Judges: DUSTIN McDANIEL, Attorney General
Filed Date: 4/18/2008
Status: Precedential
Modified Date: 7/5/2016
Mr. Danny H. Maxey, Chairman Pike County Election Commission Post Office Box 146 Amity, Arkansas 71921
Dear Mr. Maxey:
I am writing in response to your request for an opinion concerning the dual service of an elected Justice of the Peace on the governing board of a county hospital. Specifically, you present the following facts and pose the following two questions:
In Pike County an elected Justice Peace [sic] serves on the governing board of the county hospital. I received an opinion written by Attorney General Bryant citing the incompatibility doctrine in finding that one cannot serve in both positions. [Op. Att'y Gen.
94-220 .1] The reasoning behind the opinion was that the quorum court approves a county judge's appointments to a hospital governing board. However, our hospital was established before the quorum court became the legislative body of the county. As a result, the governing board is appointed by the county judge without action by the quorum court.
If appointment to the board does not require approval of the quorum court, does [sic] incompatibility doctrine apply in this case? Can an individual serve in both capacities under these conditions?
The current situation brings another question. Is our county required by statute to revise its procedure for appointing members to the governing board of the county hospital?
Question 1 — If appointment to the board does not require approval of the quorum court, does [sic] incompatibility doctrine apply in this case? Can an individual serve in both capacities under these conditions?
As an initial matter, I must note that, to the extent your questions are posed in an effort to determine the eligibility of a candidate for election, my predecessors have noted in numerous opinions, and I agree, that: "county boards of election commissioners `do not have the authority to declare a candidate ineligible and remove his name from the ballot when there is a dispute concerning the facts or the law.' State v. Craighead County Bd. of Election Comm'rs,
. . . the determination of eligibility may often require more than mere ministerial action. . . . To allow the board to consider disputed facts, make findings, and act thereon, is to put it in the same posture as a judicial tribunal. The board, being a ministerial entity, simply does not have that power. . . . The board may not exercise discretion or make findings of fact concerning the eligibility of a candidate. That determination may only be made by a court, and the court may then direct the board to either place the candidate's name on the ballot or remove it, as the case may be.
Id. at 410.
It has been held, however, that county boards of election commissioners have standing to institute such judicial proceedings. See Jacobs v. Yates,
The former opinion you refer to is presumably Op. Att'y Gen.
According to section
14-263-101 (c), quorum courts have some authority regarding the appointment and functions of county hospital boards of governors. Section14-263-104 (a) provides that the board of governors shall be appointed by the county judge and approved by the quorum court. In addition, the board submits monthly reports to the county judge and quorum court. A.C.A.14-263-105 (f)(1).
The opinion thus concluded that such dual service would violate the incompatibility doctrine, which applies "where one [office] is subordinate to the other, and subject in some degree to the supervisory power of its incumbent, or where the incumbent of one office has the power to remove the incumbent of the other or to audit the accounts of the other." Id. at 2, citing Tappan v. Helena Fed. Sav. Loan Ass'n.,
Your question is whether this conclusion is applicable in Pike County, because the Pike County "hospital was established before the quorum court became the legislative body of the county" and "[a]s a result, the governing board is appointed by the county judge without action by the quorum court." In response to this assertion, I can point you to the applicable law. Quorum courts "became the legislative bod[ies]" of counties by virtue of Arkansas Constitution, Amendment
14-263-101 . Legislative intent.(a) It is found and determined by the General Assembly that §
14-14-101 et seq. specifically repealed the existing laws relating to county hospital boards of governors and provided that county hospital boards of governors, along with various other county boards and commissions, would cease to exist on July 1, 1978, or sooner if so provided by ordinance of the quorum court, and that the functions and duties of those boards would thereafter be assigned to various county departments.(b) The General Assembly declares that it would be highly detrimental to the various county hospitals in this state to abolish the boards of governors of those hospitals and to transfer the responsibility for the management and operation of those hospitals to a county department.
(c) It is the purpose and intent of the General Assembly to substantially reenact the laws relating to county hospital boards of governors which were repealed by § 117 of Acts
1977, No. 742 , to amend §14-14-712 so as to exclude county hospital boards of governors from the provisions of §14-14-712 , relating to the reorganization of county boards and commissions, and to assure that the various county hospital boards of governors in the state will continue to function and have the authority and responsibility for the management, control, and operation of the respective county hospitals in substantially the same manner and to the same extent as was provided in Acts1949, No. 481 [repealed] and the various acts amendatory and supplemental thereto, as if those acts had not been repealed and as if county hospital boards of governors had never been included in the provisions of §14-14-712 ; however, in keeping with the intent of Arkansas Constitution, Amendment55 , the quorum courts of the respective counties shall have the authority as set forth in this chapter and §14-14-712 regarding the appointment and functions of county hospital boards of governors.
(a) The various county hospital boards of governors in existence on August 15, 1977, shall continue in existence and shall function under the provisions of this chapter.
(b) The members of all those boards serving on August 15, 1977, shall continue to serve for the respective terms for which they were appointed, and their successors shall be selected in the manner and for the terms provided in this chapter.
(Emphasis added).
It is clear, therefore, even for county hospital boards that existed prior to the adoption of Amendment 55 and
The board of governors shall consist of seven (7) members, who shall be qualified electors of the county in which the hospital is located and who shall be appointed by the county judge and approved by the quorum court.
* * *
(b)(5) The duty to appoint the initial members of the board and to fill vacancies in case of death, resignation, expiration of terms, or for any other reason shall be that of the county judge with approval of the quorum court.
(Emphasis added).
In my opinion, therefore, in response to your first question, appointment of such board members requires approval of the quorum court, and the conclusions in Op. Att'y Gen.
Question 2 — Is our county required by statute to revise its procedure for appointing members to the governing board of the county hospital?
This question should be addressed to the person to whom Pike County normally looks for legal advice. I hope that the foregoing is helpful in addressing the issue.
Deputy Attorney General Elana C. Wills prepared the foregoing opinion, which I hereby approve.
Sincerely,
DUSTIN McDANIEL Attorney General
DM:ECW/cyh