Richard G. Gay
Law Office of Richard G. Gay, L.C.
Berkeley Springs, West Virginia
Attorney for the Plaintiff
Peter L. Chakmakian
Charles Town, West Virginia
Attorney for the Defendant
JUSTICE McHUGH delivered the Opinion of the Court.
Upon delivery of any will to the county clerk, the county clerk is required under the provisions of W. Va. Code, 41-5-2 [1931] to notify by mail or otherwise the beneficiaries named under the will. Notification "by mail or otherwise" shall be construed as certain to ensure actual notice. Upon receiving such actual notice, constitutional due process requirements are satisfied because beneficiaries have notice that the testator has died and that probate proceedings will be instituted. Neither due process nor any statutory provision requires that the beneficiaries must also be given actual notice of the county commission's refusal to probate the will under W. Va. Code, 41-5-10 [1923].
McHugh, Justice:
This matter is before this Court upon two certified
questions by the Circuit Court of Jefferson County as to whether
due process requires that notice be given to the beneficiary named
in a recorded will that has been refused probate, and if so,
whether the failure to give such notice tolls the statute of
limitations until the beneficiary has notice that the will was
refused probate.
2. If so, does the failure to give such
notice operate so as to toll the statutes of
limitation [W. Va. Code, 41-5-7 and W. Va.
Code, 41-5-11] until such notice or knowledge
of such refusal to admit to probate is gained
by said beneficiary?
The circuit court answered both of these questions in the
affirmative.
Upon delivery of the will to the clerk, the clerk is
required to "notify by mail or otherwise the executor and the
beneficiaries named in the will, of such delivery[.]" W. Va. Code,
41-5-2 [1931]. The will remains in the clerk's office until
proceedings may be had for the probate of the will. W. Va. Code,
41-5-2 [1931] and W. Va. Code, 41-5-3 [1923].
There are two procedures for probate set forth in chapter
41, article 5 of the West Virginia Code.See footnote 5 W. Va. Code, 41-5-5
[1923] provides for probate in solemn form, which requires that
notice be given to all heirs and persons having interest in the
will.See footnote 6 Barone v. Barone, 170 W. Va. 407, 408, 294 S.E.2d 260, 261
(1982). The second procedure, which is found under W. Va. Code,
41-5-10 [1923], is referred to as ex parte.See footnote 7 Under the ex parteprocedure, the county commission, or the clerk in vacation of the
county commission, may proceed to hear and determine whether to
admit or refuse a will to probate without giving notice of its
action.See footnote 8 W. Va. Code, 41-5-10 [1923] provides in relevant part:
At, or at any time after, the production
of a will, any person may move the county
[commission] having jurisdiction, or the clerk
thereof in the vacation of the [commission],
for the probate of such will, and the
[commission] or the clerk thereof, as the case
may be, may, without notice to any party,
proceed to hear and determine the motion and
admit the will to probate, or reject the same.
The probate of, or refusal to probate, any
will, so made by the clerk, shall be reported
by him to the [commission] at its next regular
session, and, if no objection be made thereto,
and none appear to the [commission], the
[commission] shall confirm the same. . . .
[T]he only notice to the parties interested or
process against them required in such case
shall be upon the notice of contest.
(emphasis added). Any person who is aggrieved by an order of the
county commission admitting or refusing to admit any will to
probate may, within eight months of the order, appeal it to the
circuit court under W. Va. Code, 41-5-7 [1923].See footnote 9 Furthermore, any
person who is interested who was not a party to the proceeding for
probate ex parte may file a "bill in equity"See footnote 10 to impeach or
establish a will within two years after the date of the county
commission's order admitting or refusing the will to probate. W.
Va. Code, 41-5-11 [1923].See footnote 11
Two decisions issued by the Supreme Court of the United
States, Mullane v. Central Hanover Bank & Trust Co., 339 U.S. 306,
70 S. Ct. 652, 94 L. Ed. 865 (1950), and Tulsa Professional
Collection Services v. Pope, 485 U.S. 478, 108 S. Ct. 1340, 99 L.
Ed.2d 565 (1988),See footnote 12 are relevant to our determination of what type
of notice is required to be given beneficiaries. In Mullane the
court held that a New York statute, permitting a common trust fund
trustee to secure judicial approval of its accounts in a proceeding
which only gave notice to trust beneficiaries by publication, did
not satisfy due process requirements. Mullane established that
state action affecting property generally requires notice of such
action.See footnote 13 In determining that known beneficiaries of the trust
were entitled to personal notice, the court explained the type of
notice required by due process:
An elementary and fundamental requirement
of due process in any proceeding which is to
be accorded finality is notice reasonably
calculated, under all the circumstances, to
apprise interested parties of the pendency of
the action and afford them an opportunity to
present their objections. . . . The notice
must be of such nature as reasonably to convey
the required information, . . . and it must
afford a reasonable time for those interested
to make their appearance[.]
339 U.S. at 314, 70 S. Ct. at 657, 94 L. Ed. at 873 (emphasis added
and citations omitted). The Mullane court, however, qualified that
it had "not committed itself to any formula . . . determining when
constructive notice may be utilized or what test it must meet."
Id.
More recently, in Tulsa Professional Collection Services,
Inc. v. Pope, the Supreme Court extended the notice requirements of
the Due Process Clause of the Fourteenth Amendment, as interpreted
in Mullane, to creditors of a decedent's estate who are known or
reasonably ascertainable.See footnote 14 The court stated that "[a]s a class,
creditors may not be aware of a debtor's death or of the
institution of probate proceedings." 485 U.S. at 489, 108 S. Ct.
at 1347, 99 L. Ed. 2d at 578. The court believed that there was a
"substantial practical need" to give actual notice to known
creditors because an executor or an executrix with a beneficial
interest in the estate may not be inclined "to call attention to
the potential expiration of a creditor's claim." Id.
In responding to the first certified question, we are
mindful of the due process concerns expressed by the Supreme Court
in Mullane and Pope. Upon the death of the testator, any person
having custody of the testator's will is required by statute to
deliver the will to the county clerk or to the executor, who shall
offer it for probate or deliver it to the clerk. W. Va. Code, 41-5-1 [1931]. Upon delivery of the will to the clerk, the clerk is
then required, under W. Va. Code, 41-5-2 [1931], to give notice, by
mail or otherwise, to the executor and the beneficiaries named in
the will. We emphasize that the delivery of the will to the county
clerk triggers the notice requirements. Upon receiving such actual
notice, beneficiaries have notice that the testator has died, and
that probate proceedings will be instituted. Beneficiaries, who
have actual notice of the delivery of the will to the county clerk,
and thus notice of the testator's death and the institution of
probate proceedings, have sufficient information from which they
may inquire as to the status of the probate proceedings. Clearly,
because beneficiaries have a beneficial interest in the estate,
they will inquire as to the outcome of the probate proceedings. We
believe the notice requirements under W. Va. Code, 41-5-2 [1931]
satisfy the due process concerns raised by the Supreme Court in
Mullane and Pope.
Furthermore, we do not believe that either due process or
W. Va. Code, 41-5-10 [1923] requires that beneficiaries, who have
been given actual notice under W. Va. Code, 41-5-2 [1931], must
also be given actual notice that the will was refused probate by
the county commission. Our conclusion that beneficiaries are not
entitled as a matter of right to actual notice that a will has been
refused probate is based not only upon due process requirements,
but also upon certain fundamental rules of statutory construction.
W. Va. Code, 41-5-10 has not been amended by the
legislature since 1923. In 1931, eight years after the last
amendment to W. Va. Code, 41-5-10, the legislature enacted the
notice requirements of W. Va. Code, 41-5-2.See footnote 15 Although the
legislature was aware that W. Va. Code, 41-5-10 [1923] provided
that no notice was required, it enacted a statute requiring actual
notice to be given to beneficiaries when any will is delivered to
the county clerk. Moreover, the legislature did not add any cross-reference to W. Va. Code, 41-5-2 indicating that its provisions did
not apply to wills probated under W. Va. Code, 41-5-10.
Certain rules of statutory construction are relevant
here. To begin with, there is a presumption that the legislature,
when it enacts legislation, is familiar with its prior enactments.
State ex rel. Foster v. City of Morgantown, No. 21671, ___ W. Va.
___, ___ S.E.2d ___ (June 10, 1993); Hudok v. Board of Education,
187 W. Va. 93, 415 S.E.2d 897 (1992). Rules of statutory
construction require that courts give meaning to all provisions in
a statutory scheme and apply them in accordance with the objects of
the general system of the law of which they form a part. We
explained this rule in syllabus point 1 of State ex rel. Simpkins
v. Harvey, 172 W. Va. 312, 305 S.E.2d 268 (1983):
'A statute should be so read and applied
as to make it accord with the spirit, purposes
and objects of the general system of law of
which it is intended to form a part; it being
presumed that the legislators who drafted and
passed it were familiar with all existing law,
applicable to the subject matter, whether
constitutional, statutory or common, and
intended the statute to harmonize completely
with the same and aid in the effectuation of
the general purpose and design thereof, if its
terms are consistent therewith.' Syllabus
Point 5, State v. Snyder, 64 W. Va. 659, 63
S.E. 385 (1908).
Clearly, the legislature recognized that beneficiaries
were entitled to actual notice of the delivery of a will to the
county clerk for probate and as a result, enacted W. Va. Code, 41-5-2 [1931]. The language in W. Va. Code, 41-5-10 which states that
the county commission may hear and determine probate without giving
notice is not in conflict with the notice requirements of W. Va.
Code, 41-5-2 for one simple reason: the actual notice given to
beneficiaries upon delivery of the will obviates the need for the
county commission to give actual notice to beneficiaries of its
action. Therefore, the two statutory provisions may be read and
applied in accord with the purposes and objectives of the probate
laws, and with the requirements of due process.
Therefore, in response to the first certified question,
we hold that upon delivery of any will to the county clerk, the
county clerk is required under the provisions of W. Va. Code, 41-5-2 [1931] to notify by mail or otherwise the beneficiaries named
under the will. Notification "by mail or otherwise" shall be
construed as certain to ensure actual notice. Upon receiving such
actual notice, constitutional due process requirements are
satisfied because beneficiaries have notice that the testator has
died and that probate proceedings will be instituted. Neither due
process nor any statutory provision requires that the beneficiaries
must also be given actual notice of the county commission's refusal
to probate the will under W. Va. Code, 41-5-10 [1923].
As a final matter, we point out that the facts before the
circuit court in this case are unusual. Ms. Cary, who raises the
issue of the failure to give notice, is not only a beneficiary
under the 1980 will but the person who submitted it to probate. We
question the merit of her assertion that she was deprived of her
right to due process because, as the beneficiary and the person who
submitted the will to probate, she clearly had notice of the
pendency of the ex parte probate proceedings.
The circuit court certified questions to us following a pretrial
conference, and the factual record has not been fully developed.See footnote 18
Therefore, in addition to the legal issues, all of the factual
matters, including those discussed in this opinion, must be
resolved initially by the circuit court. This Court has
consistently recognized that "upon receiving certified questions
[from a circuit court] we retain some flexibility in determining
how and to what extent they will be answered." City of Fairmont v.
Retail, Wholesale, and Dept. Store Union, AFL-CIO, 166 W. Va. 1, 3-4, 283 S.E.2d 589, 590 (1980), citing West Virginia Water Service
Co. v. Cunningham, 143 W. Va. 1, 98 S.E.2d 891 (1957). See also
Kincaid v. Mangum, No. 21505, ___ W. Va. ___, ___ S.E.2d ___ (June
10, 1993).
case dismissed.
and depends entirely upon the local law; for it is that law which confers the power of making wills, and prescribes the conditions upon which alone they may take effect[.]" Ellis v. Davis, 109 U.S. 485, 497, 3 S. Ct. 327, 334, 27 L. Ed. 1006, 1010 (1883). Thus, because our notice requirements for probate proceedings are statutory, any change in the probate laws must come from the legislature. These particular probate statutes have not been amended by the legislature for over fifty years.
The county [commission], sitting in a
regular or special session, shall hear and
determine all proceedings to admit a will to
probate in solemn form. Upon or at any time
after the production of a will, any person may
offer the will for probate in solemn form by
filing in the county [commission] having
jurisdiction a petition duly verified by
affidavit, stating when and where the testator
died, his last place of residence, the nature
of his estate, the relationship to decedent
and place of residence of each of his heirs at
law and distributees, surviving wife or
husband, and each of the beneficiaries of the
will. Process shall issue against and be
served upon all persons interested in the
probate of the will to appear at a day named,
and show cause why the will should not be
admitted to probate.
Parker, Page on the Law of Wills, § 26.38 (1961); 95 C.J.S. Wills
§ 318 (1957).
The following is a concise explanation of the history of
probate in common form:
In seventeenth century England, the
ecclesiastical courts had jurisdiction over
the administration of the personal estates of
deceased persons. Under the practice of those
courts, the Ordinary possessed authority to
probate wills[.] . . . A will could be
admitted to probate before the Ordinary either
in common form or solemn form. Common form
was an ex parte proceeding, consisting of the
executor's presentation of the will and his
testifying that it was duly executed by the
decedent. No notice was given of the
proceeding and it was essentially an
administrative function, speedily
accomplished. English law provided a thirty
year period during which the probate could be
contested by interested persons. When a
caveat was presented, the probate of the will
was contested in a formal hearing in solemn
form wherein citations were issued to heirs,
legatees, and devisees. This procedure was
carried to the American colonies and was
employed in the system of probate courts which
came to be established in the states. The
distinction between probate in common form and
solemn form has been preserved in several
states up to the present day and differs
little from the procedures before the
Ordinaries in England.
Nolan W. Carson, Comment, Probate Proceedings--Administration of Decedents' Estates--The Mullane Case and Due Process of Law, 50 Mich. L. Rev. 124, 129-30 (1951) (footnotes omitted).
Any person feeling himself aggrieved by
any [order] or judgment of the county
[commission] admitting or refusing to admit
any will to probate may, within eight months,
. . . file his petition in the circuit court
of such county, or before the clerk thereof,
appealing to the circuit court from such order
or judgment[.]
There may still be an appeal to the circuit court under W. Va. Code, 41-5-7 [1923] even in an ex parte probate procedure where there has been no appearance or contest. In Re Winzenrith's Will, 133 W. Va. 267, 55 S.E.2d 897 (1949).
After a judgment or order entered . . .
in a proceeding for probate ex parte, any
person interested who was not a party to the
proceeding, or any person who was not a party
to a proceeding for probate in solemn form,
may proceed by bill in equity to impeach or
establish the will, on which bill, if required
by any party, a trial by jury shall be
ordered, to ascertain whether any, and if any,
how much, of what was so offered for probate,
be the will of the decedent. . . . [I]f the
judgment or order was entered by the county
[commission] and there was no appeal
therefrom, such bill shall be filed within two
years from the date of such order of the
county [commission]. If no such bill be filed
within the time prescribed, the judgment or
order shall be forever binding.
(emphasis added).
to creditors' claims against an estate, and enacted a few more amendments to that article in 1988, it has left article five of chapter forty-one virtually untouched since 1931. The only exceptions being that it added W. Va. Code, 41-5-20 in 1951, and amended W. Va. Code, 41-5-12 in 1972.
either impeach or appeal, thirteen years have passed since the 1980 will was submitted by Ms. Cary to probate. This raises the issue of whether the doctrine of laches applies. See Laurie v. Thomas, 170 W. Va. 276, 294 S.E.2d 78 (1982); Hoffman v. Wheeling Savings & Loan Ass'n, 133 W. Va. 694, 57 S.E.2d 725 (1950).