County of Lancaster v. County of Custer , 313 Neb. 622 ( 2023 )


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  • Nebraska Supreme Court Online Library
    www.nebraska.gov/apps-courts-epub/
    02/24/2023 09:06 AM CST
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    Nebraska Supreme Court Advance Sheets
    313 Nebraska Reports
    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    County of Lancaster, Nebraska,
    appellee, v. County of Custer,
    Nebraska, appellant.
    ___ N.W.2d ___
    Filed February 24, 2023.   No. S-22-269.
    1. Rules of the Supreme Court: Appeal and Error. Parties who wish to
    secure appellate review of their claims must abide by the rules of the
    Nebraska Supreme Court. Any party who fails to properly identify and
    present its claim does so at its own peril.
    2. ____: ____. Depending on the particulars of each case, failure to comply
    with the mandates of Neb. Ct. R. App. P. § 2-109(D) (rev. 2022) may
    result in an appellate court waiving the error, proceeding on a plain error
    review only, or declining to conduct any review at all.
    3. Appeal and Error. Where the assignments of error consist of headings
    or subparts of arguments and are not within a designated assignments of
    error section, an appellate court may proceed as though the party failed
    to file a brief, providing no review at all, or, alternatively, may examine
    the proceedings for plain error.
    4. ____. Plain error is error plainly evident from the record and of such a
    nature that to leave it uncorrected would result in damage to the integ-
    rity, reputation, or fairness of the judicial process.
    5. Jurisdiction: Statutes. Subject matter jurisdiction and statutory inter-
    pretation present questions of law.
    6. Judgments: Appeal and Error. An appellate court independently
    reviews questions of law decided by a lower court.
    7. Jurisdiction: Appeal and Error. It is the power and duty of an appel-
    late court to determine whether it has jurisdiction over the matter before
    it, irrespective of whether the issue is raised by the parties.
    8. ____: ____. If the court from which an appeal was taken lacked jurisdic-
    tion, then the appellate court acquires no jurisdiction.
    9. Statutes: Appeal and Error. Statutory language is to be given its
    plain and ordinary meaning, and an appellate court will not resort to
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    313 Nebraska Reports
    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    interpretation to ascertain the meaning of statutory words which are
    plain, direct, and unambiguous.
    10.   Statutes. It is not within the province of a court to read a meaning into
    a statute that is not warranted by the language; neither is it within the
    province of a court to read anything plain, direct, or unambiguous out of
    a statute.
    11.   ____. If the language of a statute is clear, the words of such statute are
    the end of any judicial inquiry regarding its meaning.
    12.   ____. To the extent conflict exists between two statutes, the specific
    statute controls over the general.
    13.   Jurisdiction: Counties: Contracts. Compliance with 
    Neb. Rev. Stat. § 23-135
     (Reissue 2022) is mandatory, and the county board has exclu-
    sive original jurisdiction, in cases against the county involving claims
    arising out of contract and containing quasi-judicial questions of fact.
    14.   Contracts: Intent: Words and Phrases. The term “implied contract”
    refers to that class of obligations that arises from mutual agreement and
    intent to promise, when the agreement and promise have simply not
    been expressed in words.
    15.   Restitution: Unjust Enrichment. An “implied-in-law contract,” also
    known as a “quasi-contract,” is not a contract.
    16.   Claims: Restitution: Unjust Enrichment. Quasi-contract claims are
    restitution claims to prevent unjust enrichment.
    17.   Restitution: Unjust Enrichment. Quasi-contractual obligations do not
    arise from an agreement; instead, the law imposes them when justice
    and equity require the defendant to disgorge a benefit that he or she has
    unjustifiably obtained at the plaintiff’s expense.
    18.   Counties: Statutes: Liability. The liability of one county to another for
    the support of a poor person is purely statutory.
    19.   Contracts: Statutes: Legislature: Intent: Presumptions. Although a
    statute can be the source of a contractual right, a contract will be found
    to exist only if the statutory language evinces a clear and unmistak-
    able indication that the Legislature intends to bind itself contractually.
    The general rule is that rights conferred by statute are presumed not to
    be contractual.
    20.   Counties: Statutes. By statute, a county has a mandatory duty to pro-
    vide for poor persons whether or not they are residents of the county.
    21.   Counties: Statutes: Liability. The right to enforce the liability of one
    county to another county for expenses paid by the former in caring for a
    poor person whose residence is in the latter county requires compliance
    with statutory terms and conditions.
    22.   Statutes: Liability. When a statute gives a right and creates a liability
    which did not exist at common law, and at the same time points out
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    a specific method by which the right can be asserted and the liability
    ascertained, that method must be strictly pursued.
    Appeal from the District Court for Lancaster County:
    Andrew R. Jacobsen, Judge. Affirmed.
    Steven R. Bowers, Custer County Attorney, for appellant.
    Eric Synowicki, Deputy Lancaster County Attorney, and
    Daniel James Zieg for appellee.
    Heavican, C.J., Miller-Lerman, Cassel, Funke, Papik,
    and Freudenberg, JJ., and Polk, District Judge.
    Cassel, J.
    I. INTRODUCTION
    Upon moving to a different county in Nebraska, an indigent
    individual applied for general assistance. That county furnished
    assistance and requested reimbursement from the county where
    the individual formerly lived. After denial of the request, the
    furnishing county sued and obtained a summary judgment.
    The other county appealed but failed to properly assign error.
    Because we conclude that compliance with the county claims
    statute 1 is not mandatory and jurisdictional when seeking reim-
    bursement under the general assistance statutes, 2 the district
    court possessed subject matter jurisdiction. Having elected to
    review for plain error and finding none, we affirm the district
    court’s grant of summary judgment.
    II. BACKGROUND
    1. General Assistance Programs
    The county board of each county is “the overseer of the
    poor.” 3 Each Nebraska county has general assistance programs
    to provide benefits to indigent persons who are not eligible
    1
    
    Neb. Rev. Stat. § 23-135
     (Reissue 2022).
    2
    
    Neb. Rev. Stat. §§ 68-104
     to 68-158 (Reissue 2018).
    3
    § 68-132.
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    for other state and federal assistance programs. 4 If a “poor
    person”—the statutory terminology—meets the requirements
    contained in § 68-131 and is eligible under the county’s general
    assistance guidelines, the county board has a duty to provide
    general assistance. 5
    The general assistance shall come out of the treasury of
    the county in which the poor person has legal settlement at
    the time of applying for such assistance. 6 A person “who has
    resided one year continuously in any county, shall be deemed
    to have a legal settlement in such county.” 7
    A county may be required to provide for a poor person even
    if he or she does not have legal settlement in that county. 8
    “[W]henever any poor person not having a legal settlement
    in the county is found in distress, without friends or money,
    so that he or she is likely to suffer, it shall be the duty of the
    county board to furnish such temporary assistance . . . as it
    shall deem necessary.” 9 Upon the poor person’s application for
    relief, if the county board is unable to ascertain the person’s
    last place of legal residence, “the county board shall proceed
    in its discretion to provide for such poor person in the same
    manner as other poor persons are directed to be provided
    for.” 10 A different statute similarly provides that if a person
    applies for aid in a county in which he or she has not estab-
    lished a legal settlement, the person “shall be duly taken care
    of by the proper authority of the county where he or she may
    be found.” 11
    4
    See Salts v. Lancaster Cty., 
    269 Neb. 948
    , 
    697 N.W.2d 289
     (2005).
    5
    See § 68-132.
    6
    See § 68-131.
    7
    § 68-115(1).
    8
    See §§ 68-114, 68-144, and 68-146.
    9
    § 68-114.
    10
    Id.
    11
    § 68-144.
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    The Legislature required each county to adopt written stan-
    dards of eligibility and assistance for the county’s general assist­
    ance program. 12 The County of Lancaster (Lancaster County)
    did so. Pursuant to its guidelines, Lancaster County entered
    into a “Professional Services Agreement” with a health care
    provider to provide general assistance to approved applicants.
    2. Application for
    General Assistance
    On May 2, 2019, Michael Taul signed and submitted a
    “Lancaster County General Assistance Application.” Taul’s
    application listed an address in Lincoln, Lancaster County,
    Nebraska, which the application showed to be his daugh-
    ter’s address. But it also stated that he lived in Broken Bow,
    Nebraska, for 10 years, from “06/09” to “05/19.” Broken
    Bow is located in the County of Custer (Custer County). Taul
    listed medical problems, stated that he was physically inca-
    pable of working, and asserted that he could not afford to pay
    his bills or to see a doctor. An eligibility worker approved
    Taul’s application.
    3. Assistance
    Lancaster County provided general assistance services for
    Taul. The total amount provided from May 6 to November
    11, 2019, amounted to $31,422.08. Taul became ineligible to
    receive further general assistance upon being approved for and
    receipt of Supplemental Security Income.
    4. Request for Removal
    and Reimbursement
    On July 11, 2019, the Lancaster County clerk sent a letter to
    the Custer County clerk concerning Taul. The letter stated that
    documentation showed Taul’s legal settlement was in Custer
    County. It further stated:
    12
    See § 68-133.
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
    Cite as 
    313 Neb. 622
    Pursuant to Neb. Rev. Stat. §[]68-144, this letter shall
    serve as official notice to Custer County . . . that . . . Taul
    has become chargeable as a poor person in a county, which
    he or she has not established a legal settlement as [sic] the
    time of applying for aid. Lancaster County . . . is request-
    ing the authorities of Custer County . . . to promptly
    remove . . . Taul from Lancaster County . . . and to pay
    the expense accrued by Lancaster County . . . in taking
    care of . . . Taul. Any assistance provided by Lancaster
    County . . . to . . . Taul will be billed to Custer County
    . . . for reimbursement.
    The Custer County Attorney acknowledged receipt of the
    letter. He requested that the Lancaster County clerk provide
    documentation “required to make the determination for [Taul’s]
    application.” The Lancaster County clerk responded via letter
    and provided additional information.
    A year later, the Lancaster County clerk sent a request for
    reimbursement to the Custer County clerk. It included an
    itemization of expenses paid on Taul’s behalf and requested
    $27,179.11. On October 13, 2020, the Custer County clerk
    provided written notice to the Lancaster County clerk that the
    Custer County Board of Supervisors “disallowed your claim.”
    The Lancaster County clerk subsequently sent a formal
    “Demand for Reimbursement” to the Custer County clerk. By
    letter dated November 25, 2020, the Custer County Attorney
    informed Lancaster County that the Custer County Board of
    Supervisors denied the claim under § 23-135, the county claims
    statute. The Lancaster County Attorney responded, asserting
    that general assistance claims under § 68-144 are not subject
    to the provisions of § 23-135 because the expenses arise by
    statute and not by contract.
    5. Complaint and Answer
    In April 2021, Lancaster County sued Custer County in
    the district court for Lancaster County. The complaint alleged
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
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    313 Neb. 622
    that Custer County, as Taul’s county of legal settlement at the
    time he was provided general assistance by Lancaster County,
    had a statutory duty to pay the costs of the general assist­
    ance provided to Taul. Lancaster County alleged that under
    § 68-145, it may sue Custer County for the general assistance
    amounts expended on behalf of Taul. Lancaster County sought
    judgment against Custer County in the amount of $26,928.31.
    In Custer County’s responsive pleading, it set forth several
    affirmative defenses. One claimed that Lancaster County failed
    to follow § 23-135 to seek a remedy as provided by statute.
    Another alleged that the proper forum was in Custer County.
    6. Summary Judgment
    Lancaster County moved for summary judgment. Following
    a hearing, the court entered an order sustaining the motion.
    The court determined that it had subject matter jurisdiction
    over the action, reasoning that the claim submission and appeal
    procedures in § 23-135 did not apply to Lancaster County’s
    claim for reimbursement. The court stated that Custer County
    failed to meet its burden of producing admissible contradic-
    tory evidence showing the existence of a material issue of fact
    regarding compliance with the general assistance statutes, the
    approval and adoption of the general assistance guidelines, or
    compliance with those guidelines.
    Custer County filed a timely appeal, and we moved the case
    to our docket. 13
    III. ASSIGNMENT OF ERROR
    Custer County’s brief contains no section for assignments of
    error. It does not comply with our appellate court rules.
    Neb. Ct. R. App. P. § 2-109(D)(1)(e) (rev. 2022) requires
    an appellant’s brief to include, under the appropriate head-
    ing, “[a] separate, concise statement of each error a party
    contends was made by the trial court, together with the issues
    13
    See 
    Neb. Rev. Stat. § 24-1106
    (3) (Cum. Supp. 2022).
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    pertaining to the assignments of error.” The rule specifies
    that “[e]ach assignment of error shall be separately numbered
    and paragraphed.” 14 The rule cautions that “[c]onsideration of
    the case will be limited to errors assigned and discussed in the
    brief,” but that “[t]he court may, at its option, notice a plain
    error not assigned.” 15
    [1,2] Parties who wish to secure appellate review of their
    claims must abide by the rules of the Nebraska Supreme
    Court. 16 Any party who fails to properly identify and present
    its claim does so at its own peril. 17 Depending on the par-
    ticulars of each case, failure to comply with the mandates of
    § 2-109(D) may result in an appellate court waiving the error,
    proceeding on a plain error review only, or declining to con-
    duct any review at all. 18
    Custer County’s brief contains headings in the argument
    section which allege error by the trial court, but argument
    headings are insufficient. We have consistently rejected head-
    ings in the argument section as a sufficient substitute for
    assignments of error contained in the proper place and prop-
    erly designated. 19
    [3] Where the assignments of error consist of headings or
    subparts of arguments and are not within a designated assign-
    ments of error section, an appellate court may proceed as
    though the party failed to file a brief, providing no review at
    all, or, alternatively, may examine the proceedings for plain
    error. 20 We will review for plain error.
    14
    § 2-109(D)(1)(e).
    15
    Id.
    16
    See Great Northern Ins. Co. v. Transit Auth. of Omaha, 
    308 Neb. 916
    , 
    958 N.W.2d 378
     (2021), disapproved on other grounds, Clark v. Sargent Irr.
    Dist., 
    311 Neb. 123
    , 
    971 N.W.2d 298
     (2022).
    17
    
    Id.
    18
    
    Id.
    19
    
    Id.
    20
    
    Id.
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    COUNTY OF LANCASTER V. COUNTY OF CUSTER
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    IV. STANDARD OF REVIEW
    [4] Plain error is error plainly evident from the record and
    of such a nature that to leave it uncorrected would result in
    damage to the integrity, reputation, or fairness of the judi-
    cial process. 21
    [5,6] Subject matter jurisdiction and statutory interpretation
    present questions of law. 22 An appellate court independently
    reviews questions of law decided by a lower court. 23
    V. ANALYSIS
    1. Jurisdiction
    (a) Appellate Court Duty
    [7,8] It is the power and duty of an appellate court to deter-
    mine whether it has jurisdiction over the matter before it, irre-
    spective of whether the issue is raised by the parties. 24 If the
    court from which an appeal was taken lacked jurisdiction, then
    the appellate court acquires no jurisdiction. 25 Because of that
    duty, we consider Custer County’s argument related to jurisdic-
    tion, even though our review is otherwise limited to a search
    for plain error.
    (b) Parties’ Jurisdictional Paths
    The parties disagree on whether the district court had subject
    matter jurisdiction. They offer different jurisdictional paths.
    (i) Lancaster County: § 68-145
    Lancaster County relies on the general assistance statutes.
    It highlights the language of § 68-145 stating that “the county
    taking charge of such individual may sue for, and recover
    21
    REO Enters. v. Village of Dorchester, 
    312 Neb. 792
    , 
    981 N.W.2d 254
    (2022).
    22
    Heist v. Nebraska Dept. of Corr. Servs., 
    312 Neb. 480
    , 
    979 N.W.2d 772
    (2022).
    23
    
    Id.
    24
    In re Estate of Scaletta, 
    312 Neb. 953
    , 
    981 N.W.2d 568
     (2022).
    25
    Tyrrell v. Frakes, 
    309 Neb. 85
    , 
    958 N.W.2d 673
     (2021).
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    from the county to which such individual belongs, the amount
    expended for and in behalf of such poor person and in taking
    care of such person.”
    (ii) Custer County: § 23-135
    Custer County contends that Lancaster County had to fol-
    low the procedure in § 23-135 for payment of its claim.
    Section 23-135 specifies that “[a]ll claims against a county
    shall be filed with the county clerk within ninety days from
    the time when any materials or labor, which form the basis of
    the claims, have been furnished or performed . . . .” 26 If the
    county board disallows a claim, the person—which includes
    bodies politic and corporate 27—having a claim against the
    county “may appeal from the decision of the board to the dis-
    trict court of such county by causing a written notice to be
    served on the county clerk within twenty days after making
    such decision.” 28
    (iii) District Court’s Determination
    The court determined that the claim submission and
    appeal procedures in § 23-135 did not apply. It reasoned that
    Lancaster County’s duty to provide general assistance was a
    statutory duty under the general assistance statutes and did not
    arise out of any contract.
    (c) Principles of Statutory Interpretation
    [9-11] The parties’ arguments require interpretation of stat-
    utes. Statutory language is to be given its plain and ordi-
    nary meaning, and an appellate court will not resort to inter-
    pretation to ascertain the meaning of statutory words which
    are plain, direct, and unambiguous. 29 It is not within the
    26
    § 23-135(1).
    27
    See 
    Neb. Rev. Stat. § 49-801
    (16) (Reissue 2021).
    28
    § 23-135(4).
    29
    JB & Assocs. v. Nebraska Cancer Coalition, 
    303 Neb. 855
    , 
    932 N.W.2d 71
    (2019).
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    province of a court to read a meaning into a statute that is
    not warranted by the language; neither is it within the prov-
    ince of a court to read anything plain, direct, or unambiguous
    out of a statute. 30 If the language of a statute is clear, the words
    of such statute are the end of any judicial inquiry regarding
    its meaning. 31
    (d) Specific Statute Versus
    General Statute
    [12] To the extent conflict exists between two statutes, the
    specific statute controls over the general. 32 During oral argu-
    ment, the parties took different positions regarding which stat-
    ute, § 23-135 or § 68-145, was the more specific statute. We
    see no conflict. If the county claim procedure is required to be
    followed, the statutes can be read together.
    (e) When Is County Claim
    Procedure Mandatory?
    The county claims statute has ancient roots. The Legislature
    enacted a precursor to § 23-135 in 1879. 33 Long ago, we
    declared that the county claims statute applied to “claims origi-
    nating in contract, express or implied, between the claimant
    and the county.” 34
    [13] We have adhered to this interpretation. Compliance
    with the county claims statute is mandatory, and the county
    board has exclusive original jurisdiction, in cases against the
    county involving claims arising out of contract and containing
    quasi-judicial questions of fact. 35
    30
    Id.
    31
    Stewart v. Nebraska Dept. of Rev., 
    294 Neb. 1010
    , 
    885 N.W.2d 723
    (2016).
    32
    Heist v. Nebraska Dept. of Corr. Servs., 
    supra note 22
    .
    33
    See 1879 Neb. Laws, § 37, p. 366.
    34
    Douglas County v. Taylor, 
    50 Neb. 535
    , 545, 
    70 N.W. 27
    , 30 (1897).
    35
    See Jackson v. County of Douglas, 
    223 Neb. 65
    , 
    388 N.W.2d 64
     (1986).
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    (f) Does Claim for Reimbursement
    Arise From Contract?
    A claim must arise out of contract in order for compliance
    with the county claims statute to be required. Lancaster County
    contends that the right to reimbursement arises under statute,
    not contract. Custer County disagrees.
    No express contract between Lancaster County and Custer
    County is involved. But Custer County argues that there is
    a contract between Taul and Lancaster County based on the
    application for general assistance. Custer County highlights
    that the application contained a subrogation provision for the
    applicant’s claim against a third party, which provision is
    required by statute. 36 However, the application did not estab-
    lish a contractual relationship between Lancaster County—the
    claimant here—and Custer County.
    [14] Nor is there an implied contract between Lancaster
    County and Custer County. “The term ‘implied contract’ refers
    to that class of obligations that arises from mutual agreement
    and intent to promise, when the agreement and promise have
    simply not been expressed in words.” 37 Here, there was no
    mutual agreement and intent to promise between Lancaster
    County and Custer County. And an implied contract, which
    refers to an “implied-in-fact contract,” should not be confused
    with an “implied-in-law contract.” 38
    [15-17] An “implied-in-law contract,” also known as a
    “quasi-contract,” is not a contract. 39 Quasi-contract claims
    are restitution claims to prevent unjust enrichment. 40 Quasi-
    contractual obligations do not arise from an agreement; instead,
    the law imposes them when justice and equity require the
    36
    See § 68-150.
    37
    City of Scottsbluff v. Waste Connections of Neb., 
    282 Neb. 848
    , 856-57,
    
    809 N.W.2d 725
    , 737 (2011).
    38
    See City of Scottsbluff v. Waste Connections of Neb., supra note 37.
    39
    See id.
    40
    Id.
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    defendant to disgorge a benefit that he or she has unjustifi-
    ably obtained at the plaintiff’s expense. 41 Thus, the defendant’s
    liability arises under the law of restitution, not contract. 42
    [18,19] The liability of one county to another for the support
    of a poor person is purely statutory. 43 Although a statute can
    be the source of a contractual right, a contract will be found
    to exist only if the statutory language evinces a clear and
    unmistakable indication that the Legislature intends to bind
    itself contractually. The general rule is that rights conferred by
    statute are presumed not to be contractual. 44
    Courts in other states considering an action by one county
    or town against another for support of the poor have concluded
    that a county’s liability for the support of indigent individuals
    is not contractual. These courts have stated that the obliga-
    tion is purely statutory and that a demand for the support
    of the poor has none of the elements of a contract, express
    or implied. 45
    We conclude Lancaster County’s claim for reimbursement
    from Custer County is one arising in statute. It is quasi-
    contractual in nature—an “obligation[] created by law for
    reasons of justice.” 46 Accordingly, compliance with the county
    claims statute is not mandatory.
    41
    See 
    id.
    42
    
    Id.
    43
    See Otoe County v. Lancaster County, 
    78 Neb. 517
    , 
    111 N.W. 132
     (1907).
    44
    United States Cold Storage v. City of La Vista, 
    285 Neb. 579
    , 
    831 N.W.2d 23
     (2013).
    45
    See, e.g., Gunnison Co. v. Ouray Co., 
    53 Colo. 287
    , 
    125 P. 536
     (1912);
    Augusta v. Chelsea, 
    47 Me. 367
     (1860); Lander County v. Humboldt
    County, 
    21 Nev. 415
    , 
    32 P. 849
     (1893) (superseded by statute as stated in
    County of Lander v. Board of Tr. of Elko Gen. Hosp., 
    81 Nev. 354
    , 
    403 P.2d 659
     (1965)); Hamlin County v. Clark County, 
    1 S.D. 131
    , 
    45 N.W. 329
     (1890).
    46
    Clark & Enersen, Hamersky, S., B. & T., Inc. v. Schimmel Hotels Corp.,
    
    194 Neb. 810
    , 813, 
    235 N.W.2d 870
    , 872 (1975).
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    Though not mandatory, the county claims route could have
    been pursued. Two cases involving a county’s request for
    reimbursement from a different county refer to the denial of
    a claim by a county board and then an appeal to the district
    court. 47 In one case, Frontier County presented a claim to the
    county board of Lincoln County for expenses incurred in car-
    ing for a pauper, the board rejected the claim, and Frontier
    County “appealed to the district court and there filed a petition
    for the amount claimed.” 48 Similarly, in the other case, Rock
    County “filed its claim before the board of supervisors of [Holt
    C]ounty for expenses in caring for an alleged pauper, who
    became such in [Rock C]ounty, but who was a resident of [Holt
    C]ounty.” 49 After the board rejected the claim, Rock County
    appealed to the district court.
    In neither case did we discuss jurisdiction, mention the
    county claims statute, or proclaim that compliance with the
    county claims statute was the exclusive way to reach the dis-
    trict court. We observe that another case made no mention of a
    claim’s being filed with a county board or of the action being
    an appeal from a board’s decision. 50 We do not read these
    cases as requiring the filing of a claim. We see no reason why
    Lancaster County could not have pursued that route, if it had
    chosen to do so. But as discussed above, only in cases against
    the county involving claims arising out of contract and contain-
    ing quasi-judicial questions of fact does the county board have
    exclusive original jurisdiction. 51
    47
    See, Frontier County v. Lincoln County, 
    121 Neb. 701
    , 
    238 N.W. 317
    (1931); Rock County v. Holt County, 
    78 Neb. 616
    , 
    111 N.W. 366
     (1907).
    48
    See Frontier County v. Lincoln County, supra note 47, 
    121 Neb. at 702
    ,
    238 N.W. at 318.
    49
    Rock County v. Holt County, supra note 47, 78 Neb. at 616, 111 N.W. at
    366.
    50
    Otoe County v. Lancaster County, supra note 43.
    51
    Jackson v. County of Douglas, supra note 35.
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    (g) Compliance With
    Chapter 68 Procedure
    [20-22] By statute, a county has a mandatory duty to pro-
    vide for poor persons whether or not they are residents of
    the county. 52 The right to enforce the liability of one county
    to another county for expenses paid by the former in car-
    ing for a poor person whose residence is in the latter county
    requires compliance with statutory terms and conditions. 53 We
    have stated that “when a statute gives a right and creates a
    liability which did not exist at common law, and at the same
    time points out a specific method by which the right can be
    asserted and the liability ascertained, that method must be
    strictly pursued.” 54
    The statutes set forth duties for the county where the poor
    person is found and for the county of the poor person’s legal
    settlement. The clerk of the county board where the poor per-
    son has become chargeable has the duty to mail a notice to the
    clerk of the county board of the poor person’s legal settlement
    that “such person has become chargeable as a poor person, and
    requesting the authorities of such county to promptly remove
    such poor person and to pay the expense accrued in taking care
    of him or her.” 55 If the poor person cannot be removed, “then
    the county taking charge of such individual may sue for, and
    recover from the county to which such individual belongs, the
    amount expended for and in behalf of such poor person and in
    taking care of such person.” 56
    The ancient “pauper” statutes contained similar provisions.
    The precursor statutes referred to “send[ing] a notice by mail
    to the clerk” of the county commissioners or county board
    52
    See Salts v. Lancaster Cty., 
    supra note 4
    .
    53
    See Frontier County v. Lincoln County, supra note 47.
    54
    Frontier County v. Palmer, 
    125 Neb. 716
    , 718, 
    251 N.W. 830
    , 830 (1933).
    55
    § 68-144.
    56
    § 68-145.
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    and requesting the authorities of the other county to remove
    the pauper and “to pay the expense accrued.” 57 They pro-
    vided that “the county taking charge of such individual may
    sue for, and recover from the county to which said individ-
    ual belongs.” 58
    Lancaster County complied with the statutory procedure.
    The Lancaster County clerk mailed a “Notice of Removal
    and Payment” to the Custer County clerk. It stated that Taul
    “has become chargeable as a poor person in a county, which
    he or she has not established a legal settlement as [sic] the
    time of applying for aid.” The notice requested that Custer
    County authorities promptly remove Taul from Lancaster
    County and pay the expense Lancaster County accrued in
    taking care of Taul. Custer County did not remove Taul. (We
    doubt that Custer County could have done so without Taul’s
    voluntary participation and consent.) Nor did Custer County
    pay expenses incurred by Lancaster County. Thus, § 68-145
    authorized Lancaster County to “sue for, and recover from
    the county to which such individual belongs, the amount
    expended for and in behalf of such poor person and in taking
    care of such person.” We emphasize that whether a county
    seeking reimbursement for general assistance wishes to use
    the county claims statute 59 or the direct action statute, 60 that
    county must follow the procedure specified in § 68-144. Here,
    it did.
    As authorized by § 68-145, Lancaster County filed a law-
    suit against Custer County to recover expenses for Taul’s
    care. We conclude that the district court for Lancaster County
    57
    See, e.g., Comp. Stat. ch. 67, § 12 (1881); Rev. Stat. § 5806 (1913);
    Comp. Stat. § 68-112 (1929).
    58
    See, e.g., Comp. Stat. ch. 67, § 13 (1881); Rev. Stat. § 5807 (1913);
    Comp. Stat. § 68-113 (1929).
    59
    § 23-135.
    60
    § 68-145.
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    had subject matter jurisdiction over Lancaster County’s action
    for reimbursement under the general assistance statutes.
    2. Plain Error Review
    Having resolved the jurisdictional issue, we proceed to
    the merits. But because no errors were properly assigned, we
    review for plain error only. We find none.
    The district court granted Lancaster County a summary
    judgment. The court concluded that it had jurisdiction and that
    § 23-135 did not apply. For the reasons discussed above, we
    agree that the district court had jurisdiction. The court next
    determined that Lancaster County produced enough evidence to
    demonstrate entitlement to reimbursement from Custer County
    if the evidence were uncontroverted at trial. It further deter-
    mined that Custer County failed to produce admissible contra-
    dictory evidence showing the existence of a material issue of
    fact regarding compliance with the general assistance statutes,
    the approval and adoption of the general assistance guidelines,
    or compliance with those guidelines.
    We see no error plainly evident from the record. Accordingly,
    we affirm the grant of summary judgment in Lancaster County’s
    favor.
    VI. CONCLUSION
    We conclude that compliance with the county claims stat-
    ute is not mandatory and jurisdictional when a county which
    furnished general assistance to an indigent individual com-
    plies with the general assistance statutes in seeking reimburse-
    ment from the indigent individual’s county of legal settlement.
    Because Lancaster County so complied and we see no plain
    error, we affirm the district court’s summary judgment.
    Affirmed.
    Stacy, J., not participating.
    

Document Info

Docket Number: S-22-269

Citation Numbers: 313 Neb. 622

Filed Date: 2/24/2023

Precedential Status: Precedential

Modified Date: 2/24/2023

Authorities (22)

County Commissioners v. County Commissioners , 53 Colo. 287 ( 1912 )

City of Augusta v. Inhabitants of Chelsea , 47 Me. 367 ( 1860 )

Great Northern Ins. Co. v. Transit Auth. of Omaha , 308 Neb. 916 ( 2021 )

In re Estate of Scaletta , 312 Neb. 953 ( 2022 )

Tyrrell v. Frakes , 309 Neb. 85 ( 2021 )

Clark v. Sargent Irr. Dist. , 311 Neb. 123 ( 2022 )

Douglas County v. Taylor , 50 Neb. 535 ( 1897 )

Otoe County v. Lancaster County , 78 Neb. 517 ( 1907 )

Rock County v. Holt County , 78 Neb. 616 ( 1907 )

JB & Assocs. v. Nebraska Cancer Coalition , 932 N.W.2d 71 ( 2019 )

Salts v. Lancaster County , 269 Neb. 948 ( 2005 )

Stewart v. Nebraska Dept. of Rev. , 294 Neb. 1010 ( 2016 )

JB & Assocs. v. Nebraska Cancer Coalition , 303 Neb. 855 ( 2019 )

REO Enters. v. Village of Dorchester , 312 Neb. 792 ( 2022 )

Frontier County v. Lincoln County , 121 Neb. 701 ( 1931 )

Frontier County v. Palmer , 125 Neb. 716 ( 1933 )

Heist v. Nebraska Dept. of Corr. Servs. , 312 Neb. 480 ( 2022 )

Jackson v. County of Douglas , 223 Neb. 65 ( 1986 )

Clark & Enersen, Hamersky, Schlaebitz, Burroughs & Thomsen, ... , 194 Neb. 810 ( 1975 )

County of Lander v. BOARD OF TR. OF ELKO GEN. HOSP. , 81 Nev. 354 ( 1965 )

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