AGO 84-2.
Case Date | January 31, 1984 |
Court | Colorado |
Colorado Attorney General Opinions
1984.
AGO 84-2.
January 31, 1984Department of Law
Attorney General Opinion FORMAL OPINION
of DUANE WOODARD
Attorney General Opinion No. 84-2
AG Alpha No. AD AD AGAMD
A. Y. Levine
Deputy Director
Department of Administration
1525 Sherman Street, 7th Floor
Denver, Colorado 80203
RE: Statutory and
constitutional restrictions on the use by state educational institutions of
installment purchase contracts to acquire personal property.Dear Mr. Levine:
I am writing in response to the request of your office for a
formal legal opinion concerning possible statutory and constitutional
restrictions on the use by state educational institutions of installment
purchase contracts to acquire data processing equipment and other personal
property.
QUESTIONS PRESENTED AND CONCLUSIONS
Your inquiry raises two specific questions:
Does C.R.S. 1973, 23-5-104, which appears to bar the governing
boards of state educational institutions from creating mortgages upon
institutional property, generally prohibit state educational institutions from
acquiring personal property under installment purchase contracts which grant
purchase money security interests in the acquired property to the sellers?
My conclusion is "no."
Does reservation by the seller of a purchase money security
interest in personal property sold to the state under an installment purchase
contract in and of itself give rise to constitutionally prohibited state debt?
My conclusion is that it does not.
ANALYSIS
It is my understanding that the Divisions of Purchasing and
Automated Data Processing (ADP) have for several years acquired data processing
equipment on behalf of state agencies and institutions under installment
purchase contracts which grant the seller a purchase money security interest in
the equipment. On other occasions, the state has acquired similar equipment by
lease-purchase from commercial lessors. Because title to leased equipment
technically remains in the lessor, local taxing authorities have recently begun
to levy personal property taxes against equipment leased to the state. Inasmuch
as these taxes must be paid by the lessor, prospective lessors are now refusing
to submit bids on proposed lease-purchases or are inflating the lease rentals
quoted in their bids to reimburse themselves for any taxes which may be levied
against the equipment. Conversely, because title passes to the buyer in an
installment purchase transaction, equipment sold to the state under installment
purchase contracts is exempt from local personal property taxation. See C.R.S.
1973, 39-3-301(d) (1982 repl. vol. 16B). As a result, bids received for
proposed installment purchases have not increased the scheduled installment
payments to compensate the prospective seller for personal property tax
liability. Under these circumstances, it is financially advantageous to the
state to acquire data processing equipment and other personal property by
installment purchase instead of lease-purchase.
However, unlike a lessor, whose retained title to the equipment
and corresponding right of entry secures it against the lessee's nonrenewal of
the lease or default, an installment seller who conveys title to the buyer must
secure itself by reserving a purchase money security interest in the equipment.
This has prompted the questions asked by your office.
Security interests are the direct descendants of "chattel
mortgages" which, before the adoption of the Uniform Commercial Code in
Colorado, secured installment sellers against default. Since the language of
C.R.S. 1973, 23-5-104 appears to bar state institutions of higher education
from creating "mortgages" upon institutional property, it is necessary to
ascertain whether this statutory prohibition applies to "chattel mortgages" or
purchase money security interests reserved in personal property conveyed to
state educational institutions under installment purchase contracts.
The inquiry whether a security interest can be granted to a
seller under C.R.S. 1973, 23-5-104, moreover, poses an even more fundamental
question: whether reservation of a purchase money security interest by an
installment seller in personal property purchased by the state creates
constitutionally proscribed state debt under Colo. Const. art. XI, sec. 3.
Unless installment purchase contracts which grant purchase money security
interests to sellers are constitutionally permissible, it is self-evident that
no state agency or institution may finance equipment acquisitions by these
means. I have, therefore, considered whether installment purchase transactions
similar to those utilized by the Divisions of Purchasing and ADP to acquire
data processing equipment or other personal property pass constitutional muster
under Colo. Const. art. XI, sec. 3.(fn1)
C.R.S. 1973, 23-5-104 provides:
The governing board of any state educational institution shall
not create a mortgage upon any property belonging to the institution, nor shall
the state be obligated for the purpose of securing the repayment of any funds
advanced pursuant to the provisions of sections 23-5-102 to 23-5-105 or the
interest on such funds.
On its face, the first clause of this statute appears flatly to
forbid governing boards to create mortgages upon institutional property, while
its second clause disclaims the state's obligation to secure repayment of funds
advanced pursuant to C.R.S. 1973, 23-5-102 to 23-5-105 and the interest on such
funds. C.R.S. 1973, 23-5-102, -103 and - 105, in turn, empower institutional
governing boards to issue and sell tax exempt revenue bonds or comparable debt
obligations to finance certain types of income producing auxiliary facilities
on their campuses.(fn2) The question to be decided is whether the prohibition
against creating mortgages upon institutional property set forth in the first
clause of section 23-5-104 is, as it appears to be, unqualified, or whether it
applies only to mortgages pledged as additional security for the revenue bonds
or other obligations issued pursuant to sections 23-5-102, -103 and -105.
The statutes now codified as C.R.S. 1973, 23-5-102 to 23-5-105
were first enacted by the Thirty-ninth General Assembly in 1953 as H.B. 234:
"An Act to Enable State Educational...
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