DocketNumber: No. 21290
Citation Numbers: 167 N.E. 158, 121 Ohio St. 80, 121 Ohio St. (N.S.) 80
Judges: MATTHIAS, J.
Filed Date: 5/29/1929
Status: Precedential
Modified Date: 1/12/2023
I dissent from the decision of the majority herein upon the ground that it is in conflict with the weight of authority in the United States. Also in my judgment the ordinance in question does not conflict with the statute, and, furthermore, the regulation of the speed of traffic upon the streets of a municipality is an exercise of the power of local self-government, and hence the decision in this case contravenes the express provision of Section 3 of Article XVIII of the Constitution that municipalities shall have all powers of local self-government.
The decision runs counter to the weight of authority in the United States, as shown by the decisions cited in 1 Berry on Automobiles (6th Ed.), *Page 93 page 74 et seq.; 1 Blashfield's Cyclopedia of Automobile Law, 223-239.
The ordinance does not conflict with the statute. The two enactments differ, but they do not conflict. The ordinance makes it unlawful to exceed the speed of 15 miles in passing a schoolhouse or public playground. The statute imposes no such limit, and, in fact, makes no regulation with regard to the speed of automobiles in passing a schoolhouse or public playground. The conditions around such institutions at the time specified in the ordinance, namely, school hours and hours during which public playgrounds are used, immediately suggest the reasonableness and the wisdom of the policy stated in the ordinance. On the face of its provisions, so far as applying a specific speed limit to the vicinity of such institutions is concerned, the ordinance is merely carrying out and making more specific the provisions of the statute prohibiting reckless driving.
The statute provides that a speed of greater than 25 miles an hour within portions of a municipal corporation other than the business or closely built-up portions shall be prima facie
evidence of a rate of speed that is greater than is reasonable or proper. This court has laid down the test of conflict between an ordinance and a statute as follows: Does the ordinance prohibit an act which the statute permits, or permit an act which the statute prohibits? Village of Struthers v.Sokol,
Holdings along this line are to be found in a great number of cases from courts of last resort in the United States, a few of which I shall quote. *Page 95
In Brazier v. Philadelphia (1906),
In Christensen v. Tate (1910),
"The law gives cities of the second class control of their streets, and an ordinance regulating the speed of motor vehicles in the streets will not be held void as in conflict with the statute on that subject, unless it appears that the limitation of speed is such as to prohibit the free use of the streets by such vehicles."
The ordinance in this case provided that no automobile should be driven in the streets at a greater rate of speed than eight miles an hour, and that, in turning a corner of any street or avenue, or crossing the intersection of any street or avenue, or in any alley of the city, the speed should not be greater than four miles an hour. The act of the Legislature (Laws Neb., 1905, c. 129) contained this general provision: "No person shall operate a motor vehicle on a public highway at a rate of speed greater than is reasonable and proper, having regard to the *Page 96 traffic and use of the highway, or so as to endanger the life or limb of any person," and provided specifically that in the closer built-up portion of a city, town, or village, such vehicle should not be operated at a greater rate of speed than one mile in six minutes, and in other portions of a city, town, or village, the speed should not be greater than one mile in four minutes, and, outside of a city, town, or village, the speed should not be "at a greater average rate than twenty (20) miles per hour." The act further provided (Section 11) that "cities and towns shall have no power to pass, enforce or maintain any ordinance, rule or regulation * * * or exclude or prohibit any motor vehicle * * * from the free use of such highways, and all such ordinances, rules or regulations now in force, are hereby declared to be of no validity or effect."
In City of Bellingham v. Cissna (1906),
"Chapter 154, Laws 1905, p. 293, providing for a state license of automobiles, and declaring that cities shall have no power to require any such license or to exclude automobiles from the free use of the streets, does not prevent a city from limiting the speed of automobiles within its limits to six miles per hour, although Laws 1905, § 10, provides that such speed shall not, in thickly settled or business portions of the city, exceed twelve miles per hour; in view of § 12 of said chapter, providing that no greater speed shall be attained than is reasonable and proper, having regard to the traffic," etc.
In Roper v. Greenspon (1917),
In this case the ordinance provided: "No automobile * * * shall be moved or propelled along, over or upon any public street, * * * at a greater rate of speed than is reasonable, having regard to the traffic and use of such street, * * * or so as to endanger the life or limb of any person, or the safety of any property, and shall not in any event, * * * be moved or propelled at a greater rate of speed than eight miles per hour in the business portions of the city, and not greater than ten miles per hour in the other portions thereof."
In City of Windsor v. Bast (Mo.App., 1917), 199 S.W. 722, the fifth paragraph of the syllabus reads:
"Laws 1911, p. 327, § 9, as to speed of motor vehicles on a public highway of the state, does not apply to travel in city streets, and does not limit the power of the city to make regulations."
Section 9 of the Motor Vehicle Act provided:
"Every person operating a motor vehicle on the public highway of this state shall drive the same in a careful and prudent manner and at a rate of speed *Page 98 so as not to endanger the property of another or the life or limb of any person: Provided, that a rate of speed in excess of twenty-five miles an hour for a distance of one-half of a mile shall be presumptive evidence of driving at a rate of speed which is not careful or prudent."
In District of Columbia v. Bailey,
"Traffic Regulations of District of Columbia, * * * prohibiting greater speed than 15 miles an hour for passenger vehicles on certain bridges, adopted by director of traffic pursuant to District of Columbia Traffic Act [43 Stat., 1119], * * * held not in conflict with Section 9, subds. (a), (b), prohibiting a speed greater than 22 miles per hour, except in outlying districts or on arterial highways, or any speed greater than is reasonable or proper."
Sims v. Martin,
"There is no inconsistency or conflict between a legislative act limiting the speed of an automobile to 30 miles per hour in a city and an ordinance of the city limiting such speed to 15 or 8 miles per hour under the same conditions and circumstances. The ordinance of a city penalizing a less speed than is penalized by the statute of the state is merely supplemental to the statute. The plaintiff may allege negligence either under the statute or under the ordinance, or under both."
In Ham v. County of Los Angeles,
"A county ordinance which declares it unlawful to drive any vehicle over or across any county bridge at a rate of speed greater than five miles an hour is not in conflict with the provision of subdivision (b) of section 22 of the Motor Vehicle Act, which declares that a motor vehicle shall not be operated over bridges at a rate of speed greater than ten miles an hour where the view of the road traffic is obstructed."
The California Supreme Court endeavored to distinguish this case in the decision in Ex parte Daniels,
Supporting this general proposition are Brennan v. Recorderof City of Detroit,
1 Berry on Automobiles (6th Ed.), Section 97, page 75, states:
"In some states it has been held that, aside from statutory prohibition, however, a municipal corporation may enact an ordinance establishing a lower maximum rate of speed for automobiles than that *Page 100
provided by statute" — citing Dowdell v. Beasley,
The Ohio cases cited in the majority decision as supporting the proposition of the syllabus in my judgment do not apply. In the case of Niehaus, Bldg. Inspector, v. State, ex rel. Boardof Education,
In the cases, City of Bucyrus v. Department of Health,
Also in my judgment the decision of the majority is incorrect, because it violates the principle of local self-government, so long recognized in this state, with regard to control of the streets of a municipality, and violates the express provision of Section
Long prior to the enactment of the home rule amendment, the right to regulate traffic on city streets was recognized as constituting a peculiar power of local self-government. That the power here in question is exercised only within the confines of the municipality is self-evident, and to that extent it is manifestly local. Now Section 3632, General Code, adopted prior to the constitutional amendments of 1912, gives full control of the streets of the corporation to the municipality. Under Section 3632 cities are given the specific power "to license and regulate the use of the streets by persons who use vehicles, or solicit or transact business thereon; to prevent and punish fast driving or riding of animals, or fast driving or propelling of vehicles through the public highways."
The reason for this enactment is patent to the most surface observer. The municipality knows the *Page 102 conditions and the needs of its own traffic better than any state Legislature, however intelligent. In the Ohio river towns, the existence of narrow, winding streets, abutting here and there upon cliffs and hills, with interurban cars carrying through traffic at comparatively high rates of speed, and with highways which pass through sharply turning tunnels under railway bridges, the problem of automobile traffic upon streets, where the pedestrian necessarily has to be considered more than in the open country, is vastly different, both from the general problem throughout the state and from that existing in a city of wide streets, flat surfaces, and straight lines of travel. In cities such as Fostoria or Bellevue, intersected by numerous railway tracks with interurban service constantly operating large and heavy cars, the problem of speed is entirely different from that to be found in a municipality cut by no railway lines whatever.
I might cite instances of this kind ad infinitum. Because of the recognition of this fact, courts of last resort in states where home rule, as we know it in Ohio, does not exist, have hesitated to hold that ordinances of this kind are in conflict with state law.
Because of the very nature of the problem, recognized for generations as being a purely local question, in my judgment the regulation of traffic on the streets of a city comes within the power of local self-government, and is not, and cannot be, limited by general law.
In Kalich v. Knapp (1914),
In People, ex rel. Hainer, v. Keeper of Prison (1907),
"Under the provisions of the Motor Vehicle Law (L. 1904, ch. 538), permitting the local authorities of cities and incorporated villages to 'limit by ordinance, rule or regulation hereafter adopted, the speed of motor vehicles on the public highways,' such municipalities have only the power to prescribe a lower rate of speed within their territorial jurisdiction than that permitted by the general law."
In Kelly v. James,
"Under Laws 1913, ch. 276, being the motor vehicle law, Section 20, providing that, except as therein provided, local authorities shall have no power to pass or enforce any ordinance requiring *Page 104 from an automobile owner any fee, license or permit for use of public highways, or excluding any such owner from the free use of public highways, or in any way regulating motor vehicles or their speed, upon, or in the use of public highways, and that no ordinance or regulation contrary or in any wise inconsistent with the provisions of the act should have any effect, held, that the Legislature, in enacting said vehicle law, did not intend to deprive municipalities of the power to enact ordinances in relation to the laws of the road, or to give any greater privileges to drivers of motor vehicles than were enjoyed by drivers of all vehicles; that said statute aimed to prevent municipalities from singling out motor vehicles and legislating against them in particular; and such statute did not annul a city ordinance requiring persons driving or operating a vehicle, whether motor or animal drawn, on any street in a city to keep to the right hand of such street and as close as possible to the curb; said ordinance not being contrary to or inconsistent with the provisions of said statute."
1 Blashfield's Cyclopedia of Automobile Law, 238, 239, states:
"An attempt of the Legislature to limit by a general law the power of local legislative bodies to pass regulations, not inconsistent with the general law regulating the use of the highway and the operation of motor vehicles, would violate a constitutional provision expressly granting authority to municipalities to enact local regulations; and under home rule provisions in some of the state Constitutions, the Legislature has been held to have no power to nullify or amend the charter or ordinance of a city *Page 105 in a matter of acknowledged local concern, such as the regulation of traffic over its streets. Consequently in such jurisdictions motor vehicle acts which attempt to limit the authority of cities and towns to prescribe a lower rate of speed for motor vehicles than that provided in such an act are ineffective.
"In some jurisdictions, however, as has been already stated, a provision of the Motor Vehicle Act prohibiting municipalities from passing any ordinance limiting or restricting the speed of motor vehicles and declaring any such ordinance void, has been given full force. [Citing Elie v. Adams Express Co.,
"This legislation seems vicious. The principle of home rule, recognized by the organic law of many of the states, would seem to guarantee to the inhabitants of a city the right to legislate on matters so vitally affecting their lives and property as the rate of speed of such vehicles.
"The only reason urged for such legislation is the divergent character of municipal regulations as to speed, making it hard for the motorist to know the law. But if he does not know the precise limit of speed permitted to him, he does know that, if he travels at such a rate that his car is absolutely under control, he can offend no local regulation. It ought to be no hardship, while passing through a strange municipality, to forget speed and look only to safety. To take away from municipalities the power to protect their citizens from reckless motorists, to violate the principle of self-government, constituting one of the fundamental characteristics of the republic, in order that the motorist may attain the utmost speed *Page 106 possible within the law, is very like tearing down the house to save the parrot."
If the decision of the majority in this case is to stand, the municipal right of home rule, in my judgment, will be seriously invaded.
Dowdell v. Beasley , 17 Ala. App. 100 ( 1919 )
Ham v. County of Los Angeles , 46 Cal. App. 148 ( 1920 )
Mancuso v. Yellow Taxicab Co. , 231 Mich. 189 ( 1925 )
Niehaus v. State, Ex Rel. , 111 Ohio St. 47 ( 1924 )
State, Ex Rel. v. Williams , 120 Ohio St. 432 ( 1929 )
People Ex Rel. Hainer v. . Keeper of Prison , 190 N.Y. 315 ( 1907 )