KAUGER, Vice Chief Justice:
The issue presented on certiorari is whether the trial court erred in granting summary judgment because the evidentiary materials do not eliminate certain implicit fact issues concerning the legality of the bond issue and the disbursement of the bond proceeds. We find that it did.
FACTS
This cause concerns ad
qui tam
action
filed pursuant to 62 O.S.1991 §§ 372 and 373
by the appellant, G.E. Hettel (Het-tel), a resident taxpayer of Grady County, Oklahoma, against the Chickasha Bank & Trust Company (Chickasha) and four other banks — Security National Bank
&
Trust of Duncan (Security), First National Bank & Trust of Holdenville (First National), Bank of Verden (Verden), and Cement Bank (Cement) (collectively, the participating banks)— which participated in loans originating from the Chickasha Bank; and against the Land-man Oil & Gas Company (Landman).
On July 6, 1981, the Board of County Commissioners of Grady County (Commissioners) authorized an election relating to the proposed issuance of general obligation limited tax bonds to provide $3,700,000.00 to secure and develop industry in Grady County, Oklahoma. An election was held on August 11, 1981, and the proposition was approved by the voters.
The next year, the Chickasha Bank began a lending relationship with Carl Greene, Jr. (Greene) and with the companies he owned and operated in Chickasha, Oklahoma — Carl-Built, Inc. (Carl-Built), Chickasha Trailer Parts, Inc., Chickasha Superior Coach, and Landman Oil & Gas, Inc. (Landman). Carl-Built manufactured steel products which were used as parts for school bus bodies and Landman engaged in oil and gas development. From the onset of his relationship with the Chickasha Bank and through Sep
tember of 1986, Greene and his companies incurred a large amount of debt to the bank through various loans and credit extensions (collectively, the Greene loans). These loans were cross-collateralized so that the bank owned interests in all of Greene’s business entities. By mid-1986, Chickasha Bank held over $2,800,000.00 in notes and guaranties from Greene and his companies.
In 1984, Greene submitted a proposal to the Grady County Industrial Authority (Authority) alleging that with the assistance of a $1,750,000.00 financing package, he could expand his steel manufacturing business to assemble school buses, thereby increasing employment in Grady County. In 1986, Greene approached the Authority about securing $4,000,000.00 in order to convert and expand his Carl-Built manufacturing plant to assemble school buses. On October 3, 1986, the Authority approved Greene’s proposed expansion, and it obtained a $1,000,000.00 commitment for supplemental financing from the Oklahoma Industrial Finance Authority. It also recommended to the Grady County Commissioners that they issue bonds for $3,500,000.00 to assist Carl-Built in its proposed expansion.
On October 22, 1986, the Commissioners resolved to issue $3,500,000.00 of the $3,700,-000.00 in general obligation bonds which had been approved in 1981. The Attorney General of the State of Oklahoma endorsed the bonds on November 26, 1986.
Carl-Built executed a promissory note on December 1, 1986, to Grady County for $3,500,000.00 secured by a first mortgage and security interest on all Carl-Built property. The bonds were sold, after public notice, and delivered to the sole bidder, Chickasha Bank in December of 1986.
The participating banks had acquired portions of the Greene loans from the Chic-kasha Bank through loan participation agreements throughout Greene’s relationship with Chickasha Bank.
Hettel insists that by mid-1985, Greene’s financial ability to pay his loans to the banks was clearly in jeopardy, and that it was about this time when Lindell Pettigrew, who was the president of both the Chickasha and Cement Banks and the Chairman of the Grady County Industrial Authority, convinced the Grady County Commissioners to issue the $3,500⅛000.00 bond in favor of Carl-Built. From as early as 1983, until the bond issue was approved by the commissioners, the Cement, Yerden, Holden-ville and Security banks had occasionally acquired portions of the Chickasha Bank’s loans to Greene and his companies. By the time the bond issue was approved, the Ver-den and Cement Banks were participating in almost $300,000.00 of a nearly $900,000.00 note which was made by Carl-Built and which was due in January of 1987. After the bond issue, Holdenville and Security Banks acquired portions of that loan and Security bank participated in other Greene loans as well. On January 6,1987, the Grady County Treasurer disbursed $2,800,000.00 of the bond proceeds to the Chickasha Bank and the participating banks in amounts corresponding to their respective participation in the Greene loans.
Carl-Built defaulted on its 1986 note to Grady County. The New Bus Company, a Delaware partnership bought Carl-Built in 1988, and assumed its obligations, including those under the 1986 note. It also defaulted, and the County was faced with the possibility of levying additional property taxes on its residents to cover the principal and interest on the bonds. In June of 1989, the Commissioners and the Chickasha Bank commenced a foreclosure suit against Greene and his companies. Shortly after the foreclosure suit, Carl-Built merged with Landman.
On December 29, 1989, Hettel filed a
qui tam
action pursuant to 62 O.S.1991 §§ 872 and 373,
against the Chickasha Bank & Trust, the four participating banks, the Landman Oil & Gas Company, the New Bus Company, the Grady County Commissioners and the Grady County Treasurer in an attempt to recover the County’s money from the banks.
He alleged that: 1) Grady County was improperly primarily hable to the banks because the proceeds from the 1986 bond issues were fraudulently and unlawfully used to retire private antecedent debt owed to the lead and participating banks;
2) Landman Oil, as a successor to Carl-Built, benefitted from the unlawful bond issue by using money from the Greene loans and the bond proceeds to engage in oil and gas development; and 3) the participating banks had full knowledge of the fraudulent and unlawful purpose of the bond issue because they were aware that a vast majority of the debt retired by it was an antecedent debt rather than a debt relating to the expansion of its bus manufacturing operation.
Hettel sought to rescind the bond issue and the banks moved for summary judgment, arguing that pursuant to 62 O.S.1991 § 13, the bond’s validity was no longer contestable.
On December 4, 1990, this Court in
Chickasha Bank & Trust Company v. Winchester,
No. 76,306, assumed original jurisdiction and issued a writ prohibiting the trial court from proceeding on claims relating to the validity of the bond.
On April 30,1991, in
State of Oklahoma,
ex rel.
G.E. Hettel v.
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KAUGER, Vice Chief Justice:
The issue presented on certiorari is whether the trial court erred in granting summary judgment because the evidentiary materials do not eliminate certain implicit fact issues concerning the legality of the bond issue and the disbursement of the bond proceeds. We find that it did.
FACTS
This cause concerns ad
qui tam
action
filed pursuant to 62 O.S.1991 §§ 372 and 373
by the appellant, G.E. Hettel (Het-tel), a resident taxpayer of Grady County, Oklahoma, against the Chickasha Bank & Trust Company (Chickasha) and four other banks — Security National Bank
&
Trust of Duncan (Security), First National Bank & Trust of Holdenville (First National), Bank of Verden (Verden), and Cement Bank (Cement) (collectively, the participating banks)— which participated in loans originating from the Chickasha Bank; and against the Land-man Oil & Gas Company (Landman).
On July 6, 1981, the Board of County Commissioners of Grady County (Commissioners) authorized an election relating to the proposed issuance of general obligation limited tax bonds to provide $3,700,000.00 to secure and develop industry in Grady County, Oklahoma. An election was held on August 11, 1981, and the proposition was approved by the voters.
The next year, the Chickasha Bank began a lending relationship with Carl Greene, Jr. (Greene) and with the companies he owned and operated in Chickasha, Oklahoma — Carl-Built, Inc. (Carl-Built), Chickasha Trailer Parts, Inc., Chickasha Superior Coach, and Landman Oil & Gas, Inc. (Landman). Carl-Built manufactured steel products which were used as parts for school bus bodies and Landman engaged in oil and gas development. From the onset of his relationship with the Chickasha Bank and through Sep
tember of 1986, Greene and his companies incurred a large amount of debt to the bank through various loans and credit extensions (collectively, the Greene loans). These loans were cross-collateralized so that the bank owned interests in all of Greene’s business entities. By mid-1986, Chickasha Bank held over $2,800,000.00 in notes and guaranties from Greene and his companies.
In 1984, Greene submitted a proposal to the Grady County Industrial Authority (Authority) alleging that with the assistance of a $1,750,000.00 financing package, he could expand his steel manufacturing business to assemble school buses, thereby increasing employment in Grady County. In 1986, Greene approached the Authority about securing $4,000,000.00 in order to convert and expand his Carl-Built manufacturing plant to assemble school buses. On October 3, 1986, the Authority approved Greene’s proposed expansion, and it obtained a $1,000,000.00 commitment for supplemental financing from the Oklahoma Industrial Finance Authority. It also recommended to the Grady County Commissioners that they issue bonds for $3,500,000.00 to assist Carl-Built in its proposed expansion.
On October 22, 1986, the Commissioners resolved to issue $3,500,000.00 of the $3,700,-000.00 in general obligation bonds which had been approved in 1981. The Attorney General of the State of Oklahoma endorsed the bonds on November 26, 1986.
Carl-Built executed a promissory note on December 1, 1986, to Grady County for $3,500,000.00 secured by a first mortgage and security interest on all Carl-Built property. The bonds were sold, after public notice, and delivered to the sole bidder, Chickasha Bank in December of 1986.
The participating banks had acquired portions of the Greene loans from the Chic-kasha Bank through loan participation agreements throughout Greene’s relationship with Chickasha Bank.
Hettel insists that by mid-1985, Greene’s financial ability to pay his loans to the banks was clearly in jeopardy, and that it was about this time when Lindell Pettigrew, who was the president of both the Chickasha and Cement Banks and the Chairman of the Grady County Industrial Authority, convinced the Grady County Commissioners to issue the $3,500⅛000.00 bond in favor of Carl-Built. From as early as 1983, until the bond issue was approved by the commissioners, the Cement, Yerden, Holden-ville and Security banks had occasionally acquired portions of the Chickasha Bank’s loans to Greene and his companies. By the time the bond issue was approved, the Ver-den and Cement Banks were participating in almost $300,000.00 of a nearly $900,000.00 note which was made by Carl-Built and which was due in January of 1987. After the bond issue, Holdenville and Security Banks acquired portions of that loan and Security bank participated in other Greene loans as well. On January 6,1987, the Grady County Treasurer disbursed $2,800,000.00 of the bond proceeds to the Chickasha Bank and the participating banks in amounts corresponding to their respective participation in the Greene loans.
Carl-Built defaulted on its 1986 note to Grady County. The New Bus Company, a Delaware partnership bought Carl-Built in 1988, and assumed its obligations, including those under the 1986 note. It also defaulted, and the County was faced with the possibility of levying additional property taxes on its residents to cover the principal and interest on the bonds. In June of 1989, the Commissioners and the Chickasha Bank commenced a foreclosure suit against Greene and his companies. Shortly after the foreclosure suit, Carl-Built merged with Landman.
On December 29, 1989, Hettel filed a
qui tam
action pursuant to 62 O.S.1991 §§ 872 and 373,
against the Chickasha Bank & Trust, the four participating banks, the Landman Oil & Gas Company, the New Bus Company, the Grady County Commissioners and the Grady County Treasurer in an attempt to recover the County’s money from the banks.
He alleged that: 1) Grady County was improperly primarily hable to the banks because the proceeds from the 1986 bond issues were fraudulently and unlawfully used to retire private antecedent debt owed to the lead and participating banks;
2) Landman Oil, as a successor to Carl-Built, benefitted from the unlawful bond issue by using money from the Greene loans and the bond proceeds to engage in oil and gas development; and 3) the participating banks had full knowledge of the fraudulent and unlawful purpose of the bond issue because they were aware that a vast majority of the debt retired by it was an antecedent debt rather than a debt relating to the expansion of its bus manufacturing operation.
Hettel sought to rescind the bond issue and the banks moved for summary judgment, arguing that pursuant to 62 O.S.1991 § 13, the bond’s validity was no longer contestable.
On December 4, 1990, this Court in
Chickasha Bank & Trust Company v. Winchester,
No. 76,306, assumed original jurisdiction and issued a writ prohibiting the trial court from proceeding on claims relating to the validity of the bond.
On April 30,1991, in
State of Oklahoma,
ex rel.
G.E. Hettel v. Winchester,
No. 77,129, we again assumed original jurisdiction and issued
an
order which recognized that the only relief precluded by our December 4, 1990, order was the challenge of the bond’s validity. The trial judge was allowed to proceed and adjudicate all other matters raised by the parties and their pleadings. The banks and Landman moved for summary judgment, and on June 28, 1993, the trial court, giving no basis for its ruling, denied Chickasha Bank’s motion for summary judgment, but granted summary judgment in favor of the four participating banks and Landman.
Subsequently, the trial court stayed Het-tel’s
qui tarn
action against the Chickasha Bank pending the appeal of its summary judgment order. The Court of Appeals in an unpublished opinion affirmed the trial court. It found that: 1) Hettel failed to present any evidence that any of the participating banks had any knowledge concerning the legality of the bond issue and the subsequent disbursement of its proceeds; and 2) because Hettel failed to plead a new claim for relief against Landman after our disposition of
Chickasha Bank & Trust Co. v. Winchester,
No. 76,306, Landman should not remain a party to the cause. We granted certiorari on January 29, 1996, to determine whether the trial court erred in granting summary judgment.
THE EVIDENTIARY MATERIALS DO NOT TOTALLY ELIMINATE CERTAIN IMPLICIT PACT ISSUES.
We note at the outset that this cause presents unusual circumstances because neither the Chickasha Bank, the bank which originated all of Greene’s loans, nor its president, Lindell Pettigrew are parties here. The trial court denied their motions for summary judgment, and they have not appealed the trial court’s order. Nor has their liability under 62 O.S.1991 §§ 372 and 373 been determined because the trial court stayed Het-tel’s claims against them pending the present appeal.
The gravamen of Hettel’s
qui tam
action is not that the stated purpose of the bond issue — securing and developing industry — was illegal. Rather, he claims that the proceeds of the bond were used to retire private, otherwise unrecoverable unrelated antecedent debt incurred by Greene and his affiliates; and that this use was contrary to the bond issue approved by the voters of Grady County to secure and develop industry.
a.
The Participating Banks
Hettel asserts that the trial court erred in granting summary judgment to the participating banks because material fact questions exist concerning whether each bank had knowledge that the bond proceeds would be used for a fraudulent and unlawful purpose.
The participating banks contend that there are no disputed fact issues existing which could support a finding which would establish
qui tam
liability for any allegedly fraudulent or unlawful bond issue.
Title 62 O.S.1991 §§ 372 and 373 provides the authority for
qui tam
liability.
Section 372 authorizes a triple penalty against state or municipal officers and “every person, having notice of the facts” who either makes a contract with the county or receives a benefit involving the improper payment of money or the improper transfer of property. Section 373 allows resident taxpayers to bring an action to recover the § 372 penalty, or to recover any money expended by the county if the appropriate officer fails or refuses to bring the action after demand by ten taxpayers. The taxpayer bringing the action is entitled under § 373 to one half of the amount recovered as a reward.
The
qui tam
statutes, like any penal statutes, are strictly construed.
In
Dowler v. State ex rel. Prunty,
179 Okla. 532, 66 P.2d 1081, 1083 (Okla.1937) this Court, in the thirteenth syllabus, stated that:
“In an action for the penalty imposed by section 5964, O.S.1931 (62 OM.St.Ann. § 372), against one not an officer of the municipality, the burden is on the plaintiff to show that the party receiving the money had notice that the contract under which it was paid, or the payment itself, was unlawful, fraudulent, or void.”
The contracts involved here are: 1) the agreement between the Authority and Carl-Built to issue the bonds; 2) the bond sale contract between Grady County and the Chickasha Bank; and 3) the 1986 note and related mortgage and security interest.
Pursuant to Rule 13, 12 O.S.1991, Ch. 2 App., Rules for the District Courts, a motion for summary judgment may be filed if the pleadings, depositions, interrogatories, affidavits and other exhibits reflect that there is no substantial controversy pertaining to any material fact.
Summary judgment is proper only when the pleadings, affidavits, depositions, admissions, or other evidentiary materials establish that there is no genuine issue as to any material fact, and that the moving party is entitled to a judgment as a matter of law.
All conclusions drawn from the evidentiary material submitted to the trial court are viewed in the light most favor
able to the party opposing the motion.
Summary judgments are' not favored and they should be granted only where it is perfectly clear that there are no issues of material fact.
Hettel presented evidentiary material which alleges that: 1) each of the participating banks had a history of participating in the Greene loans prior to the bond issue; 2) bank officers of Security bank were aware of the financial condition of Greene and his businesses prior to and at the time the bond money was loaned to Carl-Built; 3) Greene’s financial ability to pay the Chickasha Bank was questionable, and all of his businesses were cross-collateralized; 4) in addition to being the Chairman of the Grady County Industrial Authority and the president of the Chickasha Bank, Lindell Pettigrew was also the president of the Cement Bank;
5) each of the participation agreements negotiated by the participating banks provided that they would make an independent determination of the financial information and creditworthiness of Carl-Built; and 6) all the banks received proceeds from the bond issue which allegedly paid-off antecedent debt.
Considering the various circumstantial evidence Hettel presents and the intimate relationships between the banks, we cannot say that it is perfectly clear that these evidentiary materials totally eliminate fact issues concerning the participating banks’ access to knowledge of the lawfulness of the bond issue and whether the public was defrauded.
Accordingly, the trial court erred in granting summary judgment.
b.
Landman
Landman argues that summary judgment was proper because although Het-tel’s original petition sought to cancel and rescind the bonds and all related contract documents, after this Court’s order on December 4, 1990, he abandoned his claim for rescission. Hettel has neither asserted any subsequent claim for damages nor any other relief against Landman, and the pretrial conference order does not reflect that damages have been asserted against Landman. Het-tel also alleges that the trial court erred when it granted summary judgment in favor of Landman because he was not required to amend his pleadings in order to recover damages from Landman in pursuit of its
qui tarn
claim.
In Hettel’s third amended petition, he specifically abandoned any claims for contract recision.
However, in his response for summary judgment Hettel asserts that, although he no longer seeks contract rescission, the evidentiary material shows that Landman had knowledge of all the alleged illegal, unconstitutional, and fraudulent acts and that it received benefit from them.
Recently, in
Liberty Bank & Trust Co., v. Bachrach,
916 P.2d 1377 (Okla.1996),
we found that an answer, which failed to include the affirmative defense of failure to give timely notice of dishonor, should be amended when the parties’ had already litigated the issue.
We relied on
United States ex rel. Schumer v. Hughes Aircraft Co.,
63 F.3d 1512, 1524 (9th Cir.1995), which involved a plaintiff who had failed to raise certain claims in the complaint but who had raised the claims in the response to a motion for summary judgment, and said:
“ ‘[W]e consider them because when a party raises a claim in material filed in opposition to a motion for summary judgment, the district court should treat the filing as a request to amend the pleading....’”
The rules of pleading both at trial and at appellate levels have been liberalized to allow the court to focus its attention on the
substantive merits of a dispute rather than upon procedural niceties.
The legal effect of any court-filed paper, including a motion or pleading, is measured by its content rather than by the author provided title.
Here, Hettel, in his response to Landman’s motion for summary judgment asserted his
qui tam
claim against Landman.
The trial court should have treated this portion of Hettel’s response for summary judgment as a request to amend the pleadings.
Accordingly, the trial court erred in granting summary judgment in favor of Landman.
CONCLUSION
Summary judgment is proper only when the pleadings, affidavits, depositions, admissions, or other evidentiary materials establish that there is no genuine issue as to any material fact, and that the moving party is entitled to a judgment as a matter of law.
All conclusions drawn from the evidentiary material submitted to the trial court are viewed in the light most favorable to the party opposing the motion.
Because the evidentiary material does not totally eliminate certain implicit fact issues, the trial court erred in granting summary judgment in favor of the Banks. Although Hettel abandoned his claim for recision, he sought
qui tam
relief from Landman in his response to summary judgment.
The trial court should have treated this as a request to amend. Consequently, the trial court erred in granting summary judgment to Landman.
CERTIORARI PREVIOUSLY GRANTED; COURT OF APPEALS OPINION VACATED; TRIAL COURT REVERSED.
ALMA WILSON, C.J., LAVENDER and OPALA, JJ., and JOHNSON S.J., concur.
HARGRAVE, SUMMERS and WATT, JJ., concur in part, dissent in part.
SIMMS, J., dissents.
JOHNSON, S j., in lieu of HODGES, J., who disqualified.