Commonwealth ex rel. Specter v. Martin

232 A.2d 729, 426 Pa. 102, 1967 Pa. LEXIS 436
CourtSupreme Court of Pennsylvania
DecidedJuly 3, 1967
DocketAppeal, No. 339
StatusPublished
Cited by59 cases

This text of 232 A.2d 729 (Commonwealth ex rel. Specter v. Martin) is published on Counsel Stack Legal Research, covering Supreme Court of Pennsylvania primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Commonwealth ex rel. Specter v. Martin, 232 A.2d 729, 426 Pa. 102, 1967 Pa. LEXIS 436 (Pa. 1967).

Opinions

Opinion by

Mr. Justice Jones,

The basic issue which this appeal presents, important in its consequence, is narrow in its scope: do the provisions of Article X, §10-107(5)1 of the Philadel[106]*106phia Home Rule Charter2 require that the District Attorney of Philadelphia, by reason of his candidacy for election as Mayor, resign?

A brief recital of the factual background of this appeal is essential. Arlen Specter was elected District Attorney of Philadelphia for a four year term, beginning the first Monday of January, 1966 and ending the first Monday of January, 1970.3 While the incumbent district attorney and performing the duties and functions of that office, Specter, on March 7, 1967, became a candidate for the office of Mayor in an election to be held on November 7, 1967. Specter did not and has not resigned from the office of district attorney.

On March 11, 1967, the City Solicitor of Philadelphia wrote a letter to Edward J. Martin, Finance Director of the City, advising Martin that, when Specter became a candidate for Mayor, he was required under Article X, §10-107(5), of the charter to resign as district attorney and that “[Specter] remains in office [107]*107illegally and [Martin] should not process any pay to [Specter] for any period subsequent to March 7, 1967.” Martin complied with this directive of the city solicitor.

On March 23, 1967, Specter instituted an action of mandamus against Martin in the Court of Common Pleas No. 3 of Philadelphia County. Martin filed an answer to Specter’s mandamus complaint and a motion for judgment on the pleadings.4 After legal argument, Judge Charles A. Waters held that Specter was entitled to exercise the duties of district attorney, directed Martin to pay Specter forthwith his salary and denied Martin’s motion for judgment on the pleadings. Prom that judgment Martin has appealed.

Briefly, stated, Martin contends: (1) a district attorney under Article XIV, §1, of the Constitution of Pennsylvania was classified as a “county officer”; (2) under Article XIV §8(1) of the Constitution all “county offices” in Philadelphia were abolished and, under Article XIV, §8(7), all “county officers” became “officers of the city of Philadelphia”; (3) the district attorney is now an “officer of the City” and, as such, is subject to all the provisions of the charter, and, therefore, as a candidate for another public office, Specter cannot continue to occupy the office and perform the duties of district attorney since he was required to resign under Article X, §10-107(5) of the charter.

At the outset of our determination of this appeal we must decide the propriety of a mandamus action to determine this issue.5 Mandamus lies to compel the performance of a ministerial as opposed to a discre[108]*108tionary duty. “The primary requisites of the action are that the plaintiff has a legal right to enforce which is specific, well defined and complete; that a corresponding positive duty rests upon the defendant; and that no other adequate, specific or appropriate remedy exists.”: Francis v. Corleto, 204 Pa. Superior Ct. 280, 283, 203 A. 2d 520 (1964); Garratt v. Philadelphia, 387 Pa. 442, 448, 127 A. 2d 738 (1956).

This action of mandamus is by Specter who claims that, by reason of his office as the duly elected district attorney, he is entitled to receive the salary and compensation attached to such office.6 The action is against Martin who, as Finance Director of Philadelphia, has the duty and authority to approve the payment of money out of the city treasury. (Charter, Article VI, §§6-100, 6-106). The defense interposed is that, by reason of his violation of Article X, §10-107(5), Specter has forfeited his right to the office (Article X, §10-109) and the right to the compensation attached to said office.

While the right to retain the office of district attorney underlies this litigation, quo warranto, normally the action to try title to public office,7 would be unavailable under the peculiar factual circumstances presently involved. Quo warranto can be instituted to determine the title to public office only by the Attorney General, the District Attorney or a private individual who has a special interest as distinguished from the interest of the public generally: Mayer v. Hemphill, 411 Pa. 1, 6, 190 A. 2d 444 (1963) and cases [109]*109therein cited. Obviously, no individual has a special, as distinguished from the public, interest in this controversy. The Attorney General, in writing, prior to any litigation, had given an opinion to Specter regarding his status and thus had committed himself and Specter, as district attorney, would literally have had to sue himself. Under such unusual and extraordinary circumstances, quo warranto could not be resorted to in order to determine this matter. Moreover, in Mayer v. Hemphill, supra, the majority of this Court refused to pass upon the propriety of an action in equity to determine the existence of a violation of Article X, §10-107(5) of the charter although, because of what it termed “extraordinary circumstances”, it did determine the merits of the litigation.

The employment of mandamus as a remedy in this type of situation has received sanction. When we examine the position of Martin the availability of mandamus becomes evident. Martin is under a duty to approve the payment of compensation to the district attorney, such duty being a ministerial duty. However, under the legal advice given Martin upon which he acted, Martin takes the position he does not have to perform his ministerial duty because, under a legal interpretation of the charter, Specter has forfeited his right to the office. In Meadville Area School District v. Dept. of Public Instruction, 398 Pa. 496, 501, 159 A. 2d 482 (1960), this Court recently said: “When public officials act in an improper manner because of an erroneous interpretation of the law under which they are functioning . . . mandamus will issue.” See also: Garratt v. Philadelphia, 387 Pa. 442, 448, 127 A. 2d 738 (1956). In Cain v. Stucker, 159 Pa. Superior Ct. 466, 48 A. 2d 162 (1946), it was held that, where in an action to recover unpaid salary, plaintiff was obliged to establish that a decedent held title to his position as a policeman until his death, mandamus was the ap[110]*110propriate action (pp. 469, 470). See also: Alberts v. Garofalo, 393 Pa. 212, 214, 142 A. 2d 280 (1958); Commonwealth ex rel. Shoemaker v. Thomas, 328 Pa. 19, 23, 24, 195 A. 103 (1937); Commonwealth ex rel. v. Woodward, 95 Pa. Superior Ct. 423 (1929); Francis v. Corleto, 204 Pa. Superior Ct. 280, 283, 287-288, 203 A. 2d 520 (1964).

Under the unusual circumstances herein existing, we conclude that mandamus furnishes an appropriate medium for the solution of the instant controversy.

Article XIV, §1, of our Constitution designates eo nomine as “county officers” twelve officers; within such designation district attorneys are included. By reason of such designation, a district attorney became a “constitutional officer”, i.e., the incumbent of an office expressly recognized in the Constitution: McGinley v. Scott, 401 Pa. 310, 323, 164 A. 2d 424 (1960); Dauphin County Grand Jury Investigation Proceedings (No. 3), 332 Pa. 358, 362, 363, 2 A. 2d 809 (1938).

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232 A.2d 729, 426 Pa. 102, 1967 Pa. LEXIS 436, Counsel Stack Legal Research, https://law.counselstack.com/opinion/commonwealth-ex-rel-specter-v-martin-pa-1967.