Ex parte Sloan

• Decision Date: 14 July 1923
• Docket Number: 2588.
• Citation: 217 P. 233,47 Nev. 109
• Parties: EX PARTE SLOAN.
• Court: Nevada Supreme Court

217 P. 233

47 Nev. 109

EX PARTE SLOAN.

No. 2588.

Supreme Court of Nevada

July 14, 1923

Original application of Charles Sloan for a writ of habeas corpus. Writ dismissed.

Sanders J., dissenting.

M. B Moore, of Reno, for petitioner.

Le Roy F. Pike, of Reno, for respondent.

DUCKER C.J.

This is an original proceeding in habeas corpus. The return to the writ shows that petitioner was convicted in the municipal court of the city of Reno for the violation of section 2 of Ordinance No. 299 of said city, and sentenced to pay a fine of $500 or serve one day in the city jail of the city of Reno for each dollar of the fine remaining unpaid.

From the judgment of the municipal court petitioner appealed to the second judicial court of the state of Nevada, in and for the county of Washoe. Petitioner was tried in said district court before the court sitting without a jury, found guilty and sentenced to pay a fine of $100, in default of which it was adjudged that he be confined in the city jail of the city of Reno, Washoe county, Nev., for a period not to exceed one day for each dollar of said fine remaining unpaid. In default of the payment of the fine petitioner was remanded to the custody of the chief of police of said city of Reno, to be incarcerated in the said city jail. On the issuance of the writ from this court petitioner was admitted to bail.

Section 2 of the city ordinance under which petitioner was charged, tried, and convicted, reads as follows:

"It shall be unlawful for any person, firm, association, or corporation to manufacture, keep or store, sell, or otherwise dispose of, except as hereinafter provided, any intoxicating liquors in the city of Reno; provided, that nothing in this ordinance shall prohibit the manufacture, sale, keeping, or storing of said liquors where the manufacture, sale, keeping, or storing of the same is permitted by the laws of the state of Nevada, or of the United States of America."

In respect thereto petitioner contends that the city of Reno is without power to pass or enforce any ordinance relating to the subject or subjects mentioned therein, because the authority so to do has not been granted in its charter.

It is pointed out that the charter of 1917 of the city of Reno contained certain provisions empowering the city council to license, regulate, and limit places where intoxicating liquors were sold or given away, which were eliminated when the Legislature amended the said charter act in 1921. From this it is urged that the Legislature, in thus amending the charter, had under consideration the question as to whether or not power should be given to the city council to enact any ordinance governing the licensing, regulating, or prohibiting the manufacture or sale of intoxicating liquors, and did not intend to grant the city council any power in regard to these subjects. We do not agree with this view. The provisions eliminated pertained to the licensing or regulating of places where intoxicating liquors were sold or given away, and were in conflict with the state prohibition law enacted in 1919, which prohibited the manufacture, sale, keeping, or storing for sale in this state, or offering or exposing for sale of intoxicating liquors in the state. Stats. 1919, p. 1. It is clearly evident that these provisions were removed from the charter act by the Legislature of 1921 for this reason, and we perceive nothing in the amendment from which to indulge an inference that it was intended to withhold from the city council the power to legislate by ordinance in regard to prohibiting the sale or disposal of intoxicating liquors within the limits of the city of Reno. It is true this authority is not expressly granted by the charter. Counsel for the respondent concedes so much, and claims that the authority has been given to the municipality under the general delegation of powers appearing in the charter designated as the general welfare clause. This clause reads as follows:

"To adopt and enforce by ordinance, all such measures and establish all such regulations in case no express provision is in this charter made, as the city council may from time to time deem expedient and necessary for the promotion and protection of health, comfort, safety, life, welfare, and property of the inhabitants of said city, the preservation of peace and good order, the promotion of public morals and the suppression and prevention of vice in the city, and to pass and enact ordinances on any other subject of municipal control or to carry into force or effect any other powers of the city, and to do and perform any, every, and all acts and things necessary or required for the execution of the powers conferred or which may be necessary to fully carry out the purpose and intent thereof." Stats. 1921, p. 56.

This clause of the charter contains a delegation of police powers. It is well settled that the Legislature may delegate to municipal corporations the lawful exercise of police powers within their boundaries, and do so under a general grant. 28 Cyc. 705, and cases cited; 19 R. C. L. pp. 798, 799; Cooley's Municipal Corp. p. 313; 3 McQuillin, Mun. Corp. § 895; City of Helena v. Kent, 32 Mont. 279, 80 P. 258, 4 Ann. Cas. 235; Crum v. Bray, 121 Ga. 709, 49 S.E. 686, 1 Ann. Cas. 991; Village of Fairmont v. Mayer, 83 Minn. 456, 86 N.W. 457; Commonwealth v. Cutter, 156 Mass. 52, 29 N.E. 1146.

It is unnecessary to adduce or cite authority in this case to show that the prohibition of the sale of intoxicating liquors is comprehended within the scope of police powers. Legislation of this character was declared to be the exercise of such power by the people and Legislature of this state (section 23, Stats. 1919, p. 11), and was a legitimate exercise thereof. State v. Reno Brewing Co., 42 Nev. 397, 178 P. 902.

There is nothing in the charter act to indicate that the Legislature intended to withhold this portion of its police power from being exercised by the city of Reno, and the preservation of the health, comfort, good order, safety, morals, and welfare of the people is within the ordinary scope of municipal authority. A rule, deducible from ample authority, which we think should be given application here, is, if the power to pass ordinances upon any subject is specifically given, the power so granted cannot be enlarged or changed by the general clause; but if the subject is omitted altogether in the specific powers, authority to pass ordinances upon the omitted subject may be conferred under the general clause. The only restriction in the general welfare clause upon the subjects pertaining to police power is in case express provision is made in the charter, and there is no special provision in regard to the sale of intoxicating liquors. It seems, therefore, that the city council was clothed with ample authority to adopt the ordinance in question.

But counsel for petitioner contends that, the state having passed a general law prohibiting the manufacture and sale of intoxicating liquors fixing the degree of the offense, and providing the penalty therefor, the city council of Reno cannot pass or enact a valid ordinance governing the same subject-matter, and is without power to prosecute any person for the violation of any such ordinance. There is a conflict of authority upon this question. The decided weight of authority, however, is to the effect that the same act may constitute an offense both against the state and a municipal corporation. "Indeed," says Judge Cooley, in his work on Constitutional Limitations (7th Ed.) p. 279, "an act may be a penal offense under the laws of the state, and further penalties, under proper legislative authority, be imposed for its commission by municipal by-laws, and the enforcement of the one would not preclude the enforcement of the other."

This principle was recognized in Ex parte Siebenhauer, 14 Nev. 365. The trend of authority in this respect is thus stated in 28 Cyc. pp. 696-698:

"The Legislature may confer police power upon a municipality over subjects within the provisions of existing state laws. Accordingly, unless it is prohibited by some express constitutional or statutory provision, by the great weight of authority municipal corporations may, by ordinance, prohibit and punish acts which are also prohibited and punishable as misdemeanors under the general statutes of the state, or which may involve a common-law offense."

"The power may be granted expressly or by implication." Id. 693.

As was said in City of Chicago v. Ice Cream Co., 252 Ill. 311, 96 N.E. 872, Ann. Cas. 1912D, 675, in which it was held that the fact that the state had legislated upon a subject does not necessarily deprive a city of power to deal with the same subject by ordinance:

"Municipal corporations are bodies politic, vested with many political and legislative powers for local government and police regulations, established to aid the government by the state. The necessity for their organization may be found in the density of the population and the conditions incidental thereto. Because of this, the municipal government should have power to make further and more definite regulations than are usually provided by general legislation and to enforce them by appropriate penalties."

The following additional authorities are among those sustaining the principle, which we think is more in consonance with good government, that the same act may be prohibited and punished by municipal and state law: Borok v. Birmingham, 191 Ala. 75, 67 So. 389, Ann. Cas. 1916C, 1061; Van Buren v. Wells, 53 Ark. 368, 14 S.W. 38, 22 Am. St. Rep. 214; Hunt v. Jacksonville, 34 Fla. 504, 16 So. 398, 43 Am. St. Rep. 214; Rossberg v. State, 111 Md. 394, 74 A. 581, 134 Am. St. Rep. 626; People v. Hanrahan, 75 Mich. 611, 42 N.W. 1124, 4...