Original jurisdiction in case of Commonwealth of Pennsylvania v. Oscar W. Bodamer, Chairman, Louis Judson, Henry Mackey, in their capacities as the County Commissioners of Venango County, and Harry A. Storm, Sheriff.
Thomas F. Halloran, Assistant Attorney General, with him J. Andrew Smyser, Deputy Attorney General, and Gerald S. Gornish, Acting Attorney General, for plaintiff.
H. Woodruff Turner, with him David A. Borkovic, and Kirkpatrick, Lockhart, Johnson & Hutchison, and, of counsel, F. Earle Magee, Jr., for defendants.
Judges Rogers, Blatt and MacPhail, sitting as a panel of three. Opinion by Judge MacPhail.
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Plaintiff, the Commonwealth of Pennsylvania, has sued the Commissioners and Sheriff of Venango County (Defendants) in equity to enforce standards applicable to Pennsylvania county jails and prisons (Standards) promulgated by the Bureau of Correction of the Department of Justice (Department). The Defendants filed preliminary objections in the nature of a demurrer which aver the existence of a full, complete and adequate remedy at law.
Concerning the objection of a full, complete and adequate remedy at law, the Defendants contend that
[ 40 Pa. Commw. Page 526]
the Commonwealth has an adequate remedy at law in the nature of an action in mandamus. We disagree. Here we are not concerned with the performance of a specific ministerial act but rather a general course of official conduct to be carried out over a long period of time and under varying conditions. Our Supreme Court has held that mandamus will not lie in such circumstances. Lakeland Joint School District Authority v. Scott Township School District, 414 Pa. 451, 200 A.2d 748 (1964); Dorris v. Lloyd, 375 Pa. 474, 100 A.2d 924 (1953). Accordingly, we hold that equitable relief is appropriate.
The Defendants also contend that the Commonwealth's complaint is fatally defective because the Standards it seeks to enforce are invalid. The Standards were officially adopted by publication at 3 Pa. Bulletin 655 et seq. on April 7, 1973. In the official notice it is stated:
The Standards hereby adopted are adopted pursuant to the authority contained in the Act of April 9, 1929, P.L. 177, Article IX, § 916, added July 29, 1953, P.L. 1424, § 2 (71 P.S. § 306).
That statute gives the Department authority to regulate state institutions, not county jails and prisons. However, while admitting its error in this respect, the Commonwealth contends that in its notice of intention to adopt the Standards published at 3 Pa. Bulletin 229 et seq. on February 3, 1973, it correctly cited Section 3 of the Act of December 27, 1965, P.L. 1237, 61 P.S. § 460.3, as its statutory authority and that somehow that legislative authority is carried over by reference into the notice of adoption.
We disagree. 1 Pa. Code § 9.201, promulgated by the Joint Committee on Documents, provides that every administrative regulation shall indicate expressly the ...