Helfrich v. Hamilton Tp.

• Decision Date: 31 December 1981
• Citation: Helfrich v. Hamilton Tp., 440 A.2d 1366, 182 N.J.Super. 365 (N.J. Super. App. Div. 1981)
• Parties: Joseph HELFRICH, Plaintiff-Respondent, v. HAMILTON TOWNSHIP, Defendant-Appellant.
• Court: New Jersey Superior Court — Appellate Division

Page 365

182 N.J.Super. 365

440 A.2d 1366

Joseph HELFRICH, Plaintiff-Respondent, v. HAMILTON TOWNSHIP, Defendant-Appellant.

Superior Court of New Jersey, Appellate Division.

Argued Dec. 8, 1981.

Decided Dec. 31, 1981.

Dennis M. DeSantis, Trenton, for defendant-appellant (Destribats & Hamilton, Trenton, attorneys).

Richard H. Greenstein, Newark, for plaintiff-respondent (Fox & Fox, Newark, attorneys).

Before Judges MATTHEWS, PRESSLER and PETRELLA.

The opinion of the court was delivered by

PETRELLA, J. A. D.

This appeal presents the single issue of whether the trial court erred in holding that N.J.S.A. 52:27D-126, as amended by L.1979, c. 394 § 1, effective February 6, 1980, requires that plaintiff be appointed plumbing subcode official in Hamilton Township.

Plaintiff instituted an action in lieu of prerogative writs after the municipality redesignated his position in 1977 from Chief Plumbing Inspector to Senior Plumbing Inspector and at the same time promoted one Henry White from Assistant Chief Plumbing Inspector to Senior Plumbing Inspector. All the plumbing inspector titles were Civil Service positions. Thereafter White was appointed the plumbing subcode official, a position authorized in the State Uniform Construction Code Act (N.J.S.A. 52:27D-119 to 141) (the act). On appeal to the Civil Service Commission (Commission) plaintiff obtained an order reinstating him to his former position of Chief Plumbing Inspector with back pay on the basis that the municipality's alleged reasons for his demotion would have constituted good cause and hence, was required to be in accord with the procedures prescribed by Title 11 of the Revised Statutes and Civil Service rules. The Commission concluded that it did not have jurisdiction to determine the issue of the appointment as plumbing subcode official but deferred to the Commissioner of the Department of Community Affairs, who had authority to implement and enforce the act. By letter dated August 14, 1979 the Chief of the Bureau of Construction Code Enforcement in the Department of Community Affairs advised the mayor of defendant Hamilton Township that by virtue of plaintiff's reinstatement as Chief Plumbing Inspector, plaintiff was entitled to appointment as plumbing subcode official under the act. Defendant declined to so appoint plaintiff and this litigation ensued.

After these events had transpired N.J.S.A. 52:27D-126, which governs appointment of subcode officials, was amended by L. 1979, c. 394.

The trial judge found that as a result of the Commission's determination, plaintiff was the Chief Plumbing Inspector and White, as Assistant Chief Plumbing Inspector, was his subordinate on June 4, 1977. The original version of the statute was unclear as to who should have been appointed plumbing code official. Thus, he considered the legislative intent and concluded that the purpose of the amendment was not to alter the existing statute but to clarify tenure and other rights of officials covered by the code. He held that the "subcode official" was the person who, prior to the effective date of the original act, had subordinate responsibility to enforce the plumbing code and that the subcode official is thus "the next subordinate to the overall chief." Because plaintiff fit that description he was within the statute and entitled to the appointment. We agree and affirm.

N.J.S.A. 52:27D-126 a has consistently provided that "the appointing authority of any municipality shall appoint a construction official and any necessary subcode officials to administer and enforce the code...." (Emphasis supplied). A municipality has, however, the option to accept inspections regarding compliance with the code made by a state-approved inspection authority. Subsection b provided for appointment of a construction official and subcode officials and made provision for tenure and preservation of Civil Service rights.

However, reference to "construction officials" and "subcode officials" in § 126 b, as applied to officials in office prior to the act, created some confusion and ambiguity because those terms were not in general use under prior law where the references were to building inspectors, plumbing inspectors and electrical inspectors. The act attempted to provide for continuation of tenure without adequately correlating pre-code and post-code positions. This ambiguity in the original act resulted in Civil Service rulings adverse to the Legislature's intent as subsequently expressed in connection with L.1979, c. 394. The original language of N.J.S.A. 52:27D-126 being ambiguous with respect to appointments of subcode officials, we are thus called upon to construe that language.

N.J.S.A. 52:27D-126 governs appointment of subcode officials and was amended by L.1979, c. 394 to be effective February 6, 1980. It now provides in pertinent part:

a. The appointing authority of any municipality shall appoint a construction official and any necessary subcode officials to administer and enforce the code and a construction board of appeals to hear and decide appeals from decisions made by said construction official and subcode officials, in the administration and enforcement of the code. Nothing herein, however, shall prevent a municipality from accepting inspections as to compliance with the code or any subcode thereof made by an inspection authority approved by the State of New Jersey pursuant to law.

b. To establish tenure rights or any other right or protection provided by the 'State Uniform Construction Code Act' or Title 11 of the Revised Statutes, Civil Service, or any pension law or retirement system, the job title 'construction official' shall be equivalent to that job title which, prior to the effective date of the 'State Uniform Construction Code Act,' entailed the chief administrative responsibility to enforce all municipal construction codes, the enforcement of which was not the responsibility of an authorized private inspection agency: and the job title 'subcode official' shall be equivalent to that job title which, prior to the effective date of the 'State Uniform Construction Code Act,' entailed subordinate administrative responsibility to enforce one or more of the following: building, plumbing, electrical or fire codes.

Any person, in a municipality operating under Title 11 of the Revised Statutes, who prior to the effective date of the 'State Uniform Construction Code Act' held the equivalent of the job title 'construction' official or 'subcode' official, but who no longer holds his position as a result of a determination that his old job title was not equivalent to that of 'construction' official or 'subcode' official, shall be offered reappointment as a construction official or subcode official, as the case may be, and shall be granted permanent classified status in such position....

In construing a statute it is our fundamental duty to determine the purpose and intent of the Legislature. To accomplish this we may freely refer to the legislative history to ascertain the sense and meaning of the language used. Health Dep't v. Sol Schnoll Dressed Poultry Co., 102 N.J.Super. 172, 176, 245 A.2d 532 (App.Div.1968). Statutes cannot be read in a vacuum void of relevant historical and policy considerations and related legislation. Matawan v. Monmouth Cty. Tax Bd., 51 N.J. 291, 299, 240 A.2d 8 (1968); Brewer v. Porch, 53 N.J. 167, 174, 249 A.2d 388 (1969). In general, there is a presumption against legislative intent to effect a change of substance by a revision of the law, and that presumption is not necessarily overcome by mere change of phraseology or addition or omission of words, unless there is a clear indication of a desire by the Legislature to alter the existing law. New Shrewsbury v. Block 105, Lot 11, etc., 104 N.J.Super. 360, 365, 250 A.2d 53 (Ch.Div.1969), aff'd o. b. 111 N.J.Super. 550, 270 A.2d 46 (App.Div.1970); Caldwell v. Rochelle Park Tp., 135 N.J.Super. 66, 74, 342 A.2d 583 (Law Div. 1976).

In considering whether the act prior to the amendment effective in February 1980 required that the municipality appoint plaintiff to the plumbing subcode official position, we have considered the source statute, the circumstances leading to its amendment and the changes made in its wording in order to shed appropriate light on the legislative intent. State v. Jersey Central Power & Light, 133 N.J.Super. 375, 387, 336 A.2d 750 (App.Div.1975) rev'd on other grounds 69 N.J. 102, 351 A.2d 337 (1976). We have also considered the sponsor's introductory statement, which is part of the legislative history. Deaney v. Linen Thread Co., 19 N.J. 578, 118 A.2d 28 (1955). Likewise, statements of legislative committees and of persons directly involved in the legislative process are also relevant legislative history. See N. J. Pharmaceutical Ass'n v. Furman, 33 N.J. 121, 130, 162 A.2d 839 (1960); Data Access Systems, Inc. v. State, 63 N.J. 158, 165, 305 A.2d 427 (1973), and In re Lambert Estate, 63 N.J. 448, 452-453, 308 A.2d 11 (1973). See, also, 2A Sutherland, Statutory Construction (4 ed. 1973), at 203-204. Messages of the executive relative to the statute are also appropriate for consideration. Loveladies Property Owners Ass'n, Inc. v. Raab, 137 N.J.Super. 179, 184, 348 A.2d 540 (App.Div.1975).

The act was broad, remedial legislation "to establish and provide for uniform building and construction standards and uniform enforcement policies and practices throughout the entire State." N. J. State Plumbing Inspectors Ass'n v. Sheehan, 163 N.J.Super. 398, 401, 394 A.2d 1244 (App.Div.1978). The sponsor's statement ¹ to that act, as well as the Assembly Commerce, Industry and Professions Committee statement, are to the same effect as the expressions of legislative purposes and findings embodied in N.J.S.A. 52:27D-120 and N.J.S.A. 52:27D-122. An October 7 1975 statement issued by the Governor in connection with his signing of the act said in pertinent part:

... The bill...