Preface xxv
Acknowledgments xxvii
Introduction:
A Transactional Approach
A. The Alchemy of Legal Analysis 1
B. The "Players and the Play"
2
C. The Role of Standards of Judicial
Review 2
Chapter
I. State and Local Governments
A. State Governments 5
PROBLEM I. #1: Microelectronics 5
Instructions 6
1. The Plenary Power Principle 6
Notes and Questions 8
Payback A Weapon of Some Lawmakers Legislators; payback
for slights can be sweet revenge or sour grapes, Salt Lake
Tribune, February 14, 1999, ' C, pp. 1, 11 9
Notes and Questions 10
2. Limitations on the Legislature's Plenary Power 11
a. Do Other Components of State Government Have
Plenary Power? 11
In re Petition of Idaho State Federation of Labor (AFL),
75 Idaho 367, 272 P.2d 707 (1954) 11
Notes and Questions 13
b. Limitations Imposed by State Constitutional
Prohibitions and by Allocation of Power to Other Components of
State Government 13
Utah Technology Finance Corporation v. Wilkinson, 723
P.2d 406 (Utah 1986) 14
Notes and Questions 20
Wood v. Budge, 13 Utah 2d 359, 374 P.2d 516 (1962) 21
Notes and Questions 23
c. Legislature's Plenary Power Versus State Supreme
Court Authority 23
In re Young, 961 P.2d 918 (Utah 1998) 24
Utah May Have Constitutional Crisis of Its Own; Utah
Panels: Many May Be Unconstitutional, Salt Lake Tribune, Oct.
22, 1998, Nation-World, at A1 31
Notes and Questions 33
In re Young, 1999 WL 23427 (Utah, January 22, 1999)
33
Notes and Questions 41
Justices Reverse Ruling On Judicial Panel; Justices
Reverse Judicial-Panel Ruling: Supreme Court does about-face,
says Conduct Commission can contain members of the Legislature:
Lawmakers hail decision, Salt Lake Tribune, January 23, 1999,
' Utah, at D1 42
Busik v. Levine, 63 N.J. 351, 307 A.2d 571 (1973) 42
Notes and Questions 49
d. Legislature's Plenary Power Versus People's Powers
of Initiative and Referendum 49
Schabarum v. California Legislature, 60 Cal. App. 4th
1205, 70 Cal. Rptr 2d 485 (1998) 50
Notes and Questions 64
B. Local Governments 65
PROBLEM I #2: Home Rule 65
PROBLEM I #3: Crackhouse Ordinance 67
1. No Inherent Local Government PowerThe Dependent
Jural Nature of Local Governments 68
2. Interpretation of Local Government Authority: The
Dillon Rule 70
a. Two Dimensions of the Dillon Rule: A Tool for
Analysis of Local Government Power 70
Notes and Questions 72
Cioffoletti v. Planning & Zoning Commission of Town of
Ridgefield, 209 Conn. 544, 552 A.2d 796 (1989) 73
Notes and Questions 75
Bryant v. Town of Essex, 152 Vt. 29, 564 A.2d 1052 (1989)
77
Taxpayers and Citizens of the City of Foley v. City of
Foley, 527 So. 2d 1261 (Ala. 1988) 79
Notes and Questions 81
b. "Reasonable Selection of Method"
Corollary to the Dillon Rule 81
Commonwealth v. County Bd. of Arlington County, 217
Va. 558, 232 S.E.2d 30 (1977) 82
Notes and Questions 85
c. Judicial Rejection of the Strict Construction
Dimension of the Dillon Rule 86
State v. Hutchinson, 624 P.2d 1116 (Utah 1980) 86
Notes and Questions 92
3. Home Rule 93
a. Government "Initiative" and "Immunity"
93
b. Types of Home Rule 94
c. Analytical Framework for Home Rule ProblemsJudicial
Interpretation of Home Rule Powers 95
d. Cases Illustrating Analytical Framework for Home
Rule Problems 98
Dunn v. Mayor and Council of City of Wilmington, 59
Del. 287, 219 A.2d 153 (1966) 98
Notes and Questions 100
Fondessy Enterprises, Inc. v. City of Oregon, 23 Ohio
St. 3d 213, 492 N.E.2d 797 (1986) 100
Notes and Questions 105
Envirosafe Services of Idaho, Inc. v. County of Owyhee,
112 Idaho 687, 735 P.2d 998 (1987) 106
Notes and Questions 112
U.S. Oil, Inc. v. City of Fond du Lac, 199 Wis. 2d
333, 544 N.W.2d 589 (1996) 112
Notes and Questions 119
Van Gilder v. City of Madison, 222 Wis. 58, 267 N.W.
25 (1936) 120
Notes and Questions 121
Welter v. City of Milwaukee, 214 Wis. 2d 485, 571 N.W.2d
459 (Wis. App. 1997) 122
Notes and Questions 131
Fraternal Order of Police, Colorado Lodge #27 v. City and
County of Denver, 926 P.2d 582 (Colo. 1996) 124
Notes and Questions 131
Pelkey v. City of Fargo, 453 N.W.2d 801 (N.D. 1990)
132
Notes and Questions 136
e. A Comparative Perspective: Modeling Home Rule 137
Note: Modeling Home Rule 137
City of New Orleans v. Board of Commissioner of the
Orleans Levee District, 640 So. 2d 237 (La. 1994) 152
Notes and Questions 169
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Preemption
PROBLEM I #4: Modeling Home Rule 171
Pennsylvania Constitution 172
4. Limitations on Local Government Authority 175
Chapter II. State and
Local Government Liability
A. Introduction 177
B. The Principle of Sovereign Immunity
Under State Law 179
Notes and Questions 182
C. Actions Under State LawA Personal
Injury Example 183
PROBLEM II #1: Patsy Plaintree 183
1. Governments Must Be Found to Have a "Duty"
Toward Claimants Alleging That the Government Is Liable 187
Baker v. State Board of Higher Education, 20 Or. App.
277, 531 P.2d 716 (1975) 187
Notes and Questions 191
California Government Code 192
Henriksen v. City of Rialto, 20 Cal. App. 4th 1612,
25 Cal. Rptr. 2d 308 (1993) 195
Notes and Questions 201
Utah Code Annotated 201
Notes and Questions 203
2. The Defendant Governmental Entity or Individual
Must Be Shown to Have Engaged in "Culpable Conduct" in
Terms of the Applicable Standard of Care, Whether Strict
Liability, Negligence, Recklessness or Intentional Conduct 204
Van Pelt v. Morgan City Power Boat Ass'n, Inc., 489
So. 2d 1346 (La. Ct. App. 1986) 205
Notes and Questions 206
Oien v. City of Sioux Falls, 393 N.W.2d 286 (S.D.
1986) 207
Notes and Questions 209
3. Notice of Claim Must Have Been Provided Prior to
Suit 209
New York General Municipal Law 209
Notes and Questions 212
Pausley v. Chaloner, 54 A.D.2d 131, 388 N.Y.S.2d 35 (1976)
214
Notes and Questions 216
Ennis v. Crenco, 322 Md. 285, 587 A.2d 485 (1991) 216
Notes and Questions 221
4. Recovery May Not Exceed Applicable Limits on
Compensatory and Punitive Damages 222
Lyles v. City of Philadelphia, 88 Pa. Commw. 509, 490
A.2d 936 (1985) 222
Notes and Questions 225
Sharapata v. Town of Islip, 56 N.Y.2d 332, 437 N.E.2d
1104, 452 N.Y.S.2d 347 (1982) 225
Notes and Questions 228
Coker v. City of Schenectady, 200 A.D.2d 250, 613 N.Y.S.2d
746 (1994) 229
Notes and Questions 231
D. The Possibility of Federal Law
Claims for Personal Injury or Economic HarmClaims Against
States, Individuals and Local Entities 233
1. Claims Against States 233
Notes and Questions 236
2. Claims Against State-Level Individual Defendants"Official
Capacity" Suits 238
Idaho v. Coeur d'Alene Tribe of Idaho, 521 U.S. 261(1997)
239
Notes and Questions 245
3. Claims Against State-Level DefendantsWhen Is
Action by a "State" Involved? 246
McMillian v. Monroe County, 520 U.S. 781 (1997) 246
Notes and Questions 250
Note: Analogous Developments Under Federal Antitrust Law 251
4. Claims Against Local-Level Entity
DefendantsThe "Custom or Policy" Requirement 253
Board of County Com'rs of Bryan County v. Brown, 520
U.S. 397 (1997) 253
Notes and Questions 262
5. Claims Against State-Level or Local-Level Individual
Defendants "Personal Liability" Suits 264
a. Absolute Immunity 264
Bogan v. Scott-Harris, 523 U.S. 44 (1998) 265
Notes and Questions 268
b. Qualified Immunity 272
Wilson v. Layne, 119 S. Ct. 1692 (1999) 273
Notes and Questions 277
c. Individual Defendants Must Have Acted "Under
Color of State Law" for Personal Liability to Attach 280
Notes and Questions 282
E. Actions Under Federal LawAn
Economic Harm Example 283
PROBLEM II #2: Jeff Jones 283
1. The Possibility of State-Law Claims for Economic
Harm 290
a. Potential Common Law Claims Under State Law 290
Kraft Construction Company v. Cuyahoga County Bd. of
Com'rs, 128 Ohio App. 3d 33, 713 N.E.2d 1075 (1998) 290
Notes and Questions 295
Zeitz v. Village of Glenview, 304 Ill. App. 3d 586,
238 Ill. Dec. 52, 710 N.E.2d 849 (1999) 295
Notes and Questions 302
b. Potential Statutory Claims Under State Law 304
Idaho Regulatory Takings Act 304
Notes and Questions 305
Note: Exhaustion of Administrative Remedies 305
c. Potential State Constitutional Claims 306
Rohaly v. State of New Jersey, ___ A.2d ___, 1999 WL
459555 (N.J. Super. Ct. App. Div. 1999) 306
Notes and Questions 309
2. Potential Claims for Economic Harm Under Federal
Law 311
a. Local Governments as Customary Defendants 311
Notes and Questions 311
b. History of Takings Law 312
c. The Hamilton Bank, Lucas,
Dolan and Del Monte
Dunes Cases 313
Williamson County Regional Planning Commission v. Hamilton
Bank of Johnson City, 473 U.S. 172 (1985) 313
Notes and Questions 315
Lucas v. South Carolina Coastal Council, 505 U.S.
1003 (1992) 316
Notes and Questions 324
Dolan v. City of Tigard, 512 U.S. 374 (1994) 325
Notes and Questions 331
City of Monterey v. Del Monte Dunes at Monterey, Ltd.,
119 S. Ct. 1624 (1999) 332
Notes and Questions 338
d. Takings Analytical Framework 338
e. Choosing Between State and Federal Courts 339
(1) Preclusion Doctrines 339
Dodd v. Hood River County, 59 F.3d 852 (9th Cir. 1995),
cert. denied, 119 S. Ct. 278 (1998) 339
Notes and Questions 343
(2) Abstention Principles 346
Notes and Questions 348
Chapter III. Education 349
A. Introduction 349
B. The Elementary-through-High School
Educational System 351
PROBLEM III #1: Educational Malpractice 351
Michigan Compiled Laws Annotated 351
Notes and Questions 352
Virginia Code Annotated 352
Schwan v. Board of Education of Lansing School District,
27 Mich. App. 391, 183 N.W.2d 594 (1970) 355
Notes and Questions 356
Deerfield Hutterian Association v. Ipswich Board of
Education, 468 F. Supp. 1219 (N.D.S.D. 1979) 356
Notes and Questions 365
Donohue v. Copiague Union Free School District, 47 N.Y.2d
440, 418 N.Y.S.2d 375, 391 N.E.2d 1352 (1979) 370
Notes and Questions 373
Alsides v. Brown Institute, Ltd., 592 N.W.2d 468 (Minn.
Ct. App. 1999) 373
Notes and Questions 380
Note: School Violence 380
PROBLEM III #2: Charter Schools 381
Note: Charter Schools 381
West's Colorado Revised Statutes Annotated Title 22. Education
School Districts, Article 30.5. Charter Schools, Part 1. Charter
Schools Act 382
Notes and Questions 385
Note: School Voucher Systems 385
Villaneuva v. Carere, 85 F.3d 481 (10th Cir. 1996)
386
Notes and Questions 393
Hearne v. Board of Education of the City of Chicago,
___ F.3d ___, 1999 WL 504809 (7th Cir. 1999) 393
Notes and Questions 401
C. The System of Higher Education 403
PROBLEM III #3: Affirmative Action 403
Regents of the University of California v. Bakke, 438
U.S. 265 (1978) 405
Notes and Questions 424
Wittmer v. Peters, 87 F.3d 916 (7th Cir. 1996) 425
Notes and Questions 428
Hopwood v. State of Texas, 78 F.3d 932 (5th Cir. 1996),
cert. denied, 116 S. Ct. 2581 (1996) 428
Notes and Questions 445
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CHAPTER IIIA. INTERNET DEMOCRACY
Chapter IV. Selecting
among Institutional Forms
for Local Governance:
When Is a City Not a City?
A. The Role of Existing Governmental
Entities 449
State ex rel. Tomasic v. Unified Government of Wyandotte
County/ Kansas City, 264 Kan. 293, 955 P.2d 1136 (1998) 451
Notes and Questions 461
Board of Supervisors of Sacramento County v. Local Agency
Formation Commission of Sacramento County, 3 Cal. 4th 903,
13 Cal. Rptr. 2d 245, 838 P.2d 1198 (1992) 463
Notes and Questions 477
PROBLEM IV #1: The Hallmark Project 478
B. Incorporation 481
C. Annexation 483
D. Residential Community Association 489
Restatement of the Law, Property (Servitudes) 489
Sample Covenants, Conditions, Restrictions 493
Marsh v. Alabama, 326 U.S. 501 (1946) 494
Amalgamated Food Employees Union Local 509 v. Logan Valley
Plaza, Inc., 391 U.S. 308 (1968) 499
Note 500
E. Charter Change 501
Board of Estimate v. Morris , 489 U.S. 688 (1989) 501
Chapter V. State and
Local Government Contracts
Introduction 509
A. Competitive Bidding 509
Keyes Martin v. New Jersey Department of the Treasury,
99 N.J. 244, 491 A.2d 1236 (1985) 509
Notes and Questions 520
George Harms Construction Co., Inc. v. New Jersey Turnpike
Authority, 137 N.J. 8, 644 A.2d 76 (1994) 521
Notes and Questions 541
B. Retirement Benefits 543
Pineman v. Oechslin, 195 Conn. 405, 488 A.2d 803 (1985)
543
Notes and Questions 549
McGrath v. Rhode Island Retirement Board, 88 F.3d 12
(1st Cir. 1996) 551
Parker v. Wakelin, 123 F.3d 1 (1st Cir. 1997) 560
Notes and Questions 570
C. Collective Bargaining Agreements 573
PROBLEM V #1: Mandatory Furlough Problem 573
Association of Surrogates and Supreme Court Reporters
Within the City of New York v. State of New York, 940 F.2d
766 (2d Cir. 1991) 577
D. Municipal Securities 585
1. Introduction 585
California Debt and Investment Advisory Commission, California
Debt Issuance Primer 585
2. General Obligation Bonds 588
PROBLEM V #2: Anatomy of a General Obligation Bond
Transaction: State Law Issues 591
PROBLEMV#2A: Authorization Portfolio 591
California Constitution 591
California Government Code 592
Charter of the City of Los Angeles 592
PROBLEM V #2B: Approval Process 593
California Government Code 593
PROBLEM V #2C: Flow of Funds 597
California Constitution 597
California Government Code 599
City Charter of Los Angeles 603
County of Los Angeles California, Taxpayer's Guide 607
PROBLEMV #2D: Sales Process Portfolio 609
California Government Code 610
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PROBLEM: Professional Responsibility of Bond Counsel
E. Privatization 617
Board of County Commissioners, Wabaunsee County v. Umbehr,
518 U.S. 668 (1996) 617
O'Hare Truck Service, Inc. v. City of Northlake, 518
U.S. 712 (1996) 624
Notes and Questions 631
Council of the City of New York v. Giuliani 93 N.Y.2d
60, 710 N.E.2d 255 (1999) 632
Notes and Questions 638
Introductory Notes on Civil Service 639
J. Christine Altenburger, Patronage: Ethics Gone Amok in
Essentials of Government Ethics 351, 355-362 (Peter Madsen &
Jay M. Schafritz eds. 1992) 639
Notes and Questions 640
Moore v. Alaska Dept. of Transportation and Public
Facilities, 875 P.2d 765 (Alaska 1994) 641
Notes and Questions 652
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Professional Engineers in California Government v. Department of
Transportation
Chapter VI. Revenue
Raising, Borrowing & Spending 655
PART I. REVENUE RAISING 655
A. State & Local Taxation 655
1. The Power to Tax 655
a) Federal Constitutional Issues 655
Quill Corp. v. North Dakota, 504 U.S. 298 (1992) 655
Notes and Questions 667
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PROBLEM: Internet Use Tax
b) State Constitutional Issues 668
California Federal Savings and Loan Association v. City of
Los Angeles, 54 Cal. 3d 1, 283 Cal. Rptr. 569, 812 P.2d 916
(1991) 668
Notes and Questions 684
2. Property Taxation 686
a) Overview: How Property Taxes Work 686
Brandon, Rowe & Straton, Tax Politics: How They Make You
Pay and What You Can Do About It, 170-75 (1976) 686
b) Federal Constitutional Issues 692
Nordlinger v. Hahn, 505 U.S. 1 (1992) 692
Notes and Questions 698
c) State Constitutional IssuesThe Uniformity Clause 699
Killen v. Logan County Commission, 170 W. Va. 602,
295 S.E.2d 689 (1982) 699
Notes and Questions 719
d) Exemptions from Property Taxation 724
Utah County Board of Equalization v. Intermountain Health
Care, Inc., 709 P.2d 265 (Utah 1985) 724
Notes and Questions 741
B. Fees, User Charges, and Special
Assessments 743
Emerson College v. City of Boston, 391 Mass. 415, 462
N.E.2d 1098 (1984) 743
Notes and Questions 752
Vincent Ostrom & Elinor Ostrom, Public Goods and
Public Choices, in Alternatives for Delivering Public
Services Toward Improved Performance 8-27 (E.S. Savas, ed. 1977)
757
Bloom v. City of Fort Collins, 784 P.2d 304 (Colo.
1989) 769
Notes and Questions 780
515 Associates v. City of Newark, 132 N.J. 180, 623 A.2d
1366 (1993) 781
Notes and Questions 791
PROBLEM VI #2: Police Service Fees Ordinance 793
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PROBLEM: Proposition 218 Problem
PART II. BORROWING 795
A. Authority to Issue Bonds 795
Chemical Bank v. Washington Public Power Supply System,
99 Wash. 2d 772, 666 P.2d 329 (1983) 795
Notes and Questions 818
PROBLEM VI #4: Bond Counsel Liability Under Federal
Securities Law 821
Securities Exchange Act of 1934 ' 78(j) 824
Securities Exchange Commission Rule 10 b-5 824
Rose v. Arkansas Valley Environmental and Utility
Authority, 562 F. Supp. 1180, 1206-08 (W.D. Mo. 1983) 825
B. Debt Limitations 829
The Department of Ecology v. State Finance Committee,
116 Wash. 2d 246, 804 P.2d 1241 (1991) 829
Notes and Questions 848
C. State Constitutions and Fiscal
Crises 853
Wein v. State of New York, 39 N.Y.2d 136, N.Y.S.2d
225, 347 N.E.2d 586 (1976) 853
Notes and Questions 867
Flushing National Bank v. Municipal Assistance Corp. for
the City of
New York, 40 N.Y.2d 731, 390 N.Y.S.2d 22, 358 N.E.2d
848 (1976) 867
Notes and Questions 887
PART III. SPENDING 895
Commissioners Court of Caldwell County v. Criminal
District Attorney, Caldwell County, 690 S.W.2d 932 (Tex. App.
1985) 895
Notes and Questions 902
Chiles v. Children A, B, C, D, E, and F, etc., 589 So.
2d 260 (Fla. 1991) 903
Notes and Questions 912
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Michigan Association of Counties v. Department of Management and
Budget
Brawley v. McNary, 811 S.W.2d 362 (Mo. 1991) 913
Notes and Questions 922
Chapter VII. Fiscal
Federalism:
State and Local Funding in a Federal
System
A. Introduction 925
B. Source and Limits of Federal Grant
Law 927
Kansas v. United States, 24 F. Supp. 2d 1192 (D. Kan.
1998) 927
Notes and Questions 933
Richard B. Cappalli, Rights and Remedies Under Federal Grants
29-33 (1979) 934
C. The Structure of a Grant Statute 939
PROBLEM VIII #1: Statutory Interpretation 945
Aid to Families with Dependent Children 946
Notes and Questions 950
D. Defining the Grantor/Grantee Relationship 953
Thorpe v. Housing Authority of the City of Durham,
393 U.S. 268 (1969) 953
Notes and Questions 958
E. Preempting State Sovereignty:
Conditioning Federal Funds on Local Autonomy 965
Richard P. Nathan & Thomas L. Gais, Implementing The
Personal Responsibility Act of 1996: A First Look 35-42 (1999)
966
Notes and Questions 970
Hernandez-Colon v. Secretary of Labor, 835 F.2d 958 (1st
Cir. 1988) 972
Notes and Questions 980
F. State Constitutional Protections of
Local Fiscal Autonomy 983
County of San Diego v. State, 15 Cal. 4th 68, 61 Cal.
Rptr. 2d 134, 931 P.2d 312 (1997) 983
Notes and Questions 1004
Table of Cases 1011
Table of Authorities 1021
Index 1041
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