Appeal from the Superior Court of the District of Columbia; Hon. Robert A. Shuker, Trial Judge
Terry, Schwelb, and Farrell, Associate Judges.
The opinion of the court was delivered by: Terry
This case involves a dispute over funding for the District of Columbia Public Library. In March 1989 the Council of the District of Columbia enacted the Fiscal Year 1990 Budget Request Act ("the Budget"), D.C. Act 8-15, 36 D.C. Reg. 2490 (1989), which allocated $18,849,000 to the Library for Fiscal Year 1990. The Council sent the Budget, as enacted, to the Mayor, who approved it and forwarded it to the President; he in turn transmitted it to Congress. *fn1 Later, however, the Mayor -- acting pursuant to his authority and duty to balance the budget *fn2 -- reduced this sum by four percent, or $779,000. Appellants *fn3 brought this action for declaratory and injunctive relief against the Mayor, the City Administrator, and the Director of the Department of Finance and Revenue, contending -- as they contend here -- that because the Library is a "statutory independent agency," the Mayor did not have the authority to effect this reduction. We reject appellants' argument and affirm the trial court's judgment in favor of the Mayor and his co-defendants. In doing so, however, we emphasize that our holding applies only to the Public Library; it does not necessarily extend to funding disputes involving other agencies, entities, or branches of the District of Columbia government.
The District of Columbia Public Library was chartered by Congress in 1896 as a "free public library . . . and a supplement of the public educational system of said District." D.C. Code 37-101 (1990). Services are currently provided at a central facility in downtown Washington, the Martin Luther King Memorial Library, and at twenty-five branches. The system is administered by the Board of Library Trustees, which is identified as a "statutory independent agency" in D.C. Code § 1-299.6 (1989 Supp.). An "independent agency" is defined elsewhere in the Code as "any agency of the government of the District with respect to which the Mayor and the Council are not authorized by law, other than this subchapter [of the Administrative Procedure Act], to establish administrative procedures . . . ." D.C. Code § 1-1502 (5) (1987). Although this language indicates that the Mayor does not have authority to control daily operations or to determine or implement Library policy, other provisions of the Code establish that decisions relating to appropriations are exclusively within the control of the Mayor and the Council. In particular, the Mayor "is authorized to include in his annual estimates for appropriation such sums as he may deem necessary for the proper maintenance of said library . . . ." D.C. Code § 37-106 (1990). *fn4
Some time before the beginning of Fiscal Year (FY) 1990, the Mayor proposed an appropriation of $18,744,000 for the Library. The Council, however, in enacting the Budget, authorized $18,849,000 in funding for the Library, an increase of $105,000 over the Mayor's proposal. While the Budget was making its way through the legislative process, the Council, sitting as a Committee of the Whole, recommended that certain reductions be made in overall spending by the District of Columbia. Among these reductions were $6,100,000 for equipment and $7,350,000 for personnel. Significantly, the Committee did not specify where the cuts were to be made; it did state, however, that reductions were to come from what were cryptically identified as "agencies under the control of the Mayor and excluding police, fire and corrections . . . ." COUNCIL OF THE DISTRICT OF COLUMBIA, COMMITTEE OF THE WHOLE, Report on Bill 8-150, at 32 (March 21, 1989). The Committee did not define the term "agencies under the control of the Mayor."
Notwithstanding the Committee's recommendation to make reductions, the Council adopted the Budget without doing so by a voice vote on March 21, 1989. 36 D.C. Reg. at 2505. Thus the Council acted with the understanding that the total spending approved was not necessarily the exact sum that would ultimately be spent. Section 103 of the Budget makes this clear:
Whenever in this Act an amount is specified within an appropriation for particular purposes or objects of expenditure, the amount, unless otherwise specified, shall be considered as the maximum amount that may be expended for said purpose or object rather than an amount set apart exclusively therefor.
36 D.C. Reg. at 2498. On April 6, 1989, the Mayor signed the Budget and sent it to the President and Congress for their consideration.
On September 14, 1989 -- before Congress had completed action on the 1990 District of Columbia Appropriations Act -- the Mayor issued Mayor's Memorandum 89-32, which outlined proposed budgetary adjustments. This Memorandum was designed to take the reductions recommended by the Committee of the Whole and apply them to specific spending areas in the Budget. The Memorandum said that salary and equipment reductions were allocated to all "agencies under the Mayor's control, excluding the police, fire, and corrections departments, as planned in the FY 1990 Appropriations Act." Once again, the phrase "agencies under the Mayor's control" was not defined. The Memorandum also stated:
Unallocated rescissions in the District's pending FY 1990 Appropriations Act require this government to reduce appropriations and expenditures for personal services by $31,550,000, for energy by $2,000,000, and for equipment by $6,100,000. To achieve the stipulated reductions, this memorandum issues budget control ceilings to District agencies and directs agency heads to enter, as appropriate, their revised FY 1990 budget allocations in the Financial Management System (FMS).
In particular, the Mayor's Memorandum reduced funding for the Library by $779,000, broken down into categories: $113,000 for salaries, $102,000 for energy costs, $528,000 for equipment, and $36,000 for the elimination of one salaried position. *fn5
Congress then passed the District of Columbia Appropriations Act ("the Appropriations Act"), *fn6 and on November 21, 1989, the President signed it. Although it included the full $18,849,000 which had originally been requested for the Library in the Budget enacted by the Council, Congress made clear that the Appropriations Act was not a funding guarantee. Section 103 of the Appropriations Act contained language identical to that adopted by the Council, with some additions:
Whenever in this Act an amount is specified within an appropriation for particular purposes or objects of expenditure, such amount, unless otherwise specified, shall be considered as the maximum amount that may be expended for said purpose or object rather than an amount ...