Bowen v. Department of Social Sec.

• Decision Date: 07 July 1942
• Docket Number: 28649.
• Citation: 14 Wn.2d 148,127 P.2d 682
• Parties: BOWEN v. DEPARTMENT OF SOCIAL SECURITY et al.
• Court: Washington Supreme Court

127 P.2d 682

14 Wn.2d 148

BOWEN v. DEPARTMENT OF SOCIAL SECURITY et al.

No. 28649.

Supreme Court of Washington, En Banc.

July 7, 1942

Proceeding by Alva M. Bowen against the Department of Social Security of the State of Washington and its acting director. From an adverse judgment, defendant appeals.

Affirmed.

SIMPSON J., dissenting.

Appeal from Superior Court, Grays Harbor County; Wm. E. Campbell judge.

Smith Troy, R. C. Finley, Phil H. Gallagher, and Pat Guimont, all of Olympia, for appellant.

F. L Morgan, of Hoquiam, for respondent.

BLAKE Justice.

Prior to June 7, 1941, respondent was awarded a senior citizen grant of $34 a month under initiative 141, chapter 1, Laws of 1941, p. 3. On that date, conceiving he was entitled to $40 a month, respondent made a demand upon the director for 'a fair hearing' under the provisions of § 8, p. 7, of the act, which, among other things, provides: ' It shall be the duty of the department upon receipt of such notice to set a date for the fair hearing, such date to be not more than thirty days after receipt of notice.' (Italics ours.)

More than thirty days having elapsed without action upon the demand, respondent gave notice of appeal to the superior court of Grays Harbor county in accordance with the provisions of § 9, p. 8, of the act. The department interposed a motion to quash the notice of appeal because 'the court has no jurisdiction herein for the reason and upon the ground that the fair hearing provided in section 8, of chapter 1 of the Laws of 1941 has never been had herein.'

In the meanitime, presumably acting upon respondent's demand, the department held 'a fair hearing,' which resulted in an award of $40 a month to respondent. Thereafter, the court of Grays Harbor county entered an order dismissing the proceedings because it appeared 'from the records and files in the cause and statement of counsel for the defendant that subsequent to the time the plaintiff appealed to this Court the Department of Social Security reviewed the plaintiff's case and granted the plaintiff's contention in full, and that by reason of such facts there is no longer any issue between the parties hereto, * * *.' By the order, respondent was allowed an attorney's fee of $75 in accordance with § 9, p. 8, of the act. The department appeals from the order, asserting that the court had no jurisdiction of the appeal and, therefore, was without authority to do more than dismiss it on that ground.

Respondent moves to dismiss the appeal to this court for the reasons that (1) we are without jurisdiction to entertain it, because the amount in controversy is less than two hundred dollars; and (2) because the appeal concerns a matter of costs only.

Section 4, Art. IV, of the constitution, defining the jurisdiction of this court, provides that 'its appellate jurisdiction shall not extend to civil actions at law for the recovery of money or personal property when the original amount in controversy or the value of the property does not exceed the sum of two hundred dollars * * *.' (Italics ours.) Respondent maintains that this proceeding is a civil action at law in contemplation of the inhibition. With this view we cannot agree.

One of the basic factors in the interpretation of a constitution is the historical background which provoked its various provisions. 1 Cooley's Constitutional Limitations, 8th Ed., p. 133; 11 Am.Jur. 677, § 63; Codd v. McGoldrick Lbr. Co., 48 Idaho 1, 279 P. 298, 67 A.L.R. 580; People v. Harding, 53 Mich. 481, 19 N.W. 155; State v. Kees, 92 W.Va. 277, 114 S.E. 617, 27 A.L.R. 681.

In his work on Constitutional Limitations, Cooley wrote, p. 133: 'It is also a very reasonable rule that a State constitution shall be understood and construed in the light and by the assistance of the common law, and with the fact in view that its rules are still left in force.' And, again, as chief justice of the supreme court of Michigan, he said: 'And in seeking for its real meaning we must take into consideration the times and circumstances under which the state constitution was formed--the general spirit of the times and the prevailing sentiments among the people. Every constitution has a history of its own which is likely to be more or less peculiar; and unless interpreted in the light of this history is liable to be made to express purposes which were never within the minds of the people in agreeing to it.' People v. Harding, supra, 53 Mich. at page 485, 19 N.W. at page 156.

Now, in the light of the historical background of the limitation placed upon the jurisdiction of this court, can these proceedings be said to be a civil action at law in contemplation of the constitutional provision?

At the time the constitution was adopted, civil procedure was governed by the practice act of 1881. Code of 1881, p. 35, Section 1, chapter 1, provided that: 'The common law of England * * * and the organic act and laws of Washington Territory shall be the rule of decision in all the courts of this Territory.' And § 2 provides that: 'There shall be in this Territory hereafter but one form of action for the enforcement or protection of private rights and the redress of private wrongs, which shall be called a civil action.' (Italics ours.)

Of the manner of commencing civil actions, it was prescribed by § 59, p. 43, that: 'Civil actions in the several district courts in this Territory shall be commenced by the filing of a complaint with the clerk of the court in which the action is brought, and the issuing of a summons thereon: * * *'

It hardly requires argument to demonstrate that the court proceedings provided for in § 9 of chapter 1, Laws of 1941, the senior citizens grants act, do not come within these provisions of the practice act of 1881. The court proceedings provided for in that act are not commenced in any court. They have their inception in the department of social security, and find their way to the courts through appeal--not by way of the issuance of summons.

Further than that, the functions now exercised by administrative bodies under legislative authority were practically unknown to American jurisprudence at the time our constitution was adopted; and, so far as we can ascertain, they were wholly unknown to our territorial jurisprudence. To say that court proceedings arising out of the exercise of such administrative functions are civil actions in contemplation of the limitation on this court's jurisdiction, contained in § 4, Art. IV, of the constitution, would make that provision 'express purposes which were never within the minds of the people in agreeing to it.' People v. Harding, supra. What pertinent authorities there are on the subject lend support to the view that court proceedings flowing from controversies arising Before administrative bodies are in no sense civil actions as they were understood at common law.

Colonel O. R. McGuire, a member of the American Bar Association's special committee on administrative law, in an article published in 26 Georgetown Law Journal, 574, 589 says: '* * * administrative law is a separate and distinct branch of the law. It is not common law, equity, or admiralty law * * *.' The court has recognized the principle with respect to the industrial insurance act...