Gerald v. Louisiana State Senate

408 So. 2d 426
Louisiana Court of Appeal·Decided December 22, 1981·No. 14740·Published·Cited by 7 cases

Opinion

408 So.2d 426 (1981)

Gaston GERALD
v.
The LOUISIANA STATE SENATE; Michael O'Keefe, President of the Senate, et al.

No. 14740.

Court of Appeal of Louisiana, First Circuit.

December 22, 1981.

*427 Bryan E. Bush, Jr., Baton Rouge, for plaintiff-appellant Gaston Gerald.

William J. Guste, Jr., Atty. Gen., Kenneth C. Dejean, Asst. Atty. Gen., Baton Rouge, for defendants-appellees State of La., Hon. David C. Treen, Governor, and State of La., Hon. James "Jim" Brown, Secretary of State.

Camille F. Gravel, Jr., and Anna E. Dow, Baton Rouge, for defendant-appellee The La. State Senate and Michael H. O'Keefe.

Before CHIASSON, EDWARDS and LEAR, JJ.

LEAR, Judge.

Plaintiff, Gaston Gerald, was a Louisiana state senator representing the Fourteenth Senatorial District. On January 3, 1979, plaintiff was indicted by a federal grand jury for violations of federal laws, including the Hobbs Act (18 U.S.C. § 1951). Plaintiff was later convicted of attempted extortion under the federal Hobbs Act and on August 21, 1979, plaintiff was sentenced to serve five years at the Federal Correctional Institute, Fort Worth, Texas, and to pay a fine of $10,000.00. Following his conviction and pending his appeal, plaintiff was reelected to the state senate in December, 1979, for a new term of office beginning in 1980. He later took the oath of office and was seated in the senate. On October 21, 1980, plaintiff's conviction was upheld by the United States Fifth Circuit Court of Appeal and his application for a writ of certiorari was denied by the U.S. Supreme Court on February 23, 1981. Due to his imprisonment, plaintiff was unable to take his seat in the state senate when the 1981 regular session began on April 20, 1981.

The Louisiana State Senate then began disciplinary proceedings and, on April 28, 1981, Resolution Number 6 was passed to provide rules and procedures for any disciplinary or expulsion procedure against any member of the senate. That resolution also created the Select Committee on Discipline and Expulsion. On April 27, 1981, three resolutions were presented in the senate, calling for the expulsion of plaintiff. At that time, a meeting of the select committee was called for May 28, 1981, and on April 29, 1981, these documents and notice of the May 28th hearing were served on plaintiff in Fort Worth, Texas.

The select committee, which was made up of the senate as a whole, met on May 28, 1981. At that time, the senate voted to *428 defer action on two of the three resolutions and the select committee reported Resolution Number 12 out of committee without action. The senate itself then reconvened to act upon the resolution, and thereafter voted to approve Resolution Number 12 and expel plaintiff by a vote of 33-3, which was more than the two-thirds vote required for passage. The senate then notified the governor that plaintiff had been expelled from the senate and that a vacancy therefore existed.

On May 29, 1981, plaintiff filed suit seeking a judgment declaring that his expulsion from the Louisiana State Senate was null and void and ordering his reinstatement. Plaintiff further sought a temporary restraining order and an injunction prohibiting the president of the senate from sending notice to the governor and further enjoining the governor from ordering a special election. The district court did not issue a temporary restraining order, but set a hearing for June 3, 1981. The governor was notified of the expulsion and vacancy and on June 2, 1981, a proclamation was issued by the governor calling for a special election to replace plaintiff.

In response to plaintiff's suit, a peremptory exception of lack of jurisdiction ratione materi and an exception of no cause or right of action was filed on behalf of the defendants, the Louisiana State Senate and Michael H. O'Keefe, President of the Senate. A peremptory exception of no cause or right of action was also filed by defendants, State of Louisiana, and James H. "Jim" Brown, Secretary of State. By stipulation, the parties agreed to submit evidence on the declaratory judgment aspect of the suit and that all issues defined by the pleadings, including the exceptions, should be adjudicated by the court.

On June 15, 1981, the trial court rendered judgment dismissing plaintiff's suit, and a formal judgment to this effect was signed by the trial court on June 19, 1981. Plaintiff then perfected this appeal.

On appeal, plaintiff contends that he was denied due process in the expulsion proceeding, and that, based on this denial of due process, the trial court erred in affirming his expulsion from the Louisiana State Senate. Plaintiff further contends that the trial court erred in failing to hold that the senate was estopped from expelling him based on his lack of qualifications, because the senate had previously judged his qualifications to serve and had seated him on March 18, 1980. As the trial court stated, because of the reasons hereinafter expressed, plaintiff's estoppel argument is not relevant and will not be discussed.

In forming its written reasons for judgment, the trial court did extensive research and cited considerable authority in support of its judgment. In its lengthy and well-reasoned opinion, which we adopt in part, the trial court held as follows:

"Two constitutional articles are germane and controlling in this case. Article III, Section 7(A) of the Louisiana Constitution of 1974 provides:

"`Each house shall be the judge of the qualifications and elections of its members; shall determine its rules of procedure, not inconsistent with the provisions of this constitution; may punish its members for disorderly conduct or contempt; and may expel a member with concurrence of two-thirds of its elected members. Expulsion creates a vacancy in the office.'

"This article grants to the Legislature the exclusive authority to decide the qualifications and removal of its members. Article II of the Louisiana Constitution of 1974 declares:

"1. The powers of government of the state are divided into three separate branches: Legislative, executive, and judicial.
"2. Except as otherwise provided by this constitution, no one of these branches, nor any person holding office in one of them, shall exercise power belonging to either of the others.

"The latter article preserves the separation of powers that exist between the three branches of the government. Therefore, the judicial branch should exercise extreme *429 restraint in exercising its power with reference to the internal affairs of the legislative body, particularly with reference to its make-up and discipline of its membership.

"In Lee v. Lancaster, 262 So.2d 124, (La. App. 4th Cir. 1972), the court held that where the constitutional article providing that each House shall be the judge of the qualifications of its own members is applicable, as in the case of general election contest, the courts have no jurisdiction. The overwhelming weight of opinion as expressed by not only the courts of this State, but the opinion of the courts of our sister states is that the discipline and removal of a legislator is within the sole province of the body in which he serves as a member. French v. Senate of State of California, [146 Cal. 604,] 80 Pac. 1031 (1905); State ex rel. Rigby v. Junkin, [146 Fla. 347,] 1 So.2d 177 (1941) and English v. Bryant, 152 So.2d 167 (Fla.1963); Raney v. Stovall,

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