Clark v. Mayor, Aldermen, and Common Council of Washington

25 U.S. 40, 6 L. Ed. 544, 12 Wheat. 40, 1827 U.S. LEXIS 379
CourtSupreme Court of the United States
DecidedFebruary 18, 1827
StatusPublished
Cited by80 cases

This text of 25 U.S. 40 (Clark v. Mayor, Aldermen, and Common Council of Washington) is published on Counsel Stack Legal Research, covering Supreme Court of the United States primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Clark v. Mayor, Aldermen, and Common Council of Washington, 25 U.S. 40, 6 L. Ed. 544, 12 Wheat. 40, 1827 U.S. LEXIS 379 (1827).

Opinion

Mr. Chief Justice Marshall-

delivered the opinion of the Court.

This cause depends on the liability of the corporation to gay the ticket on which the suit was instituted. In considering this question, that gart of the charter which contains a grant of power on the subject of lotteries, the ordinances of the corporate body in execution of the power, and the proceedings of its agents, must be reviewed.

The charter enacts, “ that the corporation shall have full power and authority” “ to authorize the drawing of lotteries, for effecting any important improvement in the city, which the ordinary funds or revenue thereof will not accomplish; provided, that the amount to be raised in each year shall not exceed the sum of 10,000 dollars. And provided also, that the object for which the money is intended to be raised, shall be first submitted to the President of the United States, and shall be approved of by him.”

Some doubt has been expressed whether this power is to exerc’seJ hy drawing the lottery, on account and at the risk of the corporation, or by selling the privilege to individuals, and authorizing them to draw it on their own account. This doubt is founded on the word “ authorize.” Congress, we are told, has not granted the power to draw lotteries. but to “authorize” their being drawn.

*53 We cannot admit the correctness of this, criticism. We do not admit the justice of that construction, which denies to the corporation the power of causing the lottery to be drawn on its own account. A corporation aggregate can legislate within its prescribed limits, but can carry its laws into execution only by its agents.' Any legislative act directing a lottery to be drawn, is literally an act “ to authorize the drawing of lotteries.”

The object for which the lottery may be authorized, is “any important improvement in the city.” Its produce is to come in aid of the ordinary funds or revenue thereof; and “ the amount to be raised in each year shall not exceed the sum of 10,000 dollars.” The language of the charter is not that the sum to be brought into the treasury the city shall not exceed the sum of 10,000 dollars, but that “ the amount to be raised shall not exceed that sum.” This-language, it is admitted, comprehends the net proceeds of the lottery, but it comprehends all those net proceeds, and does not allow a partition of profit, so as to retain 10,000 dollars for the' treasury, and reserve a residue for others. The single object, for which the lottery can be drawn, is “ any important improvement in the city,” not the emolument of individuals. , The motivg with Congress for this restriction on the amount is, not to limit the sum (to come into the city treasury, but to limit the extent of gaming, which the corporation may authorize. Congress must have perceived, that to bring 10,000 dollars into the treasury, dither “the amount raised must exceed that sum,” or the lottery must be drawn on account of the city ; for no man will purchase a lottery from which he can make nothing.

The counsel of the plaintiff in error have remarked, and the remark is certainly entitled to attention, that, in describing the power, Congress has used no words indicating the idea, that the corporation might grant or sell lotteries. “ To authorize the drawing of lotteries,” is, as has been said, an appropriate term for a corporate act, instituting a lottery for . the benefit of the city; but if the granting a lottery to others, or a sale of the privilege to others, had been id'the mind of Congress, it is to be presumed that some words would have been used, indicating the idea.

*54 There is great weight, too, in the argument, that it is a trust, and an important trust, confided to the corporation itself, for the purpose of “ effecting important improvements ’n the city,” and ought, therefore, to be executed undér the immediate authority and. inspection of the corporation. It is reasonable to suppose that Congress, when granting a power to authorize gaming, would feel some solicitude respecting the fairness with which the power should be u'sed; and would take as many precautions against its abuse, as was compatible with its beneficial exercise. Accordingly, we find a limitation on the amount to be raised, and on the object for which the lottery may be authorized. It is to be for “ any important improvement in the city, which the ordinary funds or revenue thereof will .not accomplishand is subjected to the judgment of the President of the. United States. The power thus cautiously granted, is deposited with the corporation itself, without an indication that it is assignable. It is tobe exercised, like other corporate powers, by the agents of the corporation, under its control. While it remains where Congress has placed it, the character of the corporation affords some security against its abuse; some security that no other mischief will result from it, than is inseparable from the thing itself But if the management, control, and responsibility, may be transferred to any adventurer who will purchase, a>i the security for fairness, which is furnished by character and responsibility, is lost.

We think, then, that the most obvious, if not the exclusive construction of the charter, is, that the lotteries to be authorized by the corporation, are to be drawn undér its superintendence and on its own account.

We will next advert to the measures which have been adopted for carrying this power into execution.

"Ten successive resolutions were passed, the first approved on the 23d of November, 1812, and the last on the 21st of May, 1821, each of them for raising the sum of 10,000 dollars, by lottery, for particular improvements mentioned in the resolution.

The ordinance of the 24th of July, 1815, which was passed for carrying the three first of these resolutions into effect, contemplates and authorizes lotteries to be drawn *55 entirely under the management, for the benefit, and on the responsibility of the corporation. Seven managers are appointed by the ordinance, and they, or a majority, are authorrized to employ agents, fill up vacancies in their own body, and to do every act which may'be necessary for carrying its provisions into effect.

The ordinance passed on the 17th of November, 1818, forcarrying the 4th, 5th, 6th and 7th resolutions into effect, authorizes the may or to appoint seven managers, whose duty it was to agree on a scheme, to sell the said lottery, or dispose of the tickets to the best advantage. A proviso is inserted, that, should the lottery be sold, the purchasers may make the scheme; but the ordinance enacts generally, (and the enactment makes no distinction between a sale of the lottery itself, and a disposition of the tickets,) that it shall be the duty of the managers to attend diligently to the drawing of the lottery, and to pay the fortunate adventurers for prizes drawn by them. The ordinance, however, adds the farther duty of paying over the balance, after deducting all necessary expenses, into the city treasury. From this it has been inferred, that these provisions are made for the contingency that the tickets should be disposed of for the benefit of the city, and are entirely inapplicable to the contingency of an entire sale.

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Bluebook (online)
25 U.S. 40, 6 L. Ed. 544, 12 Wheat. 40, 1827 U.S. LEXIS 379, Counsel Stack Legal Research, https://law.counselstack.com/opinion/clark-v-mayor-aldermen-and-common-council-of-washington-scotus-1827.