REL:02/27/2014

Notice: This opinion is subject to formal revision before publication in the a vance !outhern Reporter Reporter of %ecisions sheets of " Rea ers are re#ueste to notif$ the 'labama 'ppellate (ourts& )00 %e*ter 'venue& +ont,omer$& 'labama )-104.)741 //))40 221. 0-410& of an$ t$po,raphical or other errors& in or er that corrections ma$ be ma e before !outhern Reporter the opinion is printe in "

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!23RE+E (42RT 45 'L'6'+'

4(T46ER TER+& 201).2014 77777777777777777777 438N84N 45 T9E :2!T8(E! 77777777777777777777 No" );; 4pinion 8ssue 5ebruar$ 27& 2014 +embers of the !enate 'labama !tate 9ouse +ont,omer$& 'labama )-1)0 %ear !enators: 8 have receive !enate Resolution No" 44 & re#uestin, an

a visor$ opinion on <hether the amen ments to the 'labama (onstitution of 1101 propose b$ five senate bills <oul be constitutionall$ vali if passe b$ the le,islature an then sent to the voters for ratification pursuant to = 2;4 of the

4pinion of the :ustices No" );; 'labama (onstitution of 1101" !even :ustices have ecline to issue an a visor$ opinion on the #uestion re#ueste " The reference in !enate Resolution No" 44 to 6ell v" !tran,e& >+s" 1120-0)& !eptember 27& 201)? 777 !o" ) 777 /'la" 201)0& in icates that the !enate <ishes to @no< <hether the amen ments propose b$ the five senate bills ma$ be collectivel$ submitte to the voters b$ the amen ment proce ure of = 2;4& or <hether such a lar,e.scale simultaneous revision of the 'labama (onstitution ma$ be submitte to the voters onl$ throu,h the mechanism of a constitutional convention as provi e in = 2;- of the 'labama (onstitution of 1101"
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!ection 2;4 authoriAes the le,islature to submit Bpropose amen mentsB to the voters for ratification if three. fifths of the members electe to both the !enate an the 9ouse 3erhaps m$ collea,ues& a<are that ta*pa$ers have stan in, to challen,e unconstitutional e*pen itures& Cei,ler v" 6a@er& )44 !o" 2 7-1& 7-4 /'la" 11770& prefer to efer a ressin, the issue presente in !enate Resolution No" 44 until that issue is frame b$ briefin, in an a versarial settin," The$ mi,ht also have perceive the #uestion as lac@in, in sufficient specificit$" The (ourt affirme the trial courtDs ju ,ment in 6ell <ithout an opinion" :ustices 3ar@er an !ha< concurre speciall$& an 8 issente " 'll the <ritin,s iscusse the istinction bet<een = 2;4 an = 2;-" 2
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4pinion of the :ustices No" );; of Representatives approve them" !ection 2;- authoriAes the le,islature& b$ a majorit$ vote& to call an election on the #uestion of hol in, a constitutional convention" 8f the voters approve& the convention ma$ act Bfor the purpose of alterin,& revisin,& or amen in, the e*istin, (onstitution"B 8n m$ issent in 6ell v" !tran,e& 8 e*amine at len,th !tate v" +anle$& 441 !o" 2 ;-4 /'la" 11;)0& <hich hel that the le,islature ma$ not use = 2;4 to propose an entirel$ ne< constitution but must for that purpose use the constitutional. convention metho of = 2;-" 8 applie the ,ui ance an anal$sis of +anle$ to the #uestion presente in 6ell: <hether a re<ritin, of the entire constitution& b$ attachin, each article to a separate amen ment li@e cars in a train& <oul unconstitutionall$ circumvent the peopleDs prero,ative to control constitutional revision throu,h the = 2;)

constitutional.convention process" 8 conclu e in 6ell that this process is unconstitutional"

4n the #uestion <hether the results of a constitutional convention must be submitte to the people for ratification& see 4pinion of the :ustices No" 140& 2-) 'la" 141& ;1 !o" 2 -7; /11EE0F 'rt" GH888& = 2;-"01& 'la" (onst" 1101 /4ff" Recomp"0" )

4pinion of the :ustices No" );; The propose amen ments <oul repeal an re<rite 'rticle 888& %istribution of 3o<ers of IovernmentF 'rticle 8H& Le,islative %epartmentF 'rticle H& E*ecutive %epartmentF 'rticle H88& 8mpeachmentsF an 'rticle G& E*emptions" 4verall& these propose amen ments& if a opte & <oul re<rite five major articles of the 'labama (onstitution& <hich comprise 41J of its in ivi ual provisions" The substantial impact of these propose amen ments actuall$ un erstates the scope of the project from <hich the$ ori,inate an of <hich the$ are a part" 'ct No" 2011.117& 'la" 'cts 2011& create a

B(onstitutional Revision (ommissionB <hose ,oal <as to revise 11 out of the 1; articles of the 'labama (onstitution" Ei,ht members of the commission are le,islators or are appointe b$ the le,islature" The raftin, en,ine of the commission is the 'labama La< 8nstitute& an a visor$ bo $ to the le,islature" Thus& 'ct No" 2011.117 create a mechanism controlle b$ the le,islature to completel$ revise the 'labama (onstitution& a tas@ historicall$ reserve to a convention of the people& <hich ma$ onl$ be calle b$ popular vote pursuant to = 2;- of the (onstitution"

4pinion of the :ustices No" );; :ustice 3ar@er& in his special concurrence in 6ell& a resse the constitutionalit$ of Ban article.b$.article

amen ment approachB to accomplish a ,eneral revision of the (onstitution: BThe people& throu,h the 'labama (onstitution& have entruste to the le,islature t<o po<ers in re,ar to amen in, or chan,in, the constitution: 10 to propose an amen ment to the people for vali ation b$ their vote& pursuant to either = 2;4 or 'rt" GH888& = 2;4"01& 'la" (onst" 1101& an 20 to call a constitutional convention& pursuant to = 2;-& <hich <ill commence onl$ upon a majorit$ vote of the people" The effect of an article.b$.article amen ment approach is the creation of a thir le,islative po<er in re,ar to chan,in, constitution" This is an enlar,ement of le,islative po<er in contravention of 'rt" 8& = 2& 'la" (onst" 1101& <hich provi es& in pertinent part: DThat all political po<er is inherent in the people& an all free ,overnments are foun e on their authorit$& an institute for their benefit """"DB 6ell v" !tran,e& 777 !o" ) at 777 /3ar@er& :"& concurrin, speciall$0 /emphasis a e 0" 6$ :ustice 3ar@erDs reasonin,&

the

the !enateDs proposal to amen five articles of the (onstitution as part of an on,oin, ,lobal revision of that ocument is unconstitutional as neither l$in, <ithin the ,rant of po<er of = 2;4 nor conformin, <ith the re#uirements of = 2;-"

4pinion of the :ustices No" );; (onstitutional revision shoul not be initiate b$ a bo $ that is itself a creation of the ver$ constitution it see@s to revise an that thus ma$ see@ to mol the ocument to serve its o<n parochial institutional interests" 8nstea & revision belon,s to the people themselves& the ri,htful creators of the (onstitution" 5or e*ample& unli@el$ to appear in an$ propose constitutional revision initiate b$ the le,islature are term limits" The (onstitutional Revision (ommission i inclu e an BalternativeB proposal that BLe,islators electe in 2014 an thereafter are limite to 20 $ears total service in the le,islature"B This provision& thou,h mo est& oes not appear in !enate 6ill 2E;& the propose amen ment of 'rticle 8H& the le,islative article" !imilarl$& one is unli@el$ to see in a constitutional.revision pac@a,e authore b$ the le,islature a re uction in le,islative activit$& such as a return to
4 biennial sessions or enlar,e restrictions on the le,islative

po<er to ta* an to spen " 3art of the esi,n of 'ct No" 2011.117 has alrea $ been implemente throu,h the revision of 'rticles G88

/(orporations0 an G888 /6an@s an 6an@in,0& <hich revision

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$ears"

6efore 117-& the 'labama Le,islature met once ever$ t<o -

4pinion of the :ustices No" );; <as propose an a opte in 2012" The currentl$ propose amen ments are the ne*t set of cars on the revision train" !till to come& accor in, to 'ct No" 2011.117& are 'rticles 8& 8G& G8H& an GH88" !i* of the remainin, seven articles Bshall be e*clu e from consi eration b$ the commission ue to a previous revision of the article or because revision is not consi ere nee e """"B 'ct No" 2011.117& para,raph /e0" The final article on ta*ation Bis e*clu e from consi eration b$ the commission Bat this time"B 'ct No" 2011.117& para,raph /f0" Thus& the entire 'labama (onstitution .. from 'rticle 8 throu,h 'rticle GH888 .. has come un er the scrutin$ of the le,islatureDs (onstitutional Revision (ommission" 8n short& the 'labama Le,islature is con uctin, an in.house

constitutional convention is,uise as a series of iscrete amen ments offere un er = 2;4 to circumvent the re#uirement that the constitution ma$ be Brevise B
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onl$

b$

constitutional convention un er = 2;-"

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'lthou,h the comprehensive revision of the ju icial article in 117) an the suffra,e an elections article in 111ma$ seem to establish a prece ent for usin, = 2;4 in place of callin, a constitutional convention pursuant to = 2;-& Ba fe< spora ic offenses a,ainst an unambi,uous constitutional man ate <ill not suffice to establish the basis for a subversion of its terms"B :ohnson v" (raft& 20E 'la" );-& 402& ;7 !o" )7E& );;.;1 /11210" 7

4pinion of the :ustices No" );; The article.b$.article revision process of 'ct No" 2011. 117 is a carefull$ esi,ne plan to en$ the people their ri,ht to control the revision of the constitution throu,h the convention process" 's this (ourt hel in +anle$: B>T?he le,islatureDs po<er to initiate procee in,s to<ar a ne< constitution is limite to the provisions of = 2;-"B 441 !o" 2 at ;7-" Thus& Bonl$ conventions have the po<er to ma@e s<eepin, chan,e"B 441 !o" 2 at ;71 /Torbert& (":"& concurrin, speciall$0" BD>T?he purpose of the le,islative mo e is to brin, about amen ments <hich are fe< an simple an in epen entF an on the other han & that of the mo e throu,h (onventions is to revise the entire (onstitution """"DB 441 !o" 2 at ;-1 /#uotin, :ohn 'le*an er :ameson& ' Treatise on (onstitutional (onventions = E74c /4th e " 1;;700"

BD>K?henever a (onstitution nee s a ,eneral revision& a convention is in ispensabl$ necessar$"DB 6ell& 777 !o" ) at 777 /+oore& (":"& issentin,0 /#uotin, :ameson& = 211 /emphasis a e 00" ' le,islature esirous of revisin, the

'labama (onstitution has one .. an onl$ one .. option at its isposal: Bpass>? an act or resolution callin, a convention"B 'la" (onst" 1101& 'rt" GH888& = 2;-"

4pinion of the :ustices No" );; !tretchin, out the constitutional.revision process over a number of $ears b$ submittin, to the people t<o& three& or five revise articles per ,eneral election un er the amen ment proce ure of = 2;4 oes not chan,e the realit$ that a nearl$ total revision of the 'labama (onstitution is occurrin," 6$ <restin, the convention process from the people& the le,islature has unconstitutionall$ ma e itself the paramount mechanism of constitutional revision" BRevision b$ commissionB is an unauthoriAe metho b$ <hich to propose to the people of 'labama a comprehensive re<ritin, of the constitution" The le,islature has the po<er onl$ to amen the constitution& not to revise it" BThe people of this !tate """ have ecree that the$ reserve& in revisin, or replacin, the (onstitution& a role much more active than merel$ passin, upon a proposal someone else has <ritten"B +anle$& 441 !o" 2 at ;77 /Torbert& (":"& concurrin, speciall$0"
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BDThe mountin, popularit$ of constitutional commissions is attributable mainl$ to their ,eneral acceptabilit$ to state le,islators <ho prefer to rel$ on bo ies over <hose proposals the$ have control"DB 6ell& 777 !o" ) at 777 /+oore& (":"& issentin,0 /#uotin, 'lbert L" !turm& The %evelopment of 'merican !tate (onstitutions& 12 3ublius: 5e eralism E7& ;4 /11;200" 1

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of

4pinion of the :ustices No" );; (ontemplatin, separation from Ireat 6ritain in 177E& 3atric@ 9enr$ escribe the #uestion as Bone of a<ful moment to our countr$"B ) +oses (oit T$ler& 3atric@ 9enr$ 140 in 888 'merican !tatesmen /:ohn T" +orse& :r"& e " 1;;70" The #uestion propoun e b$ the !enate re,ar in, the vali it$ of a le,islative initiative to revise the 'labama (onstitution li@e<ise is Bone of a<ful momentB to the inte,rit$ of our state constitution an to the prero,ative of the people to revise the constitution b$ convention" 8n m$ opinion the process upon <hich the !enate has embar@e to thorou,hl$ revise the entire constitution b$ the le,islative metho of = 2;4 rather than the constitutional.convention metho of = 2;is unconstitutional" Ieor,e Kashin,ton <arne that chan,in, the fe eral constitution b$ a metho contrar$ to that provi e in the instrument is BusurpationB an Bthe customar$ <eapon b$ <hich free ,overnments are estro$e "B Ieor,e Kashin,ton& 5are<ell ' ress /171-0& in G88 The Kritin,s of Ieor,e

Kashin,ton 22- /:are !par@s& e " 1;);0" 'braham Lincoln once remar@e that callin, a tail a le, i not ma@e a five.le,,e calf" 2 +ichael 6urlin,ame& 'braham Lincoln: ' Life 4-; /:ohns 9op@ins 2niversit$ 3ress 200;0" Li@e<ise& callin, a massive

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4pinion of the :ustices No" );; process of constitutional revision nothin, more than a series of in ivi ual amen ments oes not ma@e it so" This (ourt has reco,niAe Bthe settle principle that the people have forbi en the Le,islature from con uctin, itself

in a manner inconsistent <ith their constitution an <hen it oes& it is incumbent upon the ju iciar$ to nullif$ a le,islative enactment contrar$ to the constitution"B Rice v" En,lish& ;)E !o" 2 1E7& 1-2 /'la" 20020" 'rticle 8& = 2& of the 'labama (onstitution states that Ball political po<er is inherent in the people&B <ho are the ri,htful en,ineers in the constitutional locomotive" 'n$ branch of ,overnment that <ron,full$ see@s to hijac@ the process of constitutional revision must be stoppe before the train runs out of control" 5or the reasons state above& 8 <oul provi e the a visor$ opinion re#ueste an hol that the propose amen ments are constitutionall$ invali because& ta@en as a ,roup an also as a part of the 'ct No" 2011.117 revision train& the$ violate the e*clusive prero,ative of the people to revise their constitution throu,h a constitutional convention hel pursuant to = 2;-" L2E!T84N 'N!KERE%"

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4pinion of the :ustices No" );; Respectfull$ !ubmitte &

/s/ Ro$ !" +oore Ro$ !" +oore (hief :ustice

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