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