Opinion
No. 35136.
January 18, 1943. ON SUGGESTION OF ERROR.
1. INTEREST
"Interest" may be amount charged or contracted for as rental or compensation for use of money or amount chargeable as additional recompense for detention of a debt.
2. INTEREST.
"Interest," as rental or compensation for use of money, is usually provided for and fixed by contract or statute, but interest chargeable as additional recompense for detention of a debt may be included as a factor in estimating extent of damages for breach of contract.
3. APPEAL AND ERROR.
Where interest against State Highway Commission was allowed in master's report, adopted by trial court, as additional damages for commission's breach of contract, so as to take into account added loss incident to its detention and preserve adequacy of compensation against depreciation by continued denial of its use to person awarded damages, commission's contention, on suggestion of error, that interest was not recoverable against it as instrumentality of state need not be considered by Supreme Court.
4. DAMAGES.
In action for unliquidated damages for breach of contract, interest on amount of damages established may be allowed in proper case, not as interest eo nomine, but as added compensation.
5. STATES.
Interest is allowable against State Highway Commission as added compensation constituting proper incident of damages for its breach of contract.
6. HIGHWAYS. States.
The State Highway Commission's functions of constructing and maintaining highways invest it with character of "private corporation" to such extent as to subject it to liability for all compensatory damages, established as result of its breach of contract, and for costs in suit for such damages (Code 1930, sec. 5006).
APPEAL from the chancery court of Hinds county, G.Q. WHITFIELD, Special Chancellor.
Greek L. Rice, Attorney-General, by Russell Wright, Assistant Attorney-General, and Green Green and E.R. Holmes, Jr., all of Jackson, for appellant, on suggestion of error.
The county, a local subdivision of the sovereignty, cannot have the burden of interest imposed on it, except by statute either expressly authorizing such burdens or by clear and necessary implication warranting it.
Anderson v. Isaquena County, 75 Miss. 873, 23 So. 310; Josselyn v. Stone, 28 Miss. 753; State Highway Commission v. Mason, 192 Miss. 576, 4 So.2d 345; Board of Supervisors of Warren County v. Klein, 51 Miss. 807; Board of Supervisors of Clay County v. Board of Supervisors of Chickasaw County, 64 Miss. 534, 1 So. 753; Moore v. Tunica County, 143 Miss. 839, 108 So. 900; State v. Woodruff et al., 170 Miss. 744, 150 So. 760; City of Natchez v. McGehee, 157 Miss. 225, 127 So. 902; Boston Sand Gravel Co. v. United States, 73 L.Ed. 170; Jas. Shewan Sons v. United States, 65 L.Ed. 527.
It is the settled doctrine that the general words of a statute do not include the state, or affect her rights, unless she be specially named, or it be clear and undisputable from the act that it was intended to include the state.
Coleman v. Whipple, 191 Miss. 287, 2 So.2d 566.
It is undoubtedly the general rule that, where the effect of a statute is to restrict the rights of, or impose liability upon, the state or its political subdivisions, it will be held to be inapplicable to them, unless they are included expressly or by necessary implication.
City of Jackson v. State, 156 Miss. 306, 126 So. 2, 4.
Appellant suggests a re-examination of the question of liability of the State Highway Commission for the extra compensation allowed by the trial court and affirmed by us. 10 So.2d 453. It is argued that to allow a recovery of interest and costs against appellant as an instrumentality of the state is to ignore prior decisions including Josselyn v. Stone, 28 Miss. 753; Board of Supervisors of Warren County v. Klein, 51 Miss. 807; Board of Supervisors of Clay County v. Board of Supervisors of Chickasaw County, 64 Miss. 534, 1 So. 753; Anderson v. Board of Sup'rs of Issaquena County, 75 Miss. 873, 23 So. 310; Moore v. Tunica County, 143 Miss. 839, 108 So. 900; City of Natchez v. McGehee, 157 Miss. 225, 127 So. 902; State Highway Commission v. Mason, 192 Miss. 576, 4 So.2d 345, 6 So.2d 468; Boston Sand Gravel Co. v. United States, 278 U.S. 41, 49 S.Ct. 52, 73 L.Ed. 170; and Shewan Sons v. United States, 267 U.S. 86, 45 S.Ct. 238, 65 L.Ed. 527.
Interest may be of two kinds, that which is charged or contracted for as rental or compensation for the use of money, and that which is chargeable as additional recompense for detention of a debt. The former is usually provided for and fixed by contract or statute; the latter may be included as a factor in estimating the extent of damages in breach of contract. 33 C.J. 183; 30 Am. Jur. Interest, Sec. 8; 25 C.J.S., Damages, sec. 52, p. 537. It is not necessary for us, therefore, to respond to appellant's contention in view of the fact that the allowance designated in the report of the master and adopted by the trial court was added by way of additional damages so as to take into account the added loss incident to its detention and to preserve the adequacy of its compensation against depreciation by a continued denial of its use to appellee.
This court has always recognized the right in proper cases to allow interest, on claims for unliquidated damages, on the amount of damages established upon breach of contract. Foster Co. v. Fulton Bag Cotton Mills, 159 Miss. 217, 131 So. 415. See also Illinois Cent. R. Co. v. Haynes, 64 Miss. 604, 1 So. 765; Miller v. Robertson, 266 U.S. 243, 45 S.Ct. 73, 69 L.Ed. 265; Clarke Construction Co. v. United States, 7 Cir., 290 F. 192. Such allowances are not of interest eo nomine but as added compensation.
Such added compensation being a proper incident of damages in the case of contracts between individuals it becomes allowable likewise as against the appellant here. See former opinion, 183 Miss. 428, 184 So. 456. Regardless of whether the state eo nomine is subject to suit or liable for interest as of course, the State Highway Commission has been established as a body corporate subject to suit (Code 1930, sec. 5006), and has in effect been capitalized by grant of extensive funds for the purpose of constructing and maintaining roads and highways throughout the state. These functions, together with its other multiple privileges and responsibilities, regardless of whether they divest the Commission of such attributes of sovereignty as are alleged still to inhere in it, operate to invest it with the character of a private corporation to the extent that it is subject to liability for all compensatory damages established as a result of its breach of contract. Its liability for costs in such suits is equally clear. The implications of our former opinions ( 183 Miss. 428, 184 So. 456; and 10 So.2d 453) are thus made definite. See Leflore County v. Allen, 80 Miss. 298, 31 So. 815; Standard Oil Co. of N.J. v. United States, 267 U.S. 76, 45 S.Ct. 211, 69 L.Ed. 519; State ex rel. State Highway Commission v. Bates, 317 Mo. 696, 296 S.W. 418; Arkansas State Highway Commission v. Dodge, 181 Ark. 539, 26 S.W.2d 879; 59 C.J. 313.
We do not allow the so-called interest as of course but affirm the allowance thereof by the trial court as a proper element of such compensatory damages.
Suggestion of error overruled.