Annual Report of the Attorney General 1989
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IDAHO ATTORNEY GENERA�S ANNUAL REPORT OPINIONS AND SELECTED INFORMAL GUIDELINES FOR THE YEAR 1989 Jim Jones Attorney General Printed by The Caxton Printers, Ltd. Caldwell, Idaho CONTENTS Roster of Attorneys General of Idah'J . v Introduction . vi Roster of Staff of the Atto.·ney General ........................ Organizational Chart of the Office of the Attorney General . 2 Official Opinions - l 989 . 3 Topic Index to Opinions . 99 Table of Statutes Cited . 104 Selected Informal Guidelines - 1989 . I 09 Topic Index to Selected Informal Guidelines . 219 Table of Statutes Cited . 226 111 AT TORNEYS GENERAL OF IDAHO GEORGE H. ROBERTS 1891-1892 GEORGE M. PAR30NS ... ....... ..... ............ 1893- 1896 ROBERT McFARLAND . .. ..... .... .......... ......... 1897-1 898 S. H. HAYS . 1899- 1900 FRANK MARTIN ..................................... 1901-1902 JOHN A. BAGLEY ... ........................ ...... .. 1903- 1 904 JOHN GUHEEN . 1905-1 908 D. C. McDOUGALL .................................... 1909-1912 JOSEPH H. PETERSON ............ .................... 1913-1916 T. A. WA LTERS 1917-1918 ROY L. BLACK ...... ................................. 1919-1922 A. H. CONNER . 1923-1 926 FRANK L. STEPHAN .................................. 1927-1 928 W. D. GILLIS . 1929-1930 FRED J. BABCOCK .................................... 1931-1932 BERT H. MILLER ..................................... 1933-1936 J. W. TAYLOR . 1937-1940 BERTH. MILLER ..................................... 1941-1944 FRANK LANGLEY ... ......... ... ............... ... 1945-1 946 ROBERT AILSHIE(Deceased November 16) ............... 1947 ROBERT E. SMYLIE (Appointed November 24) ............ 1947-1 954 GRAYDON W. SMITH . ............. ..... ... ..... .... 1955-1958 FRANK L. BENSON ................ ...... ....... 1959-1 962 ALLAN G. SHEPARD . 1963-1 968 ROBERT M. ROBSON ..... ........................ 1969 W. ANTHONY PARK . ..... ............. ..... ..... ... 1970-1 974 WAY NE L. KIDWELL .................................. 1975-1978 DAVID H. LEROY . ......... .............. ......... 1979-1982 JIM JONES . 1983- v Jim Jones Attorney General vi INTRODUCTION One of my most dreaded tasks each year is to prepare an introduction for the annual opinion book. It is not enough to just say that the enclosed opinions repre sent all of the official opinions for 1989 and a selection of the more important or interesting unofficial guidelines. Everyone knows that. Besides, if you don't say more there is a lot of blank space on the introductory page. Therefore, one must think of something important, intelligent, or entertaining to say, along with the purely introductory remarks. It is not an easy task, es pecially when you have the abiding feeling that no one ever reads the introduction anyway. Besides, there isn't enough space to really get into any particular subject in enough depth to really capture anyone's attention, let alone to receive jour nalistic honors. That is why Lois Hurless, the office administrator, finds herself in the position of continually, but politely, reminding me that I need to prepare an introduction for the opinion book. It usually gets done, as in this instance, after about ten re minders and when the publisher is crowding the deadline. So, having been suffi ciently prepared and working under significant pressure to get the job done, here goes. It is with great pleasure that I introduce the official opinions and more signifi cant unofficial guidelines prepared by my office during 1989. This product repre sents the hard work of a dedicated staff that strives to make the state's law firm one of the best in the state. I am very proud of that staff and of the work that it produces for the people of Idaho. I would like to add something of importance, intelligence, or great timeliness but, unfortunately, there is not enough room left on this page. Let it suffice to say that I hope our readers find this work to be of value. JIM JON ES ATTORNEY GENERAL Vil _____;_ ANNUAL REPORT OF THE AT TORNEY GENERAL OFFICE OF THE ATTORNEY GENERAL As of December 31, 1989 ADMINISTRATIVE Jim Jones--Attorney General John J. McMahon-Chief Deputy Lynr. E. Thomas-Solicitor General Lois W. Hurless-Office Administrator Tresha Griffiths-Executive Secretary Sandra Rich-Admin. Secretary /Receptionist Dan Kelsay-Computer Systems Manager Tara Orr-Bookkeeper DIVISION CHIEFS Clive J. Strong, Natural Resources Patrick J. Kole-Legislative Affairs David G. High-Business Regulations & Finance Daniel G. Chadwick-Intergovernmental Affa irs Michael DeAngelo-Health & We lfare Michael Kane-Criminal Law DEPUTY ATTORNEYS GENERAL Laura Arment Jack Haycock Barbara Reisner James Baird Michael Henderson John Reubelmann David Barber Thomas Holden Marilyn Scanlan Josephine Beeman John Holt Steve Schuster Lore Bense! John Homan Michael Sheeley Carol Brassey Donald Howell Larry Sirhall Cathy Broad John Hummell Marsha Smith Susan Burke Terry Hutchens Te resa Sobotka Dallas Burkhalter Michael Jones Theodore Spangler Merrillee Caldwell Rinda Just Myrna Stahman Thomas Dominick Dean Kaplan Michael Stoy Larry Dunn Jan ice Kroeger Steve Strack Elaine Eberharter-Maki Lynn Krogh-Hampe Tyra Stubbs Mary Feeny Margaret Lawless We ldon Stutzman Wa rren Felton Jim Leuen berger Thomas Swinehart Rene Fitzpatrick Lori Mann Evelyn Thomas Curt Fransen Susan Mattos Lawrence Wasden Roger Gable John Mccreedy Margaret White Robert Gates Steve Mendive Timothy Wilson Leslie Goddard Mark Mimura Lenard Wittlake Stephen Goddard Eric Nelson Scott Woodbury Fred Goodenough Priscilla Nielson Kelly Wright Jeanne Goodenough Denise O'Donnell Roseanne Hardin Phillip Rassier INVESTIGATIVE SERVICE Russell T. Reneau-Chief Investigator Allan J. Ceriale Richard T. LeGall Randall Everitt NON- LEGAL PERSONNEL Jeanne Black Marilyn Freeman Dora Morley Kriss Bivens Paula Gradwohl Sharon Noice Karen Bolian Ann Lang Elsie O'Leary Kathie Brack Pat McCoy Jim Osgood Carrie Clark Ronda Mein Michelle Sherrer Margrit Davis Patty McNeil! Stephanie Wible ORGANIZATION CHART - Office of the Attorney General ATTORNEY GE1'iERAL > z z CHIEF DEPUTY � r � tI1 .,, , , 0 , , , � , , ...., , , l!'OTERGOVERN BUSINESS NATURAL 0 , HEALTH & WELFARE MENTAL , REGULATIONS RESOURCES 'Tl , AFFAIRS , ...., , , N , ::r: , tTl LOCAL <:iOVERNME'."!T PROSECUTOR CONSUMER I CORRECTIONS CENTRAL OFFICE HEALTH SELF-GOVERNING CRIMINAL APPEALS ASSISTANCE AFFAIRS AG ENC: Pi � I ...., COMMUNI TY 0 REHABILITATION ADMINISTRATION AGRICULTURE EDUCATION � INVESTIGATION I z I ENVIRONMENT I tTl Flr..:ANCE ENVIRONMENT EMPLOY\1E'.'IT HEALTH & WELFARE -< 1 Cl I FIELD I INSURANCE OPERATIONS HUMAN RIGHTS tTl FISH & GAME l z I I I tTl P.E.R.S.I. I MANAGEMENT INDUSTRIAL � LANDS SERVICES COMMISSION > I r REVENUE I I & I TAXATION PARKS & VETERANS PERSOl'iNEL RECREATION COMMISSION I I WELFARE I WATER RESOURCES PUBLIC UTILITIES COMMISSION OFFICIAL OPINIONS OF THE ATTORNEY GENE RAL FOR 1989 Jim Jones Attorney General State of Idaho OPINIONS OF THE ATTORNEY GENERAL 89-1 ATTORNEY GENERAL OPINION NO. 89-1 R. Keith Higginson, Director Department of Water Resources Statehouse Mail Boise, ID 83720 Per Request fo r Attorney General's Opinion QUESTIONS PRESENTED: I. Do Idaho counties have the authority to enter into an agreement with coun ties of Utah and Wyoming to develop a joint water project on the Bear River? 2. Does the Idaho Water Resource Board have authority to issue revenue bonds, either separately or jointly with the other compacting states, to fund Ida ho's share of a joint water project on the Bear River within Idaho, or within Utah or Wyoming? 3. If a joint project is developed in Idaho, is project water allocated to Utah and Wyoming chargeable to their shares of Bear River water under the compact? 4. May any portion of Idaho's share of the waters of Bear River under the Bear River Compact be allocated for use in another state? 5. If there is an interbasin transfer of Bear River water from a joint project in Idaho, would this create a legal precedent affecting other river basins in the state? CONCLUSIONS: l. Idaho counties have authority to join in an agreement with counties of Utah and Wyoming to develop a joint water project on the Bear River. Under Idaho law, however, the purposes of the water project must be limited to the irri gation or drainage of lands in the respective counties. 2. The Idaho Water Resource Board has authority to issue revenue bonds, ei ther separately or jointly with the other compacting states, to fund Idaho's share of a joint water project on the Bear River within Idaho, Utah, or Wyoming. How ever, the Idaho Legislature must authorize construction of the project before the Idaho Water Resource Board may issue the revenue bonds. 3. If a joint water project on the Bear River is developed in Idaho, water allo cated for beneficial use in Utah and Wyoming will be charged against Utah's or Wyoming's share of water under the Amended Bear River Compact. 5 OPINIONS OF THE ATTORNEY GENERAL 89-1 4. Idaho's share of Bear River water under the Bear River Compact cannot be allocated for use in another state. 5. An interbasin transfer of Bear River water from a joint project in Idaho to Utah or Wyoming will not create a legal precedent affecting other river basins in the state. ANALYSIS: Question No. I Your first question asks whether counties in Idaho have authority to enter into agreements with counties in Utah and Wyoming to develop a joint water project on the Bear River. The Joint Exercise of Powers Act, Idaho Code §§ 67-2326 to 67-2333 ( 1980 and Supp. 1988 ), authorizes public agencies