State Ex Inf. McCulloch v. Edwards

337 S.W.3d 118, 2011 Mo. App. LEXIS 192, 2011 WL 601280
CourtMissouri Court of Appeals
DecidedFebruary 22, 2011
DocketED 94409
StatusPublished
Cited by6 cases

This text of 337 S.W.3d 118 (State Ex Inf. McCulloch v. Edwards) is published on Counsel Stack Legal Research, covering Missouri Court of Appeals primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
State Ex Inf. McCulloch v. Edwards, 337 S.W.3d 118, 2011 Mo. App. LEXIS 192, 2011 WL 601280 (Mo. Ct. App. 2011).

Opinion

OPINION

GLENN A. NORTON, Presiding Judge.

Robert Edwards appeals the trial court’s judgment in quo warranto removing him from the Board of Directors of the Northeast Ambulance and Fire Protection District (the “Board”). We affirm.

I. BACKGROUND

The Northeast Ambulance and Fire Protection District is governed by a board of three directors. In October 2009, the Board consisted solely of two members, Robert Edwards and Rhea Willis, with the third Board position being vacant. On October 6, 2009, Edwards called a meeting of the Board. Willis was absent from the meeting. With no other Board members present, Edwards proceeded to call and vote on various motions. Edwards also, without providing any reason, went into a closed session with two attorneys, the Board secretary and two other persons. After the closed session, Edwards moved to re-open the session and the meeting was adjourned.

A second meeting was held on October 13, 2009. Both Edwards and Willis were present at the meeting but Willis made no motions, did not second any motions and did not vote on any motions. Throughout the meeting, Edwards made several motions. Edwards seconded his own motions and voted affirmatively to approve the minutes of the October 6 meeting and approve the payment of the district’s bills. Thereafter, Edwards moved to go into a closed session. Edwards seconded his own motion and cast the sole vote in favor of closing the meeting. Willis did not go into the closed session, but left the meeting. Following the closed session, the meeting was adjourned.

A third meeting was held on October 20, 2009. Again, both Edwards and Willis were present. Edwards made a motion to approve the minutes of the October 13 meeting and to pay unbudgeted bills. Willis did not second the motions; nevertheless both motions were “approved” by Edwards. After going into yet another closed session, Edwards re-opened the meeting and adjourned without a motion or vote.

Robert McCulloch, prosecuting attorney of St. Louis County, filed a petition in quo warranto seeking Edwards’ removal from the Board. Based on the evidence, the trial court found Edwards willfully usurped and executed the duties of the office of a Board member. The court also found Edwards exceeded his authority and intentionally and flagrantly abused his power by unilaterally exercising the powers of the full Board. In its judgment in quo warranto, the trial court found that Edwards’ intentional abuses of power constituted misconduct, and therefore in committing such acts Edwards forfeited his office. Having found Edwards forfeited his office, the court, pursuant to section 531.010 RSMo 2000 1 issued the judgment in quo warranto ousting him from office. Edwards appeals.

II. DISCUSSION

Edwards asserts three points on appeal challenging the trial court’s judgment removing him from his position on the Board on the grounds that he had forfeited his public office by committing misconduct in unilaterally voting and transacting Board business.

*121 A. Standard of Review

On appeal from a judgment in a court-tried case, we will sustain the judgment unless there is no substantial evidence to support it, it is against the weight of the evidence, it erroneously declares the law or it erroneously applies the 'law. Murphy v. Carron, 586 S.W.2d 30, 32 (Mo. banc 1976). We will only set aside the judgment upon a firm belief that the judgment is wrong. Id. We view the evidence, along with all reasonable inferences therefrom, in the light most favorable to the trial court’s judgment, and all contrary evidence and inferences will be disregarded. State ex inf. Nixon v. Russell, 45 S.W.3d 487, 493 (Mo.App. W.D.2001). Moreover, we defer to the trial, court’s determinations regarding the- credibility of witnesses. Id.

B. Immunity

In his first point relied on, Edwards claims the trial court erred in declaring he forfeited his public office and in removing him from his position on the Board because his actions are protected by official and legislative immunity. We disagree.

Official immunity is a. common law doctrine that shields public officials from “liability for alleged acts of negligence committed during the course of their official duties for the performance of discretionary acts.” Southers v. City of Farmington, 263 S.W.3d 603, 610 (Mo. banc 2008). The case at bar is not a suit in tort for damages for an act of negligence. Instead this case stems from a petition in quo warranto. Quo warranto is an action at law to protect the public against usurpation of power. State ex inf. Dalton v. Mosley, 365 Mo. 711, 286 S.W.2d 721, 730 (1956). A petition in quo warran-to is not directed against an individual, but rather challenges an individual’s right to hold a particular public office. Id.

Moreover, official immunity is only available to a public official when he exercises legitimate authority in a discretionary manner. Southers, 263 S.W.3d at 610. The trial court here found Edwards was not exercising his legitimate authority, but instead exercised authority that he did not lawfully possess. Acts which exceed a public official’s legitimate authority are not discretionary and are not protected by official immunity. Id.

With respect to Edwards’ claim of legislative immunity, he fails to provide any legal authority for applying legislative immunity to a suit in quo war-ranto. Furthermore, legislative immunity is available only where a legislator exercised his legislative functions in a legitimate manner. Bogan v. Scott-Harris, 523 U.S. 44, 54, 118 S.Ct. 966, 140 L.Ed.2d 79 (1998). Based upon the evidence presented at trial, the trial court found that that Edwards “willfully and wrongfully usurped and executed [his] duties” as a Board member. Edwards exercised his legislative functions in an illegitimate manner by unilaterally exercising the powers of the full Board without a quorum and majority vote. Accordingly, Edwards may not rely on the doctrine of legislative immunity. Point one is denied.

C.Forfeiture

In his second point relied on, Edwards claims the trial court erred in finding he forfeited his public office and in removing him from his position on the Board because the finding of forfeiture was not supported by the evidence. Edwards ■ further argues that because there were no substantive grounds for forfeiture the trial court was without jurisdiction to entertain a proceeding in the nature of quo warranto.

*122 A public official may be removed from office pursuant to a statutorily prescribed method or via the common law doctrine of quo warranto. Mosley, 286 S.W.2d at 730.

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337 S.W.3d 118, 2011 Mo. App. LEXIS 192, 2011 WL 601280, Counsel Stack Legal Research, https://law.counselstack.com/opinion/state-ex-inf-mcculloch-v-edwards-moctapp-2011.