Nesbit v. People

19 Colo. 441
Supreme Court of Colorado·Decided January 15, 1894·Published·Cited by 43 cases

Opinions

Mr. Justice Elliott

delivered the opinion of the court.

At the outset of this case we are confronted with a question of the utmost importance — a question involving the validity of certain amendments to the- constitution as proposed by the general assembly in 1888. The title of the act proposing the amendments, as finally passed, was as follows:

“ An Act to Submit to the Qualified Electors of the State of Colorado Amendments to Sections Six (6), Nineteen (19), and [446] Twenty-two (22) of Article Five (5) of the Constitution of the State of Colorado, concerning Legislative Department.” Session Laws 1883, p. 21.

The amendments thus proposed provided in effect:

1. That “ no session of the general assembly shall exceed ninety days;” the original limit, after the first session, was forty days.

2. That “ no bill, except the general appropriation bill for the expenses of the government only, introduced in either house of the general assembly after the first thirty days of the session, shall become a law; ” the original limit was twenty-five days.

3. That “ Every bill shall be read by title when introduced, and at length on two different days in each house; ” the original section provided that, “Every bill shall be read at length on three different days in each house.” For original §§ 6, 19 and 22, art. 5, see Gen. Stats. (1883), pp. 41-43; for amended sections, see Mills An. Stats. (1891), pp. 221-233.

The act under which defendant in this case was informed against and convicted was not passed by the general assembly until more than forty days after the commencement of the legislative session of 1891. See. Session Laws 1891, pp. 240, 242.

In In re Dolph, 17 Colo. 35, it was held that the act of 1891, supra, providing for criminal prosecutions by information based upon preliminary examination and commitment, as provided by section 8 of the act, was free from the constitutional objections then urged. See, also, Jordan v. The People, decided at this sitting of the court. (Ante 417.) But the objections now urged against the information act have never before been raised in this court; they strike deeper than the objections made in the Dolph case, or in the Jordan case; they deny the power of the general assembly to pass any act after the expiration of the first forty days of any legislative session, the ground of objection being that the constitutional amendments proposed in 1883, as above stated, were not pro[447] posed as provided by the constitution, and that they are, therefore, null and void. The specific objections to the proposed amendments are thus stated by counsel:

“ 1. The bill submitting the amendments violates sec. 21 of art. V in that it contains more than one subject.
“2. It also violates sec. 17 of art. Y in this, that during its passage through the house it was so altered and amended as to change its original purpose.
“ 3. During the passage of the bill it was amended materially, and the amendments were not printed as required by (original) sec. 22 of art. V.
“ 4. The bill fails to comply with the mandate in sec. 2 of art. XIX, requiring its entry in full on the journal of both houses.
“ 5. Sec. 22 is invalid for the additional reason that it is not expressed in the title actually adopted.
“ Const., art. Y, sec. 21.”

As corollaries to the foregoing propositions, counsel states specific objections to the information act of 1891 as follows:

“ 1. The bill was introduced later in the session than permitted by (original) sec. 19 of art. V.
“ 2. The bill was not read at length on three different days in each house, as required in (original) section 22 of article V.
“ 3. All the proceedings in the passage of the bill, except the reading of the bill by title on its introduction, were had after the session had expired by lapse of time, under (original) sec. 6 of art. Y.”

Most of the foregoing objections are easily disposed of. The power of the general assembly to propose amendments to the constitution is not subject to the provisions of article 5 regulating the introduction and passage of ordinary legislative enactments. A proposed amendment to the constitution need not be restricted, like an ordinary legislative bill, to a single subject; the only restriction is, that “ amendments shall not be proposed to more than one article of this constitution at the same session.” Const., art. 19, sec. 2. It [448] is not essential that the subject of a proposed amendment shall be expressed in its title; a proposed amendment need not have any title except as it designates the article of the constitution to be amended. In changing a proposed amendment to the constitution during its passage through either house, it is not necessary that such change should be printed, nor that the original purpose of the proposed amendment should be strictly adhered to. Koehler v. Hill, 60 Iowa, 543.

Section 2 of article 19 prescribes the method of proposing amendments to the constitution, and no other rule is prescribed. It is not, therefore, by the “ legislative ” article, but by the article entitled “ amendments,” that the legality of the action of the general assembly in proposing amendments to the constitution is to be tested. Article 19 is sui generis ; it provides for revising, altering and amending the fundamental law of the state, and is irot in pari materia with those provisions of article'5 prescribing the method of enacting ordinary statutory laws. The distinction is obvious. When an ordinary legislative bill, free from constitutional objection, is introduced and passed by both houses of the general assembly, as provided by article 5, it becomes, when approved by the governor (or without his approval when passed by a two-thirds vote of both houses), a valid and binding law; thus, an act of ordinary legislation is fully and finally consummated, and thus a statutory law is brought into existence, by virtue of the power vested in the legislative department of the government.

But in proposing an amendment to the constitution, the action of the general assembly is initiatory, not final; a change in the fundamental law cannot be fully and finally consummated by legislative power. Before a proposed amendment can become a part of the constitution, it must receive the approval of a majority of the qualified electors of the state voting' thereon at the proper general election. When thus approved it becomes valid as part of the constitution by virtue of the sovereign power of the people constitutionally expressed.

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