Marsh v. Hanly

Beatty, C. J. This is a suit by a taxpayer to enjoin the defendants from appropriating public funds of the county for the purchase of ballot-boxes and the payment of other expenses involved in carrying out the provisions of the act of March 27,1895, commonly known as the primary election law (Stats. 1895, p. 207). The claim of the plaintiff is that the act is local and special, and, therefore, unconstitutional and void. This contention was sustained by the superior court of Los Angeles, and the injunction granted. Defendants appeal from the judgment.

There can be no question that the act is local and special, since, by its terms, it is to “ apply to, take effect in, and be in force only in counties of the first and second classes,” that is to say, in San Francisco and Los Angeles. (Stats. 1895, sec. 26, p. 218.)

The constitution allows the classification of counties according to population for the purpose of regulating the compensation of county officers in proportion to their duties (Const., art. XI, sec. 5), and for that purpose a classification has been established under which San Francisco falls into the first class and Los Angeles falls into the second class. But the fact that these and the other counties of the state have been classified for a purpose which the constitution recognizes as a proper and necessary one does not relieve a law relating to other and distinct matters from the objection that it is local and special if, by its terms, it is limited in its application or operation to one or more classes of counties less than the whole. (Dougherty v. Austin, 94 Cal. 620; Welsh v. Bramlett, 98 Cal. 219; Pasadena v. Stimson, 91 Cal. 238; Bloss v. Lewis, 109 Cal. 493; Turner v. Siskiyou County, 109 Cal. 332; Darcy v. Mayor of San Jose, 104 Cal. 642; Denman v. Broderick, ante, p. 96.) This act, therefore, not being a regulation of the compensation of county officers, is local and special, notwithstand[371]ing it embraces two counties, each of which constitutes • one of the classes defined by the County Government Act; and the only question to be determined is whether or not the subject of the act is one of those as to which special and local legislation is inhibited by the constitution.

The act is intended to regulate primary elections, i. e., the election of delegates to nominating conventions, and not only in its general scope and nature, but by various specific provisions, is made an essential part of the general election law of the state. By section 21, for example, it is provided that no candidate can have his name printed upon any ballot as a candidate for public office at any general election in this state, unless he shall have been nominated by a convention composed of delegates chosen as in the act provided, or nominated by a certain percentage of electors as in the Political Code prescribed. The entire act presents an elaborate scheme for the conduct of the primary elections by sworn officers whose certificates of election will constitute the credentials of the delegates to the various political conventions, state, district, and local. Not only is it a general law which should have a uniform operation (Const., art. 1, sec. 1-1), and not only is the case to which it applies one in which a general law can be made applicable (Const., art. IV, sec. 25, subd. 33), but from an inspection of its terms it clearly appears that it was designed originally to apply uniformly throughout the state. This is shown by various expressions scattered throughout its first twenty-four sections, in which the original scheme of the law is embodied.