TIPCO v CITY OF BILLINGS

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No. 81-330 IN THE SUPREME COURT OF THE STATE OF MONTANA 1982 TIPCO CORPORATION, INC. Plaintiff and Appellant, VS. THE CITY OF BILLINGS, Defendant and Respondent. Appeal from: District Court of the Thirteenth Judicial District, In and for the County of Yellowstone Honorable William J. Speare, Judge presiding. Counsel of Record: For Appellant: Stephens & Cole, Billings, Montana Larry Cole argued, Billings, Montana For Respondent: Peterson Law Offices, Billings, Montana V. Joe Leckie argued, Billings, Montana Submitted: Decided: Filed: MAR 2 9 1982 March 1, 1982 MAR 2 9 1982 M r . C h i e f J u s t i c e F r a n k I . H a s w e l l d e l i v e r e d t h e O p i n i o n of t h e Court. The C i t y o f B i l l i n g s e n a c t e d a n o r d i n a n c e d e c l a r i n g unin- v i t e d door-to-door s o l i c i t a t i o n s a nuisance punishable a s a mis- d e m e a n o r and e x e m p t i n g l o c a l m e r c h a n t s w i t h r e g u l a r l y e s t a b l i s h e d p l a c e s o f b u s i n e s s from i t s o p e r a t i o n . t h e ordinance valid. The D i s t r i c t C o u r t h e l d We reverse. P l a i n t i f f T i p c o C o r p o r a t i o n is a f o r e i g n c o r p o r a t i o n w i t h n o b u s i n e s s o f f i c e i n Montana. Twelve s a l e s a g e n t s of T i p c o , l i c e n s e d and bonded u n d e r Montana s t a t u t e s , were s e l l i n g m a g a z i n e s u b s c r i p t i o n s door-to-door i n B i l l i n g s d u r i n g March 1 9 8 1 . s a l e s a g e n t s d e p e n d e d on d o o r - t o - d o o r l i v e l i h o o d and income. These solicitations for their The s a l e s a g e n t s would f o r w a r d s u b s c r i p - t i o n s o b t a i n e d from B i l l i n g s c u s t o m e r s to ~ i p c o ' smain o f f i c e i n I n d i a n a which would p l a c e t h e s u b s c r i p t i o n s w i t h v a r i o u s m a g a z i n e publishers. The s a l e s a g e n t s were a r r e s t e d and c h a r g e d w i t h m i s - demeanors under t h e B i l l i n g s o r d i n a n c e . On March 2 0 , 1 9 8 1 , T i p c o f i l e d a c o m p l a i n t i n t h e Y e l l o w s t o n e County D i s t r i c t C o u r t t o e n j o i n t h e C i t y o f B i l l i n g s f r o m e n f o r c i n g i t s o r d i n a n c e c o n t e n d i n g it con£ l i c t e d w i t h o v e r r i d i n g s t a t e s t a t u t e s and was u n c o n s t i t u t i o n a l u n d e r F e d e r a l and S t a t e C o n s t i t u t i o n a l p r o v i s i o n s . The C i t y r e s p o n d e d w i t h a m o t i o n t o d i s m i s s a l l e g i n g no c o n f l i c t w i t h s t a t e s t a t u t e o r constitutional provisions. The ~ i s ti r t C o u r t , a f t e r n o t i c e to c t h e p a r t i e s t h a t it would t r e a t t h e case a s s u b m i t t e d on crossm o t i o n s f o r summary j u d g m e n t , g r a n t e d summary j u d g m e n t to t h e C i t y u p h o l d i n g t h e v a l i d i t y of t h e o r d i n a n c e . Tipco appeals. Three i s s u e s a r e p r e s e n t e d on appeal: (1) Is t h e B i l l i n g s o r d i n a n c e i n v a l i d a s con£ l i c t i n g w i t h s t a t e s t a t u t e s g o v e r n i n g t h e l i c e n s i n g of i t i n e r a n t v e n d o r s ? ( 2 ) Is t h e B i l l i n g s o r d i n a n c e i n v a l i d as c o n f l i c t i n g w i t h s t a t e s t a t u t e s governing nuisances? ( 3 ) Does t h e B i l l i n g s o r d i n a n c e u n f a i r l y d i s c r i m i n a t e a g a i n s t T i p c o c o n t r a r y t o t h e commerce c l a u s e of t h e U n i t e d S t a t e s C o n s t i t u t i o n and t h e d u e p r o c e s s and e q u a l p r o t e c t i o n c l a u s e s o f t h e U n i t e d S t a t e s and Montana C o n s t i t u t i o n s ? The r e l e v a n t s t a t e s t a t u t e s g o v e r n i n g i t i n e r a n t v e n d o r s a r e f o u n d i n T i t l e 7 , C h a p t e r 21, MCA, and p r o v i d e as f o l l o w s : " P a r t 23 " L i c e n s i n g o f I t i n e r a n t Vendors "Definitions ... " ( 2 ) W i t h i n t h e meaning o f t h i s p a r t , a n ' i t i n e r a n t vendor' is any p e r s o n engaged o r e m p l o y e d i n t h e b u s i n e s s o f r e t a i l i n g to cons u m e r s by g o i n g f r o m c o n s u m e r to c o n s u m e r , e i t h e r on t h e s t r e e t s or to t h e i r p l a c e s of r e s i d e n c e or employment and t h e r e s o l i c i t i n g , s e l l i n g , o r o f f e r i n g to s e l l or e x h i b i t i n g f o r s a l e ( b y s a m p l e , b y c a t a l o g u e , o r o t h e r w i s e ) or t a k i n g o r d e r s f o r f u t u r e d e l i v e r y of any goods, wares, o r m e r c h a n d i s e or f o r s e r v i c e s to be performed i n t h e f u t u r e 7-21-2301 ( 2 ) , MCA. "Scope -- r t of p a ... ." " ( 2 ) Nothing c o n t a i n e d i n t h i s p a r t is i n t e n d e d t o o p e r a t e s o as t o i m p a i r , a b r i d g e , o r i n t e r f e r e w i t h t h e r i g h t of any i n c o r p o r a t e d municip a l i t y w i t h i n t h i s s t a t e t o e n a c t local l a w s o r o r d i n a n c e s d e a l i n g w i t h the s u b j e c t of t h i s p a r t , provided t h a t such m u n i c i p a l i t y s h a l l not i m p o s e a n y l i c e n s e f e e s i n e x c e s s o f twice t h e amount p r o v i d e d h e r e i n f o r county l i c e n s e f e e s 7 - 2 1 - 2 3 0 2 ( 2 ) , MCA. ." An a n n u a l $ 1 5 c o u n t y l i c e n s e f e e f o r i t i n e r a n t v e n d o r s is provided i n the A c t . S e c t i o n 7-21-2303, MCA. The B i l l i n g s O r d i n a n c e p r o v i d e s i n p e r t i n e n t p a r t : "ORDINANCE N o . 5.20.050. SOLICITING PROHIBITED "The p r a c t i c e o f g o i n g i n t o p r i v a t e r e s i d e n c e s , business establishments, o r o f f i c e s i n the City b y solicitors, p e d d l e r s , hawkers, i t i n e r a n t m e r c h a n t s and t r a n s i e n t v e n d o r s o f m e r c h a n d i s e , n o t h a v i n g b e e n r e q u e s t e d or i n v i t e d to d o so b y t h e owner or o w n e r s , o c c u p a n t or o c c u p a n t s of p r i v a t e r e s i d e n c e s , b u s i n e s s e s t a b l i s h m e n t s or o f f i c e s f o r t h e purpose of s o l i c i t i n g o r d e r ( s i c ) f o r t h e s a l e o f g o o d s , wares and m e r c h a n d i s e , a n d / o r f o r t h e purpose of d i s p o s i n g of and/or peddling o r hawking same is h e r e b y d e c l a r e d t o be a n u i s a n c e and p u n i s h a b l e a s a m i s d e m e a n o r . " "ORDINANCE NO. 5.20.060. EXCEPTIONS. "The p r o v i s i o n s o f t h i s c h a p t e r s h a l l n o t a p p l y t o r e g u l a r l y e s t a b l i s h e d p l a c e s of b u s i n e s s o r t o bonafide merchants having r e g u l a r l y e s t a b l i s h e d places of business within said c i t y , o r t o a n y r e g u l a r l y l i c e n s e d a u c t i o n e e r or to a n y p e r s o n d i s t r i b u t i n g by s a l e , o r o t h e r w i s e , p r o d u c e d b y him on owned o r l e a s e d p r e m i s e s ; p r o v i d e d s u c h p r e m i s e s are l o c a t e d w i t h i n 1 5 0 miles of t h e C i t y . " The f o c u s o f t h e f i r s t i s s u e is w h e t h e r t h e C i t y o f B i l l i n g s is empowered to p r o h i b i t u n i n v i t e d d o o r - t o - d o o r solici- t a t i o n s by i t i n e r a n t vendors under t h e s t a t e l i c e n s i n g s t a t u t e or otherwise. T i p c o a r g u e s t h a t a s t a t u t o r y g r a n t o f power to a m u n i c i p a l i t y to e n a c t o r d i n a n c e s " d e a l i n g w i t h " i t i n e r a n t vendors d o e s n o t empower a c i t y t o p r o h i b i t t h e i r a c t i v i t i e s , c i t i n g DeLong v. Downes ( 1 9 7 7 ) , 1 7 5 Mont. 1 5 2 , 5 7 3 P.2d 1 6 0 ( a s t a t u t e a u t h o r i z i n g r e g u l a t i o n of gambling l i c e n s e s is n o t a g r a n t of power t o p r o h i b i t a u t h o r i z e d f o r m s o f g a m b l i n g ) ; W i n t h e r v. V i l l a g e o f Wieppe ( 1 9 6 7 ) , 9 1 I d a h o 798, 430 P.2d 6 8 9 ( t h e power t o r e g u l a t e a b u s i n e s s i s n o t a g r a n t o f power to p r o h i b i t i t ) ; a n d Combined C o m m u n i c a t i o n s C o r p o r a t i o n v. C i t y and C o u n t y o f D e n v e r ( 1 9 7 5 ) , 1 8 9 C o l o . 4 6 2 , 542 P.2d 7 9 ( t h e power to r e g u l a t e d o e s n o t i n c l u d e t h e power t o p r o h i b i t ) ; and a r g u i n g t h a t i f t h e l e g i s l a t u r e i n t e n d e d to g r a n t c i t i e s t h e power to p r o h i b i t t h e a c t i v i t i e s o f i t i n e r a n t v e n d o r s , it c o u l d h a v e p l a i n l y s a i d so. S t a t e s t a t u t e s d e f i n e i t i n e r a n t v e n d o r s to i n c l u d e p e r s o n s engaged i n door-to-door s o l i c i t a t i o n s [ s e c t i o n 7-21-2301 ( 2 ) , MCA], p r o v i d e f o r l i c e n s i n g them [ s e c t i o n 7-21-2303, MCA], and s t a t e t h a t such s t a t u t e s s h a l l n o t impair t h e r i g h t of any incorp o r a t e d c i t y to e n a c t o r d i n a n c e s d e a l i n g w i t h t h e l i c e n s i n g of i t i n e r a n t vendors [ s e c t i o n 7-21-2302(2), MCA] . O t h e r s t a t e sta- t u t e s p r o v i d e t h a t "a l o c a l g o v e r n m e n t a l u n i t w i t h s e l f g o v e r n m e n t p o w e r s may e x e r c i s e a n y power n o t p r o h i b i t e d b y t h e c o n s t i t u t i o n , l a w , o r c h a r t e r " and " t h e s e p o w e r s i n c l u d e b u t a r e n o t l i m i t e d t o t h e p o w e r s g r a n t e d to g e n e r a l power g o v e r n m e n t s " s e c t i o n 7-1-101, MCA; and t h a t " t h e p o w e r s and a u t h o r i t y o f local government u n i t w i t h s e l f -government a p o w e r s s h a l l be l i b e r a l l y c o n s t r u e d " and " e v e r y r e a s o n a b l e d o u b t a s t o t h e e x i s t e n c e o f a l o c a l g o v e r n m e n t power or a u t h o r i t y s h a l l be r e s o l v e d i n f a v o r o f t h e e x i s t e n c e o f t h a t power or a u t h o r i t y . " S e c t i o n 7-1-106, MCA. T h e s e s t a t u t e s were e n a c t e d p u r s u a n t to t h e e x p a n s i o n of t h e powers of local self-government p r o v i d e d by M o n t a n a ' s 1 9 7 2 C o n s t i t u t i o n , A r t i c l e X I , S e c t i o n s 4 , 5 and 6 . T h u s w e f i n d no c o n f l i c t b e t w e e n s t a t e s t a t u t e s l i c e n s i n g i t i n e r a n t v e n d o r s and t h e B i l l i n g s o r d i n a n c e p r o h i b i t i n g o n e o f t h e i r activities--uninvited door-to-door solicitations. A l i c e n s i n g s t a t u t e does n o t l e g a l i z e an a c t i v i t y o t h e r w i s e prohibited. S t a t e e x r e l . R e p l o g l e v. J o y l a n d C l u b ( 1 9 5 0 ) , 1 2 4 Mont. 1 2 2 , 220 P.2d 988. S i n c e t h e C i t y of B i l l i n g s p o s s e s s e s s e l f - g o v e r n m e n t p o w e r s i t may e x e r c i s e a n y power n o t p r o h i b i t e d b y t h e C o n s t i t u t i o n , Law or C h a r t e r and p o s s e s s e s p o w e r s g r a n t e d to g e n e r a l power g o v e r n m e n t , it is empowered to p r o h i b i t u n i n v i t e d door-to-door s o l i c i t a t i o n s by i t i n e r a n t vendors. The s i t u a t i o n h e r e m u s t be d i s t i n g u i s h e d from s i t u a t i o n s i n v o l v i n g s t a t e p r e e m p t i o n o f a f i e l d o f r e g u l a t i o n as i n DeLong v . Downes, s u p r a ; S t a t e ex r e l . C i t y o f L i b b y v . H a s w e l l ( 1 9 6 6 ) , 1 4 7 Mont. 4 9 2 , 414 P.2d 6 5 2 ; C i t y o f B i l l i n g s v . H e r o l d ( 1 9 5 6 ) , 1 3 0 Mont. 1 3 8 , 296 P.2d 263; and S t a t e ex r e l . W i l e y v . ( 1 9 4 5 ) , 1 1 8 Mont. 5 0 , 1 6 4 P.2d 358. ~ i s t . t. C There, unlike here, the s t a t e had p r e e m p t e d r e g u l a t i o n o f g a m b l i n g , l i q u o r c o n t r o l and o t h e r f i e l d s t o t h e e x c l u s i o n o f m u n i c i p a l i t i e s which were p r o h i b i t e d from l e g i s l a t i n g i n t h o s e a r e a s . I n t h e i n s t a n t case t h e r e h a s b e e n no s t a t e p r e e m p t i o n or p r o h i b i t i o n . W e e x p r e s s l y o v e r r u l e s t a t e m e n t s i n DeLong t h a t a c o u n t y , c i t y or town c a n o n l y e x e r c i s e powers e x p r e s s l y c o n f e r r e d o n it b y t h e C o n s t i t u t i o n and s t a t u t e s or a r i s i n g b y n e c e s s a r y i m p l i c a t i o n and t h a t a n y r e a s o n a b l e d o u b t c o n c e r n i n g s u c h p o w e r s s h o u l d be resolved against the municipality. T h i s w a s the l a w under M o n t a n a ' s 1 8 8 9 C o n s t i t u t i o n and c a s e s d e c i d e d t h e r e u n d e r . It is n o t t h e l a w u n d e r M o n t a n a ' s 1 9 7 2 C o n s t i t u t i o n and s t a t u t e s enacted thereunder. T i p c o n e x t c o n t e n d s t h a t t h e B i l l i n g s o r d i n a n c e is i n v a l i d b e c a u s e it c o n f l i c t s w i t h s t a t e s t a t u t e s g o v e r n i n g n u i s a n c e s . Tipco p o i n t s o u t t h a t s e c t i o n 27-30-101(2), MCA, states t h a t n o t h i n g d o n e or m a i n t a i n e d u n d e r t h e e x p r e s s a u t h o r i t y o f a stat u t e can be d e c l a r e d a n u i s a n c e . Therefore, Tipco a r g u e s , t h e s t a t u t e l i c e n s i n g i t i n e r a n t vendors i m p l i e d l y i n d i c a t e s t h a t s o l i c i t a t i o n s are n o t a t h e i r a c t i v i t i e s i n door-to-door nuisance. The f a l l a c y i n T i p c o ' s a r g u m e n t is t h a t a l i c e n s i n g s t a t u t e does not l e g a l i z e a prohibited a c t i v i t y . R e p l o g l e v. J o y l a n d C l u b , s u p r a . T h e r e is no p r e e m p t i o n by t h e state of regulation of nuisances. d e c l a r e d u n i n v i t e d door-to-door a nuisance. S t a t e ex r e l . The C i t y o f B i l l i n g s h a s s o l i c i ' t a t i o n s by i t i n e r a n t v e n d o r s The same a n a l y s i s , t h e same r e a s o n s and t h e same r e s u l t a p p l i e s to t h i s i s s u e as t o t h e f i r s t i s s u e . W e hold the B i l l i n g s o r d i n a n c e v a l i d a g a i n s t t h i s a t t a c k by Tipco. However, w e h o l d t h a t t h e B i l l i n g s o r d i n a n c e d e n i e s T i p c o e q u a l p r o t e c t i o n o f t h e law i n v i o l a t i o n o f F e d e r a l and S t a t e Constitutional requirements. F o u r t e e n t h Amendment, S e c t i o n 1, U. S . C o n s t i t u t i o n ; A r t i c l e 11, S e c t i o n 4 , 1 9 7 2 Montana The B i l l i n g s o r d i n a n c e e x e m p t s l o c a l m e r c h a n t s Constitution. h a v i n g r e g u l a r l y e s t a b l i s h e d p l a c e s of b u s i n e s s i n t h e C i t y from t h e p r o h i b i t i o n a g a i n s t uninvited door-to-door I t pro- salesman. h i b i t s T i p c o f r o m e n g a g i n g i n t h e p r o h i b i t e d a c t i v i t y and p e r m i t s local m e r c h a n t s to engage i n t h e p r o h i b i t e d a c t i v i t y . This c o n s t i t u t e s p a t e n t d i s c r i m i n a t i o n p r o h i b i t e d under c o n s t i t u t i o n a l equal protection requirements. The B i l l i n g s o r d i n a n c e is n o t s u b j e c t to t h e " s t r i c t s c r u t i n y " t e s t of e q u a l p r o t e c t i o n because it does not burden a f u n d a m e n t a l r i g h t ( S t a t e v. T u r k ( N o . 81-341, 1982; S e a r l e L.Ed.2d & Co. v . Cohn ( 1 9 8 2 ) , (No. U.S. d e c i d e d March 2 5 , 1 - .Ct. S I 80-644 d e c i d e d F e b r u a r y 24, 1 9 8 2 ) ; S t a n l e y v . I l l i n o i s ( 1 9 7 2 ) , 405 U.S. 6 4 5 , 92 S . C t . Dunn v . B l u m s t e i n ( 1 9 7 2 ) , 4 0 5 U.S. 1 2 0 8 , 3 1 L.Ed.2d 330, 92 S.Ct. 995, 3 1 551; L.Ed.2d 274) n o r c o n s t i t u t e i n v i d i o u s d i s c r i m i n a t i o n a g a i n s t a s u s p e c t - 6 - c l a s s (Graham v. R i c h a r d s o n ( 1 9 7 1 ) , 4 0 3 U.S. 29 L.Ed.2d 365, 9 1 S.Ct. 534; Loving v. V i r g i n i a ( 1 9 6 7 ) r 388 U.S. 1 8 1 7 , 1 8 L.Ed.2d 1, 1848, 87 S.Ct. 1010). The " r a t i o n a l r e l a t i o n s h i p " t e s t d e t e r m i n e s w h e t h e r t h e B i l l i n g s ordinance s a t i s f i e s equal protection requirements, i.e. is t h e p r o h i b i t i o n a g a i n s t uninvited door-to-door solicita- t i o n by T i p c o and t h e p e r m i s s i o n f o r l o c a l m e r c h a n t s t o e n g a g e i n t h e same a c t i v i t y r a t i o n a l l y r e l a t e d to t h e a c h i e v e m e n t o f a l e g i t i m a t e governmental o b j e c t i v e ? W e h o l d it i s n o t . The o n l y r a t i o n a l r e l a t i o n s h i p t h a t h a s b e e n s u g g e s t e d is t h a t t h e C i t y c a n e x e r c i s e c o n t r o l o v e r l o c a l m e r c h a n t s and t h e i r u n i n v i t e d d o o r - t o - d o o r solicitations b u t cannot e x e r c i s e such c o n t r o l over out-of-state f i r m s and T h i s a r g u m e n t i s d i f f i c u l t to f o l l o w as t h e t h e i r solicitors. o r d i n a n c e p e r m i t s l o c a l m e r c h a n t s to engage i n t h e p r o h i b i t e d activity. Under s u c h c i r c u m s t a n c e s w h e r e is t h e c o n t r o l ? This argument a d d i t i o n a l l y l o s e s its v i t a l i t y because state l i c e n s i n g s t a t u t e s , e q u a l l y a p p l i c a b l e to l o c a l m e r c h a n t s and o u t - o f - s t a t e f i r m s , r e q u i r e p o s t i n g a bond o f $250 a s a c o n d i t i o n o f l i c e n s i n g to p r o t e c t customers. S e c t i o n 7-21-2306, MCA. A c l a s s i f i c a t i o n t h a t is p a t e n t l y a r b i t r a r y and b e a r s no r a t i o n a l r e l a t i o n s h i p to a l e g i t i m a t e g o v e r n m e n t a l i n t e r e s t o f f e n d s e q u a l p r o t e c t i o n o f t h e laws. ( 1 9 7 3 ) , 4 1 1 U.S. 677, 93 S.Ct. Frontierov. 1 7 6 4 , 3 6 L.Ed.2d Richardson 583; S i g e t y v . S t a t e Board o f H e a l t h ( 1 9 7 1 ) , 1 5 7 Mont. 4 8 , 482 P.2d 574. A s we h a v e p r e v i o u s l y h e l d , e q u a l p r o t e c t i o n o f t h e laws r e q u i r e s t h a t a l l p e r s o n s be t r e a t e d a l i k e u n d e r l i k e c i r c u m s t a n c e s . A s s o c i a t e d Plumbing, Heating o f Plumbers ( 1 9 7 9 ) , & Mont. Here u n i n v i t e d d o o r - t o - d o o r Billings C o o l i n g C o n t r a c t o r s v. S t a t e Board , 6 0 2 P.2d 5 9 7 , 36 S t . R e p . 1996. s o l i c i t o r s o f l o c a l m e r c h a n t s a r e no less a n u i s a n c e t h a n t h o s e of n o n l o c a l f i r m s . Thus, t h e c l a s s i - f i c a t i o n is a r b i t r a r y and o f f e n d s t h e e q u a l p r o t e c t i o n c l a u s e of b o t h F e d e r a l and Montana C o n s t i t u t i o n s . The r e m a i n i n g f e d e r a l c o n s t i t u t i o n a l a t t a c k s a r e f o r e c l o s e d b y t h e U n i t e d S t a t e s Supreme C o u r t d e c i s i o n i n B r e a r d v . C i t y o f A l e x a n d r i a ( 1 9 5 1 ) , 3 4 1 U.S. . L.Ed 622, 7 1 S.Ct. 920, I n t h a t case a G r e e n R i v e r t y p e o r d i n a n c e l i k e t h a t o f B i l l i n g s ( m i n u s t h e e x e m p t i o n f o r local m e r c h a n t s ) was h e l d n o t t o v i o l a t e t h e F e d e r a l Commerce c l a u s e , t h e F i r s t Amendment r i g h t o f f r e e s p e e c h , and t h e d u e p r o c e s s c l a u s e o f t h e F o u r t e e n t h Amendment. W e f i n d n o r e a s o n to h o l d o t h e r w i s e u n d e r M o n t a n a ' s c o n s t i t u t i o n a l freedom of speech g u a r a n t e e ( A r t . 11, S e c . 7 , Montana C o n s t i t u t i o n ) o r M o n t a n a ' s d u e p r o c e s s c l a u s e ( A r t . S e c . 1 7 , 1 9 7 2 Montana C o n s t i t u t i o n ) . 1972 11, Montana's C o n s t i t u t i o n , u n l i k e t h e F e d e r a l C o n s t i t u t i o n , c o n t a i n s no commerce c l a u s e . I n summary, w e h o l d B i l l i n g s O r d i n a n c e 5 . 2 0 . 0 5 0 5.20.060 and u n c o n s t i t u t i o n a l under t h e equal p r o t e c t i o n p r o v i s i o n s o f t h e U n i t e d S t a t e s and Montana C o n s t i t u t i o n s . S i n c e we have no way o f knowing w h e t h e r t h e C i t y o f B i l l i n g s would e n a c t t h e o r d i nance w i t h o u t t h e u n c o n s t i t u t i o n a l exemption contained i n 5.20.060, w e s t r i k e b o t h 5.20.050 and 5 . 2 0 . 0 6 0 leaving t h a t determination t o the City. The j u d g m e n t o f t h e D i s t r i c t C o u r t is r e v e r s e d i n a c c o r d ance with t h i s opinion. Chief J u s t i c e

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