Carroll v. Tarburton
Decision Date | 07 April 1965 |
Citation | 58 Del. 297,209 A.2d 86 |
Parties | , 58 Del. 297 Edythe M. CARROLL and Anthony B. Carroll, a partnership t/a Carroll's Sales, Co., Petitioners, v. John G. TARBURTON, Earl L. Sheats and Charles Milles, Constituting the Commissioners of the Delaware State Board of Agriculture, Respondents. |
Court | Delaware Superior Court |
Motion by respondents constituting the State Board of Agriculture to vacate order staying the revocation of petitioners' permit to sell livestock.
Nicholas H. Rodriguez, of Schmittinger & Rodriguez, Dover, for petitioners.
Merrill C. Trader, Asst. Deputy Atty. Gen. of Kent County, Dover, for respondents.
This is a proceeding in certiorari to review the action of the Delaware State Board of Agriculture in suspending the permit under which Edythe M. Carroll and Anthony B. Carroll, trading as Carroll's Sales Co., operated its livestock sales barn. Suspension of petitioners' license was stayed until the Board had certified its record of proceedings to this Court and its action had been reviewed.
Petitioners operate a livestock sales barn near the town of Felton, Delaware, and hold a sale each Friday. On April 28, 1964, petitioners received notice from the Board of Agriculture that their livestock trading permit, issued pursuant to Delaware State Board of Agriculture Livestock Dealer Regulations, would be indefinitely suspended on May 15, 1964, for violations of the regulations.
Petitioners were granted a hearing before the Board of Agriculture on May 7, 1964, and at that hearing, contended that the regulations and the statute on which they depend were unconstitutional. The Board overruled their contention and reaffirmed suspension of petitioners' permit.
Attached to respondents' answer were records of six alleged violations of the regulations, all relating to a failure by petitioners to use required techniques of controlling and suppressing diseases of domestic animals. It will be assumed that these violations existed and were the basis of the Board's decision to suspend petitioners' permit.
The regulations were issued by the Board of Agriculture under the authority of the following statute:
It is within a state's police power to pass laws to preserve and improve the health of farm animals through proper control of dangerous and infectious diseases so long as the regulating statute does not violate any constitutional standards. See Campoamor v. State Live Stock Sanitary Bd., 136 Fla. 451, 182 So. 277 (1938); State v. Taylor, 223 S.C. 526, 77 S.E.2d 195 (1953); Stickley v. Givens, 176 Va. 548, 11 S.E.2d 631 (1940); 65 A.L.R. 525 (1930).
Petitioners contend, however, that the standards incorporated in the legislation do not adequately guide the State Board of Agriculture and that 3 Del.Code § 7101 is consequently an unconstitutional delegation of legislative power. The statutory grant of authority to protect 'the health of the domestic animals of the State,' according to this view, provides no guide-line for action.
It is well-settled that the General Assembly may grant an administrative agency the power to promulgate rules and regulations which have the effect of law in its area of operation. The power so granted must be limited and defined in such a way that administrative officials can discern and implement the legislative will.
Thus, an administrative agency may be given discretion as to implementation of legislative policy, but not as to determination of legislative policy. See Hoff v. State, 9 W.W.Harr. 134, 197 A. 75 (Super.Ct.1938).
The necessity of so delegating the detail work of implementation in a day when there are so many demands on the legislature has long been recognized; and it raises difficult questions as to the proper balance between the flexibility necessary for practical legislation and the requirement that any delegation to an administrative agency be safeguarded by adequate guidelines. State v. Durham, 191 A.2d 646, 649, 650 (Super.Ct.1963).
In my opinion the standards and general policy set forth in the statute are adequate to permit reasonable regulations thereunder. The goal is animal health, and the method is that which the State Board finds is 'the most efficient and practical means for the detection, prevention, suppression, control, or eradication of dangerous, contagious, or infectious diseases'. This establishes a technical, medical, and sanitary standard as a guide to the Board's activity in pursuing a limited goal. The statute also offers a number of non-exclusive alternatives as control devices. The statute is not in itself unconstitutional. See Darling Apartment Co. v. Springer, 25 Del.Ch. 420, 22 A.2d 397, 137 A.L.R. 803 (1941); Vallat v. Radium Dial Co., 360 Ill. 407, 196 N.E. 485, 99 A.L.R. 607 (1935); Abelson's, Inc. v. New Jersey State Bd. of Optometrists, 5 N.J. 412, 75 A.2d 867, 22 A.L.R.2d 929 (1950); State v. Taylor, supra; Village of Waterbury v. Melendy, 109 Vt. 441, 199 A. 236 (1938).
Petitioners further contend that the regulations issued by the State Board of Agriculture are unconstitutional because they are discriminatory and deny petitioners equal protection of the law. Specifically, the exclusion of 'breeders' association sales or sales conducted on the premises where such livestock are raised' from such regulations is viewed as unfairly discriminating against dealers, commission merchants and salesbarn operators who are regulated.
The regulations may be invalid for this reason only if the classification of those covered and those not covered has no reasonable basis. See Rogers v. State, Super.Ct., 199 A.2d 895 (1964); Van Winkle v. State, 4 Boyce 578, 91 A. 385 (1914); Hotel Suburban Sys. v. Holderman, 42 N.J.Super. 84, 125 A.2d 908 (1956).
The State suggests that reasonable distinguishing factors exist. It maintains that animals are selected for breeders' association sales partially on the basis of their health status, and that livestock sold on the premises where they are raised are 'generally' inspected within thirty days of sale and their owners are very cooperative so...
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