according to the prosecution’s evidence, the defendant struck and killed Turner with a wine bottle. However, according to the defense’s evidence, defendant did not strike Turner with a bottle. Instead, the defense’s evidence suggested that after pushing Turner to the ground, the defendant quickly reentered the car and tried to leave. In his haste, he mistakenly threw the gearshift lever into forward instead of reverse. Turner was in front of the car. When the defendant stepped on the gas, the car shot forward striking and killing Mr. Turner.
The judge instructed the jury on manslaughter based on the prosecution’s theory that the defendant killed Mr. Turner with a bottle. The judge denied a defense request to instruct the jury on manslaughter based on the defense’s theory that the defendant struck and killed Mr. Turner with the car. The judge also denied a defense request to instruct the jury on negligent homicide.
The jury convicted the defendant of manslaughter.
II
Manslaughter committed with a motor vehicle is not separately defined as a crime by the common law or by statute. There is only the general crime of manslaughter (MCLA 750.321; MSA 28.553) which may, of course, be committed with a motor vehicle.
The judge should have instructed the jury on the crime of manslaughter based on the theory that death was caused by an automobile. There was evidence to support a conviction for this crime on this theory and a proper request was made. See People v Phillips, 385 Mich 30; 187 NW2d 211 (1971). The judge is not free to choose which of two competing theories the jury may consider. People v Hamilton, 76 Mich 212; 42 NW 1131 (1889). If the judge instructs on manslaughter according to the prosecution’s theory of the case, then the judge must also instruct on manslaughter according to the defense’s theory, and let the jury decide which theory to believe.
Negligent homicide is a statutory crime defined as the careless, reckless or negligent operation of a motor vehicle resulting in the death of a human being. MCLA 750.324; MSA 28.556. The Legislature has affirmatively linked negligent homicide and manslaughter committed with a motor vehicle together in MCLA 750.325; MSA 28.557, which says:
"The crime of negligent homicide shall be deemed to be included within every crime of manslaughter charged to have been committed in the operation of any vehicle, and in any case where a defendant is charged with manslaughter committed in the operation of any vehicle, if the jury shall find the defendant not guilty of the crime of manslaughter, it may render a verdict of guilty of negligent homicide.”
In People v Jordan, the Court interpreted this statute narrowly. The Court said the word "charged” meant formally pled in the information. Since the information against the defendant in Jordan only pled murder, the Court said she had no right to an instruction on negligent homicide, even though the jury in her case properly had been permitted to consider manslaughter committed with a motor vehicle as a possible lesser offense, and had, in fact, convicted her of that crime.
This is an anomalous result, and the interpretation of the statute in this manner breaks the link between the two crimes for no apparent reason. Understandable confusion has followed the decision.
The Jordan interpretation also ignores an important fact. If the information against a defendant pleads the crime of murder, then the defend ant must be prepared to defend against the crime of manslaughter as well, because that may be a lesser included offense of murder where the evidence so warrants. As a practical matter, such a defendant is "charged” with manslaughter whether that crime is formally pled in the information or not.
Most importantly, the Jordan interpretation runs counter to the purpose for which the statute was enacted. The purpose of the statute was to expand the range of cases in which the jury could consider negligent homicide as a possible lesser offense. The Jordan interpretation does exactly the opposite. It narrows the range of cases in which negligent homicide may be considered.
We believe the better view is that manslaughter committed with a motor vehicle does not have to be formally pled in an information charging murder in order for the jury to consider negligent homicide as a possible lesser offense. Prospectively from the date of this decision, if the jurors are or should be permitted to consider manslaughter committed with a motor vehicle, then, pursuant to MCLA 750.325; MSA 28.557, they also should be permitted to consider negligent homicide. This view preserves the legislative link between the two crimes, does not conflict with practical considerations and promotes, rather than hinders, the purpose for which the statute was enacted.
Because the jurors in this case should have been instructed on manslaughter committed with a motor vehicle, they should also have been instructed, pursuant to MCLA 750.325; MSA 28.557, on negli gent homicide. The failure to do so requires reversal of the defendant’s conviction and a remand for a new trial.
Ill
Of the other questions raised in this appeal, only two are likely to recur in a new trial. We will address them briefly.
The defendant contends the judge committed reversible error by refusing to allow defense counsel to ask a key prosecution witness where she lived. This information was available from other sources, such as the police reports in the prosecutor’s file. This witness had been threatened with bodily harm by some of the spectators in the courtroom. Under these circumstances, we do not believe the judge abused his discretion by refusing to allow defense counsel to ask this question.
The defendant also contends the judge committed reversible error when he refused to allow defense counsel to see the prosecutor’s dossier on the jury panel. The information in the dossier was available from public records.
In People v Aldridge, 47 Mich App 639; 209 NW2d 796 (1973), the Court said that defendants have a right to see the prosecutor’s dossier on prospective jurors. In People v Stinson, 58 Mich App 243; 227 NW2d 303 (1975), the Court rejected Aldridge and said that the question should be resolved by a court rule. The Court of Appeals panel in the instant case agreed with Stinson and we concur.
Defendants have no constitutional or statutory right to see jury dossiers compiled by the prosecutor from public records. If policy considerations dictate that defendants should be allowed to see these dossiers, then a court rule should be proposed, considered and adopted in the usual manner. Until then, the prosecutor need not share this information with the defense, so long as it is reasonably available to the defense from other sources.
Reverse in part, affirm in part: Remand for new trial consistent with this opinion.
Kavanagh, C. J., and Fitzgerald, Ryan, and Blair Moody, Jr., JJ., concurred with Coleman, J.
Levin, J., concurred except as to Part III.
Williams, J., concurred in the result.
Although the briefs in this appeal discussed, inter alia, the case of People v Ora Jones, 395 Mich 379; 236 NW2d 461 (1975), that case does not apply to the questions raised in this appeal.
There was testimony from a mechanic that the gear selector indicator on the defendant’s car was missing from the car and in the repair shop when this incident occurred.
The exact request was for an instruction on "manslaughter with a motor vehicle”. Contrary to the Court of Appeals opinion in this case, there was no request for an instruction on "involuntary manslaughter”.
Expansion was necessary because many jurors were unwilling to convict a defendant of the serious crime of manslaughter for a traffic-related fatality — the feeling being "there but for the grace of God go I”. A less serious option was required. See Perkins on Criminal Law (2d ed), pp 79-80. | [
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Ryan, J.
This is a child custody case whose subject is an 11-year-old boy, the son of divorced parents.
Our order granting leave to appeal obligates us to answer two questions:
1. Whether, on the facts of this case, there existed at the time of trial an established custodial environment from which the trial court was by statute forbidden to remove the minor child, absent clear and convincing evidence that the child’s best interests required a change of custody; and
2. "[W]hether, under the facts of this case, the trial court erroneously overlooked the importance of long-term community contacts as a factor contributing to a finding of 'custodial environment’.” 407 Mich 947.
We answer both questions in the negative and affirm the judgment of the Court of Appeals which affirmed the decision of the trial court to award custody of the child of the parties to appellee.
Our decision involves consideration of the interplay of three provisions of the Child Custody Act: §§ 3, 7(c) and 8.
It is important to note at the outset that while our review of the trial court’s custody determination in this case is de novo, Hensley v Hensley, 357 Mich 3; 97 NW2d 615 (1959), we are nevertheless bound by § 8 of the Child Custody Act, which states:
"To expedite the resolution of a child custody dispute by prompt and final adjudication, all orders and judgments of the circuit court shall be affirmed on appeal unless the trial judge made findings of fact against the great weight of evidence or committed a palpable abuse of discretion or a clear legal error on a major issue.” (Emphasis added.)
We understand that provision to require us to affirm the trial judge’s determination that on this record the best interests of the child involved would be best served by ordering him placed in the custody of appellee unless we find that the trial court committed clear legal error in making that order, made findings of fact against the great weight of the evidence, or committed a palpable abuse of discretion. For the reasons stated hereafter, we conclude he did not.
I
Appellee, Tanny Baker, was first married in November, 1967. A child, Sharyll Anne, was born of the marriage, which ended in divorce. Appellee then married appellant Phillip Baker and on August 5, 1970, a son, Arthur Lee, whose custody is at issue before us, was born of that marriage. Sharyll Anne was later adopted by appellant. From the time of Arthur’s birth and until June, 1978, the two children lived with their parents in the marital home in the area of Alpena, Michigan.
On June 18, 1978, Mrs. Baker took the two children to Colorado for a vacation with her parents. One month later she and the children returned to Michigan, and she informed her husband that she wanted a divorce. On July 21, 1978, Mr. Baker filed a complaint for divorce in the Alpena Circuit Court. No order for custody of either of the children was entered at that time. Later, at an informal conference held at the office of the Friend of the Court, the parties agreed that Mrs. Baker and both children would return to Colorado where they would establish a new home. In accordance with that understanding, Mrs. Baker and the two children moved to Buena Vista, Colorado, on July 31, 1978, and took up residence.
On September 12, 1978, Mr. Baker appeared in Colorado unannounced, physically removed his son Arthur from Mrs. Baker’s home and immediately returned to Michigan with the child. He had not consulted the boy’s mother in advance or advised her of his intention to remove the child from her custody. Sharyll Anne remained with her mother in Colorado.
On September 16, 1978, Mr. Baker obtained from the circuit court in Alpena an ex parte interim order for custody of Arthur. He made no request for custody of Sharyll Anne. After a contested hearing on October 3, 1978, the court ordered that custody with Mr. Baker be continued. Arthur remained in Alpena with his father until the trial.
The trial was held on November 2, 1978. At its conclusion the court granted a divorce and awarded custody of both children to the appellee. As part of the property division, the court directed appellant to repay the sum of $4,800 to appellee’s parents for what was characterized as an "advancement” made to the parties during their marriage.
II
For decades the trial and appellate judiciary of this state struggled with the delicate task of resolving child custody disputes, a task made both frustrating and unsatisfactory by the need to apply inexact standards of largely unproven significance to factual scenarios of limitless variation. Courts were required to evaluate a plethora of sociological, economic, and psychological data in an effort to reach custody decisions intended, in the last analysis, to serve the affected child’s best interests. Predictably, the myriad factors evaluated by trial courts in child custody disputes were given uneven consideration and only such significance as a particular judicial fact-finder deemed appropriate in the exercise of his own, virtually unfettered, discretion. The standards for determining the child’s best interests were essentially subjective.
By enacting the Child Custody Act of 1970, and particularly § 3 thereof, the Legislature attempted, among other things, to standardize the criteria for resolving child custody cases by declaring that the ultimate standard for the award of custody — the best interests of the child — is to be determined by evaluation and consideration of ten specifically identified factors. In adopting § 7(c) of the act, the Legislature intended to minimize the prospect of unwarranted and disruptive change of custody orders and to erect a barrier against removal of a child from an "established custodial environment”, except in the most compelling cases. Section 7(c) provides:
"The court shall not modify or amend its previous judgments or orders or issue a new order so as to change the established custodial environment of a child unless there is presented clear and convincing evidence that it is in the best interest of the child. The custodial environment of a child is established if over an appreciable time the child naturally looks to the custodian in such environment for guidance, discipline, the necessities of life and parental comfort. The age of the child, the physical environment and the inclination of the custodian and the child as to permanency of the relationship shall also be considered.” (Emphasis added.)
Complementing the foregoing provision is § 8, quoted supra, which limits the power of an appellate court to disturb a trial court’s custody decision to those instances in which the "trial judge made findings of fact against the great weight of evidence or committed a palpable abuse of discretion or a clear legal error”.
III
Appellant claims the trial court committed clear legal error in failing to apply the clear and convincing evidence standard of § 7(c) to the determination whether, at the time of trial, young Arthur Baker’s best interests required a change of custody to appellee. He also claims that even if the clear and convincing evidence standard of § 7(c) was not applicable in this case, the trial court’s finding that the best interests of the child required a change of custody was nevertheless contrary to the great weight of evidence. Specifically, appellant argues that the evidence shows that from the time of Arthur’s birth until the date of trial, November 2, 1978, with the exception of "two occasions of one and one and one-half months, respectively”, the boy was living in an "established custodial environment” in Alpena within the meaning of § 7(c) of the act. Consequently, he maintains, the court was forbidden to order a change of custody to appellee unless it first found, by "clear and convincing” evidence, that the boy’s best interests required that he be taken from his father’s care and sent to live with his mother in Colorado.
Appellee contends, on the other hand, that the child was not living in an "established custodial environment” with appellant at any time, as that expression is used in § 7(c); that in resolving the custody dispute at trial the court was bound only to determine the child’s best interests; and that the court’s custody decision was factually and legally correct.
IV
It is clear that absent the existence of an "established custodial environment”, the trial judge was free to award custody of the boy either to his mother or to his father simply by determining the child’s best interests, as that standard is defined in § 3 of the act. Therefore, to determine whether the trial court’s authority to order a change of custody in November, 1978, depended upon a showing by "clear and convincing evidence”, as opposed to a mere preponderance of evidence that the child’s best interests called for a change of custody, we must first decide whether the prerequisite "established custodial environment” existed.
We are provided a measure of legislative guidance as to the meaning of an "established custodial environment” by § 7(c) of the act which we repeat here for ease of reference:
"The custodial environment of a child is established if over an appreciable time the child naturally looks to the custodian in such environment for guidance, discipline, the necessities of life and parental comfort. The age of the child, the physical environment and the inclination of the custodian and the child as to permanency of the relationship shall also be considered.”
Certainly the orders of custody that entered on September 16 and October 3, 1978, did not, of themselves, establish the custodial environment with which we are concerned here. Such an environment depended instead upon a custodial relationship of a significant duration in which Arthur was provided the parental care, discipline, love, guidance and attention appropriate to his age and individual needs; an environment in both the physical and psychological ’ sense in which the relationship between the custodian and the child is marked by qualities of security, stability and permanence.
Appellant argues that Arthur was living in just such a custodial environment in Alpena at the time of the trial and had been from the day he was born. Our attention is invited to the fact that in Alpena, unlike Colorado, Arthur’s custodial environment included a number of long-term community contacts.
They included, among other things, attendance at a single school, association with familiar playmates in a familiar neighborhood, close familial ties, regular visits with grandparents, and continuing participation in the neighborhood hockey program. It is certainly true that these contacts and associations contributed importantly to the custodial environment in which Arthur lived with his parents and sister in the family home in Alpena. Moreover, there are indications in the record that such community contacts were fortified by an atmosphere in the home of love, guidance, discipline, parental comfort, psychological stability and a secure family life provided by two loving parents over an appreciable period of time.
That environment began to deteriorate, however, with the disruptive events of the summer of 1978, and it was ultimately destroyed by the breakup of the parents’ marriage and the dissolution of the family.
The shifting back and forth between Buena Vista, Colorado, and Alpena, Michigan, during the five and one-half months from June to November, 1978, saw the child living with his mother in Colorado for one month, his mother and father in the family home in Alpena for a week, his mother in Colorado for six weeks, and his father in the paternal grandparents’ residence in Alpena for another seven weeks. Certainly those repeated custodial changes and geographical moves, with the necessarily attendant emotional implications, destroyed the previously established custodial environment in which the boy was living and precluded the establishment of a new one, at least until after the trial.
While it is true that on September 12, 1978, Arthur was returned to the Alpena area where he was born and raised and on September 16 was placed in his father’s legal custody by an ex parte interim order, Arthur did not return to the home or the settled environment from which he was taken in June. Instead, he was introduced to a new living arrangement with his father, but not his mother and sister, and not in the home he left in June but in the home of his paternal grandparents. Furthermore, it was inevitable that, whatever the outcome of the custody dispute, another change of residence would be necessary because of appellant’s stated intention to find a new residence for himself and the boy if he were awarded custody.
Certainly, whatever significance Arthur’s community contacts and familiar associations in Alpena may have had in contributing to his "established custodial environment” prior to June, 1978, they were not, by their nature, sufficient to preserve that environment once the family unit dissolved and the boy entered into a new custodial relationship with his father alone, in a radically altered lifestyle in a new home.
We conclude that at the time of trial there had been no "appreciable time [during which] the child naturally look[ed]” to his father alone "for guidance, discipline, the necessities of life and parental comfort” in a stable, settled atmosphere in order that an "established custodial environment” within the meaning of § 7(c) could exist.
That being so, the trial court’s custody decision was not governed by the "clear and convincing” evidence standard of § 7(c) but rather by the duty to decide, by a preponderance of the evidence, what custodial arrangement was dictated by the child’s best interests as defined in § 3 of the act.
V
As is explained more fully in Part VI, infra, the trial judge, in his opinion concerning custody of Arthur, carefully tracked the litany of criteria described in § 3 of the custody act as mandatory considerations in determining the child’s best interest and evaluated each of them separately. "Long-term community contacts” is not, in express terms, one of them. Nevertheless, the ten criteria, taken as a whole, fully embrace the more essential long-term community contacts to which the appellant’s claim of error makes reference. Section 3(d) concerns "[t]he length of time the child has lived in a stable, satisfactory environment and the desirability of maintaining continuity”; § 3(e) addresses "[t]he permanence, as a family unit, of the existing or proposed custodial home”; and § 3(h) refers to "[t]he home, school and community record of the child”.
It is evident that in addressing each of the foregoing factors, as well as the others listed in § 3 of the act, the trial court did not overlook the significant long-term community contacts this, then eight-year-old, child had established in Alpena.
Certainly there are other community contacts Arthur established which the trial court might have specifically addressed, as we have, such as attendance at the same school, contact with old playmates, the children’s hockey program, visits to grandparents, and others. But the trial court’s failure to speak to each of the myriad factors which could be characterized as community contacts does not suggest that all of them are relevant or that the relevant among them were overlooked.
Neither the mandate of the Child Custody Act nor our requirement that in non-jury cases the "court shall find the facts specially and state separately its conclusions of law thereon” requires in cases involving child custody decisions that the court comment upon every matter in evidence or declare acceptance or rejection of every proposition argued. To the specific question whether, in deciding the ‘custody issue, the trial judge "overlooked the importance of long-term community contacts as a factor contributing to a finding of 'custodial environment’ ”, we answer that he did not.
More important, for the reasons stated in Part IV, supra, we do not think those factors were determinative of the existence of the established custodial environment material to this case.
VI
Appellant contends that even if the trial court was not bound by the clear and convincing evidence standard of § 7(c), it erred in awarding custody of Arthur to appellee because the finding that the child’s best interests required his placement in the custody of his mother was contrary to the great weight of the evidence.
In his written opinion, the trial judge acknowledged that determination of the child’s best interests was governed by § 3. He stated:
"The Child Custody Act, [MCL 722.23;] MSA 25.312(3), is controlling. Section 3 defines best interests of children and lists those factors which a court must consider in deciding which of several competing custodial arrangements would best serve the interests of the children.”
The trial judge then went on to address the requirements of the statute, making explicit reference to the factors described in subparagraphs (a), (c), (d), (f), (g) and (h) by letter name and discussing the fashion in which the evidence in the case related to each of the factors. While not specifically referring to subparagraphs (b), (e), (i) and (j) by name, the court nevertheless addressed the subject matter of each of those factors seriatim and articulated their application to the facts before the court.
The trial court correctly observed that it was required to consider, evaluate and determine the factors delineated in subparagraphs (a) through (j) of § 3 in determining the child’s best interests, as the governing standard for its custody order. While on de novo review we cannot say that the totality of the factors overwhelmingly indicated that the child’s best interests required the award of custody to one parent rather than the other, we are persuaded that the court’s determination of the child’s best interests was fully supported in the evidence.
The main thrust of appellant’s argument that the custody order was contrary to the great weight of the evidence is that the trial court summarily dismissed the child’s preference to live with his father. We find, from a careful examination of the record, that the trial court did consider the child’s preference but decided to give it little weight, finding that the boy’s stated preference was unduly influenced by appellant and, in any case, inconsistent with his own best interests. That conclusion is one clearly within the discretion of the trial judge to make and is supported in the evidence.
We can find no grounds to disturb the determination that appellee has been the guiding force in the care, education and discipline of the child and that given the unfortunate breakdown of the marriage and its disruptive effect upon the child’s life, Arthur’s best interests dictated placement in the custody of his mother. That is not to deprecate in any way the love and concern of appellant for his son; nor do we suggest that he is not a fine and respectable father. But this is a custody struggle in which a choice must be made from among unsatisfactory alternatives. The decision does not turn upon a court’s determination of which parent is the more loving. It turns upon the best judgment possible as to which of two single-parent custodial arrangements will, as between them, serve the child’s best interests. The trial court’s determination that Arthur’s best interests demand custody be awarded to appellee is not against the great weight of evidence.
VII
Appellant raises two additional arguments pertaining to the validity of custody award. We find that the erroneous factual findings regarding the validity of the ex parte interim order of custody and the trial court’s obviously inadvertent misstatement of the child’s age were not significant factors in the court’s findings. The decision of the Court of Appeals is affirmed.
Coleman, C.J., and Kavanagh, Levin, Fitzgerald, and Blair Moody, Jr., JJ., concurred with Ryan, J.
MCL 722.21-722.29; MSA 25.312(1)-25.312(9). Subsequent to the trial in this case the Child Custody Act was amended by 1980 PA 161 and 1980 PA 434. The amendments do not affect this litigation.
MCL 722.28; MSA 25.312(8).
In his brief on appeal to this Court, appellant raises, for the first time, the issue whether the trial court had jurisdiction to order him to repay the $4,800 to appellee’s parents. Because this issue was neither raised in the application for leave to appeal nor included within our order granting leave, we will not address it. GCR 1963, 853.2(1)(a).
MCL 722.541; MSA 25.311, first enacted in 1873 and repealed in 1970, provided:
"That in case of the separation of husband and wife having minor children, the mother of said children shall be entitled to the care and custody of all such children under the age of 12 years, and the father of such children shall be entitled to the care and custody of all such children of the age of 12 years or over: Provided, That any probate court or any court of competent jurisdiction, may, on petition and hearing thereof, make and enforce such order or orders as it may deem just and proper as to the care and custody of such minor children, excepting in cases where an order or decree may have been made by a court in chancery, regarding such children: And provided further, That nothing in this act shall prevent any court of competent jurisdiction from making and enforcing any such order or orders as it may deem just and proper as to the care and custody of such minor children in the same manner and with like effect as it could if this act had not been passed.”
The provision of the statute giving a mother custody of a child under the age of 12 and the father custody of a child 12 and over was historically regarded as a mere guideline, in no way inhibiting the power of the court to make such award of custody as it deemed in the child’s best interest. Mault v Elliott, 329 Mich 544; 46 NW2d 373 (1951). Just what constituted a child’s "best interests” depended upon the individual fact-finder and varied from case to case.
At the time of trial, MCL 722.23; MSA 25.312(3) provided:
" 'Best interests of the child’ means the sum total of the following factors to be considered, evaluated and determined by the court:
"(a) The love, affection and other emotional ties existing between the competing parties and the child.
"(b) The capacity and disposition of competing parties to give the child love, affection and guidance and continuation of the educating and raising of the child in its religion or creed, if any.
"(c) The capacity and disposition of competing parties to provide the child with food, clothing, medical care or other remedial care recognized and permitted under the laws of this state in lieu of medical care, and other material needs.
"(d) The length of time the child has lived in a stable, satisfactory environment and the desirability of maintaining continuity.
“(e) The permanence, as a family unit, of the existing or proposed custodial home.
"(f) The moral fitness of the competing parties.
"(g) The mental and physical health of the competing parties.
"(h) The home, school and community record of the child.
"(i) The reasonable preference of the child, if the court deems the child to be of suificient age to express preference.
"(Í) Any other factor considered by the court to be relevant to a particular child custody dispute.”
At the hearing on temporary custody, upon cross-examination by counsel for appellee, Mr. Baker testified as follows:
"Q. [By Mr. Gillard]: Mr. Baker, are you presently residing with your parents?
"A. On a temporary basis, yes.
"Q. Have you made any arrangements to establish your own residence?
"A. No. But I intend to establish residence as soon as a final decision is made on this custody situation.”
See fn. 5, supra.
GCR 1963, 517.1.
See fn 5, supra.
Opinion of the trial court, reprinted in appellant’s appendix, pp 35a-38a. | [
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Per Curiam.
This is a medical malpractice case brought by plaintiffs against defendants William Beaumont Hospital and Dr. Jerome Edward Feldstein. The trial court entered an order of dismissal as to Dr. Feldstein as well as an order declaring a mistrial. Plaintiffs appealed by leave granted to the Court of Appeals.
The facts as delineated by the Court of Appeals are as follows:
"Plaintiffs, Patricia N. Callahan and her husband, Kenneth R. Callahan, brought suit against the defendants William Beaumont Hospital and Dr. Jerome Edward Feldstein, alleging negligence by the defendants in failing to diagnose and correctly treat an alleged fracture of plaintiff Patricia N. Callahan’s right ankle at the hospital’s emergency room.
"A jury trial was commenced on April 22, 1974. In the course of plaintiffs’ presentation of their case, the trial court ruled that Dr. Robert J. Huebner, called as an expert witness by the plaintiffs, was not competent to testify as to the negligence of Dr. Feldstein because Dr. Huebner had never practiced in the Detroit metropolitan area. The trial court also ruled that Dr. Huebner could not testify as to the negligence of those employees of the hospital who had examined the plaintiff’s X-rays because Dr. Huebner lacked the qualifications of a radiologist.
"Following these rulings, the trial court granted a motion by the plaintiffs for a mistrial so that plaintiffs could seek an emergency appeal. At the same time, before the plaintiffs had completed the presentation of their case, the trial court also granted a motion by Dr. Feldstein to be dismissed from the case upon a directed verdict of no cause of action.” 67 Mich App 306, 308-309; 240 NW2d 781 (1976).
The Court affirmed the exclusion of the proffered testimony of Dr. Huebner but reversed the trial court’s dismissal of plaintiffs’ action against Dr. Feldstein and remanded for new trial. Plaintiffs applied for leave to appeal, but Dr. Feldstein did not.
On August 18, 1976, this Court ordered the instant case to be held in abeyance pending a decision in Siirila v Barrios, 398 Mich 576; 248 NW2d 171 (1976). We now, in lieu of leave to appeal, pursuant to GCR 1963, 853.2(4), affirm the Court of Appeals judgment, but address one aspect of the Court’s opinion.
The Court of Appeals found no error in the trial court’s ruling that Dr. Huebner could not testify as to the negligence of Dr. Feldstein. The trial court had premised its ruling upon the fact that Dr. Huebner had never practiced in the Detroit metropolitan area. As to this question the Court of Appeals reasoned:
"Moreover, this case involves treatment in the emergency room of a large metropolitan hospital. It is entirely possible that the conditions present in an emergency room of a Detroit area hospital are so different from those in an emergency room of a small-town hospital, that any comparisons made by a small-town doctor would be unfair to a doctor practicing in the big-city hospital. It is also possible that the number of cases handled in the emergency room of a big-city hospital as well as the nature of those cases may differ so significantly from the nature and volume of cases handled in the emergency room of a small-town hospital that com parisons of the procedures used in each to examine a person seeking emergency treatment would be misleading. Factors such as these further support the application of the 'local community’ rule to the facts of the present case. Consequently, the trial court did not err in not permitting Dr. Huebner to testify as to the negligence of Dr. Feldstein.” 67 Mich App 306, 311-312.
We agree that Dr. Huebner should not have been permitted to testify as to the alleged negligence of Dr. Feldstein. However, the standard employed in this case for making that determination was inappropriate. The question is not whether the proffered expert witness ever practiced in the same geographical area in which the defendant practiced or in a similar area. Rather, the determinative question is whether the proposed expert witness knew what the practice was. In Siirila v Barrios, supra, we said:
"The rule therefore as to the ability of a specialist testifying as to a general practitioner’s compliance with the requisite standard of care of a general practitioner is only that the witness have knowledge of the standard of care about which he or she is testifying.” 398 Mich 576, 593.
In this case, there was no showing that Dr. Huebner knew "the standard of care about which he” was to testify. Therefore, the Court of Appeals reached the correct result, and we affirm.
Kavanagh, C. J., and Williams, Levin, Coleman, Fitzgerald, Ryan, and Blair Moody, Jr., JJ., concurred. | [
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Kavanagh, C. J.
I.
Plaintiffs urge that these cases be remanded to the Tax Tribunal for proceedings to challenge the State Tax Commission’s intercounty equalization determination. Defendant, however, contends that the Tax Tribunal has no reviewing authority over intercounty equalization.
On July 1, 1974 the Tax Tribunal was established pursuant to provisions of the Tax Tribunal Act, 1973 PA 186; MCLA 205.701 et seq.; MSA 7.650(1) et seq. Section 31 of the Tax Tribunal Act, MCLA 205.731; MSA 7.650(31), confers upon the tribunal the exclusive and original jurisdiction to review assessment, valuation, rates, special assess ments, allocation disputes, and, inter alia, equalization, under property tax laws. Section 41 of the same act, MCLA 205.741; MSA 7.650(41), endows the tribunal with jurisdiction over actions which were heretofore reviewable by the State Tax Commission or by a circuit court. Section 31 and § 41 of the Tax Tribunal Act transfer the tax commission’s former appellate jurisdiction over county equalization appeals to the Tax Tribunal. Clearly, appeals from intracounty equalization by Boards of Commissioners were formerly reviewable by the State Tax Commission and can and will be reviewed by the Tax Tribunal. Cooper Township v State Tax Commission, 393 Mich 58; 222 NW2d 900 (1974).
Intracounty equalization appeals satisfy the conditions of both § 31 and § 41 of the Tax Tribunal Act, i.e., they are equalization matters arising under the property tax laws and they are matters formerly appealable to the State Tax Commission.
However, it is equally clear that the Tax Tribunal Act does not contemplate nor authorize the tribunal to assume jurisdiction over state equalization.
The laws of this state, since 1913 PA 201, have provided an appeal of intracounty equalization to a state body (the Board of State Tax Commissioners, which was the progenitor of the State Tax Commission), whereas there never has been any provision for administrative review of state equalization of the 83 counties. Also, the Legislature provided by 1972 PA 296 for a tentative levy of taxes during the pendency of a county equalization appeal before the Tax Commission, with a final levy subsequent to resolution of the appeal, whereas it never has enacted legislation dealing with the levy of ad valorem taxes during the time of controversion of state equalized values.
These actions of the Legislature deliberately retain the clear distinction between county equalization and state equalization. They also reveal legislative recognition of the need for review of intracounty equalization and the concomitant need for precluding administrative review of state equalization.
In § 41 of the Tax Tribunal Act, the Legislature made it clear that it was vesting jurisdiction in the Tax Tribunal over matters previously heard by the State Tax Commission as an appellate body. Formerly, the State Tax Commission was the appellate body over individual assessments, allocation disputes and intracounty equalization matters. The State Tax Commission did not act as an appellate body over state equalization. Section 41 does not limit the jurisdiction of the tribunal as conferred by § 31, but is in fact entirely consistent with § 31. Section 31 places jurisdiction in the Tax Tribunal over those matters arising under the property tax laws and, consistent therewith, § 41 eliminates the tax commission and the circuit court as forums in which those very matters were formerly litigated. In the context of this case, § 31 gives the Tax Tribunal jurisdiction over county equalization appeals and § 41 eliminates the tax commission as the forum for its review. The "equalization” subject to the Tax Tribunal’s jurisdiction is the very same equalization that historically and statutorily had been reviewed by the State Tax Commission. The Tax Tribunal succeeded to that jurisdiction as it succeeded to the other appellate jurisdictions of the tax commission.
In short, the Tax Tribunal ,now stands in the stead of the tax commission as a reviewing body; it has not become the reviewer of tax commission action in intercounty equalization.
If a county believes itself aggrieved by the determination of the State Tax Commission concerning intercounty equalization, it may seek judicial review asserting fraud or error of law.
II.
The provisions of the Administrative Procedures Act, MCLA 24.201 et seq.; MSA 3.560(101) et seq. (APA), do not apply to intercounty equalization proceedings before the State Tax Commission.
Plaintiffs and the minority opinion herein rely on this Court’s recent opinion in Cooper Township v State Tax Commission, 393 Mich 58; 222 NW2d 900 (1974), as authority for requiring the State Tax Commission to operate in accordance with thv APA provisions.
Cooper Township, supra, and Ann Arbor Township v State Tax Commission, 393 Mich 682; 227 NW2d 784 (1975), both dealt with intracounty equalization. What we deal with in the instant case is intercounty equalization, a very different situation. The intercounty equalization process is replete with statutory deadlines, among which are the following:
(a) MCLA 211.34; MSA 7.52 requires that the county commissioners equalize their respective counties during the April session.
(b) MCLA 209.5; MSA 7.605 orders the county commissioners to forward their tabular statements (equalization reports) to the State Tax Commission by the first Monday in May.
(c) MCLA 209.2; MSA 7.602 orders the State Board of Equalization to convene on the second Monday in May to equalize assessments.
(d) MCLA 209.4; MSA 7.604, requires the board to prepare a tabular statement showing, by coun ties, the total assessed valuation, the valuation as equalized by the commissioners, the previous year’s state equalized valuation, and current year’s recommended values. These figures must be forwarded to the county clerks. In addition to providing for the tabular statement described above, it provides for the State Board of Equalization to remain in session and finally conclude state equalization on the fourth Monday in May. Representatives of the several counties are heard on the fourth Monday in May, at which time the board determines the relative valuation of the 83 counties and adds to or deducts from the assessed values presented to it a sum which produces 50% of true cash value.
Despite these limitations, plaintiffs assert, and the minority opinion agrees, that state equalization must be conducted pursuant to the requirements of the Administrative Procedures Act which would conceivably require introduction into evidence of approximately 162,492 pages of record for 1974, and 70,000 pages for 1973, allow for the cross-examination of approximately 75 employees of the State Tax Commission, and allow counsel for 83 counties to submit and resubmit proposed findings of fact and conclusions of law. Presumably, the State Tax Commission, the adversary party according to plaintiffs, would have a right to review the evidence of the 83 counties, and cross-examine the county commissioners, or the equalization director of each county.
This procedure would make it virtually impossible to comply with the statutory deadlines, and would impede the apportionmept and collection of taxes necessary to numerous state support programs.
We are dealing with a question of legislative intent. If it considered this problem, it is most unlikely that the Legislature intended to make one long-established statutory system unworkable by imposing another procedure upon it.
The language of the APA does not require the minority’s result. The act refers to a "contested case”. Who are the contestants in state equalization proceedings? Apparently, the argument is that they are the counties and the State Tax Commission. While they may become adversaries in subsequent litigation in the Court of Appeals or this Court, it stretches the concept of a "contested case” to denominate the commission an adversary during a proceeding before it.
This situation again contrasts with that of intracounty equalization present in Cooper Township, where we recognized that "the township and the county become the adversary parties in an equalization hearing held before the State Tax Commission”. 393 Mich 58, 70, n 3.
In Fisher-New Center Co v State Tax Commission, 381 Mich 713; 167 NW2d 263 (1969), we held that individual taxpayer appeals are contested cases within the APA. The Legislature then passed 1969 PA 270, which exempted State Tax Commission proceedings from the APA contested case provisions. In Cooper Township, supra, we held that statute did not apply to intracounty equalization matters because the Legislature did not amend the county equalization statute, MCLA 211.34; MSA 7.52, as it did the individual assessment statute, MCLA 211.152; MSA 7.210. It does not follow, however, that such analysis requires us to apply the APA to intercounty equalization. There has never been a right of appeal to an administrative agency from intercounty equalization. Therefore, it would be a meaningless gesture for the Legislature to declare that the APA does not apply to a. nonexistent proceeding. We hold that the APA does not apply to intercounty equalization proceedings before the State Tax Commission.
Levin, Coleman, and Fitzgerald, JJ., concurred with Kavanagh, C. J.
Ryan, J., took no part in the decision of this case. | [
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Williams, J.
Leave to appeal was granted in the instant proceeding to consider a single issue: whether a decision rendered by less than four justices who nevertheless constitute a majority of a legally constituted quorum is binding on the Court of Appeals and the trial courts. It is our opinion that the lower tribunals are bound by such a decision.
Plaintiff was injured while a guest passenger in an automobile driven by defendant Todd James Slotkin and owned by defendant Hugo Slotkin. An action was filed in Oakland Circuit Court. Despite plaintiffs objections at trial that the guest passenger act was unconstitutional, the matter was sent to the jury and a judgment of no cause of action was entered based on the trial court’s submission of this cause to the jury on the unconstitutional guest passenger act’s theory of gross negligence and wilful and wanton misconduct only.
The Court of Appeals initially held this matter in abeyance pending our decision in Manistee Bank & Trust Co v McGowan, 394 Mich 655; 232 NW2d 636 (1975). However, on October 31, 1975, the Court of Appeals denied plaintiffs motion for peremptory reversal reasoning that:
"this panel considers that the decision reached in Manistee Bank & Trust Co v McGowan, 394 Mich 655 (1975), is applicable as the law of that case only. See People v Jackson, 390 Mich 621, 627 [212 NW2d 918] (1973).”
We granted leave on March 29, 1976, 396 Mich 844.
Section 211(3) of the Revised Judicature Act provides: "[a] majority of the justices shall constitute a quorum for hearing cases and transacting business”. Four justices constitute a quorum and a decision rendered by a majority of that quorum not only disposes of the case but is binding on the lower courts. Sullivan v Scott, 164 Mich 467, 468-469; 129 NW 864 (1911) is instructive:
"This court was made a tribunal of eight justices by Act No. 250, Pub. Acts 1903. Previous to that time there were five, of whom three constituted a quorum (1 Comp. Laws, § 185), and two being a majority of the quorum their concurrence in an opinion was an adjudication. * * * By these provisions of the statute five now constitute a quorum, and when three of the five concur in an opinion it disposes of the case, and judgment may be entered upon the opinion although only three concur, and if no motion for rehearing be made it stands as valid as any judgment or decree. We have even held that four out of seven not only may make a valid judgment, but that it is stare decisis. Dolph v. Norton, 158 Mich. 422 (123 NW 13) [1909].”
See also Common wealth v Mason, 456 Pa 602; 322 A2d 357, 358 (1974).
This Court has recently passed through an extended period of time during which the Court has, without a full complement of justices, presided over and disposed of many matters. While at present seven justices are sitting, there always exists the possibility of reductions through death or resignation or more temporary reductions through disqualifications in particular cases or illness in the future. Were we to hold that 3-to-2 or 3-to-l decisions are not binding on the Court of Appeals and trial courts, the functioning of our judicial system would be adversely affected. Urgent matters would be held in limbo until such time as a majority of four justices could be mustered.
The United States Supreme Court’s recent treatment of Fuentes v Shevin, 407 US 67; 92 S Ct 1983; 32 L Ed 2d 556 (1972), is instructive. In Fuentes, a 4-to-3 decision authored by Justice Stewart, the majority struck down the replevin laws of two states because writs could be issued by a court clerk without notice to the debtor of opportunity for a hearing. Then in Mitchell v WT Grant Co, 416 US 600; 94 S Ct 1895, 40 L Ed 2d 406 (1974), the Supreme Court upheld Louisiana’s sequestration law. In Mitchell the Court sought to distinguish Fuentes.
Noteworthy in this context is that none of the justices at any time suggested that Fuentes was not a precedent of which lower courts must and the Supreme Court itself should take cognizance.
In denying plaintiffs motion for peremptory reversal, the Court of Appeals relied upon People v Jackson, 390 Mich 621; 212 NW2d 918 (1973). Its reliance was misplaced. In Jackson we considered the impact on this Court of a case in which a majority of the justices sitting failed to concur in the reasoning for the decision. In Manistee Bank & Trust Co, a majority of the justices sitting did concur in the reasoning.
Plurality decisions in which no majority of the justices participating agree as to the reasoning are not an authoritative interpretation binding on this Court under the doctrine of stare decisis. See People v Anderson, 389 Mich 155, 170; 205 NW2d 461 (1973), and cases cited therein.
We hold that a three-to-two decision of this Court such as that reached in Manistee Bank & Trust Co is binding on the Court of Appeals and the trial courts until overruled by a later decision of this Court, including, if that be the case, a later three-to-two decision of this Court. We limit our decision to the question before us, namely are lower courts bound by majority decisions of this Court of less than four justices. We, of course, answer that affirmatively.
The Court of Appeals and trial court are reversed and the matter is remanded for further action not inconsistent with this opinion.
Kavanagh, C. J., and Levin, Fitzgerald, Lindemer, and Ryan, JJ., concurred with Williams, J.
MCLA 600.211(3); MSA 27A.211(3).
But see concurring opinion of Souris, J., in Keenan v Midland County, 377 Mich 57, 61; 138 NW2d 759 (1966).
The Court, seeking to distinguish Fuentes, said:
"As in Bell v Burson, (402 US 535; 91 S Ct 1586; 29 L Ed 2d 90 (1971)] where a driver’s license was suspended without a prior hearing, when the suspension was premised on a fault standard, see Vlandis v Kline, 412 U. S. 441, 446-447 [93 S Ct 2230; 37 L Ed 2d 63] (1973), in Fuentes this fault standard for replevin was thought ill-suited for preliminary ex parte determination. In Louisiana, on the other hand, the facts relevant to obtaining a writ of sequestration are narrowly confined. As we have indicated, documentary proof is particularly suited for questions of the existence of a vendor’s lien and the issue of default. There is thus far less danger here that the seizure will be mistaken and a corresponding decrease in the utility of an adversary hearing which will be immediately available in any event.
"Of course, as in Fuentes, consideration of the impact on the debtor remains. Under Louisiana procedure, however, the debtor, Mitchell, was not left in limbo to await a hearing that might or might not "eventually” occur, as the debtors under the statutory schemes before the Court in Fuentes. Louisiana law expressly provides for an immediate hearing and dissolution of the writ 'unless the plaintiff proves the grounds upon which the writ was issued.’ Art. 3506.” 416 US 617, 618.
The case discussed in Jackson was People v Thomas, 387 Mich 368; 197 NW2d 51 (1972). In Thomas the Court split 3-3-1. Justice Black concurred in the result reached by Justices Brennan, Williams and Adams. Thus there was a majority only with regard to the result which was to affirm the trial court. | [
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The Honorable William G. Milliken, Governor of the State of Michigan
The Honorable James J. Damman, Lieutenant Governor of the State of Michigan as President of the Senate
The Honorable Bobby D. Crim, Speaker of the House of Representatives.
Gentlemen:
We address you on the applicability of the Open Meetings Act, 1976 PA 267, to the judicial branch. We are motivated by the same spirit of coordinate public obligation that impelled our predecessors twice before in our state’s history to communicate directly to you our opinion on legislative action that profoundly affects this Court. In the Matter of Head Notes to the Opinions of the Supreme Court, 43 Mich 641 (1881); In re Districting for Court of Appeals, 372 Mich 227; 125 NW2d 719 (1964).
The act closely regulates the meetings of certain public bodies and, provides penalties and procedures for its enforcement. In its initial version as Senate Bill No. 920, the act included within its definition of public body "any state or local * * * judicial * * * body”. The definition was amended by the Legislature so that § 2(a), as enacted, does not include "judicial body” within the definition of public body. Nevertheless, § 3(7) retains the requirement that the act applies "to a court while exercising rulemaking authority and while deliberating or deciding upon the issuance of administrative orders.”
After careful and due deliberation, we conclude that § 3(7) of 1976 PA 267 violates the Constitution of this state and we hereby follow the precedent set by Justices Marston, Campbell, Graves, and Cooley in Matter of Head Notes, supra, and submit our reasons for concluding that the courts of this state are not bound by the act’s provisions.
Const 1963, art 3, § 2 divides the powers of government among three branches and commits to each branch exclusive exercise of the functions properly belonging to it, except as otherwise expressly provided in the Constitution. This separation of powers is designed to preserve the independence of the three branches of government.
Art 6, § 1 vests the judicial power of the state exclusively in one court of justice. Section 4 of that article vests general superintending control over all courts in the state in the Supreme Court and § 5 confers upon this Court the power to make rules to govern the practice and procedure within the courts. It is also well settled that under our form of government the Constitution confers on the judicial department all the authority necessary to exercise its powers as a coordinate branch of government. We refer you to Gray v Clerk of Common Pleas Court, 366 Mich 588; 115 NW2d 411 (1962); Perin v Peuler (On Rehearing), 373 Mich 531; 130 NW2d 4 (1964); and Wayne Circuit Judges v Wayne County, 386 Mich 1; 190 NW2d 228 (1971).
The judicial powers derived from the Constitution include rulemaking, supervisory and other administrative powers as well as traditional adjudicative ones. They have been exclusively entrusted to the judiciary by the Constitution and may not be diminished, exercised by, nor interfered with by the other branches of government without constitutional authorization. See Attorney General ex rel Cook v O’Neill, 280 Mich 649; 247 NW 445 (1937). It is our opinion that 1976 PA 267 is an impermissible intrusion into the most basic day-to-day exercise of the constitutionally derived judicial powers.
We are not unmindful of the Legislature’s laudable goal. We have in the past adopted procedures to open our decision-making process insofar as it involves rules or administrative orders. For example, unless there is need for immediate action, we give notice that we are considering adoption of a rule and solicit comments. GCR 1963, 933. Each of the judicial associations have rules committees with whom members of the Court regularly meet to listen to comments on proposed rules. We have required notice to members of local bar associations with an opportunity to comment before we will even consider approval of local rule changes. GCR 1963, 927(3).
In keeping with the spirit of 1976 PA 267, however, we intend to review our procedures with a view to obtaining even wider public participation in the discharge of our responsibilities.
Respectfully yours,
Thomas G. Kavanagh, C. J.
G. Mennen Williams,
Charles L. Levin,
Mary S. Coleman,
John W. Fitzgerald,
James L. Ryan,
Blair Moody, Jr., JJ. | [
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Campbell, C. J.
In this case Morris recovered in ejectment an undivided half of the premises sued for, but the defendant McKay, who claimed to have been in possession and made improvements under a tax title, was- allowed-to recover judgment for one-half of the value of the improvements under the statute of 1875, amending Comp. L., §§ 6252, 6258.
As we have already held this statute inoperative so far as tenants in common are concerned, we need not consider the questions presented by counsel. Sands v. Davis, ante p. 17.
So much of the judgment ■ as makes allowances for improvements must be reversed, with costs, and the record remanded to the circuit for further proceedings under the statute.
The other Justices concurred. | [
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Graves, J.
In March, 1875, Gibson brought ejectment against Yan Sickle for the west half of the southeast fractional quarter of section fourteen in the township of Porter in Yan Burén county. He was allowed to recover the entire premises in fee and Yan Sickle alleges error.
Disregarding the objections made to Gibson’s evidence and assuming the facts to be as stated on his side of the case, and it follows inevitably that he was not entitled to recover more than an undivided moiety of the lot and that the court erred in permitting a finding by the jury in his favor for the whole.
The showing on his part was: first, that James Young patented the land, and died seized January 6,1851, without having married, and without father or mother living, but leaving Elizabeth Gibson, a legitimate half sister, and after her the children of Rebecca Young, a deceased sister, such children (in case of exclusion of Elizabeth Gibson, the half sister), being the only surviving next of kin of said James Young; second, a quit claim by these children.
Now, when James Young died an undivided half of the lot must according to these facts have fallen to his half sister Elizabeth Gibson (Ryan v. Andrews, 21 Mich., 229; Rowley v. Stray, 32 Mich., 70); and there is no claim that this interest has ever come to defendant in error. He founds his right entirely upon the grant from Rebecca’s children and attributes to them just the extent of interest they derived by heirship from their uncle, James Young. Hence, according to the state and theory of the ease on' the part of defendant in error, the right which fell to Elizabeth Gibson is not in him, but is in some one else.
The deposition of Elizabeth Wilson, taken in Maryland by commission, was objected to, first, because it was transmitted in an envelope closed up and sealed with gum or paste in the way almost universally pursued at the present day, instead of being closed up under the commissioner’s “seal;” and, second, because no jurat was attached to the deposition.
That the document came directly from the hand of the commissioner without the least interference, and precisely as it would have come in case the privy seal of the commissioner had been impressed on the envelope is not doubted, and it seems to the court that it would be a flagrant sacrifice of sense to form to reject the deposition on the sole ground that the commissioner followed modern usage instead of the ancient way.
When the regulation originated, the present method was unknown, and it was customary to use a privy or official seal on wax in order to secure the package and to betray the fact in case of having been tampered with, and no doubt it is better at present to follow the terms of the statute; but the spirit ought not to be blindly sacrificed to the letter, and where the package is carefully closed up and securely sealed according to modern practice, and there is no suspicion whatever that it has been tampered with, the proceeding ought not to be held void because the act of sealing was not done in the exact mode indicated by the words of the law. The provision simply relates to the means to be adopted to secure safe transmission of the paper after its departure from the commissioner, and does not touch the substance of the thing itself or any of its essential badges of verity or of authentication.
We have high authority for saying that if the clerk of the court had been the commissioner and had omitted to close the deposition up under his seal, the omission would have been disregarded. Nelson v. Woodruff, 1 Black, 156.
Where the end is certainly attained and the paper has reached its destination ■without a question against its integrity, the bare fact that the closed up and well fastened envelope did not bear an impression of some seal of the commissioner is not enough to impair the proceeding.
It was not essential that the commissioner should attach a jurat to the deposition in the form customary in case of affidavits. He certified as the record informs us that the witness was sworn, and no more than one proper attestation of the fact was necessary.
The deposition is not set forth in the record, and we have nothing to guide us in regard to it beyond brief references in the bill of exceptions. The views expressed depend upon the construction which appears to be due to these references.
Certain answers given by- the witness were excepted to as not responsive and as containing hearsay. The bill of exceptions is obscure, and it is difficult to determine what specific matters were aimed at by the objection or what line the exceptions were designed to draw between different items of the answers.
The objection does not seem to distinguish, but on the contrary to leave it for the court to ascertain what part was referred to as not responsive and what as hearsay. Looking at the case, however, in the light east on it, we cannot say the answers were incompetent. The inquiry related to family connection and membership and to the decease and times of decease of members, and whether they had been or were married; and the answers returned, although in part based on the course of speech and understanding in the family instead of direct personal knowledge, would seem to have been proper in view of the nature of the subject. Wharton’s Ev., Tit. Pedigree; Best, Wood’s ed., § 498, and note a by the editor; 1 Greenleaf, §§ 108, 104, 134; 1 Starkie, Phil, ed., 45, 47, 188; Cow. & H., notes 560, 573, 612 to 626, 1147; Jewell v. Jewell, 1 How., 219.
Several questions connected with tax-sale deeds, and with the state of possession of the premises and its character, whether adverse or in common or otherwise have been mooted, but the record is not so constructed as to justify their examination. It would not be safe to attempt the formation of any settled opinion on those subjects.
The judgment must be reversed with costs, and a new trial granted.
The other Justices concurred., | [
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Per Curiam.
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Cooley, J.
The bill in this case is filed for the pur pose of settling up the affairs of a copartnership between the parties, which was entered into April 5, 1873, for the manufacture and sale of lumber. Among the provisions of the copartnership articles was one that complainant was to have the supervision and control of the mill, but that lie was to make no charge to the copartnership for his services, and that Cassius H. Sweet, a son of defendant, was to devote his time and attention to the business also without charge. The business was continued under the articles until May 20, 1878, when complainant began this suit. Defendant immediately, on being served with process, entered his appearance, and on the 21st day of May, 1878, by stipulation of parties, a consent order was entered appointing Charles E. Eessequie receiver, who was to continue the management of the mill and business. The receiver took possession at once, and the business went on as before. Nothing was said in the consent order about complainant and Cassius H. Sweet continuing their services in the business, but they did so without any new arrangement. Defendant filed his answer consenting to the dissolution of the copartnership, and the case was put at issue, and referred to a commissioner for the taking of proofs. On September 17, 1878, complainant presented a petition to the circuit court averring the importance of his services in the business of the mill, and that he was unable to give his time to it without compensation, and praying for an order directing the receiver to pay to him such sum as to the court should seem reasonable, monthly, either by way of payment for his services, allowing an equal sum to defendant for the services of Cassius H. Sweet, or by way of allowance to petitioner out of the profits of the business, allowing an equal amount to defendant. The application was resisted, but the court made an order the material parts of which are as follows:
“ That said receiver pay to either or both of the parties to this cause, that shall apply to him for the same, the sum of three hundred dollars, as and for the full ■amount allowed by way of allowance or pay for services or in any other manner, since the appointment of said receiver up' to and including the 30th day of September, 1878, such payment to be made, if demanded, within five days after service upon said receiver, of a certified copy of this order, and that thereafter during the pending of said_ suit, until the further order of this court, said receiver pay to either or both of said parties hereto requesting the same, the sum of one hundred dollars monthly, as and for the full allowance to either or both of said parties by way of wages or otherwise, and that receiver charge the sums so paid to said parties, to the one to whom the same is- paid, to be allowed and accounted for on final settlement.
“It is further ordered that said payment and allowance be without any reference to accounts of the parties to said suit, appearing upon the books of the firm of Sweet & Taylor at the time of the appointment of said receiver, and that the direction to said receiver, contained In the order appointing him, to collect and receive the assets of said firm, be construed to have no reference to apparent accounts on the books of said firm, against the members of said firm, parties to said suit on the firm books at the time of his appointment as receiver, but that such sums appearing by said charges on the firm books against said parties to have been drawn and received by them, be permitted and directed to remain in their hands respectively till the final determination of this cause and the further order of this court.”
This order was appealed from, and the appeal is now before us.
The first question is whether the order is appealable. Under the statute an appeal can only be taken' from a decree or final order. Comp. L., § 5179. In its terms this order is interlocutory, but it has been several times held by this court that if an order finally disposes of any portion of the subject matter in controversy, it is quoad hoc a final decree or order, and therefore appeal-able. An order appointing a receiver has therefore been .held appealable when it took from a party a possession to which he was entitled of right. Lewis v. Campau, 14 Mich., 458; Barry v. Briggs, 22 Mich., 201; Port Huron etc. R. W. Co. v. Jones 33 Mich., 303; McCombs v. Merryhew, ante, p. 721. It is not the stage of the case in which the order is made that determines its appealability, but, as was held in all the cases cited, its effect upon the rights of the parties; and that must be the test of the finality of this order.
As has been stated, the order in terms is not final. It directs certain payments to be made to the parties respectively, but the same are to be allowed and accounted for on the final settlement. Now if it were absolutely certain that a final accounting would restore from a party who had been overpaid the amount of such overpayment, it might be contended with some plausibility that this was a mere question of the custody and use of the moneys pending suit, and involved nothing more. But the fact cannot be overlooked that a temporary payment may be a final payment, and that it must and will become such unless the party receiving it shall be able to respond when the final settlement shall take place. If the fund were not a copartnership fund, and an order were made for its payment to one of the parties claimipg .it, subject to a similar accounting, and without any security that the other, if he should establish his right to it, should have it returned to him, the right to appeal would be manifest. The fact that a possible or even a probable return might be secured could not justify its being treated as a mere interlocutory proceeding. In any case where a party is unwarrantably deprived of the possession of property pending suit, the presumption is that he is to be restored at its conclusion, so -that his loss is temporary only, while here it may be permanent and irremediable.
The effect of this order is to divide the common fund at the rate of $300 at once and $200 a month between the parties so long as the litigation shall continue. This may prove a total destruction of rights; and as complainant asserts his poverty, independent of what is involved in the case, it must certainly prove such destruction if his interest in the concern shall leave him unable to respond on final settlement. We therefore think the order was appealable.
We also think the order was improvidently made. It is supported as being merely a necessary allowance to the parties for their services in aid of the receiver while the estate is being settled up. But in the first place the allowance does not profess to be for services exclusively, and according to the terms of the order it would go on even if complainant and young Sweet should cease to give their attention to the business. And in the second place, it does not appear that the receiver has ever requested these persons to give their services to the business. It is quite possible that he may believe they are not worth to the business the sums allowed, and it is unreasonable to force them upon him if he does not request their assistance.
It is probable that when the receiver was appointed it was expected that the services of complainant and young Sweet would be given in the business as before without charge. But this cannot be claimed as matter of right. The receiver, however, has ample power to employ. them or any other persons whose services he may need, and we think a court, which can know much less about the needs of the business than the receiver, ought not to interfere with his discretion, unless some abuse is alleged and shown. None is pretended in this case.
The order must be reversed with Costs of this Court.
Marston and Graves, JJ., concurred. | [
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Campbell, C. J.
Mrs. Gladwin, formerly wife of Charles G. Sutherland, obtained a divorce from him, with a decree for $2,000 alimony, for which execution issued out of the circuit court for the county of Wayne, under which she bid in one undivided third of certain premises in Washtenaw held in common with defendants Sutherland and Quackenbush, under whom Taylor held most of the building on the land as tenant. She brought ejectment for this undivided third and recovered judgment. The declaration claimed the use of an adjacent alley, and the judgment included this, but the finding is silent on the subject. Such an interest is not the subject of ejectment, as it is an intangible and incorporeal easement. Grand Rapids v. Whittlesey, 32 Mich., 192; Bay County v. Bradley, 39 Mich. Being of such a nature the recital of such a right in the judgment is nugatory, and cannot affect its validity.
The objections to Mrs. Gladwin’s recovery were based on supposed insufficiencies in the finding and on alleged illegalities in the execution and sale.-
The objections that there is no finding which shows defendants below in possession of all the property, and no finding of ouster, rest on the supposition that no part of the finding of facts is contained in that part of the finding headed conclusions of law. As every finding is one and entire, and stands in lieu of a special verdict, we must receive everything evidently intended as facts found, no matter in what part it is set forth. It would have been better to place all such matters by themselves, but the separation does not make the document imperfect. The case finds that Taylor is in possession of most of the premises, and that the other defendants enjoy and control the whole, and all unite in disputing the validity of plaintiff’s claim. It also shows that one of the defendants claims the very title which Mrs. Glad-win asserts as her own.
There is therefore no further question except as to the validity of her title.
It is claimed first, that the decree for alimony is void because a gross sum instead of an annual payment. It is sufficient in this regard to say that inasmuch as the circuit court of Wayne county had jurisdiction over the divorce suit, it had jurisdiction to grant alimony, and that for this reason, if any decree is regarded as improper, it should have been complained of by appeal. There is no possible ground on which such a decree can be regarded as void. We need not consider whether the objection is well founded. The practice is now expressly authorized by statute, and there are many considerations which make it desirable to separate the dealings of divorced parties and relieve them from further discords. But the question is not before us now.
If the court had power to make the decree, its power to enforce it by execution is clear under the statutes concerning the enforcement of money decrees then existing. It is urged, however, that the execution was not regularly issued, because the order allowing it to issue was made before enrollment.
The execution itself was not issued until after the decree was enrolled, and this is the full extent of the statute. The court rule No. 80, which does not allow proceedings to enforce a decree before enrollment, has no reference to orders of the court, but to proceedings in execution of the decree- itself, as by sale or other ministerial action, and the practice as to chancery sales has allowed the preliminary steps of advertising -and other preparatory measures, in advance of enrollment, but has required the sale to be made after enrollment. We do not think there is any force in this point, — either under the rule or under the statute.
The execution being regular, the only remaining question is whether the fact that the certificate of sale was not filed in proper time, avoids the sale. The execution shows a proper levy during its life and a few days after its date. The deed was properly made by the successor of the sheriff who made the sale. But the certificate of sale, dated July 23, 1872, was not filed till October 22, 1874, and the deed was made in November, 1874. The statute directs the certificate to be filed in ten days and allows a redemption within a year to the debtor, and within fifteen months to judgment creditors. No one appears to have set up any right under the execution defendant until he deeded to his brother Solomon in August, 1877. This was nearly three years after the certificate was filed.
We find no authority for claiming that a sheriff can deprive an execution purchaser of his title by failing to perform his official duty of filing the certificate of sale. If the execution debtor or third persons are honestly misled by its absence from the files, they may very properly complain unless they are protected. But except to protect them in their purchases or other rights of claim or redemption, there is no reason, and we think there is no rule of law which regards the failure to file the certificate as impairing the purchasers rights. This was distinctly decided in the early case under a similar statute, of Jackson v. Young, 5 Cow., 269; and a similar principle was suggested in Lilly v. Gibbs, 39 Mich.
We find no error in the judgment except the unimportant one concerning the use of the alley, which should be corrected. The judgment with this correction must be affirmed with costs, and the cause remanded to- the circuit court for any necessary further proceedings.
The other Justices concurred. | [
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Graves, J.
Carleton sued Allen Fish as survivor of the firm of A. &■ H. Fish, and Allen Fish and Isaac N. Jenness, the plaintiff in error, as survivors of the firm of I. N. Jenness & Co., on a promissory note of which the following is a copy:
“$5,800.00. Port Huron, June 30th, 1877.
On demand we promise to pay to the order of I. D. Carleton five thousand eight hundred dollars at-, with interest at 10 per cent, per annum, value received.
A. & H. Fish.”
Endorsed on the back, “I. N Jenness & Co.”
Jenness made defense, and denied by affidavit all connection with the contract set up as his. At the trial the case was strongly contested, but the circuit judge directed a verdict for the plaintiff, and Jenness now asks a reversal on a bill of exceptions. The record states that the return contains substantially all the evidence given.
The declaration distinctly imports that there were two firms, and the evidence tends to show the same, and that one was composed of Allen Fish and Henry Fish, and the other of those persons and the plaintiff in error, and that these firms during several years were in clo'se and almost constant business intercourse, and that defendant in error had numerous dealings with both firms, and was frequently a creditor. May 26, 1876, Henry Fish died, and thereby both firms were dissolved. And the evidence tends to show that at that time the defendant in error held a renewed note, and being one of a series of renewals, of the firm of I. N. Jenness & Co. June 30, 1877, and over a year after the dissolution caused by the death of Henry Fish, the defendant in error met with Allen Fish, and according to the tendency of the evidence, they then assumed to make some kind of settlement or adjustment whereby some lumber claims against defendant in error were applied on the note before mentioned, and deducted, and a new principal was produced as being the remnant of a debt from the firm of I. N. Jenness & Co. to defendant in error. At that time and in that transaction the note in suit was concocted. It was made and delivered as a note for the new principal just mentioned. Allen Fish wrote all the signatures, and at once handed the paper over to defendant in error. The latter was privy to the transaction. He was aware that Henry Fish had died, and it is not pretended that he did not assert the claim when the note was given, and on its receipt, as a demand against the firm of I. N. Jenness & Co.
The law is settled that it was not competent for Allen Fish, after the death of the co-partner Henry Fish, to bind Jenness by new contracts on the strength of any right or authority derived from the former relation of co-partnership. After the death of a member, one partner cannot renew a partnership note nor even accept a bill previously drawn on the firm so as to bind any one but himself. 3 Kent’s Com., 63 et seq.; 1 Parson’s Cont., 201 et seq.
Therefore the note was not binding on the plaintiff in error unless he in some way authorized Allen Fish to subscribe it, or by some means thereafter ratified the act.
The import of the declaration and of the main evidence given to support it, is that the action is founded on the claim that Jenness’ liability depended on his having been a member of the firm of I. Ñ. Jenness & Co., and not upon any new and distinct relation. But passing this now, we observe that there was no evidence conducing to make out any conduct by Jenness to imply in Carleton’s favor that Jenness had engaged in partnership relations with Allen Fish after the death of Henry Fish, and as just intimated, the declaration itself is not in harmony with any theory of liability springing from a relation of that kind. It describes both Jenness and Allen Fish as survivors of the firm of I. N. Jenness & Co., and necessarily conveys the statement that the liability imputed to Jenness was one which attached to him as a member of a firm composed of more persons than himself and Allen Fish, and is inconsistent with the notion of a liability as member of a firm composed of -himself and Allen Fish alone.
In any event the separate acts of Allen Fish could not affect Jenness and subject him to liability as one holding himself out as one of a new firm composed of himself and Allen Fish. There was no evidence tending to prove that Allen Fish was authorized to use Jenness5 name either singly or as one of a firm, and after careful consideration we are satisfied that there was no evidence fairly tending to make out any ratification. If this were otherwise, the utmost that could be said would be that there was barely enough to preclude an instruction to find for defendant.
The ease was improperly dealt with. There was no warrant for the direction to find for the plaintiff, and the judgment must be reversed with costs and a new trial ordered.
The other Justices concurred. | [
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Per Curiam.
The mandamus must be denied. The Treasurer has no right to pay anything on a warrant which is admitted to be' excessive. The auditor’s books must show the amount of each warrant as it is to be paid by the treasurer. If the latter officer can pay anything except the precise sum called for by the warrant, the accounts in one office will not tally with those of the other, and the safeguards intended by law to make each office a check on the other will be destroyed. The only recourse now must be to the Auditor General, to give up the old warrant and apply for a new one. Pre- Bumably he will issue a new one if the county of Houghton is. entitled to it. If he should refuse, it will be time enough to consider to what extent we can inquire into his action in auditing such accounts as are here involved. We cannot presume anything in advance against. the propriety of his action when properly demanded. | [
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Cooley, J.
The city of' Lapeer brought suit against Wattles to recover the amount of the taxes appearing on the city tax-roll for 1877 assessed against him. Wattles defended on grounds going to the validity of the whole roll. The circuit judge held that he was precluded by the statute from contesting the validity of the tax, and gave judgment against him.
The statute which is supposed to have this effect is section 1016 of the Compiled Laws, which is as follows:
(1016.) Sec. 50. The production of any tax-roll on the trial of any action brought for the recovery of a tax therein assessed may, upon proof that it is either the original tax roll and warrant or a duly certified copy thereof, of the township named as the plaintiff in such action, be read and' used in evidence; and, if it shall appear from said assessment roll that there is a tax therein assessed against the defendant in such suit, it shall be prima facie evidence of the legality and regularity of the assessment of the same; and the court before whom the cause may be pending shall proceed to render judgment against the defendant, unless he shall make it appear that he has paid such tax; and no stay of execution shall be allowed on any such judgment.
We are inclined to think the circuit judge was in error in the construction put by him upon this section. In terms it only makes the tax-roll prima facie evidence against the party assessed; and this implies that he is at liberty to dispute his liability. It is reasonable to suppose the conclusive effect of the roll would have been declared if such had been the meaning. It is true the section goes on to say the court shall proceed to give judgment unless the defendant shall make it appear he has paid'the tax; but this means only, as we think, .that the court shall do so, the prima facie case remaining unimpaired. The use of the term prima facie would .be nonsense on any other construction.
In any consideration of remedies for the recovery of taxes,, it is not likely the Legislature would overlook the possibility that illegal levies would sometimes be made, in which there could be no shadow of equity. A man, for instance, may be assessed on his credits in Lapeer though he resides in Flint; and whether this be done through mistake or through fraud, it is manifest that the collection from him of the assessment would be legal robbery. .The Legislature would never purposely so frame á law as to preclude defense against so lawless an exaction; the injustice would be apparent at first blush. But to give the roll the effect of prima facie evidence against Mm would subject Mm to an inconvenience only; an inconvenience of a sort inseparable from the administration of justice. We have no idea tbe Legislature intended to do more.
The validity of the tax is assailed on several grounds, most of which concern mere irregularities, and we shall not trouble ourselves with them. There is one objection, however, that is insurmountable, and that points to a fatal defect in jurisdiction. It is that the tax levied was largely in excess of the limit expressly fixed by law.
The city charter (Local Acts 1875, p. 852, § 5) declares that the aggregate amount of tax which the city may raise in any one year by general tax, exclusive of taxes for schools and school-house purposes, and of certain exceptional taxes not now in question, shall not exceed one and one-fourth per cent, on the assessed value of all the real and personal property in the city made taxable by law. The assessed value of such property for 1877 was f348,540. It appeared in the course of the evidence that aside from a very heavy tax for school purposes the .city levied, by general tax, more than ten thousand dollars ; a tax 133 per cent, above that permitted by law. 'Obviously this is illegal and void. If the council can be protected and assisted by the courts in such a levy, they may be protected and assisted in confiscating the property of their citizens altogether. An unauthorized levy of two per cent, on the valuation is no less illegal than one of a hundred per cent.
Incidentally, however, it appears in the case that the assessed valuation for the year was arbitrarily fixed by the assessors at one-fourth the cash value. This was in open defiance of the statute and of the oath which •the assessors had taken to perform faithfully their duties. The statute commands an assessment at the true cash value. Comp. L., § 984. Had the statute been obeyed, the tax would not have been excessive. But the assessors saw fit to disregard it, and the natural consequence followed: having begun the tax proceedings with an illegality, it became necessary to violate the statute throughout. This is not a creditable showing for the authorities, nor can a shadow of excuse be given for it, unless the habitual disregard of the statute in other localities can be said to excuse. This is of course no excuse whatever. Because other officers openly and notoriously disregard the statute and their official oath, is no reason why the assessors of Lapeer should do the same. Neither can it be any reason why the courts should sustain an exaction which has the forms of a tax, but which the statute forbids. The constitution requires the Legislature to restrict the power of municipalities to tax (Const., Art. 15, § 13), and the Legislature only performed an imperative duty when they imposed the limitation on Lapeer. The city officers who disregard it subordinate the law and the constitution itself to their arbitrary discretion. If the people taxed acquiesce and pay their taxes, they may not afterwards be heard to complain, but if they refuse, the courts have no power to compel them. Hart v. Henderson, 17 Mich., 218.
The judgment must be reversed with costs and a new trial ordered.
The other Justices concurred. | [
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Graves, J.
During the summer and fall of 1872 the complainant was the owner of an eighty-acre farm in Kent county. He was a little more than fifty years of age, and was living on this farm with a second wife whom .he had married the preceding February. He had two children: the defendant Allen B. Jaeox, husband of defendant Mary, and a daughter, Eveline Buck, wife of Eli S. Buck. They were in comfortable circumstances and lived near by. The mutual relations of all the parties were pleasant so far as appears.
Complainant’s farm was worth about $2,500, and he owned personal property of the value of about $600. His wife had voluntarily advanced to him $150, for which he had given her his note, and he was indebted to others for between twenty and thirty dollars. So far as shown, there were no other liabilities except for the year’s taxes.
Prior to the season mentioned his health had been generally good and his disposition of a cheerful turn. His habits had been industrious, and in regard to the state of his property, his course had been somewhat precise and cautious, and it seems to have been a noticeable trait of his character to be more anxious than most men as to the possibility o'f future loss and destitution. No one questioned his ability to manage his affairs.
There was no change until the latter part of the summer of 1872. A drouth came on which somewhat affected crops and rendered appearances less promising than they had been, and about the same time a change in complainant’s deportment and conduct was observed. It was discovered by his neighbors, and became the subject of talk among them. The epithet employed was that he had the “blues.” His usual cheerfulness had left him, and his work was not conducted and attended to as it had been. He became moody and despondent, and fancied he was coming to want and would not be able to take care of himself. At the same time he seems to have embraced the notion that his wife had funds to aid him and declined to let him have them. According to the case there was no rational basis in the state of his affairs or in his wife’s possessions or disposition for any of these feelings or apprehensions.
The proof identifies instances of strange behavior, but most of the witnesses who testify to complainant’s change speak generally of his condition, and apparently for want of any term more expressive of their idea of his real state, they observe that he had the “ blues,” or that he had the “blues terrible bad.” And here the remark is suggested that the actual conduct of relatives and others at the time in question towards the individual is generally of much greater value as proof of their conception of his mind or capacity than any term they may employ on the stand to express it. This observation is especially applicable to cases where those who are not experts recognize the presence of mental disorder, but do not recognize in such condition a present state of complete insanity. That there is disorder more or less positive and controlling is perceived and admitted, but it is not apprehended as sufficient to constitute complete insanity.
The condition of unsoundness thus distinguished by common observers is recognized as adequate to justify equitable investigation. It is not required that it should come from medical experts that the person was insane, or from those not experts that in their view he was crazy.
In case it appears from the facts that there was mental disorder, but not of a high degree or far advanced, it then becomes material to inquire into the nature of the transaction and the influences leading to it. And if the circumstances disclose that the person under the infirmity, whether through choice, accident or otherwise, was as matter of fact for the time being in the place of ward of the other party, or was by his own consent, however brought about, in a state of submission to the judgment or opinion of the other, a presumption will arise adverse to the justice and equity of the bargain, and the bargainee will be required to show that no advantage was taken and that in itself the arrangement was not only suitable, fair and conscientious, but one expedient under the circumstances and conducive to the interests of the other.
Passing from these general considerations to the record and pursuing the case, we find that in the latter part of December, 1872, and while this abnormal condition of complainant remained without any substantial change, his wife informed Mr. Buck, the son-in-law, that she had decided to separate from her husband, and, in her language, that she “could not stand it with him any longer,” and “had got to leave him.” She spoke of the strangeness of his behavior, and explained some instances.
It was then arranged that Buck should at once make the impending separation known to the defendant Allen, and he accordingly called upon him in the evening and informed him.
On that occasion complainant’s situation and dependence were talked about between the son and son-in-law, and they mutually agreed that in view of the separation it would be immediately necessary for one of them to take care of complainant and of his property.
Their versions differ as to the expressions which were used, Buck swearing that complainant was spoken of as not being right in his mind and as being “ crazy,” and the defendant Allen swearing that he does not recollect that any thing was said about complainant’s being of' unsound mind or insane. The circumstance is not important. Their acts are full of meaning, and they concur to show that unity of opinion existed regarding complainant’s want of capacity and his inability to manage for himself.
Without consulting him they at once entered into an understanding that he should be taken and cared for by one of them and that such one should have all his property, and the only thing left to his option was to choose ¡which of the two he would live with. The next morning ,they went together to complainant’s, and then told him .that his wife had decided to leave him and was about ; doing so. He then inquired what he should do, or what they were going to do with him, and Buck, bearing in mind the understanding of the previous evening, stated in reply that himself or Allen would have to take care of him, and that he might choose between them. He apparently regarded this as decisive, and very shortly intimated that he would go with his son. The young men assisted complainant’s wife in packing up preparatory to her separation, and she then went to Buck’s and defendant Allen took complainant to his place.
A few days later the defendant Allen procured a deed from his father to himself of the farm and also a trans fer of all the personal property. Complainant’s wife joined in the deed. The property was worth $3,100. In connection with this, the defendant Allen voluntarily gave to complainant’s wife the sum of $100, and also assumed his father’s debt to her of $150 and the other items of debt of less than $30, and conveyed to his father an estate for the life of the latter in the farm he, Allen, then held. This place was worth from $2,000 to $2,250, and was encumbered by mortgage for a little more than $1,000. The actual cash value of the life estate was hence very small. Considering the age of complainant it would not have exceeded $1,200 if the place had been unencumbered. But the mortgage upon it did more than affect the amount of capital in the land. It rendered the estate liable to be cut off by foreclosure. The reduction of the mortgage subsequently is not important. There were no other payments, assumptions or gratuities.
The defendant Allen claims that it was part of the arrangement that he should take care of and support his father during life, and that the conveyance of the life estate was made to secure the promised support and as consideration for the property received. But the writings given make no allusion to this, and there was no written undertaking whatever to bind Allen to provide the support,, and there are indications in the record that he does not consider himself under legal obligation to make such provision.
Complainant staid with his son until the fore part of October or about nine months, when he fell and was injured. He was then taken to the home of his son-in-law Buck for the more convenient application of a remedy the latter had, and thereafter continued at Buck’s. On recovering from his injury he refused to return, and Allen refused to pay anything for his support at Buck’s or elsewhere abroad, and about the same time caused the farm received from his father to be conveyed to his wife, the defendant Mary, without consideration.
After some fruitless efforts to effect a pacific adjust ment, complainant filed this bill to procure a cancellation of the transactions on the ground that he was laboring •at the time under unsoundness of mind, and that his son took advantage of his situation and defrauded him. The circuit court decreed in complainant’s favor and the case comes here on appeal by defendants.
This exhibition of the case in outline affords a better ■explanation than any discussion would give, of the true ■condition of complainant and of the real nature of the transaction called in question.
We notice his situation in regard to property and see that there was nothing in that to cause him disquietude. 'He was in a state of substantial independence, and neither •age nor any apparent ailment of a merely physical nature suggested retirement from the activities of life or any surrender of his property or personal independence. He was a few years only past middle age, and was strong .and capable of labor.
But there is another aspect. His wife and a portion ■of his neighbors noticed a marked change in his manner and conduct. They could not say he was “crazy,” but they were sure he had become gloomy and despondent, and his wife found out that she could not rely upon him ■as formerly; that he was vacillating and incapable of rany steady purpose or labor, and in deep fear of coming to want and destitution, and inclined to do things which were unreasonable, if not more serious in their indications.
His son-in-law Buck and his son, the defendant Allen, recognized that his mind was out of order and were convinced that he was no longer competent to have the care of himself or of his property, and they acted towards him upon this assumption and theory. No other •explanation of their course is now credible. He accepted the sudden breaking up of his home as if it were a decree •of fate, and passively complied with the pre-arranged plan of his son and son-in-law for the wardship of his person and the control of his possessions. There was no struggle, — no resistance. He did not dispose of himself, but in a listless way came to be governed by his son. In this state of supineness, of docility, and of indifference to events of the greatest importance to him, we have very strong evidence that his wife and children were not in error in supposing that his mind was considerably disordered. And when we survey all the circumstances, including the disposition made of property, the fact itself seems to be established. The case permits no other hypothesis.
Complainant’s son received him as one not qualified to .take care of himself, and the circumstances created an equitable wardship. It was a case of high and sacred trust and confidence, and the situation imposed a solemn obligation on the son to guard the rights and interests of the father as far as practicable against infringement or detriment and to abstain scrupulously from attempting to drive any bargain of profit or advantage with him. This obligation — this duty — was not observed. On the contrary, advantage was taken of the relation and of complainant’s condition to deprive him of a large share of his little property and to reduce him measurably to a state of personal dependence. And the transaction was so repugnant to the duty which was due from the defendant, and so manifestly unconscionable as to need no special discussion to expose its demerit. It is said on the part of the defendants that Buck has incited this contention, We do not see how that helps the defense. If he participated in the proceedings to dispossess complainant, and now, either with good or bad motives, espouses his case, it cannot relieve the transaction of its taint of injustice and inequity, nor deprive complainant of his right to come into court for redress.
The state of facts forbids all hesitation concerning the result. There is no pretense that defendant Mary is in any better position than her husband, añd we think the decree should be affirmed with costs.
The other Justices concurred. | [
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Coqley, J.
This is an action of trover to recover the value of certain logs. The logs were cut on lands formerly owned by one Parmenter, and sold by him to Stickney and Stone by executory contract bearing date October 20, 1873. By this contract Stickney and Stone were to pay $3,400 in certain specified instalments, the last of which was to be paid in three years from the date of the contract. They were also to pay the taxes, and not to cut or remove any timber from the lands until all payments were made. October 24, 1874, Parmenter conveyed the .land to plaintiff, subject to the Stickney and Stone contract. The logs in controversy were cut on these lands by Stickney and Stone before full payment had been made on their contract, and were delivered to the defendant. A part were cut before and a part after the conveyance by Parmenter to plaintiff. Plaintiff demanded the logs of defendant, and after refusal to deliver, brought this suit.
It was shown in defense, under objection of the plaintiff that the evidence was not competent under the pleadings, that in January, 1875, Haven brought ejectment for the lands against Stickney and Stone, whereupon they tendered to him the full amount owing on the contract, which he refused to receive; that Stickney and Stone then filed their bill against him for specific performance of the contract, and obtained a decree as prayed, which, with some modification, was affirmed by this court, October 26, 1876 [Stickney v. Parmenter, 35 Mich., 237]. In that suit the fact of the cutting of the timber was one of the subjects of controversy, the present plaintiff claiming that Stickney and Stone had forfeited all rights under the contract by the unauthorized cutting, while they relied upon evidence tending to show Parmenter’s assent.
It is insisted that the proceedings in chancery were not admissible in evidence, because not pleaded puis darrein. But the contract was brought into the case by the plaintiff himself as a necessary part of his own case, and it then became' entirely competent for defendant to show when and how it had been performed. And in our opinion it is very clear that when performance was made, this plaintiff had no further interest in the logs.
The plaintiff’s case is purely technical. First, he claims that admitting that performance of the contract entitled Stickney and Stone to the land, yet the logs, having been cut before, had become personal property, and would not pass with the land at that time. Neither could they pass under the doctrine of relation; for if Stickney and Stone’s title should be held to relate back to the time of the date of the contract, the fiction of law could not restore the logs to their original condition as a part of the realty. And second, he claims that the plaintiff having had a good right of action at the time he brought suit, it could not be taken from him by the subsequent performance of the contract.
We attach no importance to the doctrine of relation in this case. When this land was contracted to Stickney and Stone, the trees • were a part of it, and anything done by any one in respect to these trees must have been subject to their rights. This plaintiff had no right whatever to take off a single tree; and had he cut these logs, the right to them would have passed to the purchasers on the contract being performed. The equitable right to them was in the purchasers all the while; and this equitable right became a legal right when they made or tendered full performance. And if this would have been the ease when the logs were cut by plaintiff, it cannot be any less so when they were cut by the parties who were the purchasers.
It is unnecessary to consider whether plaintiff would or would not have had a technical right of action when' his suit was commenced. If he had such a right, he could recover nothing-more than nominal damages: and we cannot remand a case where the sole error is the failure to award these, and where as in this case a judgment for them would not have carried costs. Hickey v. Baird, 9 Mich., 32. But it is difficult to understand how trover could have been maintained under the circumstances as they existed when suit was brought, even if some 'other form of action might have been.
The judgment must be affirmed, with costs.
The other Justices concurred. | [
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Graves, J.
Jackson recovered general damages againt Eose upon a declaration in assumpsit containing, first, three special counts; second, the common counts consolidated into one for causes of action alleged to have been derived by assignment from Cyrus S. Higgins; and, third, the common counts consolidated into one for causes of action alleged to have accrued directly from Bose to Jackson. . Eose alleges error. A number of points are made specifically, but there are others which the .objections particularly taken require to be noticed.
, The record appears not to contain all the evidence which was given, but it must be assumed that nothing has been omitted: which would obviate, if inserted, any substantial exception in the case. Nothing appearing to the contrary, it must be assumed the record is not wanting in fidelity, and that no matter on either side material to the settlement of any legitimate question has been left out.
The bill of exceptions contains no evidence applicable to the general .counts, and counsel on both sides have entirely disregarded those parts of the declaration and have proceeded as though they were destitute of importance in the case. It is reasonable to conclude that the Verdict rests on the special counts and that the others are mere make-weights of the pleader.
It is important to see what were the true issues before the jury. The precise contract laid ought to be regarded and the plaintiff’s connection with it noticed.
The case being one of express contract between third persons alone, and specially counted on, it was incumbent on the plaintiff to aver his title and then make out by evidence the same contract set forth and his right and title as alleged.
The first count, after stating as inducement that one ■Cyrus S. Higgins had joined as co-maker with one Willard Higgins and for his accommodation in sundry promissory •notes for $12,000 in all, and had thus become indebted to various parties to that extent, proceeds to allege that ■thereupon said Cyrus S. Higgins, at the request of the defendant Eose, made a verbal agreement with Eose, whereby the latter agreed that if said Cyrus S. would give his note for $3,500, secured by mortgage on his farm, to him (said Eose), to be used by the' latter to raise money, then he (said Eose) would dispose of -.said note and mortgage for cash and in a reasonable time pay or cause to be paid all of said notes for $12,000 or procure the liberation of said Cyrus S. from liability thereon, and further would pay or cause- to be paid and discharged in a reasonable time the note and mortgage for $3,500.
It is then averred that said Cyrus S. gave his note and mortgage to Eose for $3,500, payable in three years with annual interest at ten per cent., and that Eose sold the securities to one Peck for $3,500; and that although a reasonable time had elapsed, and said Cyrus S., prior to assignment afterwards mentioned, and the q la intiff Jackson subsequent thereto, had requested Eose to pay and discharge said notes for $12,000 and pay and cause to be discharged the note and mortgage for $3,500, he, said Eose, had refused to do either, and that said mortgage had been foreclosed and the property sold on the foreclosure to a third party to the damage of said Gyrus 8. Higgins of $10,000.
The second count after stating the same inducement as the first in regard to the notes for $12,000, and further that Eose being desirous to buy certain real estate and personal property then offered at public sale at Otsego in Allegan county of the value of $12,000, alleges that Eose made offer to said Cyrus S. Higgins that if he would give his note on three years time for $3,500 with interest at ten per cent, to him, said Eose, together with his mortgage on the place mentioned in the first count to secure the note, to the end that he, said Eose, might sell and dispose of said mortgage for cash and with the proceeds purchase said real and personal property to be sold as before mentioned at public auction, then he, Eose, would in a reasonable time pay or cause to be paid the said notes for $12,000, and within like time pay and cause to be discharged the said note and mortgage for $3,500.
It then avers that said Cyrus S. thereupon gave the note and mortgage to Eose for $3,500, who afterwards disposed of the same for $3,500 in money and therewith bought the before mentioned real and personal property at auction, the same being worth $3,500; that it then became Eose’s duty to cause the notes for $12,000 to be paid and the note and mortgage for $3,500 to be paid and discharged in a reasonable time; that he refused to do either, and that said notes for $12,000 continued unpaid and that the mortgage for $3,500 had been foreclosed and the property sold to a third party to the damage of said Cyrus S. Higgins of $10,000.
The third count first recites that Cyrus S. Higgins was indebted and .justly obligated with Willard Higgins for more than $12,000, and then alleges that in consideration of that fact and in further consideration that said Cyrus S. had given his note and mortgage to Eose on three years’ time for $3,500 with interest at ten per cent, per annum, and which note and mortgage Eose had disposed of to a third party for $3,500, he, Eose, promised said Cyrus S. that he “would pay or cause to be paid and discharged all of aforesaid notes signed by said Cyrus S. Higgins with Willard Higgins to various parties as aforesaid, within a reasonable time thereafter” “and would also within such reasonable time pay or cause to be paid and discharged the said note and mortgage for $3,500.”
And it is then averred that a reasonable time had elapsed and still Eose had refused to perform his promise and had wholly failed to pay said notes signed as before mentioned by said Cyrus S. with said Willard to the great loss, inconvenience and trouble of the said Cyrus, and that said notes remained outstanding claims and demands against him, and further that Eose had refused to pay and discharge the note and mortgage for $3,500, or cause the same to be done, whereby said Cyrus S. Higgins had been put to great cost, inconvenience and expense, and said mortgage had been foreclosed and the premises sold on the foreclosure to a third party in whom the title had become absolute, and that by season of Eose’s refusal to perform his agreement with said Cyrus S. Higgins, the latter had suffered damage to the amount of $10,000.
First. Each of these counts must be regarded as a separate claim (Picard v. McCormick, 11 Mich., 68; Nelson v. Swan, 13 Johns., 483; 1 Chitty’s Pl., [16 Am. ed.] 428; Stephen’s Pl., [2 ed.] 318, 319), and whilst all severally set up a breach on the part of Eose of his special contract with Cyrus S. Higgins alone as the sole ground of action, still neither of them contains any averment of Jackson’s mode of accession to the right of action or even of the fact of his being owner of it, and hence his title to sue on account of the grievances alleged in these counts is no better on the face of the record than that of any other person. Indeed they all conclude to Higgins’ damage. Sistermans v. Field, 9 Gray, 331; Gould’s Pleadings, ch. 4, § 8.
The statement at the close of the first consolidated count of an assignment by Cyrus S. Higgins to the plaintiff is not a part of the special counts nor matter of inducement. The fact is one to be maintained by positive averment, and the allegation of it where it occurs does not show the plaintiff entitled to sue on the causes of action in the special counts. Neither is the allusion in the first special count to something to come after-wards in regard to an assignment sufficient to show title in that count.
A demurrer to the special counts would not have admitted the facts in the remote and separate statement placed at the end of the later common counts consolidated.
Second. The third count is bad upon its face, because, without suggesting other reasons, it shows that a part of the contract essential to the count, and assumed to be in it, is wholly omitted. It is next observable that were other objections removed there would be no foundation for contending in favor of a right to recover on either count for any failure to get rid of Higgins’ liability on the notes for $12,000. Certainly no case is made for recovering damage on account of that part of the transaction. It is not alleged that Cyrus S. Higgins has paid anything upon those notes or about them, or that any collection has been made or attempted from him, and there is no other foundation pleaded for damages in that branch of the case.’
Neither the arrangement described in the first count nor in the second count fairly imports that Eose and Higgins traded their credit and that Higgins exchanged his note and mortgage absolutely for Eose’s unqualified personal agreement. Eose was not to have dominion as owner over the note and mortgage. They were to be executed to him in order that they might be used in his name to effectuate the ends of Higgins. He was not to be allowed to keep them or turn them according to his discretion, but was required to sell them for cash and apply the proceeds without unreasonable delay. The power of Higgins over them was provided to be perpetuated by the arrangement for creating them, notwithstanding their full delivery. The kind of disposition to be made of them was fixed at the outset and the avails were to be applied in Higgins’ interest, and hence on the face of the declaration the entire consideration for the alleged undertakings on the part of Eose was the reception of Higgins’ note and mortgage to be used according to the method stipulated for by Higgins and for his benefit.
Surely it is extravagant to suppose it was designed that Eose in consequence of being supplied by Higgins with the note and mortgage for $3,500 on three years’ time, as a fund positively devoted to Higgins’ objects, was to be bound personally and absolutely not only to restore to Higgins within a reasonable time the entire fund of $3,-500 without diminution, but likewise within the same time to pay or wipe out the indebtedness of Higgins of $12,-000 or more. Lawes Plead, in Assumpsit, 55; Game v. Harvie, Yelv., 50; Phetteplace v. Steere, 2 Johns., 442. No such construction can be fairly given to the transaction as pleaded. If it be said that Higgins swears such was the design, then the most reasonable view is that as the note and mortgage were brought into existence for the use of Higgins, the mortgagor, and were in substance his means as between him and Eose, and not in essence or in right or in interest Eose’s property, there was no consideration for any promise by Eose to Higgins to do more than apply the proceeds so far as they would go in the uses provided for. We do not understand there is any complaint that the mortgage and note were not turned in. The claim appears to be that Eose was bound to go a great deal further and did not.
Third. It is not needful to rehearse the evidence. The fact is clear that so far as it may be supposed to favor the inference of a contract it imports one materially different in point of substance from any assumed to be described in the declaration. The testimony of Cyrus S. Higgins, whom Jackson called to describe the terms and identify the arrangement, does not show or tend to show such an arrangement as the declaration sets forth. Among other matters in his account he makes out that Eose was to have one year to perform in and not merely a reasonable time, as alleged, and it is conceded or at all events not questioned that the property under the execution was expected to cost and did cost $4,000, and that the note and mortgage only brought $3,000, and that under and according to the arrangement in question other parties, or at least another party, raised and put in $1,000 of the consideration embarked. It is also noticeable that no evidence appears to explain what became of the note and mortgage for $3,500. There is nothing to prove that it was foreclosed or to afford any color for claiming damages under these special counts on this part of the transaction. If the case required it we might show how dissimilar the transaction marked out by the evidence is in other respects from the transaction in either count. The Variance is substantial.
Without following the method adopted by counsel, questions have been considered which appeared to be essential and fairly involved, and the result is that the judgment must be reversed with costs and a new trial granted.
The other Justices concurred. | [
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Campbell, C. J.
Kennedy sued Strong on two promissory notes and recovered judgment for $54.12. The circuit court for Kent county where the case was tried held that the judgment had been reduced by set-off from the sum of $182.12, and therefore gave costs to plaintiff below.
The facts are all found, and among other things it is found that a mare which had been mortgaged to secure one of the notes had been delivered to the plaintiff below to be sold and the proceeds applied in payment. Instead of selling her for cash he exchanged her for other property, and the parties disagreed as to how much should be applied. This disagreement was held by the circuit judge to prevent its operation as payment and convert it into a counter claim or set-off. The amount which the judge finds as the value of the mare to be so applied is $100.
The agreement to apply the proceeds of the mare in payment could not be destroyed by the subsequent disagreement as to the amount. Plaintiff below, as soon as he received the value of the mare, received payment to the extent of that value, and a dispute as to its amount would not change its character as a payment any more than if it had been a money payment from which the creditor claimed deductions for expenses. It is the fact, and not the question whether it is disputed or not, which determines payment.
As this payment reduced the original claim below $100 it gave a right to defendant' below tó costs; ' So much of the judgment below as gives costs must be reversed, and plaintiff in error must have judgment for costs of both courts.
The other Justices concurred. | [
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Makston, J.
Complainant filed her bill in this case to remove a cloud from the title to certain lands claimed by her, and to require defendant to convey to her the interest he received under and by virtue of a deed of the premises from. the Michigan State Insurance Company to him. The bill in its effect is one for specific performance.
The defendant in April, 1872, to secure a promissory note for $2,500, executed and delivered to the insurance company a mortgage upon certain premises then owned by him in the city of Adrian.
In May, 1874, he conveyed this property by warranty deed to Bichard A. Watts. The consideration as expressed therein was $4,000, and the grantor covenanted therein that he was well seized of the premises in fee simple; that they were free from all encumbrances, except the above mortgage, and that he would warrant and defend the same against all lawful claims whatsoever.
In July, 1874, Watts sold and conveyed these premises by quit-claim deed to complainant, she at the same time conveying to him in consideration therefor, by warranty deed, 640 acres of land in Arkansas, and she then entered into possession of the premises under her deed from Watts.
In April, 1875, a portion of the interest on the note secured by mortgage given by Whitney to the insurance company being due and unpaid, the mortgage was foreclosed and the premises bid in by the insurance company, and in July, 1876, the time for redemption having expired, defendant Whitney paid to the company the amount for which it had bid off the premises, and received a quitclaim deed of the premises. He also paid to the company the balance of the note and received the note and mortgage from the company, and defendant claims that under his deed from the insurance company he is the absolute owner of the premises.
Complainant claims that as she derived title through defendant’s warranty deed to Watts, it was and is defendant’s duty to protect her title as against said mortgage, and that whatever title he acquired under the deed from the insurance company inured to her benefit. Such in brief is complainant’s claim and theory.
The defendant’s differs therefrom in this. He alleges that the premises were by him conveyed to Watts under and in pursuance of a written contract by which these premises were to be by him conveyed subject to this mortgage; that he (defendant) prepared the deed and executed the same and tendered it to Watts; that as prepared and tendered it described the premises as free from all encumbrances except this mortgage and taxes for the year 1874, “all of which said Watts is to pay;” that Watts objected to this clause, saying that under the agreement he was to take the place subject to the mortgage, and that if he chose to let the place go for the mortgage he had a right to do so; that a reference to the written contract showed his position was correct; that Watts then advised defendant to strike out of the deed the words “all of which said Watts is to pay,” which would make the conveyance subject to the mortgage, and that relying upon what Watts (who was an attorney) said, these words were stricken out and the deed delivered; that the consideration named in this deed was $4,000; that only $1,400, in property, was actually paid, which, with the amount of the mortgage, interest and taxes, made the value of the premises and consideration $4,000. Defendant denies that complainant is a bona fide purchaser, and sets up other matters which will be noticed farther on.
It may be of some importance at the outset to ascertain whether complainant is in any better position to seek the relief prayed for than her grantor Richard A. Watts would be had he not parted with his title, as we may find it not entirely clear that he would be entitled to the relief sought if defendant’s version of the entire transaction is correct.
That the defendant’s version of the agreement between Watts and himself and what took place at the time of the delivery of the deed, must be taken and accepted as true is beyond dispute. The defendant was examined in his own behalf and testified fully and satisfactorily in regard to the agreement and what was said and done. Watts was not sworn or examined and no evidence .was introduced tending to dispute what defendant testified to concerning the principal transaction between Watts and himself.
Previous to the time of the conveyance by Watts to complainant, Ambrose S. Berry, her husband, had made an assignment to Watts for the benefit of his creditors. Complainant did not see Watts in reference to her trade of the Arkansas lands for those in question. She testified that her husband as her agent negotiated the trade; that he consulted with her before the trade was closed and she consented to it; that he told her there was a mortgage on the premises in question; that Whitney had given Watts a warranty deed; that Watts would give-her a warranty deed; and that Whitney would protect the mortgage, and that under those circumstances she told her husband to make the trade. Defendant Whitney testified that he spoke to Watts once about payment of past due interest on the mortgage note, and that the-latter said the interest was for Mrs. Berry to pay; that he afterwards had a conversation with complainant’s husband, after this eontrovery had arisen, and asked him if he did not know that Mr. Watts had bought the-property subject to the encumbrance, and that Berry in reply gave him an evasive answer, and said that-he had defendant’s deed of the property to Watts, and should expect 'to have the consideration of the deed or the property clear.
Considering the relation which existed between complainant and Ambrose S. Berry, who, as her agent, negotiated the trade with Watts, the fact that the latter was acting as assignee of Mr. Berry; that Watts conveyed the property by quit-claim deed; that the agreement between Watts and defendant was as the latter testifies; that neither Ambrose S. Berry nor Watts were placed on the stand or examined in this case, — these and other circumstances tend strongly to show that these parties preferred to stand upon what they considered their strict legal rights under the warranty deed of defendant, acting upon the theory that as notice of the agreement between Watts and defendant was not shown to have been brought to the notice of complainant personally, she would stand in the position of a Iona fide purchaser. From a careful reading of all the evidence in the case, and after due consideration thereon, we can come to no other conclusion than that Ambrose S. Berry did, when negotiating the trade as agent of his wife, the complainant, have notice of the agreement between defendant and Watts by which the latter had agreed to take these premises subject to the mortgage, and had retained sufficient of the consideration to indemnify himself against the same, although he did not in terms agree to pay it. Had the agreement been otherwise than as testified to by defendant, Watts undoubtedly would have been called to contradict him, and if Ambrose S. Berry had no notice of this agreement he would have been called to so testify. The case was one which required an explanation from these parties if they had been acting in entire good faith. If their hands were clean they would not have hesitated to show that at least this complainant and her agent had acted in entire good faith.
Where under the facts in a given case the original party would not be permitted to come into a court of equity and insist upon specific performance of an agreement, on the ground, that to permit him so to do would operate as a fraud upon the defendant, any person claiming through him, in order to occupy any better position, must establish the fact that he is in fact a bona fide purchaser, and this cannot be inferred from showing a purchase alone.
I see no reason why the same principle applicable to the transfer of negotiable paper fraudulent in its inception should not apply in this class of cases also. Carrier v. Cameron, 31 Mich., 379.
We are of opinion, therefore, that complainant has not shown herself to be a bona fide purchaser in this case.
It is clear under the authorities that mistake may be shown by parol, as a defense to the specific performance of a written instrument. Chambers v. Livermore, 15 Mich., 389. There is also an' abundance of authority that fraudulent representations as to the legal operation and effect of an instrument will be sufficient to avoid the same when made to a party who is able to read, or who has actually read the instrument, but who is unable to judge of its true character and construction. To have this effect the fraud must be contemporaneous with its execution, and must consist in obtaining the assent of the party defrauded, by inducing a false impression as to its legal or literal nature and operation. White & Tudor’s Eq. Cases, Vol. 2, pt. 1, 559-567 and cases cited.
In this case the agreement was .that Watts was to take the property subject to the mortgage. He retained sufficient of the agreed consideration for the premise's to indemnify him as against the mortgage. As between these parties the land was primarily set apart for payment of the mortgage debt, and was to be resorted to for that purpose if not paid by Watts. The language contained in the deed of conveyance was changed upon the suggestion of Watts, who was an attorney at law, and upon his assurance that when so changed it would carry out the intention of the parties according to their agreement, — that such would be its legal effect and operation. Whether such would be or not we need not and do not determine. As to Watts and his grantees, not bona fide purchasers, the construction given by him to it under the circumstances will be final and conclusive. To compel a conveyance of the premises, without payment of the mortgage, would be grossly unjust to the defendant, and a court of equity in the exercise of a discretion which it has in this class of cases, must under such circumstances deny the relief sought.
The decree of the court below dismissing the bill must be affirmed with costs.
The other Justices concurred. | [
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Marston, J.
There is one fatal objection to the right of plaintiff to maintain this action, and wrhich renders immaterial all the other questions raised. The plaintiff brought an action of trespass to recover damages for the cutting and carrying away of certain timber from off certain lands which plaintiff claimed to own under a State tax-deed. On the part of the defendant.it appeared that he had cut and removed the timber under a contract with one John Canfield, who claimed to own said land under a patent from the United States issued in 1860, and that defendant had been in possession of said land for several years prior to 1876, the date of the trespass, as tenant under said Canfield, and was so in possession at the time of the alleged cutting and removal.
Such title and possession in Canfield and the cutting of the timber under his directions was not disputed, except that plaintiff claimed that his tax deed, if valid, cut off all prior titles, and that the person who held the title to the lands could maintain trespass without having actual possession, and against the person in actual possession. In other words, that the holder of a valid tax-title would prevail without reference to the question of actual possession.
This position cannot be maintained. By a legal fiction possession follows the title in the absence of an actual possession by any one; and this constructive possession is sufficient to enable the owner to maintain trespass against a wrong-doer. The authorities are clear that to maintain trespass the plaintiff must have either the actual or constructive possession of the land, and there can be no constructive possession of lands in which third parties are in the actual adverse possession. This renders a discussion of the other questions immaterial.
The judgment must be affirmed with costs.
The other Justices concurred. | [
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Graves, J.
The statute giving summary proceedings to recover the possession of land (Comp. L., ch. 211) contains this section:
“(6717) Seo. 24. The complainant obtaining restitution of any premises under the provisions of this chapter, shall be entitled to an action of trespass, or trespass on the case against the defendant, and may recover treble damages from the time of the forcible entry, or forcible detainer, or of the notice to quit or demand of possession, as the case may be, and all other damages to which he may be entitled.”
Mrs. Meleher having as lessor or as assignee of the lessor recovered possession of certain premises from plaintiffs in error, under said chapter sued them in this case. to obtain the damages given by this section. She claimed that defendants in error detained the property two months and four days without rent and caused her special damage. The jury .under the instructions of the court found specially that she was entitled to rent for two months and four days, at $50 per month, being $106.66; that she was entitled to interest thereon from the 26th of October, 1876, to the 23d of November, 1877, and which amounted to $8.02, and was further entitled to $55 damages, in the whole amounting to $169.02.
The court on motion of Mrs. Melcher’s counsel trebled the item spoken of in the verdict as rent, and then added the items of “interest” and “damage” and entered judgment for the whole sum, being $385 and costs of suit. Defendants below then brought error.
There are several questionable matters in the case which will not be examined. It may be observed in passing, however, that the points raised on account of the difference between the description in the complaint before the magistrate and the description contained in the declaration do not appear to the court as important.
Evidence to the jury was admitted to show an express promise by plaintiffs in error to give possession and that defendant in error relied on it and made business arrangements accordingly, and that plaintiffs in error broke their promise and thereby caused Mrs. Meleher to suffer damage.
There was no basis for proof of that kind in the declaration or even in the ground of action itself. Admitting there was such grievance, it was a separate and distinct injury, and not a misdoing included in the wrong aimed at by the statute.
The jury were allowed to consider Mrs, Melcher’s want of opportunity to expose goods' for sale during a part of the two months and four days at the premises in question, as involving special damage to her. This was error. The goods not sold during that short time continued her property. They were not lost. They were still on hand for sale, and so far as appears they may have been worth much more after than before. There was no evidence to establish any damage for loss of profits, nor any foundation for such evidence in the declaration, and there is room for question whether an action depending on the statute would be open to it.
The right to the recovery demanded arises upon the statute and depends on it, and the case is penal in its character. There can be no equitable construction to aid the remedy. The statute must be carefully followed and the settled rules of law relating to such actions must be adhered to.
There is no provision to recover or treble any thing else than “damages,” whatever .may enter into them. Nothing except what the jury find and report as “ damages” is authorized to be trebled, and in trebling the damages found, the language of the verdict must control. The court may not speculate upon the subject and seize upon expressions elsewhere to warp the legitimate legal sense of the terms of the finding for the purpose of settling what may and what may not be trebled,. and hence there is room for question whether on the face of this case the court was authorized to treat the “rent” or “interest” reported by the jury as “damages” subject to be trebled, and whether the verdict showed any thing capable of being legally trebled in making up the judgment except the $55 specifically found and reported as damages. The ease does not require a decision of this point, but the circumstances suggest the propriety of mentioning it.
"Under the objections taken the declaration must be held insufficient to support the recovery. It contains only two counts, and it is conceded that the first is not a good count on the statute. It does not assume to state the circumstances necessary to support the action and the omission, is of course fatal. 2 Saunders Pl. & Ev., 830 et seq.; 1 Chitty Pl. [16 Am. ed.], 385 to 388, and notes: McKeon v. Lane, 1 Hall, 356; Bigelow v. Johnson, 13 Johns., 428; People v. Brooks, 4 Denio, 469; Soper v. Harvard College, 1 Pick., 177; Williams v. Hingham etc. Turnpike, 4 Pick., 341; Berry v. Stinson, 23 Maine, 140; Henniker v. Contoocook Valley R. R. Co., 29 N. H., 146. See also Carpenter v. Vail, 36 Mich., 226.
The Legislature has authorized general pleading on statutes in certain cases (Comp. L., ch. 185), but the present action is not embraced. The regulation dispenses with a recital of .facts, but requires express reference to the provision counted on.
The second count purports to allege the facts constituting a cause of action upon the statute, but it does not count upon the statute after all. That is to say, it does not refer expressly to the statute as the source of the right asserted, and this defect is as fatal as the want of facts in the other count.
When the form of pleading depends on the common law the statute must be both pleaded and counted on.
Pleading the statute is stating the facts which bring the case within it, and counting on it, in the strict language of pleading, is making express reference to it by apt terms to show the source of right relied on. 1 Chitty Pl., supra; 2 Saunders’ Pl. & Ev., supra. In Wells v. Iggulden, 3 Barn. & C., 186, and in Fife v. Bousfield, 6 Q. B., 100, the court arrested judgment because the declaration did not distinctly count in this way on the statute.
The judgment must be reversed with costs and a new trial ordered.
The other Justices concurred. | [
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Graves, J.
This is a certiorari to review proceedings taken in Greenfield, in Wayne county, under the township drain law to make a drain or water-course and impose the expense on certain land owners. An examination of the respective objections is uncalled for. The record discloses the same jurisdictional defect which the court has expressly held to be fatal in several cases, and the governing rules have been explained so often that repetition would be scarcely excusable.
The commissioner who officiated down to the time for taking steps to apportion the drain, a Mr. Carey, went out of office last April and was succeeded by the respondent, and the latter, when about to carry the proceedings further, was stopped by injunction.
The township clerk simply returns to the writ that he finds in his office no record in the proceedings in question, and that no papers relating to the subject are on file.
The return on the part of respondent consists first of a brief statement of his official connection with the case, and second, and chiefly of the statement of his predecessor, adopted as matter of return and covering such proceedings as were taken before the change of office.
It appears that there has never been in the records or on file or before either commissioner any evidence of service of notice of the hearing under the application except as to one of the several persons interested, and so far as appears the case still remains without such evidence. It does appear however upon the statement made by the ex-commissioner and included in respondent’s return, that the former while in office made as he now considers due service of proper notice, and he assumes to explain his doings in that regard in such statement.
This representation called out by the proceeding to ascertain the validity or invalidity of the action under the drain law, and hence among other things whether there was proper evidence of service in the records, or before the officer, is the only evidence, or rather' the only showing extant, that service was attempted.
And on this the counsel for respondent says: “ The fact that he himself served the notices is a sufficient answer in our opinion to the relator’s position, and having done so, he could and should take judicial notice of his own acts.”
This position is directly contrary to repeated decisions of the court.
In the People v. Commissioners of Nankin, 14 Mich., 528, a highway ease in 1866, it was ruled distinctly that notice of hearing is a jurisdictional prerequisite, and that the record must show affirmatively that lawful service of it has been given. This case has been constantly adhered to and has been cited in various cases of the same class, including those under the drain laws. See Van Auken v. Highway Com’rs, 27 Mich., 414; Purdy v. Martin, 31 Mich., 455; Harbaugh v. Martin, 30 Mich., 234; Dupont v. Highway Com’rs, 28 Mich., 362; Names v. Com’rs, 30 Mich., 490; Detroit Sharpshooter’s Association v. Com’rs, 34 Mich., 36; Platt v. Com’rs, 38 Mich.; Tefft v. Township Board, 38 Mich.; Dickinson v. Van Wormer, 39 Mich.; Lane v. Burnap, 39 Mich.; Taylor v. Burnap, 39 Mich.
In Dupont’s Case, it was considered that personal knowledge by the commissioner was not sufficient, and the court said: “ The notice is in the nature of process, and it is indispensable that there be legal evidence that it has been given. Admitting that the commissioner’s return might be amended to supply proof of notice actually had, does not help a ease like this where no proof was had, and the commissioners attempt to make the proof for the first time after the case has been taken into the courts. It can make no difference that one of the commissioners had personal knowledge that the notices were given. His oral statement could not be proof to the others, and if it could, it would not be evidence to third persons, who are entitled, when such interests are involved, to have the facts placed on record.”
In Harbaugh v. Martin, a case under the drain law, the court observed: “It is said, however, that the commissioner in these cases may act upon his own knowledge of the facts. If that be admissible, which we do not decide, the record must in some manner show that he possessed the requisite knowledge to justify his action. The record cannot be aided by knowledge which the commissioner conceals in his own breast; it must be complete in itself, and all jurisdictional facts must appear on the face of it.”
In Names v. Commissioners, a highway case, the opinion says: “It is conceded in the return that the commissioners when they met and ordered the highway laid out, had no evidence before them that such notice had been given. -This was a fatal defect under our previous decisions.” In Dickinson v. Van Wormer we re-affirmed these views.
The subject need not be pursued further. The paper mentioned by Mr. Carey, the ex-commissioner, as his certificate of service, and dated March 14, 1878, never had any force whatever as evidence. So far as it went it was a mere unsworn statement or memorandum destitute of evidentiary character. But it was also wanting in the fulness of explanation necessary to show valid service, if it had been an affidavit. The respondent’s counsel very properly declines to consider it as of any legal value.
In disposing of this case we cannot forbear expressing our regret on -being compelled to set aside so many proceedings of this sort. But the principles necessary to be upheld in all matters of this character not only relate to the sacred rights of property, but are the recognized and necessary safeguards of all - private ownership, and were' we in any degree to shrink from their strict maintenance there would be an inlet at once for all manner of destructive raids in tbe name of policy and the public good by corporations and combinations under the guise of law.
The proceedings must be quashed.
The other Justices concurred, | [
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Cooley, J.
The complainant files her bill to set aside as having been obtained by fraud a conveyance by herself as one of the heirs at law and distributees of Hannah Smith deceased, of her interest in two certain lots in the village of Milan in the county of Washtenaw, and also in a certain mortgage for $250 on lands in Dundee in Monroe county. The deed was given to Kezia Smith, wife of Alexander, and was also executed by Martha Pickell and Delia McCafferty, who with Alexander Smith constituted the' other. heirs of Hannah Smith who was their mother. The ease made by the bill is that Alexander Smith invited herself and the other heirs to meet at his house, where the mother had resided immediately previous to her death, and there, under the pretense that it was a writing merely dividing the mother’s household goods, wearing apparel and ornaments, and was necessary to save the necessity of their being sold at auction, had procured the execution by them of the deed in dispute. Complainant avers that Alexander Smith excused his not signing the deed by saying he did not want any of the things that were to be divided; that she at first refused to sign, but was told her signature was necessary to a division; and that she finally signed it, not knowing what was in it, and supposing it was a mere form to save the goods from being sold at auction, and that not one word was said to her about the paper-being a deed, and that she did not discover the fact until some time afterwards when she examined the deed in the register’s office.
This is complainant’s case; and as the deed is witnessed and acknowledged in due form, a serious burden was obviously laid upon her when she undertook to show that it was signed as a mere form, and without any knowledge or suspicion that it was a deed.
An examination of the evidence introduced by complainant shows that her case is not sustained. By her own testimony it appears that she looked at the deed so far as to notice a description of land in it, and that she inquired what this meant and was told that it was a mortgage running for the mother’s support while she lived, and then belonged to Alexander Smith. A son of complainant, called by her as a witness, testified to the same facts. It appears, then, beyond dispute, that complainant did know at the time that the paper she executed was not a mere form for dividing the goods; that she did make some examination of it, and saw that a description of land and a mortgage were mentioned in it. Her case, then, which rests upon her not having examined the paper at all, must fail.
Under the circumstances, a further examination of the case on the evidence is not necessary, but it may not be unimportant to say that defendant Alexander Smith makes a strong showing of equities which should entitle him to have the deed executed by the other heirs, and that the officer who took the acknowledgment of the deed and the person who witnessed it both testify that it was read to complainant.
The decree should be affirmed with costs.
Marston and Graves, JX, concurred. | [
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Campbell, C. J.
This is a certiorari to review proceedings to lay out and open a highway. The record does not show that legal notices were given, and therefore, as we have frequently held, the action of the commissioner was void and must be quashed.
The other Justices concurred. | [
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Graves, J.
The relator brought ejectment against Daniel B. Harrington, Edmund B. Harrington, Patrick Digman and Frank B. Bice, and whilst the cause was pending, but before issue, the defendant Daniel B. Harrington died.
Thereupon the relator informed the court by affidavits of such death and that no administration on decedent’s estate had been or was being entered upon, and further, that decedent’s title was derived from sales for taxes, and since his death all his heirs except Charles E. and Edmund B. Harrington had by deed made these two heirs trustees of the estate with full power to close up and settle the same, and on the strength of this showing the relator moved that the suit should be revived as against the legal representatives of the deceased defendant.
The court refused this but entered an order suggesting the death and reviving the cause as against the'surviving defendants.
A mandamus is now asked to require the circuit judge to set aside the order made or so modify it as that it may include the relief originally asked as well as that given. We understand the question to be whether it was competent for the circuit court to revive the suit as against legal representatives of the deceased defendant, and we think it was not.
By the common law the death of a defendant in a real action pending the suit causes an abatement. The doctrine is that on the occurrence of the death the right descends to the heir, and a new cause of action springs up which changes the condition of the cause. Green v. Watkins, 6 Wheat., 260; Macker’s Heirs v. Thomas, 7 Wheat., 530; Alley v. Hubbard, 19 Pick., 243; Anonymous, 1 Haywood (N. C.), 500; Holmes v. Holmes, 2 Pick., 23.
In the last case the Supreme Court of Massachusetts allowed the demandant in a writ of right to suggest the death of one of several defendants and prosecute the case against the survivors.
We have no statute going further. There is no provision for continuing ejectment by bringing in representatives of a deceased defendant, and the exception seems not to have been accidental.
In Holmes v. Holmes, supra, the defendant’s counsel contended in opposition to the prosecution of the suit against the survivors that if it was necessary at first to bring in all the tenants, the necessity continued and hence the demandant ought not to be permitted to go on against the survivors. But the court dismissed the argument and ruled that it was proper to proceed against the survivors alone. What was thus permitted by the court in Massachusetts is expressly authorized by our statute. But the effect upon his share of the case, of the death of one of several, defendants in ejectment, is left as at common law.
The writ must be refused.
The other Justices concurred. | [
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Cooley, J.
This is an application for a mandamus. It appears that many years since, Frederick S. Ayres and others filed their bill in the Huron circuit in chancery for the specific performance by the defendants, among whom were the relators in this case, of a contract for the conveyance of lands, and that pending the suit defendants were enjoined from cutting timber on the lands. In May, 1871, the court of chancery made decree as prayed by complainants. The decree assumed that a portion of the price of the lands had not been paid by complainants, and a reference was ordered to ascertain the amount, and complainants were decreed to pay the same after deducting their taxed costs. Whether the amount was ever determined we are not informed, but it appears that the decree was duly enrolled, and we hear of no further controversy until in September, 1876, when complainants petitioned the circuit judge at chambers for leave to file a supplemental bill in the nature of a bill of review. The reasons given for the application were, first, that complainants had recently discovered that defendants could not make a title to a part of the land embraced in the decree, and therefore it would be unjust to compel complainants to pay for the same; and second, that complainants had recently discovered that while the original suit was pending defendants cut timber on the lands in violation of the injunction. It is assumed in this application that complainants had never performed the decree on their part. The circuit judge made ex parte the order applied for, and the bill was filed. This is an application for mandamus to compel the circuit court in chancery to vacate the order so made by the circuit judge.
The order of the judge was plainly one that could not be made at chambers. Only the court on due notice is authorized to permit a bill of review to be filed. Chancery Eule 101. This disposes of the case, and the writ must issue as prayed.
It is proper to add, however, that complainants made out no case for a bill of review, and the bill filed is not properly what it purports to be. It simply recites the original bill and decree, and then adds that complainants have discovered that defendants cannot make a good title to some of the lands, and that they cut timber on the lands in defiance of the process of the court. The proceedings in the former case are not recited, and no particulars are given to show that complainants have equities. If the general averments in what is called a supplemental bill in the nature of a bill of review are correct, they show only a case of inexcusable negligence on the part of complainants in looking after their own business, and they show nothing more.
The other Justices concurred. | [
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Per Curiam.
Mandamus to require the judge of the Superior court to grant new trials in cases in which the relators were concerned, and in which they had lost the benefit of their exceptions by reason of the death of the trial judge before the bill of exceptions could be settled. The respondent relied upon a statute passed in 1879, authorizing the notes of the official stenographer to be used by the successor of the deceased judge in settling the bill of exceptions. It appeared, however, that in both cases the application for a new trial had been made, —and in one ease it had been granted, though leave was afterward revoked, — before the statute was passed, and when the right to a new trial had under former decisions become absolutely vested. Held that without considering the validity of the statute, it did not take away the rights already vested and asserted.
Mandamus granted. | [
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Cooley, J.
This controversy arises out of a trade of lands for horses. The horses were owned by Haskell, and there is no dispute that he agreed to exchange them with Montague for a parcel of land subject to a mortgage for $150. There is a dispute, however, whether Haskell was to take it subject to interest and costs which had accrued on the mortgage, and. which amounted to a considerable sum. Montague claims that he was, but Haskell denies this, and says Montague was to pay the interest and costs, and that though the horses and a deed for the land were exchanged, yet that the exchange was made on condition that the title to the horses should remain in him until the payment was made, .and also until a $600 mortgage on the same land was discharged. Montague’s evidence tended to show- that the delivery of the horses was at first unconditional, but that afterwards, on Haskell’s expressing uneasiness respecting the discharge of the $600 mortgage, he agreed that the. horses should stand in his barn until the discharge was obtained. There is no dispute that this discharge was soon obtained; but a dispute soon after arising. respecting the actual agreement as . to the other mortgage, and Mon tague refusing to pay any thing upon it, Haskell replevied the' horses.
The only questions of law arise on the judge’s charge. In the charge he instructed the jury as follows:
“The whole case may be narrowed down to one of these propositions as you shall determine the facts to be:
“1. If it was a sale without conditions, or if it was an absolute sale, and if it might be avoided on account of fraud, deceit or misrepresentation, then defendant must recover for want of a tender of a reconveyance of the lands by Haskell to Montague.
“ 2. If it was agreed that the property was to remain Haskell’s until Montague paid or provided for the payment of the surplus (or excess as it has been called) on the $150 mortgage, then the plaintiff must recover, for the evidence was undisputed that the excess has not been paid or provided for by Montague.
“3. If the property was to remain Haskell’s until the $600 mortgage was discharged, or was to be held as security for the discharge of that mortgage, then the defendant must recover, for the evidence is undisputed that in a very few days after the trade this mortgage was discharged.”
The jury under the instructions gave their verdict for the defendant. We have not been able to find in the record any evidence that would fully warrant the first proposition. There was no claim on the part of Haskell that the purchase was brought about by fraud, nor did he take any steps to rescind it. What he claimed was that the title to the horses remained in him until the excess, as it was called, on the $150 mortgage was paid by Montague» On no theory advanced by either party was Montague entitled to a tender of a reconveyance of the land, for both parties affirmed and insisted upon the validity of the contract. We cannot avoid thinking that this suggestion to the jury that under some view they might take of the facts defendant would be entitled to a reconveyance, was well calculated to mislead them. Plaintiff had replevied the horses, and the jury might naturally, without accurate instructions, be led to Suppose that this was an attempt to rescind the contract, and that Under the instructions he Should first have tendered a reconveyance. It is not improbable that this may have been the governing consideration in their deliberations. We must reverse the judgment, therefore, and order a new trial, with costs of this court to plaintiff in error.
The other Justices concurred. | [
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Graves, J.
About the 18th of October, 1873, the firm of Edson, Moore & Co., composed of defendants in error, sold and delivered to the firm of Davis & Young a bill of goods amounting to $329.
Payment not being made, and defendants in error conceiving that plaintiff in error, together with Theodore S. Davis and John W. Young, composed the firm of Davis & Young, brought suit against those persons for the demand, and plaintiff in error, insisting that he was not a member of the firm and not liable on the claim, earnestly resisted the action. The others made no defense.
The evidence of most importance in the opinion of the court below to prove that Hall was a member of the firm of Davis & Young was a written contract of the following tenor: •
“Articles of agreement made this 11th day of August, A. D. 1873, between Stephen C. Hall, party of the first part, and Theodore S. Davis and John W. Young, parties of the second part, witnesseth as follows: Said parties of the second part agree to cut, haul and deliver afloat in the main Muskegon river, during the winter of 1873 and 1874, six to eight million feet of pine saw logs from the following lands” (here follows a description of several tracts) “for the sum of $4.50 per M. feet, straight and sound scale; the money to be advanced as the job progresses and as necessary to prosecute the same; said timber to be cut in manner as directed by said Hall, and to be sealed by a competent scaler to be agreed upon by both parties and at their mutual expense. If money is advanced to Davis é Young faster than advances are made to said Hall by the pan-ties to whom said logs are sold, said Davis & Young shall pay interest and exchange on the same at the rate it will cost to hire at banks until said advances are made on the logs. Said Hall is to receive one-third of net profits of said job above expenses.”
This instrument was produced- in evidence and there was also testimony tending to show that Hall represented or allowed it to be represented to defendants in error that he was or would be responsible for debts incurred by Davis & Young in the lumbering in question, and that he had paid certain debts which had so arisen.
The plaintiff in error controverted these facts and denied being in partnership and insisted that the arrangement intended and actually signified by the written agreement was not one sufficient by itself in point of law to make him a partner.
He gave evidence tending to show that he owned the lands and the logs referred to; that Davis & Young were mere jobbers to whom he let the contract, and that he knew nothing of the sale of the goods by defendants in error until three or four months after their shipment.
He also offered to prove that before the contract was written and whilst the parties were conferring in regard to the price per thousand feet he should be required to pay to Davis & Young, he contended that the logs could be put afloat for a price less than was estimated by Davis & Young; that Davis observed if he (Hall) thought the cost would be no greater than his estimate, they (Davis & Young) would agree that he should have a rebate on $4.50 per thousand so as to bring the price to about- the amount he considered they ought to receive; that the last clause in the writing was inserted to carry out this idea, and for no other end or purpose; that the parties constantly acted upon that construction and no other, and treated and applied the clause in regard to profits as only providing for repayment to or recoupment in favor of Hall of a part of the expressed price equivalent to a third part of the net profits.
This, offer of proof being objected to, the evidence was excluded. When the judge came to instruct the jury, he rejected several requests preferred by the counsel for Mr. Hall, and charged that the written contract by itself bound him as a partner and gave the defendants in error the right to recover against him. The jury found in accordance with this instruction. The case was consequently decided upon the judge’s construction of the agreement and without aid from any sources outside of that instrument, and his construction of it was that it conclusively made out that on the 18th of October 1878, the plaintiff in error was a member of the firm of Davis & Young, to whom the defendants in error at that time sold and delivered the goods. I cannot concur in this view. The agreement was not well drawn and is marked by some obscurity, and is no doubt capable of receiving varying interpretations by different minds.
It is one of those instruments where terms susceptible of different meanings have been inserted in such connections that there is no ground upon their face, for saying that one specific sense rather than some other is the necessary sense, and after careful analysis it appears to me the writing does not conclusively decide that Hall was or was not a member of the firm of Davis & Young at any time, and was not sufficient to exclude extrinsic evidence on that subject.
Waiving this consideration, however, there is another view which is decisive. The ruling made by the circuit judge, and which defendants in error contend for, rests upon and requires a rigid adherence to the words of the agreement, and rejects recourse to facts outside to show that the words were actually used in a special sense.
Hence, as we see, the defendants in error offered no evidence to induce an understanding of the terms in an admissible, but secondary or conventional sense, and the judge confined himself to the expressions as they stood unexplained.
Now if we assume the judge to have been correct in holding that the executory clause that Hall should “receive one-third of the net profits of said job above expenses” was of force to make him a partner, it must be conceded that it could be carried no further than to constitute him a partner during that “job.” There is no fair ground for contending that the agreement was sufficient to expand the relation further. The writing appears to have been made August 11th, 1873, but it provided expressly that the “job” should be executed some months thereafter.
The enterprise was to be commenced and carried out in the “winter and spring of 1873 and 1874,” and not earlier, and the fact that the scheme was formed in August is not controlling.
•According to the instrument in question, if it provided for the alleged relation at all, it contemplated that it should arise only on the arrival of the time for beginning the “job.” At that time, and not sooner, the parties were to act together for the common purpose, and until that time their so coming together was executory. There was an agreement, but no partnership. If the plaintiff in error had died, no firm under the agreement would have been dissolved thereby.
As we have seen, the sale by defendants in error was made October 18th. This was six weeks before the beginning of the “winter” of 1873, and before the arrival of the time for the supposed partnership to commence if we adhere to the words of the writing, and as already stated, the proceedings confine the point to the very words.
Hence, if we admit the rule contended for by the defendants in error, the judge erred in holding the plaintiff in error liable as partner for the goods sold in October. There is no ground for saying that by force of the agreement by itself he had then become a partner.
If the relation arose at all as an effect of the unexplained terms of the writing, it arose at a later date than the sale. The case, therefore, on which the judge ordered a verdict for defendants in error, was not one grima facie in their favor.
The judgment should be reversed with costs and a new trial ordered.
The other Justices concurred. | [
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Campbell, C. J.
Two causes between the same parties and depending on the same state of facts have been argued together and the same decision will cover them both.
Both bills are filed to foreclose mortgages on the same property, made by defendants Permelia and Luana Mur-' phy (in which one Eeuben A. Murphy joined). One was dated December 22, 1869, for $700, payable to David Emery in three years with annual interest at 10 per cent. The other was dated April 7, 1870, given to Benjamin IV Murphy for $1,400, payable in two years with interest at 10 per cent. The first through intermediate assignment became the property of William Waldron December 27, 1876. The other was assigned to him very soon after its date.
The defendant Andrew Ashbaugh went into possession of the land in 1872 and owns it. Prom time to time and irregularly he continued to make payments of interest, and the principal was’left uncollected on both mortgages. The last interest paid on the $700 mortgage was before its assignment to Waldron, so far as appears by the endorsements. Interest was paid on the $1,400 to April, 1876, but paid in June, 1876.
In the early part of 1877 Mr. Waldron’s health failed so badly that he was obliged to be under medical treatment, and lost his sight to a considerable extent so as not to be able to'see clearly. He spent some time under advice in New York, and did not return home until after noon on the 11th of May. He kept his mortgages and other securities in the bank of which he was president in Hillsdale, of which Mr. Stewart was cashier, and did not during his absence that spring leave authority with any one to receive payment on them. Mr. Ashbaugh, through his son, applied during his absence to pay interest on the small mortgage, but Mr. Stewart did not receive it and desired him to await Mr. Waldron’s return. Mr. Stewart is claimed, although the testimony is not very satisfactory on that point, to have been requested to inform Mr. Waldron that Ashbaugh wanted to pay up the mortgages. . Waldron was never so informed, and had no knowledge of that purpose until the day of his return.
Defendants claim the mortgage lien was discharged by a tender made on that day and refused. The whole case turns on the effect of that tender.' . Mr. Waldron died without testifying, and the whole facts depend on other evidence. The tender made is testified to by Zina Ashbaugh and Mr. St. John, an attorney residing in Hillsdale.
On the 11th of May Andrew Ashbaugh obtained a loan from John Armstrong which it was desired to make a first security, which could only be done by getting the Waldron mortgages discharged. On applying at the bank it was learned Mr. Waldron was expected back in the afternoon. Zina Ashbaugh and St. John called at the bank in the afternoon, and learned that Mr. Waldron was at home, about forty rods distant. They provided themselves with what was figured up as the proper sum and a few cents over, in mixed funds and went up to find him. They first requested and obtained the promise of the cashier to keep the bank open after closing time, which was near, in case Mr. Waldron would not accept the money, in which event they said they did not want to carry so much money about them during the night.
They met Mr. Waldron in the street not far from his house, going with a sister to visit a neighbor. The witnesses do not agree precisely on what took place, but in most respects concur. St. John somewhat abruptly referred to the two mortgages held by Mr. Waldron and told him there was the money to pay them. Mr. Waldron intimated that he might take it on one of the mort gages, but that he had told Mr. Ashbaugh, the owner of ■the land, that the other might run if he wanted it to. ‘On the tender being pressed he objected that his house was not the place where he did business and that he ■did it at the bank. He said he could not see to count money in the street. On their proposing to go to the bank he objected it was past bank hours and it would be closed. They told him Stewart had agreed to keep the bank open, and Mr. St. John asked him “will you ■take the money?” and he refused, and said he would be at the bank in the morning, and if they had any business with him he would attend to it then.
They then returned and made a tender to Stewart, and on his declining for want of authority, deposited the money, not in his bank but in another bank, to the credit of Mr. Armstrong, but designated as Ashbaugh money.
The next morning Mr. Waldron sent for and had an interview with St. John and offered to receive the money, but it was never paid, and the parties saw fit to rely on their tender.
It has been held in this state that a willful and absolute refusal to accept a lawful tender discharges a lien. But there is no equity in attempting to avoid both lien and debt,' and the security should not be discharged by any action in which the conduct of the creditor is not unjustifiable. If the refusal of a tender is not unreasonable or absolute, we do not think a mortgage is cut off by it. For the cases heretofore decided bearing on this question see Caruthers v. Humphrey, 12 Mich., 270; Van Husan v. Kanouse, 13 Mich., 303; Eslow v. Mitchell, 26 Mich., 500; Potts v. Plaisted, 30 Mich., 149; Flanders v. Chamberlain, 24 Mich., 305; Cowles v. Marble, 37 Mich., 158; Collar v. Harrison, 28 Mich., 518: 30 Mich., 66; Barnard v. Harrison, 30 Mich., 8; Sager v. Tupper, 35 Mich., 134; Fry v. Russell, 35 Mich., 229.
In the present case, upon a review of the facts, we think the tender was not made under circumstances entitling it to be enforced in this way, if at all. Mr. Ashbaugh, who represented his father, does not appear to have given St. John any improper instructions or to have meditated any sharp dealing. But the conduct of St. John, if it had succeeded, would have had the practical effect of very sharp practice. He knew Mr. Waldron’s bodily infirmity, and both he and Ashbaugh evidently contemplated that Waldron might not accept the money. He knew that the mortgages were not in Waldron’s personal possession, and that it would be unreasonable to expect him to close any redemption without a personal examination or one made for him. In such a case a man who is perfectly well — and far more a man both sick and nearly blind — cannot be held to have unreasonably refused a tender, if he merely desires a reasonable time and a reasonable place to determine his conduct. The drawee of a draft has twenty-four hours to determine whether or not to accept it, and such a delay as Waldron asked here was entirely proper, and suc'h as an honest debtor should not have complained of.
The previous delays in payment of interest, and the previous mutual dealings between the parties would of themselves have justified deliberation and made it unfair to compel Waldron under any circumstances to hasty decision. Neither witness testifies to any such explanation as would call on him to use any haste in the matter. He was not told of the Armstrong loan or its conditions. He was abruptly and unreasonably urged to decision when he was physically unable to protect himself, and when the course asked of him was unbusinesslike and unseemly, without some explanation, which there was no attempt to give. We think he understood the whole matter was postponed until the next day. If so, there was no refusal at all. Whether he understood so or not, the postponement was, if made in good faith, as we think it clearly was, no more than was proper and reasonable.
It is, moreover, although we do not care to make it the basis of our decision, very clear that no tender was made at all which called for any action whatever, in order to save Waldron’s rights. The money taken to him was not a legal tender, — a part of it being in banknotes. He probably would not have rejected it on this ground, but he had a right to do so, and St. John and Ashbaugh, intending to get an advantage by their tender, were bound to comply with the law. He could waive nothing without knowledge, and he was not informed and could not tell for himself what sort of funds they brought. Parties desiring the aid of courts to protect them in an unconscientious defense must make it out in the strictest manner. No court of equity will aid them in such transactions beyond the precise line which measures their rights.
We have not thought it necessary to refer to some other defects in the defense. We think the court below properly overruled it; and the decree must be affirmed with costs against appellant.
The other Justices concurred» | [
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Marston, J.
This is an appeal from an order of the circuit court of Marquette county in chancery denying a motion made for the appointment of a receiver in a mortgage foreclosure case. The order appealed from is. interlocutory and not final. In the brief of counsel it is said to be final, because the complainant has a clear legal right to the rents and profits which may accrue-pending this controversy to be applied towards the payment of his debts, and that the order denying the receiver cuts off this right. This claim of right to the rents and profits grows out of a clause in the mortgage, which, in ease of default, gives the party of the second part, either in person or by an attorney or other agency the right to take possession and operate the works and mines or .cause them to be operated. Even should we admit that this clause, under our statute, as construed in Wagar v. Stone, 36 Mich., 364, could be carried into effect by the appointment of a receiver, yet it could only be done after default, and unless this were admitted by the mortgagor and parties defendant, we do not see how the court could, upon a motion, as in this ease, determine that question. Whether there has been a default or not which would entitle the mortgagee to possession, may be the very question in issue, and the only one of any importance upon the final hearing, and the court should not anticipate and determine that question upon motion in this way.
It may admit of some question whether parties can enter into agreements, and afterwards come into court and ask assistance in carrying them out in violation of a statute of the State. Courts usually enforce agreements when in accordance with, and not in violation of, the well settled statutory policy of the State. But even if we give to this clause in the mortgage all the force and effect claimed for it, yet it was a matter entirely within the discretion of the court as to whether a receiver should or not be appointed. Had a receiver been appointed, this would have made a change in the possession of the property mortgaged, by taking it out of the hands of the mortgagors, and from such an order they could have appealed. The refusal to appoint makes no change, but leaves everything as it stood at the time the bill was filed, and to be passed upon by the court on final hearing. And if the complainant is of right entitled to have a receiver appointed, the refusal in the present case would not prevent another application upon another showing which the court might deem sufficient. We have held that an order allowing a bill of review to be filed was not appealable; that it did not finally dispose of any right (Mansfield v. Freeman, 39 Mich.), while an order denying leave to file a bill of review was final and appealable. Scriven v. Hush, 39 Mich.
In this case the court in the exercise of a sound dis cretion, and because the showing was deemed insufficient, may have denied the motion.
The appeal must be dismissed with costs.
The other Justices concurred. | [
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Graves, J.
The plaintiff in error was prosecuted for causing a public nuisance in the city of Pontiac by means of a mill-dam therein across the Clinton river. The information assumed to explain the effect and in what way and with what aids it was produced. The jury found a general verdict of guilty, and the court, after •overruling a motion in arrest of judgment, imposed a fine of- fifty dollars, enforceable by imprisonment, and ■ordered that the dam should be removed at the expense of plaintiff 'in error, but at such time and in such manner as the board of health of the city should direct.
The true question in this court is whether this branch of the judgment which requires the dam to be destroyed can be supported, and we are of opinion that it cannot.
1. This part of the determination, though separable from the rest, is an indivisible order and taken by itself cannot be broken into parts. It is an entirety and must stand or fall as such. If any portion of it is bad the whole must fall. Hence, the requirement to remove the dam must follow' the fate of the condition prescribing the intervention of the board of health.
In the next place it must be observed that if the dam was subject to be destroyed as a cause of nuisance it •was not imperative on the court to order it to be destroyed. It was competent to abstain from an exertion of. the power. Crippen v. People, 8 Mich., 117.
The court, however, conceiving that the occasion was ■a proper one for its exercise under the condition, and not ■otherwise, that removal should be made only at such time and in such way as should be directed by a board of health, was led to assume first, that the general statute (Comp. L., § 1702) empowered it to qualify the order for abatement by a condition of that kind; and second, that the •other general provision in § 1740 came in aid of the first, and for the purpose thereof provided and pointed out a board of health for the city of Pontiac.
Now, when taken by itself'the earlier section (§ 1702) has no application to a city and it's operation is impossible there. It is expressly confined to townships,- and it cannot have effect in a particular city unless by means of an appropriate supplementary provision which in itself is operative in such city.
The subsequent- section (1740), which is intended to further the general purposes of the chapter, makes the “mayor and aldermen” of each incorporated city, and the “president and council or trustees” of each incorporated village, whatever the number in either case, a board of health within the same. The court regarded this provision as operative in the city of Pontiac, and being of opinion that it so supplemented and aided the other as to cause that to operate with it,, made the conditional order in question. This construction is not tenable. Whatever may have been the case prior to 1861, when Pontiac became incorporated as a city, it is certain that since that time the general provision in Comp. L., § 1740 has not been operative there.
In providing for a city government the Legislature made such special regulations on the subject of a board of health therein as were considered most proper, and in so doing practically negatived the operation of the general laws in ■ question within the city. This is too evident to be seriously questioned, and it is not left to depend upon the rule that a general provision is deemed to be superseded as to a particular place or occasion by a new one made specially therefor.
The two classes of regulation are incompatible in their plan and operation. By the general statute a board of health in a city is to consist of the “ mayor and aider-men,” whatever the number of the latter, and whatever the term of service. They are ex officio members of the board. An election of mayor and aldermen involves an election of the board of health. They come in directly by popular vote and not by appointment, and are not chosen with any special reference to their capabilities for the peculiar duties incumbent on a board of health in a dense population.
If this scheme is sought to be applied to Pontiac the positive institutions and regulations of the incorporating laws cannot be made to give way; and by the amended charter the board of health must consist of the mayor, an officer elected annually, and of eight aldermen respectively elected for two years, and consequently making a body of nine persons and holding by election. 2 Sess. L. 1867, p. 605.
Now, it will be admitted that the Legislature did not intend there should be two boards of health at the same time, differently composed and organized and with jurisdiction over the same territory, and one of which in a separate capacity should not only have power to legislate for the other, but power to appoint it. But the supposition that the general statute is applicable involves those results.
The common council, whose members by the general provision are ex officio the members of the board of health and together with the mayor compose the board, is required by the charter to annually appoint a board of health of not less than three nor more than seven persons (two less than the mayor and aldermen) and a competent physician to be health officer thereof (Sess. L. 1861, p. 384, § 159); and another provision authorizes this board to appoint a clerk (§ 167, p. 387), and another gives snch compensation as the common council consider reasonable. § 168, p. 387.
If it be possible, the purpose to exclude the general provision is made more manifest still by another feature. The Legislature had in immediate view not only the suppression of nuisances generally any where within the city limits, but especially and expressly all such as might exist in the very river which this case claims to be infected, and the charter accordingly empowered the common council “ to providé for cleansing the Clinton river of any obstructions to the channel thereof, or of nuisances therein” (section 45, subdivision 10), and “to preserve the salubrity of the waters of the Clinton river, and other streams within the limits of the said city; to fill up all low grounds or lots covered or partially covered with water, or to drain the same, as they may deem expedient.” Section 45, subdivision 28. In citing these provisions to show the inapplieation of others, no opinion is given on their scope and legal effectiveness.
No further examination of the case is necessary in this view of it. We find that the provision in section 1702 is confined by its own terms to townships, and that the other general provision in section 1740, and which is relied on as operative to give it force and efficacy in the city of Pontiac, is not operative there, and is incompetent to produce that effect. Hence that the order for abatement grounded on it is without any basis and cannot be supported.
2. There is much, room for question whether on the charge as laid in the information the finding of guilty would warrant the destruction of the dam if there were no other difficulties.
Before going so far as to destroy valuable property not prima facie a nuisance in itself, or in consequence of its position, the case ought to be clear. The allegations ought to be so precise and certain, and the statements of sequence so unquestionably proper as to afford a safe guide for the court, and when, as in this case, tbe object charged as being the cause of nuisance can only be such by means of its action or influence upon other things, and not as being inherently noxious, or by means of being in a wrong place, it would seem that the information should show explicitly that there is a nuisance; that the dam is chargeable with it, and that its removal is necessary to suppress the nuisance. To proceed to a destruction of the dam on grounds less certain would hardly seem to be defensible.
Property is not to be destroyed until its destruction is lawfully ascertained to be necessary in order to stop the nuisance, and then no other and no more is to be destroyed than is thus determined to be needful to effect that object. Welch v. Stowell, 2 Doug. (Mich.), 332; Bloomhuff v. State, 8 Blackf;, 205; State v. Kaster, 35 Ia., 221; Finley v. Hershey, 41 id., 389; Brightman v. Inhabitants of Bristol, 65 Me., 426; Miller v. Burch, 32 Tex., 208: 5 Amer., 242.
The information in question sets’ out in terms that one of the things acted upon by the dam in causing the nuisance is “sewage,” and it does not appear how that comes to be turned into the river, nor what share it has in the alleged nuisance, and no prima facie ground is perceived for inculpating the dam as an object to be •abated on account of that part of the general bad effect contributed by this sewage. It cannot be deemed one of those natural or usual concomitants of river action in this country which the law may contemplate as a proximate sub-agency, and for whose noxious effects the dam may be considered prima facie liable and abatable, and the record does not disclose what cause there would be for complaint if this source of mischief was cut off and this mode of fouling the river stopped.
Finally, it may be questioned whether it sufficiently appears that destruction of the dam is the only adequate remedy, and that other measures involving comparatively little cost or damage, and equally efficacious for abating the nuisance, are not open; or indeed, whether it sufficiently appears that the nuisance would not remain in case the dam were destroyed, and possibly in a state to be more offensive. It occurs to suggest further that although there is no provision which requires the jury to find specially on an indictment or information on the necessity for destroying property to remove the nuisance; still it must not be taken for granted, as my brethren think, that judgment for such destruction can be given in the absence of a finding of a present necessity therefor to effect abatement.
That branch of the judgment ordering the removal of the dam must be reversed.
The other Justices concurred. | [
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Marston, J.
This action was commenced in justice’s court by attachment, by virtue of which property was seized, and the defendant therein, Hills, personally summoned to appear. The affidavit, it was claimed, was defective in that it was in the alternative, that the defendant “fraudulently contracted the debt or incurred the obligation” respecting which suit was brought. The attachment bond had but one surety.
After service, but before the return day mentioned, ■'ihe writ of attachment was dissolved by a circuit court commissioner, but no order was by him, made requiring the defendant to appear in the suit before the justice.
Upon the return day mentioned in the attachment ihe defendant by his attorney appeared before the justice and moved to quash the proceedings for want of jurisdiction. This motion having been overruled, he filed a plea in abatement to the jurisdiction of the court for the reason that the attachment had been duly dissolved. The justice without any farther proceedings overruled the same, and upon trial had, rendered judgment against the defendant. On certiorari to the circuit court the judgment of the justice was affirmed.
The defects referred to did not, nor did the dissolution of the attachment, oust the justice of his jurisdiction over the defendant. Had there been no personal •service upon the defendant, and property had been seized under the writ, then a dissolution of the attachment would have deprived the court of all jurisdiction in the premises, unless the commissioner, as a condition of dissolution, had required the defendant to appear in the suit. The only effect of the defects and proceedings taken, was to release the property seized. It follows that the judgment of the circuit court must be affirmed with •costs.
The other Justices concurred. | [
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Marston, J.
It appears from the return of the commissioner that no proper notice was given the plaintiff of the proceedings; consequently, within former decisions, they must be quashed, with costs.
The other Justices concurred. | [
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Cooley, J.
Complainant filed her bill for the specific performance of a certain contract executed by Jacob Jackson, and by which he agreed to convey to her a certain eighty acre lot of land. By the contract com plainant was to pay for the land eight hundred dollars, included in which was the amount of two mortgages on the. same lands, amounting to between two and three hundred dollars. At the date of the contract Jacob Jackson was a married man and lived upon the land with Nancy Jackson, his wife. Mrs. Jackson did not sign the contract. Complainant owned one of the two mortgages, and assumed payment of the other. She also made a small payment in money and goods, and was given possession of the land. Within a month from the date of the contract the Jacksons united in conveying the land to the defendant Garvin, who now claims to own the same under. their conveyance, denying the validity of the contract with complainant.
One ground of supposed invalidity of the contract is found in the fact that the Jacksons lived upon the land at the time of selling to complainant, and had their homestead there. The constitution exempts from forced sale on execution or any other final process from a court, a “homestead of not exceeding forty acres of land, and the dwelling house thereon, and the appurtenances to be selected by the owner thereof, and not included in any town plat, city, or village,” and provides that any “mortgage or other alienation of such land by the owner thereof, if a married man, shall not be valid without the signature of the wife to the same.” Art. 16 § 2. It has been held that this provision is applicable to a contract for the conveyance of lands, which requires the signature of the wife as much as an actual conveyance. McKee v. Wilcox, 11 Mich., 358. It has also been held that when the husband conveys without the wife’s signature, the conveyance being void, he may afterwards join with the wife in conveying the land to another party. Dye v. Mann, 10 Mich., 291; Wallace v. Harris, 32 Mich., 380.
The difficulty in this case grows out of the peculiar complications. The land contract embraced more than forty acres, and there had never been any selection of a homestead from the land described. The law can make none for the parties, for there is no rule which can be a guide in setting off any particular portion or in giving it any particular shape. The Jacksons in conveying to Garvin made no selection. Had they conveyed not to exceed forty acres, embracing the dwelling house, it might be claimed with much reason that they thereby indicated their purpose to claim the land so conveyed as exempt from the operation of the land contract because of its being their homestead. But they embraced the whole eighty acres in the deed, and they have not even by their pleadings in this suit undertaken to assert a homestead right in any particular portion of it. But the land contract was unquestionably valid as to all but the homestead. Wallace v. Harris, 32 Mich., 380. And the mortgages, being both signed by the wife, are valid liens on the whole land, and may be enforced against the whole.
Under these circumstances it is a little difficult to understand how a homestead right can be preserved for the benefit of Garvin. Jackson has no homestead right now, and any selection he might make would be made not for occupation as a homestead, but for the advantage of Garvin, and might be quite different from a selection made for the convenience of occupation. But a more important fact is this: that Garvin in this suit, while stating the fact that the whole eighty acres was occupied by the Jacksons as a homestead — which in the constitutional understanding of the term it could not have been — places his defense to the suit altogether on other grounds, and does not ask that what might have been claimed as a homestead should be set off to him. The position of the case, then, is this: that while facts are stated from which it appears that a homestead might be claimed, we are not asked in this suit to protect any homestead right. We shall not, therefore, interfere to protect any.
The grounds of defense actually set up are fraud in obtaining tbe contract, failure in complainant to perform on her part, and tender of rescission on the part of defendants. We find in them no sufficient ground of defense, and think complainant should have had the relief prayed.
The decree must be reversed with costs, and the cause remitted with directions to enter decree as prayed, .with costs of both courts. A reference will be necessary to ascertain the amount owing by complainant, and’ the same should be ordered brought into court for the party entitled to it.
The other Justices concurred. | [
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