Attorney General's Opinion
Attorney General, Richard Blumenthal
July 26, 2006
Robert L. Genuario
Secretary
Office of Policy and Management
450 Capitol Avenue
Hartford, CT 06106
Dear Mr. Genuario:
This letter is in response to your request for a formal legal opinion as to whether $2.8 million designated for non-emergency medical transportation and vision benefits under the State-Administered General Assistance program (“SAGA”) in the recently approved state budget may be spent without further legislative action.1 In particular, you question whether
The SAGA program is administered by the Department of Social Services in order to provide financial assistance to individuals who are unable to support themselves. See
Medical services under the program shall be limited to the services provided by a federally qualified health center, hospital, or other provider contracted for the program at the commissioner’s discretion because of access needs. The commissioner shall ensure that ancillary services and specialty services are provided by a federally qualified health center, hospital, or other providers contracted for the program at the commissioner’s discretion. Ancillary services include, but are not limited to, radiology, laboratory, and other diagnostic services not available from the recipient’s assigned primary care provider, and durable medical equipment. Specialty services are services provided by a physician with a specialty that are not included in ancillary services. In no event shall ancillary or specialty services provided under the program exceed such services provided under the state-administered general assistance program on
In analyzing a statute, the “fundamental objective is to ascertain and give effect to the apparent intent of the legislature.” Manifold v. Ragaglia, 272
Looking at the language of section 17b-192, there is no explicit mention of non-emergency medical transportation or vision care. As you note, however, it is possible that such services fall within the scope of ancillary or specialty services.3
Assuming arguendo that non-emergency medical transportation and vision care fall within the scope of ancillary or specialty services, there is a conflict between the language of section 17b-192 and the provisions of the budget funding non-emergency medical transportation and vision care benefits. Under this interpretation, the conflict would arise because the provision of non-emergency medical transportation and vision care benefits would cause the ancillary and/or specialty services provided under SAGA to exceed the services that were provided under the program on
Under well-settled rules of statutory construction, “[t]he legislature is always presumed to be aware of all existing statutes,” Wiseman v. Armstrong, 269
Applying these principles in Patterson v. Dempsey, 152 Conn. 431 (1965), the
The same analysis applies to the present situation and compels the same conclusion. Because “[o]ne legislature cannot control the exercise of the powers of a succeeding legislature,” Patterson, 152 Conn. at 439, and “later enactments by the General Assembly are presumed to repeal earlier inconsistent ones to the extent that they are in conflict,” Southern Connecticut Gas Co., 191 Conn. at 521, we conclude that the legislature’s designation of $2.8 million to provide non-emergency medical transportation and vision benefits to SAGA recipients is effective, notwithstanding the language of Conn. Gen. Stat. § 17b-192.
This conclusion is further supported by the rule of statutory construction that the legislature is presumed not to enact futile or meaningless legislation. Quarry Knoll II Corp. v. Planning and Zoning Commission, 256
Very truly yours,
RICHARD BLUMENTHAL
ATTORNEY GENERAL
Jane R. Rosenberg
Assistant Attorney General
1 The budget to which you are referring is set forth in 2006 Conn. Pub. Acts No. 06-186. Page 248 of the “Connecticut State Budget 2005-2007 Revisions: A Summary of Revenue Appropriations and Bonds Authorized by the General Assembly,” prepared by the Connecticut General Assembly Office of Fiscal Analysis, contains the following statement: “The legislature provides an additional $5.1 million for SAGA medical services. Of this, $2.6 million is intended to pay federally qualified health centers (FQHC’s) 95% of their patients’ costs. The current SAGA rates only cover 80% of costs. The remaining funds are to allow CHN and the FQHC’s to provide limited, managed non-emergency transportation and vision care benefits.” (emphasis added). This accounts for $2.5 million of the $2.8 million to which you refer. Although we are uncertain where the additional $300,000 is referenced, the precise amount of funding allocated for the benefits in question is not significant to the resolution of the question that you present.
2 The highlighted language was added to
3 Although non-emergency medical transportation is not a specialty service because it is not a “service[ ] provided by a physician with a specialty,” it might possibly be considered an ancillary service because such services “include, but are not limited to” the services listed in the statute. See